recent experience in china’s state forestry areas: a reform agenda....
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Recent Experience in China’s State Forestry Areas: A Reform Agenda. 东北国有林区改革初探. Xu Jintao 徐晋涛 __________________________ 中国科学院农业政策研究中心 CCAP, CAS. Map: Distribution of Forestland. 黑龙江省木材产量占全国的比例. 课题组工作情况的回顾 Review of the Project. 2000 年起 , 即在东北国有林区进行典型调查 , 每年一次 - PowerPoint PPT PresentationTRANSCRIPT
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Recent Experience in China’s State Forestry Areas: A Reform Agenda.
东北国有林区改革初探Xu Jintao 徐晋涛__________________________中国科学院农业政策研究中心 CCAP, CAS
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Map: Distribution of Forestland.
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Heilongjiang Province's Share of National Timber Output
10.0%
15.0%
20.0%
25.0%
30.0%
35.0%
198019811982198319841985198619871988198919901991199219931994199519961997199819992000200120022003
黑龙江省木材产量占全国的比例
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课题组工作情况的回顾Review of the Project
• 2000 年起 , 即在东北国有林区进行典型调查 , 每年一次
• Pilot survey started in 2000• 2005 年在国家林业局科技司立项 , 计资司为协调
单位 • Officially sponsored by SFA in 2005• 2005年 9月 27日 , 国有林改革国际经验交流会• International forum on public forest reform
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和前瞻and a look foward
• 10月 , 与国家林业局经济发展研究中心合作召开国有林区改革研讨会 ( 基层经验 ) Workshop to draw local experiences in October
• 通过课题调研、数据分析和国际国内交流 , 形成学术报告和政策建议
• Final products includes policy briefs, academic paper,etc.
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国有森工企业调查 Survey
• 资源和社会经济调查 Macro Data– 黑龙江森工 40 个林业局 , 吉林 18 个局 , 内蒙古大兴
安岭 20 个局 – 40 Bureaus in HLJ, 18 in Jilin and 20 in Inner
Monoglia
• 多层次微观经济调查 Multi-layer micro data– 黑龙江森工 15 个局 , 吉林 6 个局 , 大兴安岭 3 个局– 15 in HLJ, 6 in JL, and 3 in IM
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国有森工企业调查 Survey
• 多层次微观经济调查 Multi-layered survey– 24 个森工企业 ( 林业局 ) 24 bureaus– 72 个林场 72 forest farms– 240 个加工企业 ( 各种所有制和经济形式 ) 240 processing mills– 1440 户林业局职工家庭 1440 workers’households
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调查内容( 1 ) Survey area 1
• 林业局 the bureaus• 林业局的社会经济指标 social
economic
• 资源状况 resource
• 天保工程执行情况 NFPP
• 林业局职能的转变过程和特点 Function of the bureaus
• 林区社会经济问题的新形势 new issues in forest area society
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调查内容( 2 ) Survey area 2
•加工企业 processing mills–加工企业转制情况,不同所有制、
经济形式企业在经济效益和资源利用效率方面的差异 reform and performance
–试图了解林区加工企业有效率的发展模式 efficient processing sector models
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调查内容( 3 ) Survey area 3
• 林场 forest farms– 林场就业结构变化 employment
– 林场土地利用结构变化 land use
– 林场林地资源管理模式创新 innovations in resource management
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调查内容( 4 ) Survey area 4
•职工家庭 workers households–收入结构、就业结构变化 . Revenue, employment
–土地利用方式的变化 land use–资源管理模式创新对林场职工行为
的影响 resource management behavior change
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天然林保护工程下的国有林区Change after NFPP
• 森林资源消耗速度下降 slowed resource depletion• 林业局收入呈现上升趋势 increased revenue for bureaus• 大量富余职工得到安置 Settlement of surplus labors• 林区经济结构发生了巨大变化 structure change• 加工业改革速度快 sped-up processing mill reform• 森林资源管理模式出现大量创新 innovation in resource
management model• 林业局的政府职能得到强化 more government responsibility for
bureaus• 新的社会问题凸显 , 需要国家重视 new social issues• 国家扶持国有林区的新的重点领域 key areas for government support
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对国有林区改革成效的基本判断Basic judgment of reform performance
• 三个趋势 three major trends• 新产品 / 新市场 new products and markets• 新的加工业模式 new processing business
model• 新的森林资源管理模式 new resource
management model=> 可能引起国有林区管理体制的深刻改革
giving rise to radical change in state forest sector
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木材采伐量下降 Reduced harvests
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天然林蓄积量上升 Increased Natural Forest Volume
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天然林单位面积蓄积量变化趋势Trends in m3/ha
