2015年林业应对气候变化政策与行动

国家林业局

2016 年

2015 年林业应对气候变化政策与行动

2015年，按照党中央、国务院的决策部署，国家林业局围绕《“十二五”控制温室气体排放工作方案》和《林业应对气候变化“十二五”行动要点》确定的目标任务，扎实开展林业应对气候变化工作， 推进各项工作取得了新进展，为应对气候变化、建设生态文明作出了新贡献。

一、围绕国家应对气候变化战略，加强林业应

对气候变化宏观指导。认真落实《国家应对气候变化规划（2014—2020年）》、《国家适应气候变化战略》，制定印发了2015年林业应对气候变化重点工作方案，明确了年度重点任务和工作分工。积极参与《强化应对气候变化行动—中国国家自主贡献》编制，提出了2030年林业应对气候变化行动目标，并写入中国国家自主贡献文件。配合国家发展改革委开展了2014年度各省（自治区、直辖市）碳排放强度（含森林碳汇）目标任务完成情况的考核，促进了林业增汇减排工作。认真落实《关于推进林业碳汇交易工作的指导意见》，积极推进林业碳汇交易，指导北京、辽宁、陕西、重庆等地林业碳汇项目建设。截止到2015年底，全国正在履行自愿减排项目备案程序的林业碳汇项目已达到34个。组织完成《林业应对气候变化“十三五”行动要点》、《林业适应气候变化行动方案（2016—2020年）》编制和专家论证，明确了今后五年林业行动的目标、重点任务、保障措施。

二、大力开展造林绿化和森林经营，不断增加森林碳汇。紧紧围绕实现“森林面积净增4000万公顷”的目标，大力实施《全国造林绿化规划纲要（2011—2020年）》，加强造林计划督导，全面推进旱区、京津冀等重点区域造林绿化，扩大新一轮退耕还林还草规模，加快实施石漠化综合治理、京津风沙源治理、三北防护林体系建设、长江流域等重点防护林体系建设、天然林资源保护等林业重点工程。全国共完成造林664.37万公顷，占全年任务的104.9％。全面加强森林经营，组织编制了《全国森林经营规划（2016—2050年）》，着力推进森林经营制度建设，认真落实森林抚育补贴政策，科学开展森林抚育，稳步推进森林经营样板基地建设，全国共完成森林抚育833.33万公顷，超额完成全年计划任务。据联合国粮农组织发布的《2015年全球森林资源评估报告》，我国已成为全球年度森林面积增长最快、森林蓄积稳定增长的国家。随着我国森林资源增长， 森林碳汇能力进一步增强，为全球应对气候变化作出了重要贡献。

三、加强林业资源保护，不断减少温室气体排放。一是强化森林资源保护管理。严格实施林地保护利用规划，积极推进林木采伐管理改革，强化林地用途管制，严厉打击非法侵占林地行为，坚决遏制林地流失势头，努力减少资源破坏导致的森林碳排放。二是加强天然林保护。认真落实习近平总书记“力争把全国的天然林都保护起来”的重要指示精神，落实天然林保护政策，扩大天然林保护范围， 加快推进停止天然林商业性采伐。河北省和黑龙江、吉林、内蒙古三省区的大小兴安岭、长白山林区已停止天然林商业性采伐，天然林资源保护工程区管护天然林面积已达到1.154亿公顷，实现森林面积、蓄积双增长，涵养水源、吸收CO2等生态功能明显增强。三是加强自然保护区建设，截止到2015年底，林业系统已建立各级各类自然保护区2228处（含国家级自然保护区345处），总面积达到1.24亿公顷， 占国土面积的12.99％，林业建设和管理的自然保护区在数量和面积上均超过全国自然保护区的80％， 使中国生物多样性最丰富、自然生态系统最珍贵、生态功能最重要、自然景观最优美的区域得以有效保护。四是加强森林防火。积极应对极端不利的气候形势，提前动员部署，狠抓责任落实，全面实时监测，主动预防预警，组织科学扑救。与2014年同期相比，全国发生森林火灾次数、受害森林面积、因灾伤亡人数分别下降20.7%、32.3%和 76.8%，继续呈现“三下降”态势，减少了火灾导致的碳排放。五是强化林业有害生物防治。扎实推进《国务院办公厅关于进一步加强林业有害生物防治工作的意见》（国办发〔2014〕26号）的贯彻落实，认真执行重大林业有害生物防控目标责任制，着力应对重大外来有害生物入侵，深入推进联防联治、无公害防治和重点生态区防治。全国完成林业有害生物防治作业面积813.84万公顷，主要林业有害生物成灾率控制在4.5‰以下，无公害防治率达到85%以上， 松材线虫病、美国白蛾、鼠（兔）害等重大有害生物严重危害势头得到有效控制，增强了森林健康， 减少了因害造成的碳排放。六是强化湿地保护恢复。认真实施《全国湿地保护工程“十二五”实施规划》， 大力推进湿地保护与恢复工程建设，下达湿地保护工程中央预算内投资计划2.37亿元；中央财政落实湿地补贴资金16亿元，实施补贴项目336个，全国新增湿地保护面积40万公顷，恢复湿地面积2万公顷，新增国际重要湿地3处，新建国家湿地公园（试点）137处，通过验收的国家湿地公园46处，湿地生态系统的碳汇功能逐步提升。

