黑龙江省国有林权改革效果评价及配套政策研究
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摘要
黑龙江省森林资源丰富,是全国重要的木材生产基地,国有林比重大,占林业总面积的93.2%。建国初期大规模开发建设以来,黑龙江省国有林长期超负荷地承担国家下达的木材生产任务和各项上缴指标,为国家经济建设做出了巨大贡献,也因此付出了惨痛的代价。国有森林资源下降,可采资源逐年减少,陷入了资源危机、经济危困的“两危”之中。虽然经过三十多年的改革,但是收效不大,深层次的改革没有触及,事实证明,黑龙江省国有林权改革势在必行。
本文的研究范畴系地方国有林,即“黑龙江省林业厅辖属即地方国有林区”。黑龙江省林业厅于2007年制定了《黑龙江省森林、林木、林地流转试点管理办法》,实施国有林权改革试点。此次试点是林业经营管理体制的重大创新,是贯彻科学发展观、落实中央关于林权改革精神,构建社会主义新林区的重大举措。
本文在分析国内外研究成果的基础上,以产权理论、制度经济学理论为理论支撑,运用经济学分析方法、数据包络分析方法、解释结构模型等定性和定量分析方法,对黑龙江省国有林权改革试点进行实地调查分析,通过对各国有林场的效率进行评价,并找出制约国有林权改革的因素进行诊断,最后提出黑龙江省国有林权改革的配套政策。
首先,在对国内外文献梳理,特别是对黑龙江省林情分析基础上,发现黑龙江省地方国有林占全省森林面积近1/2,对黑龙江省社会主义新林区建设意义重大,且生态地位十分重要,因此,提出以黑龙江省地方国有林权改革为切入点进行研究,独占研究视角。在此基础上,对国有林权制度的经济缺陷及国有林权改革的经济功能进行经济学解释,解析了国有林权改革公平优先还是效率优先的辩证关系,为整个论文的研究提供理论支撑。
其次,分析了黑龙江省国有林权改革的动因与特征。研究表明：黑龙江省国有林权改革具有制度供给与制度需求的非均衡性、产权契约的不完善性、国有林业职工的强参与性及地方政府的主导性等特征；其改革的实质内容在于赋权与规制、相关主体利益的重新分配、新国有林权制度与其他相关制度的适应相容。
第三,阐述了黑龙江省国有林权改革的现状及效果,并应用定量方法对改革效率进行了评价。通过深入国有林权改革的6个市县、11个国有林场进行实地调查,运用描述性统计分析方法,从生态效果、经济效果和社会效果三个维度对黑龙江省国有林权改革效果进行评价。运用数据包络分析方法,对30个国有林场进行了效率评价及实证分析。研究表明：无论是综合技术效率、还是规模效率、纯技术效率,参与林改的国有林场有效率均高于未参与林改的国有林场。
第四,提出制约黑龙江省地方国有林权改革的主要因素。借鉴国内相关学者对伊春国有林区林权改革和南方集体林权改革的研究观点,通过广泛的调研、座谈及讨论确定了黑龙江省国有林权改革的八个制约因素,采用考虑具有不同影响强度的ISM诊断模型,对国有林权改革制约因素的内部结构、层次及其因果关系进行诊断,据此为全面实施国有林权改革提供依据,提出了黑龙江省国有林权改革经济扶持政策、林权管理法律政策、科技服务政策、林业社会化服务体系等宏观政策和森林经理经营政策、森林采伐管理政策、林权流转政策等微观政策。
国有林权改革是一项系统工程,涉及各利益主体的相关利益,且因此森林经营周期长,改革效果滞后,希望通过本文的研究为国有林权改革提供理论支持,为政府、行业主管部门制定政策提供保障。
Forest resource is abundant in Heilongjiang province. It is the national important timber production base, more than major state-owned forest, accounting for93.2%of the total area of forestry. In the early days of the large-scale development and construction, Heilongjiang province has undertaken excessive timber processing and timber delivery tasks assigned by the country. It contributes significantly to the national economy at a great cost of forest resource. The state-owned forest resources decline, recoverable resources declines with year. Heilongjiang province falls into both economic crisis and resource crisis. Thirty years of reform reveals to be less effective and it does no matter with further reform. Facts prove that Heilongjiang province, the state-owned forest tenure reform is imperative.
