Four
Implementation of the Six Key Programs

4.1 The Natural Forest Protection Program

4.2 Building a Green Wall for Mountains and Rivers

4.3 The Conversion of Farmland to Forest Program

4.4 Building a Green Shield Around Beijing and Tianjin

4.5 The Essence of Maintaining Eco-Balance

4.6 Development Program for Fast-growing and High-yielding Forests

The implementation of the six key programs leading to the large-scale development of forestry is the basic course to be followed for a leap in development. After systematic integration, the six key programs—namely, the Natural Forest Protection Program, the Conversion of Farmland to Forest Program, the Key Shelterbelt Development Program in regions such as the Three-North and the middle and lower reaches of the Yangtze River, the Sand Control Program in Beijing and Tianjin, the Protection of Wild Animals and Plants and Development of Nature Reserves Program, and the Development of Key Timber Production Bases Program—will bring about the rapid development of forestry.

The six key programs not only cover the major aspects of forestry development within the ecological system and in industry which the old programs addressed, such as forest resource protection, forest cultivation, and combating desertification, but also map out new programs, such as returning farmland to forest, protecting wildlife and building nature reserves, and further improving the overall structure of forestry production. The programs, to be implemented in 97% of all the counties in the country and convering more than 73.3 million hectares of planned afforestation area, will make the distribution of forests more rational. By the year 2010, the framework for the two systems to set up a forest ecological network and a forestry industry with multifunctions and uses will be established with proper arrangement of trees, shrubs and grasses, coordination of spots, lines and areas, and combinations of large-scale shelterbelts, small patches of woodland, and forest networks. The ecological environment will be improved in the key regions and the production capability of timber and forest products to meet the needs of the national economy and the people's life is expected to be enhanced.

4.1 The Natural Forest Protection Program

The Natural Forest Protection Program, with the largest investment, is China's leading project. Its implementation will help to solve problems such as protecting natural forest resources, renewal and multiplication, rehabilitation, and development in the key state-owned forestry districts and the upper reaches of the Yangtze River, the upper and middle reaches of the Yellow River, Northeast China, and Inner Mongolia. This is a historic step toward protecting the forest ecosystem, strengthening eco-conservation, and carrying out strategic changes in forestry.

4.1.1 Implementation of the Natural Forest Protection Program

Natural forests make up 97% of the total forested areas in the world and play an important role in balancing the land ecosystem and world economic development. Major rivers such the Amazon River, the Mississippi River, the Nile River, the Danube River, the Yangtze River, and the Yellow River in the six continents, except Antarctic rise, have their catchment areas in the natural forest zones. Natural forests are the main suppliers of forest products, by-products, special products, and fuel wood, the main absorber of greenhouse gases and the habitat and sanctuary of wildlife. Furthermore, they provide resorts for tourists. Compared with plantation forests, the natural forest system has high self-restoring capability because of its complex structure and stable functions, plentiful biodiversity, and high aesthetic value. It not only plays a tremendous role in the eco-balance but can also better satisfy the diversified needs of the people. It is a green gem presented by nature to human beings. Because of its comprehensive effects, the principal position of natural forests is unshakable.

China is becoming a country with limited forest resources as its natural forests have been reduced to a small percentage because of wars, natural hazards, and over-logging over time. At the time of the founding of the PRC, all trades and professions were in shambles. Owing to the shortage of both materials and funds, economic activities of the society relied mainly on forestry. The major task of forest industrial enterprises was logging and using the timber. Because little attention was paid to the hazards resulting from the loss of natural forests, excessive logging was not effectively stopped. As a result, the area of natural forests was reduced drastically, the quality deteriorated and the capacity for soil and water conservation, biodiversity, and non-timber forest products supply declined. The capacity to support sustainable economic development was dramatically weakened and the gap in living standards between the people in the forest areas and the rest of society increasingly widened.

Ecological harmony and beautiful landscapes are important factors in China's modernization drive and necessary for achieving sustainable development. The effective protection of existing natural forest resources and the rehabilitation and development of forest vegetation were vital decisions made in response to Jiang Zemin's call for “rebuilding a northwest region with beautiful mountains and rivers,” a concrete way of achieving the goal of national development carried out in the spirit of the Sixteenth National Congress of the CPC. These are strategic measures to shift the emphasis of forest management from giving more importance to plantations and less to management to one of equal emphasis on afforestation and management, from normal protection to high-quality management, from an emphasis on economic benefits to an equal emphasis on economic and ecological benefits, and from an emphasis on quantity to an equal emphasis on both quality and quantity.

The Natural Forest Protection Program is an important vehicle to improve China's eco-environment. Natural forests are those with perfect eco-functions, which can play a key role in preventing water and soil losses, containing desertification, and alleviating natural hazards. The fifth national forest resources inventory has shown that there are 107 million hectares of natural forests in China, of which 73.3 million hectares are scattered in seventeen provinces (autonomous regions and municipalities directly under the Central Government) along the Yangtze and Yellow Rivers, Northeast China, Inner Mongolia, Hainan, Xinjiang, and so forth. These regions are ecologically the most important and can play a pivotal role in improving the eco-environment in the country. To protect these natural forests, it is necessary to conserve the best areas. The implementation of this project is of strategic significance in protecting and improving the eco-environment in the project areas, as well as promoting the development of the western region and realizing balanced and coordinated development in the whole country. It is the most effective and quickest way to achieve ecological protection and development.