四、加快林业碳汇计量监测体系建设，为应对气候变化科学决策提供数据支撑。一是编制印发了《2015年全国林业碳汇计量监测体系建设工作方案》和林业管理活动水平基础数据统计表。召开了2015年全国林业碳汇计量监测体系建设培训会，部署年度计量监测体系建设工作。二是在北京等18个省（自治区、直辖市）开展了土地利用变化与林业碳汇计量监测，取得阶段性的成果；在京津冀地区开展19处重要湿地生态系统评价，指导辽宁、吉林、黑龙江省完成泥炭沼泽碳库调查，摸清了泥炭沼泽湿地面积、分布等情况；建立和完善了森林下层植被、土壤碳库和湿地碳库的模型参数。三是开展荒漠化土地碳储量专题研究，分析估算2000年以来全国荒漠化土地生物和土壤碳储量变化。四是加快碳汇技术标准建设。《林业碳汇计量监测技术指南》、《森林生态系统碳库调查技术规范》、《全国优势树种基本木材密度标准》、《林业碳汇计量监测术语》、《湿地碳汇计量监测技术方案》、《木质林产品贮碳测算技术指南》等一批规范的制定已取得重要成果。五是积极推进碳汇计量监测基础设施建设。按有关部门要求，开展碳卫星先期攻关研究， 编制了碳卫星工程需求和任务报告、应用系统方案论证报告。

五、强化应对气候变化政策研究，积极推进林业制度建设。密切跟踪应对气候变化国际热点问题和国内重点工作，开展专题研究，为政府决策提供依据。一是开展“气候变化公约”专题研究，完成了“《UNFCCC》REDD+保障原则议题”、“从第七轮中美战略对话看中国林业投资和贸易管理新动向”专题研究报告。二是启动了土地利用变化和林业谈判的趋势及对我国影响的对策研究。三是组织开展了2020年后林业增汇减排行动目标研究，完成了全国森林碳密度分布图研制，初步完成2020年后全国森林增汇和减排途径测算分析，提出主要时间节点森林碳储量和碳汇量等目标。四是组织开展“十三五”林业碳排放配额及其政策研究，完成全国及各省（自治区、直辖市）森林消耗年均碳排放量测算。五是密切跟踪国际生态治理进程和应对气候变化进展，积极参与防治荒漠化公约第十二次缔约方大会等重点谈判与国际会议进程，参与里约三公约（生物多样性公约、防治荒漠化公约、气候变化框架公约）联合履约指标的审定工作，编印19期《气候变化、生物多样性和荒漠化问题动态参考》。六是积极参与《国家应对气候变化法》制定、《森林法》修订、《碳排放权交易管理条例》制定，对林业应对气候变化及碳汇计量监测、碳汇造林、碳排放权交易等方面提出了政策建议。

六、着力抓好科技支撑，破解林业应对气候变化科学难题。依托公益性行业专项、948计划、国家科技支撑等科研平台，围绕适应和减缓气候变化的主要领域、关键技术开展研究，取得了重要进展。一是加强适应气候变化技术研究。开展了西北地区干旱荒漠生态系统对全球气候变化的响应、气候变化对长白落叶松林生态系统净初级生产力的影响、冰雪灾害过后森林植被恢复过程、红树林碳汇生态林建设技术等研究，为生态系统适应气候变化提供了技术支撑；完成了森林火灾风险评估模型与指标体系构建研究，模拟了大兴安岭地区1971—2050年4种气候情景下林火动态变化，评估了林火扑救能力和气候变化对森林燃烧概率的影响。二是加强碳汇测算方法研究。开展了土地利用、土地利用变化及林业（LULUCF）温室气体排放和吸收评估方法体系、典型湿地碳储量与计量方法、典型森林土壤碳储量分布格局及变化规律、森林火灾碳释放评估技术等研究，促进了林业碳汇计量监测科学化、规范化。三是加强林业温室气体清单编制能力建设。开发中国林业碳计量与核算系统，提高土地利用变化与林业清单编制的规范性和准确性。启动了第三次国家信息通报能力建设LULUCF 温室气体清单编制项目， 为完成第三次林业温室气体清单、第一次“两年更新报告”编制奠定了基础。四是加强生态观测研究平台建设。新发布生态系统定位观测研究站观测行业标准4项，生态系统定位观测研究站观测标准总数已达26项。新建森林生态系统定位观测研究站26个，已加入国家陆地生态系统定位观测研究站的数量达到166个，为林业生态建设相关评估和科学研究提供了重要支撑。

