近20年我国森林碳汇政策演变和评价

Evolution and assessment of forest carbon sink policy over the past 20 years

巩固提升生态系统碳汇能力是碳达峰十大行动计划之一,是助力碳中和目标实现、应对气候变化的重要举措。森林作为陆地生态系统中最大的碳库,是我国当前碳汇政策的主体。研究梳理了2000年以来我国森林碳汇有关政策的发展演变历程,并从生态政策、经济政策和保障体系建设三个维度分析和评价了政策成效与存在问题,以期为构建适应“双碳”目标的碳汇政策体系提供决策依据。研究结果表明:(1)从生态政策看:天然林保护、退耕还林还草和“三北”防护林三大林业工程增加了我国森林面积和蓄积量,显著提升了森林碳汇增量,但森林可持续经营管理体系尚未健全,需进一步精准提升森林质量,健全成果长效巩固机制,增强森林固碳能力;(2)就经济政策而言:我国已形成多层级林业碳汇交易市场,有效推动林业碳汇项目建设,同时各类金融产品的开发和补贴政策的实施为碳汇项目提供了多元化资金支持体系,但整体融资规模和补贴范围有限,需拓宽融资渠道,强化资金支持;(3)在保障体系建设方面:我国森林碳汇保障体系处于重点建设阶段,需完善森林碳汇有关法律法规、加快各类森林技术研发与标准制定,保障我国森林碳汇政策平稳运行。

Consolidation and enhancement of ecosystem carbon sink capacity is one of the ten action plans for carbon peaking,and also an important initiative to help achieve the goal of carbon neutrality and cope with climate change.As the largest carbon pool in the terrestrial ecosystems,forests are the main body of China's carbon sink policy.This paper compares the development and evolution of China's forest carbon sink policies since 2000,and evaluates the policy effectiveness and problems from three dimensions:ecological policy,economic policy and guarantee system construction.The purpose is to provide a basis for decision making to build the carbon sink policy system that meets the"double carbon"target.The results show that:(1)from the perspective of ecological policies,three major forestry projects,including Natural Forest Protection Project,the Grain for Green Program,and Three-North Shelter Forest Program,have increased the area and accumulation of forests in China,and significantly enhanced the increment of forest carbon sinks.But the sustainable forest management system has not been improved,so it is necessary to further improve the quality of forests and the long-term consolidation mechanism.(2)In terms of economic policies,China has formed multi-level forestry carbon sink trading markets,and promoted effectively the construction of forestry carbon sink projects.The development of various financial products and the implementation of subsidy policies have provided a diversified financial support system.But the overall financing scale and subsidies scope are limited,and it is necessary to broaden the financing channels and strengthen the financial support.(3)In terms of guarantee system construction,China's forest carbon sink guarantee system is in the key construction stage,and it is necessary to improve forest carbon sink-related laws and regulations,accelerate various forest technologies research,and guarantee the smooth operation of China's forest carbon sink policy.