The implementation of this program is vital for China's strategic adjustment in forestry. Restructuring is an important measure to optimize the allocation of resources and to enhance the overall economic benefits. Adjustments can be categorized into strategic ones and adaptive ones. The adjustment of the forest product structure and stand structure belong to the latter category. The new situation has put new demands on forestry. Adaptive adjustment alone cannot satisfy the requirements. Strategic adjustment is also necessary. It involves mainly adjusting the forestry product distribution, the constitution of the labor force, the ownership system, and the investment constitution. The Natural Forest Protection Program involves the adjustment of the forestry structure. It is an inevitable step and is relevant to both forest productivity and the production relationship. This program will result in an abrupt turn, bringing sweeping changes in the operational direction and management of forestry, especially in the state-owned forest zones. For example, the traditional management pattern centered on timber production will be broken completely as every productive factor will be reorganized. The forest resource management system will be reformed, and workers in state-owned forest zones will become forest rangers and planters instead of lumbermen. This is a significant step and a call of the times which will have profound and far-reaching consequences.

4.1.2 Planning, Distribution, and Benefits of the Natural Forest Protection Program

The program covers seventeen provinces (autonomous regions, and municipalities directly under the Central Government) consisting of two large regions of state-owned forest zones, one in the upper reaches of the Yangtze River and the upper and middle reaches of the Yellow River, and the other in Northeast China and Inner Mongolia.

4.1.2.1 The Yangtze River and the Yellow River

In this region, the program covers the upper reaches of the Yangtze River, with the “three gorges” reservoir as the demarcation line, consisting of six provinces: Sichuan, Guizhou, Chongqing (a municipality directly under the Central Government), Hubei and Tibet Autonomous Region; and the upper and middle reaches of the Yellow River with the Xiao Langdi reservoir as the demarcation line, consisting of seven provinces (or autonomous regions): Shaanxi, Gansu, Qinghai, Ningxia, Inner Mongolia, Shanxi, and Henan.

The program, focusing on the protection of natural forest resources and increasing and recovering forest and grass vegetation, will adjust and optimize the economic structure in order to control water and soil losses and improve the eco-environment in the region.

The objective of this program is to effectively protect the 61.18 million hectares of forests in the upper reaches of the Yangtze River and the upper and middle reaches of the Yellow River, and reduce forest consumption by 61.08 million cubic meters, thus decreasing the yield of commercial timber by 12.39 million cubic meters. By the year 2010, about 14.67 million hectares of forests and grassland will be added, which will increase to 32.6% from the present 25.87%. The forest cover will increase to 21.24% from the existing 17.52%, adding 8.67 million hectares of forests. The eco-environment in the region will be greatly improved after the forest ecosystem is formed. Thus, it will provide the necessary eco-environment to accelerate an adjustment of agriculture and the rural economic structure, so that peasants can be lifted out of poverty more quickly and economic development can proceed in the western region, thus achieving the third strategic objective of China's modernization drive.

The tasks of the program include the following:

• A ban on the felling of trees for commercial purposes, covering 30.38 million hectares of natural forests in the region, which will be administered strictly. Meanwhile, another 30.8 million hectares of forests, shrub land, and unestablished stands will be managed more effectively.
• Planting trees and grass on barren hills will be speeded up. From 2000 to 2010, 12.73 million hectares of land will be afforested, of which 3.672 million hectares will be closed to facilitate afforestation, 7.132 million hectares will be planted by aerial seeding, and the remaining area will be planted manually.

The program is divided into two stages. The main tasks in the first stage, from 2000 to 2005, are to stop logging in the natural forests, build up ecological forests for public benefits, and finding jobs for laid-off workers. The second stage is from 2006 to 2010.

4.1.2.2 Natural Forest Protection Program in key state-owned forest zones

The program in the state-owned bureaus and forest farms cover five provinces (or autonomous regions), namely, Inner Mongolia, Jilin, Heilongjiang (including the Greater Xing'an Ridge), Hainan, and Xinjiang.

The purpose of the program here is to protect the eco-environment and biodiversity so as to achieve a balance between the economy and natural resources. Priority will be given to the improvement of the eco-environment, water and soil conservation, and water source protection. Its main task is therefore to protect the existing natural forest resources. The focus of the work is to reduce the timber yield and resettle laid-off workers. The system of forest resource management will be adjusted through a reclassification of forests, and effective measures will be adopted to cut down timber yield, manage the forest resources, and resettle the redundant labor force properly so that the forest ecological shelterbelts can play a more effective role.

The objectives of the program include reducing the timber yield in the key state-owned forest zones in Northeast China, Inner Mongolia, and so on, by 7.515 million cubic meters. Thus, 33 million hectares of forest will be protected effectively, and 484,000 redundant staff will be diverted to other professions. A strategic shift will also occur in forest industrial enterprises. As forest resource protection and management are strengthened, the exploitation and utilization of forest resources and the relevant industrial structures will be further adjusted, the economy in the forest zones will develop rapidly, and the contradictions between the population, the economy, the resources, and the environment will be basically resolved. This will lay a solid foundation for setting up a more complete forestry ecosystem and a more developed forestry industrial system, which will play its due role in promoting sustainable development in both the economic and social spheres.