七、积极参与气候变化谈判和国际合作，全力促进共同发展。一是积极参与气候变化谈判。积极参与2015年巴黎气候大会林业议题谈判，对2020 年后发挥林业减缓和适应气候变化的作用、林业减缓和适应气候变化行动的透明度、发展中国家林业减缓和适应气候变化的行动支持等协议内容提出了意见。在气候变化框架公约附属科技机构下就2020年前发达国家实施《京都议定书》第二承诺期（2013—2020年）土地利用、土地利用变化和林业活动（LULUCF）涉及的核算方法、清洁发展机制下合格的 LULUCF 活动等相关的技术问题，发展中国家实施减少毁林、森林退化和森林保育、森林可持续经营，以及增加碳储量行动（REDD+）涉及的保护生物多样性等技术问题进行了磋商。二是加强与国际组织的合作。组织专家参加气候变化政府间专门委员会（IPCC）国家清单特设工作组2006年国家温室气体清单指南修订工作预备会，积极建言献策；组织专家参加第13届亚洲国家温室气体清单编制研讨会，与其他国家的专家进行深入交流与沟通。三是加强中美林业应对气候变化合作。落实中美第七轮战略与经济对话气候变化工作组下的“气候变化和林业”合作计划，在“气候公约谈判中就林业议题开展政策对话”等4个领域开展合作。2015年 9月， 在北京召开了中美森林、湿地和木质林产品碳估算和报告技术研讨会，双方交流了测量、报告和核查技术，商定了下一步合作的具体事项。四是加强与德国低碳土地利用项目合作。组织双方专家调研， 修订《低碳土地整治参考指南》，召开了成果研讨会，并就未来二期合作进行了探讨。

八、加强人才培训和宣传普及，夯实林业应对气候变化工作基础。坚持把人才队伍建设摆在林业应对气候变化工作突出位置，不断加大培养力度。国家林业局举办了第九期林业应对气候变化暨林业碳汇交易培训班，培训省级林业管理人员107人。举办了2015年林业碳汇计量监测体系建设培训班，培训省级技术支撑单位人员110人。在全国林业知识培训班上，专门安排了“林业应对气候变化”专题讲座，培训无林业专业知识背景的林业干部100人。各省（自治区、直辖市）林业厅（局）也举办了林业应对气候变化专题业务培训班，林业干部队伍的业务素质和政策水平不断提高。配合有关部门，完成《中国应对气候变化的政策与行动2015年度报告》、《应对气候变化——中国在行动》宣传片制作和宣传册编写、《第三次气候变化国家评估报告》。在 2015年巴黎气候大会现场，主办“应对气候变化的中国林业行动”、“建设碳汇城市应对气候变化” 主题边会，大力宣传中国林业在应对气候变化中的地位和作用。在福建省永安市举办了第五届“绿化祖国，低碳行动”植树节全国启动仪式，海口等地20多个分会场同时启动，进一步增强了公众对全球气候变化和生态环境保护的关注度。结合国际森林日、全国低碳日等重要节日，组织开展系列宣传活动，展示中国林业应对气候变化行动和成效。充分利用“中国林业应对气候变化网”加大对社会公众的宣传，营造应对气候变化的良好氛围。

九、着力抓好机关节能减排，积极促进绿色低碳发展。贯彻落实国管局2015年公共机构节约能源资源工作安排，进行了2015年国家林业局公共机构节约能源资源工作部署，研究制定了国家林业局公共机构节约能源资源管理办法，进一步完善监督考核制度，建立电、水、热、污水和雨水精确计量统计信息系统，确保节能工作落到实处。做好日常节约能源资源工作，加强机关用油、用电、用水、用气管理和资源循环利用管理。认真抓好节约型公共机构示范单位创建，以及建筑节能、节能技术和产品推广、节水和资源循环利用、可再生能源应用、绿色消费以及管理监督等重点工作。积极开展节能学习培训、宣传工作，认真组织节能环保参观展览， 不断增强机关干部职工节能低碳意识，切实形成国家林业局机关节能环保和绿色发展的浓厚氛围和良性机制，以实际行动为林业应对气候变化工作作出应有贡献。