The paper covers local state-owned forest, i.e, the local state-owned forest area subordinate to Heilongjiang forest department. Heilongjiang province in2007formulated the "Heilongjiang province forests, trees and forest land circulation pilot management method", the state-owned forest tenure reform pilot is management system of forestry major innovation, is implementing the scientific concept of development and implement the state policy on forest tenure reform and the measures on a new communist forestry area.
Based on the analysis of the research results domestic and abroad, based on the theory of property rights, institutional economics theory as the theoretical support, the paper uses economics analysis and data envelopment analysis, and interpretation structure model as the qualitative and quantitative analysis method to investigate Heilongjiang province, state-owned forest right pilot field and analyze on all countries through a forest farm efficiency evaluation, and find out the factors restricting state-owned forest tenure reform, and finally puts forward the state-owned forest tenure reform supplementary policies in Heilongjiang province.
First of all, on reviewing foreign and domestic literature, especially in consideration of Heilongjiang forest area, the paper finds Heilongjiang local state-owned forest is significant to construction of Heilongjiang social new forest area, and is critical to ecology, which accounts for nearly1/2of provincial forest area. Therefore, the paper is special in its study with its starting point from Heilongjiang local state-owned forest tenure reform. On the basis, the paper denotes the economic defect of state-owned forest tenure reform and economic function of state-owned forest tenure reform. The paper explains whether fairness is superior to effectiveness or vice versa in state-owned forest tenure reform, which lays theorectical basis for study.
Second, the paper analyzes the motive and feature of Heilongjiang state-owned forest tenure reform.The state-owned forest tenure reform of Heilongjiang province internal motive, external motive, basic motive and important motive are summarized, and the analysis of the characteristics of the state-owned forest tenure reform in Heilongjiang province, namely: unbalanced system supply and demand system, the property right is not perfect, state-owned forestry worker of strong participation and the local government dominance. At the same time for the state-owned forest tenure reform in Heilongjiang province in essence, empowerment and the rules and regulations, judge the interests of the related subject to distribution, new national forest right system and other related system to adapt the compatible is the essential contents of the state-owned forest tenure reform.
Third, the paper states the circunstare of Heilongjiang state-owned forest tenure reform and its result, and evaluates the effectiveness of reform quntatively. Through in-depth state-owned forest tenure reform six city and county,11of the state-owned forest field investigation. This paper analyzes the general situation of the state-owned forest tenure reform and the circulation pilot specific situation. Based on field survey data, by using descriptive statistics analysis method, from ecological, economic and social benefits, the paper discusses Heilongjiang province three dimensions of state-owned forest tenure reform effect. The paper evaluates effectiveness and makes empirical analysis of30state-owned forest area with DEA. The study reveals that the effectiveness of the state-owned forest area engaged in forest tenure reform is higher than that not engaged in forest tenure reform, whether in overall technical effectiveness, scale effectivesness or pure technical effectiveness.
Fourth, the paper proposes the main factors that restricts Heilongjiang local state-owned forest tenure reform. Reference to related domestic scholars Yichun state-owned forest areas in southern collective forest tenure reform and the research, through a wide view of research, discussion and discuss, the paper determines the state-owned forest tenure reform in Heilongjiang province of restricting factors. The influence of different intensity considering a diagnosis model of state-owned, ISM forest tenure reform restriction factors of internal structure, levels and cause and effect diagnosis, according to the full implementation of the reform of the state-owned forest to provide the basis. The paper, aiming at Heilongjiang province, proposes macro management policies for state-owned forest tenure reform economic support, forest right management legal policies, science and technology service policy and forestry socialization, and micro policies for forest manager operation, forest felling management and forest right circulation.
