全民造林政策之執行成果與政策分析

An Evaluation and Assessment of Reforestation Policy in Taiwan

10.6181/agec.2007.38.02

林國慶(Kuo-Ching Lin)；柳婉郁(Wan-Yu Liu)

全民造林 ； 造林獎勵 ； 林業政策 ； Reforestation policy ； Reforestation subsidy ； Forestry policy

農業與經濟

38期（2007 / 06 / 01）

31 - 65

繁體中文

全民造林政策自1996年10月1日開始實施，至2004年12月31日終止。本研究之主要目的為對全民造林政策進行整合性評估，包括執行成果分析、達到政策目標與否分析以及問卷調查實證分析。本研究之重要結論與政策建議如下：(1)大部分專家學者與政府官員肯定全民造林政策具有國土保安與環境保育之功能；(2)全民造林對於優先造林地實施造林及解決超限利用問題之成效有限，處理該問題仍為未來造林政策之重點方向；(3)專家學者與政府官員之觀念較為接近，但兩者與環保人士之觀念相差較遠，應加強溝通。兩方追求環境保育的目標一致，只是對政策措施的有效性看法不同，良性的溝通與互動為達成共識的最好方法；(4)全民造林停辦之後，政府仍需研擬新的造林獎勵政策，惟獎勵金額與獎勵年限應審慎規劃，且應考慮不同地理條件，因地制宜；(5)政府對已成林地應加強維護，並擬定相關配套措施降低林主砍伐已成林之誘因；(6)政府應編列預算，嚴格取締超限利用；(7)政府應針對全國林地（包括國、公有與私有林地）積極檢討，辦理林地之分級分區劃分與管理，並嚴格規範經濟營林區之條件，縮小經濟營林區之範圍；(8)政府應將林地區分為保育林與經濟林，並以不同的方式經營輔導；(9)劃分為保育林之私有林地與租地造林地，政府應編列預算逐年購回，對於尚未購回之林地應加強管理，禁止砍伐，並逐年給予一定額度之已成林獎勵金；(10)經濟林之經營策略應考慮經濟效益，其屬於公益部份政府應研擬辦法加以獎勵與輔導。

The Reforestation policy was implemented since 1 October, 1996, and carried out until 31 December, 2004. The main objective of this study is to overall assess this reforestation policy, including the analysis of the policy implementation results, the effectiveness of the policy of achieving policy objectives, and making policy recommendations. The main results and policy recommendations are summarized as follows: (1) Most of the government officials and academics surveyed agree that the implementation of reforestation policy can provide the function of national land conservation and environmental preservation. (2) The implementation of reforestation policy is however ineffective in reducing the area of overcapacity use of forestland. How to design and implement a reforestation policy to alleviate the problems of over-capacity use of forestland is still a challenge for the future. (3) Government officials and academics share more common ground regarding the reforestation policy, they however experienced significant differences in ideas and beliefs with environmentalists. Among them the common goal of environmental preservation is the same, the differences are on the effectiveness of the reforestation policy. These differences should be narrowed through more in depth communication and interaction. (4) After the termination of reforestation policy, a new reforestation policy is still needed. By taking into account the geographical and environmental conditions, the amount and duration of subsidy should be carefully designed. (5) Government should design policy measures to provide incentives for foresters to maintain matured forests. (6) Government should allocate budget to enforce the related regulations to reduce the total area of the over-capacity use of forestland. (7) Government should review the current zoning and classification of forestland (including public and private forestland). The criteria for classifying economic forestlands should be made more restrictive and the total area of economic forestlands should be down sized. (8) Forestlands should be classified into conservation forestland and economic forestland, and accordingly managed and supervised by separate measures. (9) For those private and rental forestlands designated for conservation purposes, government should allocate annual budget to purchase those lands. For those lands not yet purchased by the government, government should strengthen the management measures, forbidding harvest and providing matured forest subsidies. (10) The management strategy of economic forest should take into account economic effectiveness. Government should design effective measures to provide incentives to economic forestland to enhance its public welfare performance.

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