1949年以来中国林业管理体系变迁及国际比较

中华人民共和国成立至今，中国林业发展取得了巨大成就，林业管理制度与治理体系在这一过程中发挥了重要作用。文中从中国国家林业管理部门及其变迁、国家林业管理纵向体系、国家林业部门行政主官的政治维度几个方面展开分析，旨在全面揭示1949年以来中国林业管理体系的发展演变；同时，与美国、德国林业管理体系做简要对比，以期寻求共识为林业治理体系现代化建设提供有益参考。研究表明:中国国家林业管理部门在70年里数次变迁，前期较为频繁，后期逐渐稳定；其变迁历程基本与中国社会经济体制改革过程相适应，宏观调控职能不断凸显，直接市场干预逐渐弱化；核心工作职责从经济生产逐步转向生态建设，从单一森林生态系统转变为"三大生态系统一个生物多样性"；以"独立"管理林业事务为主，但近年来不断向自然资源统筹管理体系融入；林业管理结构整体保持"条块结合"不变，但从"条条为主"转变为"以块为主"；纵向体系基本稳定，依托于国家行政区划层级从中央向地方、基层不断延伸，从上到下的政策传导机制非常成熟，占有主导地位；从下到上的反馈机制与从外到内的建言献策机制逐步发展；行政主官的政治维度相对稳定，在一定程度上稳定地保障了林业在国家宏观决策中的相对重要性。与国际林业管理体系的比较表明，在当前可持续发展的全球背景下，林业资源管理呈现出向自然资源整体管理整合或向生态管理融入的趋势。该研究可为中国林业治理体系现代化建设提供有益参考。

Evolution and International Comparison of China's Forestry Management System Since 1949

Since the founding of the People's Republic of China, China has made great achievements in the development of forestry, in which forestry management and governance systems have been playing an important role. In order to fully reveal the development and evolution of China's forestry management system since 1949, this paper analyzed China's national forestry management departments and their changes, the vertical system of national forestry management, and the political dimension of the chief executive of national forestry departments. In addition, the paper made a brief comparison with the forestry management systems of the United States and Germany, in order to seek consensus and provide a useful reference for the modernization of forestry management system. The study shows that the national forestry management departments of China have changed several times in the past 70 years with frequent changes in the early period and gradually being stable in the later period. The process of its change is basically in line with the process of China's social and economic system reform, the function of macro-control is increasingly prominent, and the direct market intervention is gradually weakened. The core responsibilities have gradually shifted from economic production to ecological construction, from a single forest ecosystem to "three ecosystems and one biodiversity". It mainly manages forestry affairs "independently", but in recent years it has been integrated into the overall management system of natural resources. The forestry management structure in China maintains the combination of vertical and horizontal administration, but it has changed from the vertical one as the major to the horizontal one as the major. The vertical system is basically stable with the continuous extension of the national administrative divisions from the central government to the local and grassroots level. The policy transmission mechanism from the top to the bottom is very mature and taking a dominant position. At the same time, the feedback mechanism from bottom to top and the suggestion mechanism from outside to inside are gradually developed. The political dimension of the chief executive is relatively stable, which ensures the relative importance of forestry in national macro decision-making to a certain extent. In addition, the comparison with the international forestry management system shows that in the current global context of sustainable development, forest resource management tends to be integrated into the natural resources management or the ecological management. This study can provide a useful reference for the modernization of China's forestry management system.