State-owned forest tenure reform is systematic, which involves the benefit of each party concerned. Forest is long in operation cycle and stagnant in reform result. The paper is useful in its theory on state-owned forest tenure reform and its guarantee of government and industrial department in charge in making policies.
本文的研究范畴系地方国有林,即“黑龙江省林业厅辖属即地方国有林区”。黑龙江省林业厅于2007年制定了《黑龙江省森林、林木、林地流转试点管理办法》,实施国有林权改革试点。此次试点是林业经营管理体制的重大创新,是贯彻科学发展观、落实中央关于林权改革精神,构建社会主义新林区的重大举措。
本文在分析国内外研究成果的基础上,以产权理论、制度经济学理论为理论支撑,运用经济学分析方法、数据包络分析方法、解释结构模型等定性和定量分析方法,对黑龙江省国有林权改革试点进行实地调查分析,通过对各国有林场的效率进行评价,并找出制约国有林权改革的因素进行诊断,最后提出黑龙江省国有林权改革的配套政策。
首先,在对国内外文献梳理,特别是对黑龙江省林情分析基础上,发现黑龙江省地方国有林占全省森林面积近1/2,对黑龙江省社会主义新林区建设意义重大,且生态地位十分重要,因此,提出以黑龙江省地方国有林权改革为切入点进行研究,独占研究视角。在此基础上,对国有林权制度的经济缺陷及国有林权改革的经济功能进行经济学解释,解析了国有林权改革公平优先还是效率优先的辩证关系,为整个论文的研究提供理论支撑。
其次,分析了黑龙江省国有林权改革的动因与特征。研究表明：黑龙江省国有林权改革具有制度供给与制度需求的非均衡性、产权契约的不完善性、国有林业职工的强参与性及地方政府的主导性等特征；其改革的实质内容在于赋权与规制、相关主体利益的重新分配、新国有林权制度与其他相关制度的适应相容。
第三,阐述了黑龙江省国有林权改革的现状及效果,并应用定量方法对改革效率进行了评价。通过深入国有林权改革的6个市县、11个国有林场进行实地调查,运用描述性统计分析方法,从生态效果、经济效果和社会效果三个维度对黑龙江省国有林权改革效果进行评价。运用数据包络分析方法,对30个国有林场进行了效率评价及实证分析。研究表明：无论是综合技术效率、还是规模效率、纯技术效率,参与林改的国有林场有效率均高于未参与林改的国有林场。
第四,提出制约黑龙江省地方国有林权改革的主要因素。借鉴国内相关学者对伊春国有林区林权改革和南方集体林权改革的研究观点,通过广泛的调研、座谈及讨论确定了黑龙江省国有林权改革的八个制约因素,采用考虑具有不同影响强度的ISM诊断模型,对国有林权改革制约因素的内部结构、层次及其因果关系进行诊断,据此为全面实施国有林权改革提供依据,提出了黑龙江省国有林权改革经济扶持政策、林权管理法律政策、科技服务政策、林业社会化服务体系等宏观政策和森林经理经营政策、森林采伐管理政策、林权流转政策等微观政策。
国有林权改革是一项系统工程,涉及各利益主体的相关利益,且因此森林经营周期长,改革效果滞后,希望通过本文的研究为国有林权改革提供理论支持,为政府、行业主管部门制定政策提供保障。
Forest resource is abundant in Heilongjiang province. It is the national important timber production base, more than major state-owned forest, accounting for93.2%of the total area of forestry. In the early days of the large-scale development and construction, Heilongjiang province has undertaken excessive timber processing and timber delivery tasks assigned by the country. It contributes significantly to the national economy at a great cost of forest resource. The state-owned forest resources decline, recoverable resources declines with year. Heilongjiang province falls into both economic crisis and resource crisis. Thirty years of reform reveals to be less effective and it does no matter with further reform. Facts prove that Heilongjiang province, the state-owned forest tenure reform is imperative.