The program spans from 2000 to 2010. From 2000–03, the timber yield is to be reduced by 7.51 million cubic meters in total, 33 million hectares of forests are to be effectively managed and protected, and 484,000 redundant laborers resettled. Thus, the strategic shift in forest industrial enterprises will be effected.

In order to achieve the goal of forest resource protection in the two regions, the State has adopted the following major policies and measures:

• Stop the commercial cutting of natural forests throughout the upper reaches of the Yangtze River and the upper and middle reaches of the Yellow River and drastically decrease timber production in the important state-owned forest zones in Northeast China and Inner Mongolia;
• Strengthen forest resource management and administration in order to end excessive logging;
• Implement an individual contract system to carry out forest resource management responsibly;
• Appropriately handle the split-flow and resettlement of redundant laborers and introduce an overall social plan for old-age insurance. The major measures include using redundant personnel to manage forests by themselves and to exploit and use collateral forest resources, providing a lump-sum payment for their resettlement, and finding jobs for them after terminating their jobs with the enterprises, as well as engaging reemployment service centers to help;
• Speed up the planting of trees and grass on barren hills and land suitable for forests within the program region;
• Actively exploit and use collateral forest resources;
• Speed up the reform of forest resource management system in the state-owned forest zones.

Other relevant policies include encouraging the development of collateral forestry industries; helping workers engaged in plantations, breeding, and diversified economic programs to obtain loans from commercial banks according to their eligibility; suspending bank interest on debts owed by forest enterprises and small timber-processing factories because of the decreasing timber yield, and solving this problem by writing off bad debts after checking and verifying the circumstances; lowering the tax revenue in the local budget as a result of reduced timber output; and granting partial subsidies through financial transfers from the Central Government.

4.1.3 Implementing the Natural Forest Protection Program

The program is both a sacred and a huge one. Its protracted, formidable, complex, and social nature will have far-reaching significance. There are six criteria for checking and judging whether the protection is genuine or false:

• whether the natural forests get effective protection;
• whether felling is stopped as required in forbidden areas, and adjusted and properly organized in restricted areas;
• whether the timber yield is reduced according to planned proportions;
• whether redundant staff are properly resettled;
• whether the growth of the economy in the forest region is sustained, and
• whether social stability is maintained in the forest region.

The six criteria set the development standards and requirements to be met. In order to meet the above criteria, the following work has to be well done.

4.1.3.1 Planning and implementation scheme

Planning and classifying forests are very important jobs in carrying out the program, and are the prerequisites and basis for working out the implementation scheme scientifically at provincial and county (bureau) levels. If this is not done, the program would be like a stream without a source, a tree without roots. Many measures cannot be implemented, and the efficiency of the program cannot be checked or assessed. Thus, planning and classification are of utmost importance. According to the forest classifying system and based on certain principles and requirements, the forests can be grouped into units at county level (state-owned forest bureaus, state-owned forest farms), and further divided into subunits and plots, so as to demarcate the districts where logging is banned, where logging is restricted, and those designated as commercial forests. Forest classification must be done according to the national implementation scheme of the Natural Forest Protection Program and the results of forest resource investigation conducted in the program region in 1999, using the method of “drafting plans first at lower levels and then decided by higher and lower departments together.” Decisions can be made on the spot according to plots and subunits, and their locations marked on a chart. Advanced technology systems, such as remote sensing (RS), geographical information system (GIS), and global positioning system (GPS) can be used in the planning and monitoring, and in the management of the program. In addition, computers should be used to enhance the scientific management of the program.

An implementation scheme at the county (bureau) level is important for organizing and carrying out the program. It is also a guide and standard by which the program work can be assessed for its quality and benefits. The carrying out of the program is like putting on a performance. Without a good script, it is difficult to give a good performance, even if there are many good actors. The county (bureau) is the basic unit to implement the program. The key to working out the scheme for counties lies in a realistic, scientific, rational, and practical attitude. The scheme should meet the macro-requirements of the State, be integrated with local conditions, and be feasible. The objectives and tasks of the program, such as banning logging or decreasing timber yield, improvement of forest management and protection, cultivation of forests, development of supporting infrastructures, split-flow and resettlement of redundant labor, overall planning for old-age insurance and the required funds, as well as organizing the administration and measures of the program, all have to be analyzed, specified, and carried out with concrete targets.

