新中国造林绿化政策的历史演进

The Historical Evolution of Afforestation Policies in the People's Republic of China

在全面研究新中国成立以来生态经济社会与林业发展的基础上,运用历史学方法分析中国造林绿化政策的演进历程。研究表明:新中国成立以来造林绿化政策演进历程可分为全民造林、工程造林、天保退耕、系统治理4个阶段;造林绿化政策目标由以经济建设为主、经济与生态兼顾逐步转向以生态建设为主、服务生态文明;在全民造林、工程造林、天保退耕这3个阶段中分别形成1次造林绿化高潮。造林绿化政策应结合社会经济实际不断调整,实施生态工程是落实造林绿化政策的有效途径,科学系统治理与全要素投入是造林绿化政策现代化的重要保障。因此,为了解决森林总量不足、林地布局不佳、质量效益不高等问题,首先应加快科学造林绿化进程,推动新的造林绿化高潮;其次要利用林水关系规律,调整优化森林格局,推动东、中、西部经济生态协调发展;最后要坚持系统治理、推进林长制和科学绿化,促进造林绿化高质量发展。

⑴Background——It is of great significance to understand the afforestation policies in various stages and the reasons for their changes,and to sum up experiences and draw lessons from them,which will promote the greening of land and green development,improve ecological security and people's well-being in the new era.⑵Methods——The policies and regulations on afforestation were collected through field investigations,interviews and files access,and then the evolution logic between policies was explored by using historical method.⑶Results——Since the founding of the People's Republic of China in 1949,afforestation has gone through four stages:the period of afforestation by the whole people to serve the national construction(1949-1978),the period of afforestation by the Three-North shelter forest program to serve the reform and opening up(1978-1998),the period of natural forest protection and returning farmland to forest to serve the ecological construction(1998-2012)and the period of systematic governance to serve the ecological civilization(2012-2022).In the past 73 years,there have been three afforestation upsurges:the first upsurge was in 1956-1959,the second upsurge was in 1981-1986,and the third upsurge was in 2000-2005.The total forest coverage increased by 15.42%,and the total forest stock increased by 7.893 billion m 3.From 1949 to 1978,the objective of afforestation was to serve the national construction,and its focus was in the areas severely affected by storms,sand,floods and droughts,in order to safeguard farmland and increase grain output.The forest coverage increased by 3.4 percentage points and the forest stock decreased by 1.34 billion m 3.Since the reform and opening up,China attached equal importance to economic development and ecological protection,launched large-scale shelterbelt projects in ecologically fragile areas,and developed economic forests and timber forests in areas with good hydrothermal conditions.The forest coverage increased by 4.55 percentage points and the forest stock increased by 1.01 billion m 3.At the turn of the century,China transformed its economic development mode to reduce resource consumption and promoted the sustainable development of forestry through such measures as returning farmland to forests,natural forest protection projects,classified management and ecological compensation.The forest coverage increased by 5.08 percentage points and the forest stock increased by 5.06 billion m 3.Since the 18th CPC National Congress,concepts such as systematic governance,the“Two Mountains Theory”and the life community have been developed,some key projects have been continuously promoted,and more attention has been paid to urban and rural greening,carbon sinks trading,rest and health,forest culture,etc.The forest coverage increased by 2.39 percentage points and the forest stock increased by 3.063 billion m 3.⑷Proposals——First,we should take into account the actual social,economic and ecological conditions,keep pace with The Times,and constantly adjust the afforestation policy.Second,the ecological projects are an effective way to implement afforestation policies.We should actively carry out a national survey of forest and grass resources,make overall planning and develop new forestry ecological projects according to local conditions,and consolidate and expand the achievements of national afforestation.Third,relying on science and technology,systematic governance and total factor input are important guarantee for the modernization of afforestation policies.Therefore,in order to solve the problems of insufficient total forest,poor forestland layout and low quality and efficiency,the following policy recommendations are put forward:First,speed up the scientific afforestation process,set off a new afforestation upsurge.Second,make use of the law of the relationship between forest and water,adjust and optimize the forestland layout,and promote the coordinated economic and ecological development of the eastern,central and western regions.Third,adhere to systematic governance,promote the forest chief system and scientific afforestation,in order to promote the high-quality development of forestry.