The paper covers local state-owned forest, i.e, the local state-owned forest area subordinate to Heilongjiang forest department. Heilongjiang province in2007formulated the "Heilongjiang province forests, trees and forest land circulation pilot management method", the state-owned forest tenure reform pilot is management system of forestry major innovation, is implementing the scientific concept of development and implement the state policy on forest tenure reform and the measures on a new communist forestry area.
Based on the analysis of the research results domestic and abroad, based on the theory of property rights, institutional economics theory as the theoretical support, the paper uses economics analysis and data envelopment analysis, and interpretation structure model as the qualitative and quantitative analysis method to investigate Heilongjiang province, state-owned forest right pilot field and analyze on all countries through a forest farm efficiency evaluation, and find out the factors restricting state-owned forest tenure reform, and finally puts forward the state-owned forest tenure reform supplementary policies in Heilongjiang province.
First of all, on reviewing foreign and domestic literature, especially in consideration of Heilongjiang forest area, the paper finds Heilongjiang local state-owned forest is significant to construction of Heilongjiang social new forest area, and is critical to ecology, which accounts for nearly1/2of provincial forest area. Therefore, the paper is special in its study with its starting point from Heilongjiang local state-owned forest tenure reform. On the basis, the paper denotes the economic defect of state-owned forest tenure reform and economic function of state-owned forest tenure reform. The paper explains whether fairness is superior to effectiveness or vice versa in state-owned forest tenure reform, which lays theorectical basis for study.
Second, the paper analyzes the motive and feature of Heilongjiang state-owned forest tenure reform.The state-owned forest tenure reform of Heilongjiang province internal motive, external motive, basic motive and important motive are summarized, and the analysis of the characteristics of the state-owned forest tenure reform in Heilongjiang province, namely: unbalanced system supply and demand system, the property right is not perfect, state-owned forestry worker of strong participation and the local government dominance. At the same time for the state-owned forest tenure reform in Heilongjiang province in essence, empowerment and the rules and regulations, judge the interests of the related subject to distribution, new national forest right system and other related system to adapt the compatible is the essential contents of the state-owned forest tenure reform.
Third, the paper states the circunstare of Heilongjiang state-owned forest tenure reform and its result, and evaluates the effectiveness of reform quntatively. Through in-depth state-owned forest tenure reform six city and county,11of the state-owned forest field investigation. This paper analyzes the general situation of the state-owned forest tenure reform and the circulation pilot specific situation. Based on field survey data, by using descriptive statistics analysis method, from ecological, economic and social benefits, the paper discusses Heilongjiang province three dimensions of state-owned forest tenure reform effect. The paper evaluates effectiveness and makes empirical analysis of30state-owned forest area with DEA. The study reveals that the effectiveness of the state-owned forest area engaged in forest tenure reform is higher than that not engaged in forest tenure reform, whether in overall technical effectiveness, scale effectivesness or pure technical effectiveness.
Fourth, the paper proposes the main factors that restricts Heilongjiang local state-owned forest tenure reform. Reference to related domestic scholars Yichun state-owned forest areas in southern collective forest tenure reform and the research, through a wide view of research, discussion and discuss, the paper determines the state-owned forest tenure reform in Heilongjiang province of restricting factors. The influence of different intensity considering a diagnosis model of state-owned, ISM forest tenure reform restriction factors of internal structure, levels and cause and effect diagnosis, according to the full implementation of the reform of the state-owned forest to provide the basis. The paper, aiming at Heilongjiang province, proposes macro management policies for state-owned forest tenure reform economic support, forest right management legal policies, science and technology service policy and forestry socialization, and micro policies for forest manager operation, forest felling management and forest right circulation.
State-owned forest tenure reform is systematic, which involves the benefit of each party concerned. Forest is long in operation cycle and stagnant in reform result. The paper is useful in its theory on state-owned forest tenure reform and its guarantee of government and industrial department in charge in making policies.
引文
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