4.1.3.2 Enforcement of measures

The measures decided upon must be carried out strictly, from the smallest tasks, and managed well, otherwise there will be problems. The basic requirements of the program are to stop felling natural forests in the upper reaches of the Yangtze River and the upper and middle reaches of the Yellow River, and to reduce the timber yield in certain state-owned forest zones in Northeast China and Inner Mongolia. It is important to work out plans to stop the felling of trees and reduce timber yield according to the implementation scheme approved by the State Council. The commercial cutting of natural forests has to be stopped. Governments at all levels in the program region must promulgate decrees to impose the ban on logging. Forest industrial enterprises must dissolve the labor forces engaged in lumbering and close the lumber markets in the forest zones and their peripheral areas. Factories using timber as their raw materials must be streamlined, and the designated mountains and roads closed to enforce comprehensive control and guard key forest zones. Annual lumber yield must be reduced to the quota decided by the implementation scheme of the program region in Northeast China and Inner Mongolia. Logging in the “no-cutting” areas will be banned and the forest vegetation protected. Only selected felling of low intensity and of a tending nature can be carried out in restricted areas according to the operational design and the cutting index, as approved. No permission to carry out cutting that would cause damage to forest resources in the name of tending the forest will be given. The transportation and processing of timber will be subjected to strict management and supervision. Random cutting and illegal transportation and sales of timber will also be strictly prohibited.

It is important to enhance the management and supervision of the program for a smooth implementation. Research in forest resource management, implementation of management contracts in areas where conditions are suitable, and setting up an effective management mechanism are thus crucial. Managing personnel, plots, responsibilities, and the system of reward and punishment should be properly organized. It used to be said that “planting accounts for 30% and management for 70%,” but it is now emphasized that management accounts for 90% and planting for 10% of success. Careful deliberation is needed on how to manage and who to manage. Piecemeal timber robbery takes place on a limited scale and open looting by people rarely happens and only under special circumstances. Most of the cases of lumber stealing are done by enterprises. If this problem is solved, illegal felling will stop. This can be done with the cooperation of the enterprises. Different management methods should be used according to forest distribution and the geographical features in the region. In the remote mountainous areas where transportation is difficult and the population is sparse, teams of competent personnel must be set up to manage and protect the forests. In nearby mountainous areas with convenient transportation and dense population, individual contracts and responsibility systems can be used where the responsibility, obligation, rights and benefits of the individual are clarified through contracts.

4.1.3.3 Exercising strict management and ensuring effective use of funds

Good quality management and the effective use of funds make an integral whole. Without good quality management, there will be no effective use of funds. The key to the success or failure of the natural forest protection program is to ensure that the funds are properly used and allocated. In order to strictly abide by the relevant regulations on the control and use of program funds, it is important that:

• The investment plan of the state capital development and financial budget and the final accounting system should be strictly implemented—development must be carried only after it is approved, and no unit or individual may be allowed to extend the development scale, raise the development standard, or alter the program and related items;
• The development fund of the program budget should be deposited in a special account;
• Special development funds must be used for the intended purposes and accounted for individually—no department or unit in any area should be allowed to capture, withhold, transfer or enter into mortgage loans and interests, taxes or debts in whatever form;
• Program accounting must be carried out in strict accordance with the relevant regulations so as to ensure correctness, reliability, completeness, and adherence to the time-schedule of the statement of accounting, and any falsified expenditures or statements are strictly prohibited;
• Local governments must put into effect the conveyance funds according to the right proportions and amounts as determined in the program implementation plan approved by the State Council.

4.1.3.4 Maintaining social stability in forest zones

Proper split-flow and resettlement of redundant labor is not only an important manifestation of the success or failure of the natural forest protection program, but is also an important guarantee of social stability in the forest zones. It is the inexorable requirement of the program and the duty of the CPC and government to ensure this. The main channel for split-flow and resettlement is through good forest management and protection, the proper development and exploitation of forest resources, the cultivation of forests for public benefit, the development of commercial forest bases, and afforestation. Meanwhile, with more of the labor force channelled to forest management and protection, a strategic shift can be effected in the employment structure of enterprises. Thus, every aspect of the program can go smoothly as planned.

Enterprises unable to make temporary arrangements for laid-off workers must sign contracts to provide basic needs and reemployment agreements not exceeding three years. Within the three years, the enterprises must also provide them with three kinds of social insurance, namely, healthcare, old-age pension, and unemployment. At the expiration of the agreements, the enterprises can according to the law terminate the labor relationship with those workers unable to get re-employment. The latter will be placed in the category of people who can come under the unemployment insurance system or even the minimum living standard security system.

The one-time resettlement of redundant labor must be carried out according to the principles of being voluntary, fair, open, and stable. The enterprises which pay resettlement fees in a lump-sum can terminate their labor relationship with the laid-off workers, who will no longer be entitled to unemployment insurance.

4.1.3.5 Standardized administration of the program and guarantee of quality

The responsibility of guaranteeing the quality of the program development weighs “as heavy as Mount Tai.” It is important to foster a sense of “quality first” and to carry out the program development with a high sense of responsibility. The stress on quality control must start from the planning of the implementation scheme to the operational design at the country (bureau) level. No matter whether it is artificial afforestation, or closing the hills for afforestation, or plantation by aerial seeding, or the management and protection of forest resources, implementation units must work out practical operational methods in a scientific way according to the program implementation scheme and all technology regulations. Each hill and plot of land should be taken into consideration. Units in charge of the development must carry out their work according to the operational design. Administration units in charge of engineering must carry out strict supervision and monitor the quality according to the implementation scheme, the operational designs, and relevant technology regulations. It is important to explore the public tendering and bidding system, which is an important tool for guaranteeing the quality and benefits of the program through the mechanism of market competition. All administration units must strengthen their supervision and management of the program, actively cooperate with the audit sector in auditing development funds, collaborate with the financial departments in supervising the use of funds, and prevent the withholding, capturing, or diverting of funds for other purposes.

