森林抚育补贴政策在天保工程中的实施效果

Implementation Effect of Forest Tending Subsidy Policy in Natural Forest Protection Project

利用2014—2019年黑龙江省中央财政林业补助政策监测数据,分析黑龙江省重点国有林区森林抚育补贴政策在天保工程期间的运行情况、实施成效及问题。结果表明:2019年,黑龙江省重点国有林区的森林抚育补贴标准为1800元/hm^2、森林抚育对象为国有林中的幼龄林和中龄林;森林抚育作业的参与主体以林区职工为主;参与方式主要为林场组织;森林抚育补贴政策具有提高森林资源质量、促进林分生长、提供就业岗位、支撑森工企业职工工资支出等成效,但同时存在促进就业和增加收入的作用有限、补助标准低且日工资低、参加森林抚育工作的劳动力年龄偏大、职工不签合同的比例较高等问题。基于此,从建立天然林管护站、推动补贴政策与扶贫相结合、促进补贴标准扩面提标、提升劳动力素质4个方面提出改进意见,促进森林抚育补贴政策,实现生态、经济、社会效益的协同发展。

⑴Background——Since 2009,the State Forestry Administration and the Ministry of Finance have carried out pilot work of tending subsidies aimed at improving forest quality.To grasp the implementation of the current forest products tending subsidy policy in Heilongjiang Province and put forward suggestions for policy improvement is of great significance to the protection of ecological resources and the improvement of people's livelihood.⑵Methods——The survey methods use household interviews,questionnaires and symposiums to investigate the key state-owned forest areas.And the survey data are mainly at the household level.By employing the method of descriptive analysis,this paper analyzes the operation,effectiveness and existing problems of the forest tending subsidy policy of the central finance of Heilongjiang Province.With the method of comparative analysis,the effects of forest tending subsidy policies in 2013 and 2018 were compared vertically.⑶Results——The forest tending subsidy policy in Heilongjiang Province has achieved remarkable results in four aspects:improving the quality of forest resources,promoting the growth of forest stand,providing jobs and supporting the wage expenditure of forest industry enterprises.From 2016 to 2019,the cumulative growth rate of almost all operation areas was 0.5%~13.5%higher than that of the control area.According to the survey of sample households,the coverage of forest tending subsidy policy reached 26.3%in 2018,and the forest tending subsidy policy solved the employment problem of some workers.However,the forest tending subsidy policy also has some problems,such as the promotion of employment,the limited role of raising income,the low standard of forestry subsidy and the low daily wage,the age of the labor force and the high proportion of workers not signing contracts.The result of participation in forest tending to increase the family income of employees is not statistically significant.The workers are less satisfied with the salary of their company.The daily wage of workers who participate in forest tending was always lower than the average daily wage of urban non-private workers from 2015 to 2018.And the labor force participating in forest tending work is too old.76.7%of workers in key state-owned forest areas in Heilongjiang province were over the age of 40 in 2018.In addition,a higher proportion of workers who participate in forest tending do not sign contracts.51.9%of the sample households that participated in afforestation or forest tending said they had not signed a written contract with the enterprises in key state-owned forest areas.⑷Conclusions and Discussions——Forest tending subsidy policy has positive effects on the development of forest resources and the improvement of people's livelihood in key state-owned forest areas.The subsidy policy of forest tending has significantly improved the quality and quantity of forest resources,provided employment positions for surplus forest workers,and alleviated the burden of each forestry bureau to pay salaries to employees.However,in the process of implementing the forest tending subsidy policy in key state-owned forest areas,there are still some problems,such as the limited provision of jobs,the low standard of subsidy,the serious aging of workers and the low proportion of signing written contracts.Based on the above conclusions,four suggestions are put forward:first,it is required to build a natural forest management and protection station to adapt to the new management system of natural forest protection and restoration.Second,the forest tending subsidy policy should focus on the management of relative poverty and target the target population.Third,the forestry subsidy policy should be expanded.Fourth,it is necessary to build a high-level team of natural forest rangers.