China’s Forestry Policies and Actions for Addressing Climate Change (2015)

In 2015, according to the decisions and arrangements of the Party Central Committee (PCC) and the State Council (SC), the State Forestry Administration (SFA) focused on objective tasks set out in the Work Scheme on Greenhouse Gas Emission Control in the 12th Five-Year Plan Period and Key Action for Addressing Climate Change in Forestry in the 12th Five-Year Plan Period, achieved new progress through promoting the efforts in addressing climate change in forestry and made new contributions to climate change actions and eco-civilization.

I.Strengthening macro-guidance on forestry for addressing climate change in line with national climate change strategies. In order to conscientiously implement China’s National Plan on Climate Change (2014-2020) and National Climate Change Adaptation Strategy (People's Republic of China), the SFA formulated and published the Key Work Plan of Forestry to Address Climate Change in 2015, which clearly clarifies annual key tasks and distribution of workload. Besides, the SFA also actively participated in the formulation of Enhanced Actions on Climate Change: China’s Intended Nationally Determined Contributions. Action targets of forestry for addressing climate change in 2030 were put forward and included as part of the China’s Intended Nationally Determined Contributions. Performance of each province (autonomous region and municipality) in completion of the objectives and tasks of carbon emissions intensity (including forest carbon-sink) was evaluated jointly with the National Development and Reform Commission, to further promote China’s efforts in forestry increasing carbon sink to reduce emission. Conscientiously implementing the Guidance for Promoting Forestry Carbon Sink Trading, forestry carbon sink trading was actively promoted and guidance on construction of forestry carbon sink projects was provided to Beijing, Liaoning, Shaanxi, Chongqing, etc. By the end of 2015, there are 34 forestry carbon-sink projects which are undertaking record-keeping procedures of voluntary emission reduction throughout the country. Formulation and expert consultation of the Key Points for Actions for Climate Change in Forestry in the 13th Five-Year Plan and Action Plan on Adaptation of Forestry for Addressing Climate Change (2016-2020) have been organized and completed, explicitly outlining the objectives, key tasks and safeguard measures of forestry in the next five years.

II.Vigorously implementing afforestation and forest management and constantly increasing forest carbon sinks. To achieve the target of “a net increase of 40 million hectares of forest area”, the National Layout Plan on Afforestation (2011-2020) was vigorously implemented; supervision of the afforestation project was strengthened; afforestation and greening in arid area, Beijing-Tianjin-Hebei and other key areas was comprehensively promoted; the scale of a new  round of returning sloppy farmland into forests and grasses was enlarged; the implementation of key forestry construction projects was speeded up, including General Control in Karst Areas, Sand Source Control around Beijing and Tianjin, Construction of Shelterbelt Forest System in the Northeast, Northern and Northwest Regions, Construction of Key Shelterbelt Forest System in Yangtze River Basin and etc, Protection of Natural Forest Resources and so on. A total of 6.6437 million hectares of forest was constructed, accounting for 104.9% of the annual task. In order to comprehensively strengthen forest management, National Forest Management Plan (2016-2050) was formulated; construction of forest management system was vigorously promoted; the policy of forest tending subsidies was conscientiously implemented; forest tending was scientifically implemented and construction of sample plot of forest management was steadily promoted. A total of 8.3333 million hectares of forest has been tended around the country, exceeding the planned annual task. According to the Global Forest Resources Assessment Report in 2015 released by FAO, China has become the world’s fastest growing country in terms of annual increase of forest area, the forest stock in China has been steadily increasing as well. With the growth of forest resources in China, forest carbon-sink ability has been further enhanced, which has made significant contributions for addressing climate change.