4.2 Building a Green Wall for Mountains and Rivers

The shelterbelt development program (in regions such as the Three-North and the middle and lower reaches of the Yangtze River) represent China's foremost and most extensive development programs. The objective is mainly to resolve the problem of sand erosion in the Three-North region and different ecological problems in other areas. It is a huge task to build up a nationwide and complete forest ecosystem to protect and expand the living and development space of the Chinese nation.

This program consists of several shelterbelt development programs in various regions: the Three-North region (fourth stage), Yangtze River valley (second stage), Pearl River valley (second stage), the coastal region (second stage). Also included is the afforestation program for the Taihang Mountains (second stage), and the plain greening program (second stage). The program covers 1,696 counties in twenty-eight provinces (autonomous regions and municipalities directly under the Central Government), with the plan to afforest 22.67 million hectares, and manage and protect 71.87 million hectares of forestland.

China has all along attached great importance to shelterbelt development. In 1978, when all previously neglected tasks needed to be undertaken, the State Council approved on November 25, the program for building up a large-scale shelterbelt in the Three-North region, fully demonstrating the farsightedness and bold resolve of the Central Committee of the CPC and the State Council to tackle the ecological problem and to promote the sustainable and healthy development of the national economy. The State Council stressed in particular: “There are serious wind and sand hazards, as well as water and soil losses in Northwest China, the northern part of North China, and the western part of Northeast China. Timber, fuel wood, fertilizer, and fodder are all in short supply. Agricultural production is low and unstable. Energetically planting trees and grass, particularly the building of shelterbelt systems combining large-scale belts, small patches of woodland, and forest networks in a planned way, is a major measure of strategic significance.” Thereafter, the State Council successively launched a series of major shelterbelt development projects, such as the ones in the Yangtze River valley, the Pearl River valley, the coastal areas, the afforestation program in the Taihang Mountains, and the plain greening program. They gradually made up a complete system of China's shelterbelt development. This has played an important role in improving the eco-environment in the regions and derived ecological and social benefits.

The rapid development of the national economy and society has put new and higher demands on forestry. When the course of the shelterbelt development programs is examined, it will be found that the existing system has played an important role in achieving tangible results. However, many problems have also been exposed, such as the low level of input, the overlapping of coverage of the projects, the redundancy of functions, the substandard administration, the uncoordinated policies, as well as the unstable and interrupted development program. In light of the existing problems, it has been decided that in the new effort in eco-environment development and eco-engineering, and in view of the overall requirements of eco-environment development by the State, the guidelines should be systematically integrated, focusing on the layout of the program. The reintegrated key shelterbelt development program in regions such as the Three-North and the middle and lower reaches of the Yangtze River is not only a continuation of the existing shelterbelts development program, but also a new planning system that will meet the new requirements of the national economy and further improve the quality and benefits, and perfect the production structure and layout.

4.2.1 Fourth Stage of the Three-North Shelterbelt Development Program

The Three-North shelterbelt constitutes the green Great Wall in the north of China. The completion of the fourth stage will initially check the wind and sand hazards of the northwestern region, build up a relatively complete shelterbelt system in the oasis of the desert and in Northeast China, further improve the eco-environment and production conditions in the Three-North region, and contribute to regional economic development.

According to the overall plan for the Three-North shelterbelt development program approved by the State Council, the program covers a total area of 4.069 million square kilometers, starting from Bin County in Heilongjiang Province in the east, to the foot of the Wuzibile Mountain of Xinjiang in the west, 4,480 kilometers long from east to west and 560–1,440 kilometers wide from north to south, covering 551 counties (banners, cities, or districts) in thirteen provinces (autonomous regions or municipalities directly under the Central Government), making up 42.4% of the national land. The planned time schedule stretches from 1978 to 2050, 73 years in total, which is divided into three phases and eight stages.

The fourth stage of the program basically maintains the integration of the Three-North shelterbelt system. According to the National Plan for Ecological Environment Construction approved by the State Council, some appropriate adjustments were made to the scope of the fourth stage. The newly adjusted fourth stage of the program covers 590 counties (banners, cities, or districts), involving 399.90 million hectares of development area, and 56.12 million hectares of farmland suitable for conversion to forest, of which 27.56 million hectares are forestland, with 8.63% forest cover.

According to the overall plan, the development term of the fourth stage is ten years, from 2001 to 2010. In order to link up with the Five-Year Plan for national economic and social development, the fourth stage is divided into two periods: the first period is from 2001 to 2005, corresponding to the period of the Tenth Five-Year Plan, and the second period from 2006 to 2010. By the year 2010, on the basis of effective management and protection of forest resources in the program region, the task of afforesting 9.5 million hectares will be completed, of which 6.302 million hectares will be plantations, 1.937 million hectares will be closed for afforestation, and 1.261 million hectares will be afforested by aerial seeding. Forest cover will increase by 1.84% from the current 8.63% to 10.47%. In addition, 1.30 million hectares of desertified land will be controlled and the eco-environment in the two sandy areas of Maowusu and Ke'erqin will be clearly improved. Thus, a relatively complete shelterbelt system will have been created in the northeast, and a high-standard shelterbelt for farmland will have been built in the oases of the desert, forming a group of relatively complete regional shelterbelt systems.

