Goals for public participation implied by sustainable development, and the preparatory process of the Finnish National Forest Programme

Since the UNCED in 1992, National Forest Programmes (NFP) have been widely acknowledged as a means to implement internationally agreed upon sustainability goals for forest management. However, national forest programmes are prepared and implemented in national political, social and ecological contexts, which vary significantly between countries. Finland has a long tradition of “forest programming”, starting from the 1950s, which has contributed to the institutions and culture of preparing such programmes. These programmes have traditionally been prepared in governmentally facilitated committees and working groups in close collaboration with interest groups and representatives of research and administration. In this paper, we develop goals for participation in a policy decision-making process. These goals, based on sustainable development definitions and policies, include: (1) generating new relevant information, (2) incorporating all relevant interests, and (3) contributing to reaching public agreement. Demands for increasing public awareness, inclusion of different views as well as respect for procedural citizen rights were obvious expectations also behind Finlandʹs National Forest Programme 2010 that was made in 1999. The new forms of participation applied in the already well-developed interest-group-integrating policy preparation system provided an opportunity to take the participation goals more seriously. According to our analysis, the arguments arising from the new forms of participation were strongly in line with those already previously present in Finnish forest policy discourse, and the new forms of participation functioned merely as legitimating and awareness raising systems.