Ⅲ.Intensifying the protection of forestry resources and continuously reducing emission of Greenhouse Gas. (i) strengthening the protection and management of forest resources. The national protection and utilization plan of forested land was strictly implemented. The logging management reform was actively promoted. Utilization control of forested land was intensified. Combatting to illegal occupation of forested land was strictly implemented. Forested land loss was curbed. Efforts to reduce emission from forest damage was made. (ii) strengthening the protection of natural forest. Conscientiously implementing the important instruction spirit of President Xi Jinping to “strive for protection of national natural forests”, policies of natural forest protection was implemented, and protection scope was further expanded; stopping commercial logging in natural forests was accelerated.Commercial logging in natural forests has been stopped in Hebei province, Daxing’an Ling and Xiaoxing’an Ling Mountains, as well as Changbai Mountain within Heilongjiang, Jilin and Inner Mongolia Provinces. In total, 115.4 million hectares of natural forests were protected under the Natural Forest Protection Project, achieving growth both in forest area and stock volume. Water conservation, CO2 absorption and other ecological functions of forests were significantly enhanced. (iii) strenghtening the construction of nature reserves. By the end of 2015, 2228 nature reserves (including 345 national nature reserves) at various levels were established in the forestry system covering an total area of 124 million hectares, accounting for 12.99％ of national land area. Natural reserves which are constructed and management by forestry sectors are more than 80% of the total nature reserves in China in terms of quantity and area. It ensures that areas with richest biodiversity, most important ecological features and most beautiful natural landscape in China were effectively protected.(iv) strengthening forest fire prevention. The extreme adverse weather was actively responded. The deployment was motilized in advance. Responsibility was allocated and vigorously implemented. Real-time monitoring was comprehensively carried out. Prevention and early warning was proactively implemented. Forest fire was stopped in a scientific way. The frequency of forest fire, damaged forest area and injured number decreased by 20.7%, 32.3% and 20.7% respectively compared to the same period in 2014, showing a “three drop” trend. The carbon emission caused by forest fire was therefore reduced. (v) strengthening forestry pests and disease control. Steadily promoting implementation of Opinions of General Office of the State Council on Further Strengthening Forestry Pest and Disease Control (the State Council Order No. 26〔2014〕), . Accountability of key forestry pest and disease control objective was seriously implemented,focusing on response to major alien pest invasion. Joint and nuisanceless prevention and control, as well as prevention and control for key ecological areas was further promoted. The forest area with prevention and control measures reached to 8.1384 million hectares throughout the country. Hazard rate of main forestry pest was controlled within 4.5 ‰ and nuisanceless prevention and control rate reached to above 85%. Serious damage by main pests like pine wilts, fall webworms and rats (rabbits) has been effectively controlled, resulting in enhanced forest health and reduced carbon emissions. (vi) strengthening protection and restoration of wetland. By carrying out the Implementation Plan of National Wetland Conservation Projects in the 12th Five-Year Plan Period, wetland protection and restoration projects were vigorously promoted and an investment plan of about RMB 237 million within central budget for wetland protection engineering was issued; a total of RMB 1.6 billion from central finance was allocated as subsidies for wetland projects and 336 wetland projects were benefited; newly increased wetland protection area is 400, 000 hectares and 20, 000 hectares of wetlands were restored; 3 wetlands were newly listed as wetlands with international importance; 137 national wetland parks (pilot) were established and 46 national wetland parks have passed inspection and acceptance. Carbon-sink function of wetland ecosystem has been gradually improved.

Ⅳ.Accelerating the building of the national forestry carbon monitoring system to provide data basis for scientific decision making on climate change. (i) Work Plan on Building of the National Forestry Carbon Monitoring System in 2015 and statistical table of essential data on forestry management activities have been formulated and issued. Training workshop on building of the national forestry carbon monitoring system in 2015 was organized to deploy annual work load for construction of forest carbon monitoring system.(ii) land use change and forestry carbon monitoring in 18 provinces (autonomous regions and municipalities) including Beijing was carried out, achieving periodical outcomes. Evaluation   for   ecosystems   of   19   important   wetlands  in Beijing-Tianjin-Hebei regions was conducted and guidance  was provided for Liaoning, Jilin and Heilongjiang provinces to complete survey on carbon pool of peat bogs in order to identify the wetland area and distribution. The model  parameter of forest understory, soil carbon pool and wetland carbon pool was established and refined. (iii) Research on carbon stock of desertification land was conducted and the change in organisms and soil carbon stock of national desertification since 2000 was analyzed and estimated. (iv) Construction of technical standard for carbon  sink  was speeded up. Major achievements of formulation of a series of standards such as Guide on Forestry Carbon Accounting and Monitoring Technology, Technical Specifications on Survey of Carbon Pool in Forest Ecosystem, Standards on Basic Wood Density of Nationwide Dominant Tree Species, Terms of Forestry Carbon Monitoring, Technical Proposal of Wetland Carbon-sink Accounting and Monitoring, Technical Guide on Carbon Storage Measurement of Wood-based Forest Products.(v) infrastructure construction for carbon monitoring was actively promoted. According to the requirements of relevant departments, early stage study on the carbon satellite was carried out. Carbon satellite project requirements and assignment as well as verification report of application system solutions were compiled.