The program will cover four regions, including Inner Mongolia and the Xinjiang Region, the Loess Plateau area, the northern part of North China, and Northwest China. Inner Mongolia and the Xinjiang Region form the principal part of the Three-North shelterbelt program. It has the largest area, covering 174 counties (banners, cities) in six provinces (autonomous regions): Inner Mongolia, Shanxi, Shaanxi, Ningxia, Gansu, and Qinghai.

The main tasks for development are:

• to protect the existing natural vegetation in the desert with emphasis on combating desertification;
• to build up rationally-mixed shelterbelts of trees, shrubs, and grasses at the frontline of the desert to prevent sand storms;
• to build up large-scale shelterbelts in the cities and towns, along roads and around oases which have been afflicted by wind and sand;
• to build up a complete protection shelterbelt system for farms in the oases;
• to control the extension of desert and the hazards of wind and sand;
• to protect the oases and improve the eco-environment; and
• to drastically increase forest cover in the mountainous and hilly areas by closing and protecting existing forests, and restoring and developing forests to conserve water supply and prevent soil loss.

The Loess Plateau area is located in the central part of the program region, covering 182 counties (banners, cities) in six provinces (autonomous regions): Inner Mongolia, Shanxi, Shaanxi, Ningxia, Gansu, and Qinghai. The main tasks are to plant water and soil protection forests on the loess plateau, hills, and along the banks of rivers where there is a serious water supply problem and soil erosion. In the mountainous areas, the development of forests for the conservation of water supply is taken as the main task and efforts will be intensified in afforestation by aerial seeding. Mountains and hills will be closed for regeneration, and low-yield forests will be transformed so that the productivity and protective effects of the forests will be truly enhanced. On the Fenwei Plain, more will be done to improve the forest net for farm fields.

The northern part of North China consists of fifty-two counties in Liaoning Province, Hebei Province, Beijing Municipality, and Tianjin Municipality. The focus of the program here is to close the mountains and hills for afforestation and to regenerate the forest in places with surviving vegetation and good prospects for restoration with spouting; to create plantations for the conservation of water supply in water-source areas at the upper reaches of rivers and along the banks of major rivers; to build up water and soil conservation forests in the loess hills and on steep and infertile rocky land where there is a serious problem of water supply and soil erosion; to speed up the development of good quality forests for country fields in the agricultural areas and to develop timber forests and economic forests to appropriate scales.

Northeast China consists of 183 counties (banners, cities) of Inner Mongolia Autonomous Region, Heilongjiang Province, Jilin Province, and Liaoning Province. The main tasks here are to plant windbreak and sandbreak forests, shelterbelts for farmland, and water and soil conservation forests in the western part of Northeast China and Ke'erqin sandy land. In the eastern part of Northeast China, the program will promote the water-conservation role of forests, ban excessive logging and destruction of forests for land reclamation, take good care of the existing forest resources, and at the same time increase forest cover and enhance water-conservation capability by planting tree plantations and closing mountains and hills for afforestation.

4.2.1.1 Ecological benefits

1. Protection against the wind and prevention of sand drifting. 2.6 million hectares of windbreak and sandbreak forests will be built up during the current stage. According to the index, forest capability to control wind and sand is 14.2 tons per hectare, per year; to fix sand is 0.5 tons per hectare, per year; with the effect of 200 yuan per hectare, per year. After completion of the fourth stage of the project, 1.30 million hectares of sandy land will be brought under control. A total of 36.88 million tons of sand will be prevented from drifting, and 520 million yuan will be saved from the prevention of wind and sand hazards every year.

2. Water and soil conservation. About 3.25 million hectares of water and soil conservation forests will be built up during this stage. According to the index, forest capability to conserve soil is 30 tons per hectare, per year; to keep soil nutrient, 2.5 tons per hectare, per year; with the effect of 1,459 yuan per hectare, per year. After completion of the fourth stage, the area protected from water damage and soil erosion will have a net increase of 8.11 million hectares, soil loss will be reduced by 97.35 million tons, and soil nutrient of 8.11 million tons will be kept annually; with the effect amounting to 4,740 million yuan.

3. Farmland shield. About 1.11 million hectares of shelterbelts for farmland will be built up during the fourth stage. According to the index, within a forest net of 500m by 500m, the crop yield can increase by 19.8%. After completion of the fourth stage, farmland under effective protection will increase by 11.06 million hectares, with an annual increase of 5.75 million tons of crop yield, translating to a gain of 5,750 million yuan.

4. Water-source conservation. About 1.81 million hectares of water-conservation forests will be planted. According to the index, each hectare of forestland can conserve 300 tons of water more than that without forest, equal to 48 yuan in value. After completion of the fourth stage, the amount of water conserved annually will increase by 550 million tons, equal to 88 million yuan in benefits.