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林业局收入变化Revenue change for bureaus
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林业局收入的多样化趋势diversifying revenue structure
吉林省林业局各种收入分析图
0
20000
40000
60000
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1980 年
1990 年
1998 年
2000 年
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2004 年
万元
林产工业收入
多种经营
木材收入
天保工程拨款
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Increased Share of NTFP revenue吉林与黑龙江非木材林产品产值占商品材产值的比例图
0
0. 05
0. 1
0. 15
0. 2
0. 25
0. 3
0. 35
0. 4
0. 45
0. 5
1980年 1985年 1990年 1995年 2000年 2004年年份
百分比
吉林非木材林产品产值占木材林产品产值的比例
黑龙江非木材林产品产值占商品材产值的比例
吉林与黑龙江非木材林产品产值占商品材产值的比例
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Expenditure Structure (Jilin)
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Tax payment by bureaus in JL
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Revenue shared by parent organization
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NFPP funding
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Allocation of NFPP funds
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林场历年平均外出务工比例 Off-Forest Farm Labor
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林场中在册职工下岗安置情况Laid off workers
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林场中外出打工者和在册下岗比例Off-forest farm workers vs laid-off workers
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林场中的离退休人口比例Increasing retirement population
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各项改革发生的比例Frequency of reform
(42 farms in HLJ,18 in JL)
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历年林场启动改革的场次数Density of reform by year
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历年林场各类改革启动次数Reform by type over time
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土地管理、利用方式面积的比例Diversified land management
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家庭收入及来源的变化Forest Farm Household Revenue Sources, 1997 & 2004
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-Ca
pit
a H
ou
seh
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e (
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B)
Private Sector
State-OwnedSector
Aquaculture
Non-Timber For Prods
Husbandry
Cropping
Timber &OrchardCrops
OtherActivities
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非木材林产品收入的变化NTFP in household revenue
Forest Farm Household Revenue from NTFPs, 1997 & 2004 (1997 RMB)
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Per
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ush
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"Tree-Ear" Mushrooms:Collected
"Tree-Ear" Mushrooms:Cultivated
Pinenut
Wild Herbs
Wild Medicinal Plants
Firewood: Brush, Branches
Pine Saplings
Various Other
VariousMushrooms &Fungus
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加工企业改制与绩效分析Reform and Performance of Processing Mills
HLJ JL
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毛利润率Gross profit for processing mills
HLJ JL
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人均产值Per Capita Output Value
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再岗职工平均工资Average Salary
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单位产值木材消耗Wood consumption per unit output value
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单位产值能源消耗Energy use per unit output value
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几个重要的改革问题的讨论
• 产权改革:黑龙江模式、吉林模式– 停留在管护和非木材林产品的利用– 需要在商品性林木资源的经营上深化改革– 黑龙江模式:效率问题 =》二级市场– 吉林模式:公平问题 =》收入资金的使用管理
• 土地利用结构:农业、采集业、养殖业等等• 加工业:改制已形成气候。无须国家投资发展
产业化。可在信贷体系上完善,改善私人部门投资环境
• 国家投资重点:社会事业、扶贫
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林业企业:向政府转化• 伊春、黑龙江农恳• 是成本最地的改革方案• 两种主要国有资产:加工业资产(转
制)。商品林(实行家庭经营等)• 在政府化基础上,成立资源管理机构。• 目前企业上缴利润和税费相当于天保资金。变成政府后有望自负盈亏。
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商品林资源管理模式• 均分到户• 完全市场化重新配置(需要对所获资金
的使用进行规范方可实行)
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国有森林资源管辖权的讨论• 管辖权的分工• 产生地方国有林的概念• 中央林业主管部门可选择生态价值最高
的小部分国有林收归自己直接管理• 建立不同层次的林务官制度• 同时,职能向科研和服务机构转变。