5. Pastureland (grassland) protection. About 155 thousand hectares of protection forests will be built up during the fourth stage. According to the index, each hectare can produce 750 kilograms of hay. With a growth rate of 20% within the protected areas, the annual increase of hay can amount to 40 thousand tons, worth 8 million yuan. After completion of the fourth stage, 12.68 million hectares of pastureland that was sandy, salty, or severely degenerated will be brought under control or restored. The annual increase of hay will amount to 1.88 million tons, worth 380 million yuan.

To sum up, after completion of the fourth stage, the annual benefit will amount to 11.4 billion yuan. What is more, natural disasters such as frost, dry and hot winds, and hailstones will decrease, and the biodiversity in the Three-North region will be effectively protected.

4.2.1.2 Social and economic benefits

The fourth stage of the program is the continuation of the first phase and the beginning of the second phase of the shelterbelt forest development program in the Three-North region. After completion of the tasks in the fourth stage, the forest cover in the region is expected to increase from the current 8.63% to 10.4%, further improving the region's eco-environment and production conditions, and promoting the region's economic development. This will create more than 4 million jobs. In addition, a variety of related products can be produced, such as forest tree seeds, rosin, cork, wood oil, medicinal materials, edible fungus, wild vegetables, honey, and various dry and fresh fruits. The production and processing of forestry-related products and special fruits, as well as the development and exploitation of forest resources would absorb the redundant labor force caused by reduced tree logging. This will play a positive role in lifting local farmers out of poverty and maintaining social stability.

4.2.2 Second Stage of the Shelterbelt Development Program along the Yangtze River

The banks of the Yangtze and Huaihe Rivers are China's most prosperous areas. The implementation of the second stage will initially build up a shelterbelt system with a rational structure, with multiple functions and benefits. The framework for an eco-shield will take shape in this region, thus laying the foundation for the sustainable development of the social economy.

The program covers 1,033 counties (cities, districts) in seventeen provinces (autonomous regions, municipalities directly under the Central Government) along the Yangtze and Huaihe Rivers, namely, Qinghai, Tibet, Gansu, Sichuan, Yunnan, Guizhou, Chongqing, Shaanxi, Hubei, Hunan, Henan, Anhui, Jiangxi, Jiangsu, Shandong, Zhejiang, and Shanghai. They are located in the region within 90°30′– 122°30′ east longitude and 24°58′–37°09′ north latitude. It covers a total area of 2.16 million square meters, of which 819 counties (cities, districts) in sixteen provinces (autonomous regions, municipalities directly under the Central Government), with a total area of 1.88 square kilometers along the Yangtze River (including the Qiantang River), and 220 counties (cities, districts) in four provinces with a total area of 278,000 square kilometers along the Huaihe River. In the program region, the existing forestry-related land covers 91.03 million hectares, of which 56.44 million hectares are forestland, with a coverage of 34.4%.

The objectives of the second stage are to improve the eco-environment along the Yangtze and Huaihe Rivers and to promote the sustainable development of the social economy. Ecological forests will be designated for public benefit, including river valleys, mountain ranges, lakes and reservoirs, where the focus will be on the prevention of water and soil loss and stone desertification. Protection will be given to the existing forests for public benefits. Efforts will be made to adjust and optimize the different varieties of forests and trees and forest-stands, restore and expand forest and grass vegetation through afforestation by closing mountains and hills for aerial seeding, and build up stable shelterbelt systems and integrate the variety of forests and trees to derive multiple functions.

Natural conditions vary greatly along the Yangtze and Huaihe Rivers. In order to plan the program rationally, taking into consideration the natural geographic conditions, and the objectives and orientation of the program, it is divided into sixteen districts. They are the district for ecological protection and water-source conservation on the Jiangyuan Plateau, the district for water and soil conservation and water-source protection in Qinba Mountains, the district for water and soil conservation in the hilly areas of the Sichuan Basin, the district for water and soil conservation in the mountainous areas of Yunnan Province, the district for water and soil conservation in the rocky areas of the Wujiang River valley, the district for water and soil conservation and dike protection in the Three Gorges reservoir area, the district for water and soil conservation in the Yimeng mountainous and hilly areas, the district for water and soil conservation and dike protection on the Yellow River–Huaihe River plain, the district for water-source protection in Funiu and Wudang Mountains, the district for water and soil conservation in Dabie and Tongbo Mountains, the district for dike protection around the lakes in the lower and middle reaches of the Yangtze River, the district for water-source protection in Wuling and Xuefeng Mountains, the districts for water and soil conservation in Mufu and Tianmu Mountains, and the hilly areas of Hunan, Jiangxi, and Zhejiang, and the district for water-source protection in Nanlin Mountains. Within a period of ten years, the program is expected to fulfil two objectives:

1. By 2005, protection for ecological forests for public benefit will increase by 150,000 hectares. Mountains will be closed for afforestation and the prevention of water and soil losses in the existing shelterbelt forests will be enhanced. The eco-functions and roles of the existing shelterbelts will also be stabilized. Forest cover is expected to increase by nearly 1%.

2. By 2010, there will be more than 65 million hectares of ecological forests for public benefit, of which over 4 million hectares will be newly added. Forest cover will increase by 2.5%. Water and soil losses will be reduced by more than 200 million tons. The capacity to conserve and regulate water resources will increase by more than 2.5 billion cubic meters. Shelterbelts will, by and large, be completed along the river banks and around the lakes and reservoirs. They will incrementally exercise their functions in protecting dikes and banks. Thus, the framework for an eco-shield will take shape along the Yangtze and Huaihe rivers.

The project is expected to yield remarkable ecological, social, and economic benefits. After completion of the program, the forest cover within the program region will increase from the current 34.4% to 36.9%, a net increase of 2.5%. The capacity for water conservation within the region will increase by 2.85 billion tons, and the annual loss of water and soil will be reduced by 233 million tons. The program will play an outstanding role in protecting farmland, preventing wind damage, fixing sand, reducing disasters, and safeguarding water-conservation facilities. The annual eco-value will amount to 12.67 billion yuan, while the benefit from timber reserves will amount to 104.66 billion yuan. In the course of implementing the project, capital input, mass participation, income from labor services, and sales of forestry products will revive the local economy and boost rural markets, thus playing a positive role in lifting the poor out of poverty, speeding up development, and achieving a moderately comfortable life. What is more, the strict administration and scientific management of the program will contribute to the improvement of the quality of the laborers and the level of forest management and administration.

4.2.3 Second Stage of the Shelterbelt Development Program in the Pearl River Valley

The objective of the program is to build up an eco-protection system in the region where China is experiencing the most rapid economic development. The main features of the program are to integrate the large and small river valleys, laying stress on the control of stone desertification, and water and soil losses.

The Pearl River lies in the southern part of China between the geographical coordinates of 102°14′–115°53′ E and 21°31′–26°49′ N. The second stage of the program covers 187 counties (cities, districts) and 34 forest farms (or nature reserves) in six provinces (autonomous regions), namely, Yunnan, Guizhou, Guangxi, Guangdong, Hunan, and Jiangxi. The total area covers 40.4917 million hectares, of which 18.05 million hectares are covered by forests, representing 44.57%.

According to the overall plan, the program is divided into five large controlling districts. The first district is in the north and south of the Panjiang River valley where water-source conservation, prevention of water and soil losses, and control of stone desertification will be carried out. The second district is along the Left river and Right river where control of water sources and soil conservation are the main tasks. The third district is along the Hong River where control of water sources and soil conservation are also to be carried out. The fourth district is along the lower and middle reaches of the Pearl River where comprehensive control of water and soil conservation will be undertaken, while the fifth district is along the East and North rivers, where water control and soil conservation, as well as water-source protection schemes will be carried out. The main tasks include the protection of existing vegetation, restoration and addition of forest and grass vegetation, and improvement of the eco-environment. The control of the river valleys will be done in units, laying stress on controlling stone desertification and water and soil conservation. In addition, the harnessing and exploitation of water sources will be integrated. Mountains will be closed for afforestation and comprehensive control. Efforts will also be made to build up an ecological shelterbelt forest system with multifunctional forests, with a large variety of trees for multiple benefits.

The main features of the program include the following:

• integrate the harnessing of large and small river valleys to meet eco-demands, taking into consideration the local people's desire to get out of poverty and become rich;
• lay stress on efforts to combat stone desertification;
• in the overall plan of development, to give priority to the upper and middle reaches, particularly the areas where there are serious water and soil loss and large-scale state-owned water-conservation facilities;
• on the method of development, to enlarge the proportion of mountains to be closed for afforestation;
• with regard to measures, to lay stress on the integration of trees, shrubs, and grass while developing fuel wood with perennial sprouting shrubs to meet the needs of the people in their daily life.

When the program is completed, forest area will increase by 1.72 million hectares, and forest cover will amount to 48.82%, an increase of 4.25%. The proportion of mixed forests will reach more than 50%. A preliminary shelterbelt forest system with a rational layout and deriving multiple functions and remarkable benefits will take shape. After completion, the program will be able to effectively control water and soil losses, conserve water sources, ease the shortage of water supply, initially restrain the trend toward stone desertification, mitigate various kinds of natural disasters, and effectively improve the eco-environment in the Pearl River valley. At the same time, the input of labor and materials for afforestation and the increase in income from forest products will yield tangible economic and social benefits.

4.2.4 Second Stage of the Shelterbelt Development Program along the Coast

The coastal areas are the golden belts of China's economic development, and the leaders in its modernization drive. The mission of this program is like draping green ribbons over the golden belt, to build up an ecological shelterbelt along the coast to protect against the incursions of the sea, typhoons, wind, and sand.

The program stretches from the mouth of the Yalujiang River in Liaoning in the north to the mouth of the Beicang River in Guangxi in the south, with a coastline stretching 18,340 kilometers. It covers 220 counties (cities, districts) in eleven coastal provinces (municipalities directly under the Central Government, and autonomous regions), namely, Liaoning, Hebei, Tianjin, Shandong, Jiangsu, Shanghai, Zhejiang, Fujian, Guangdong, Guangxi, and Hainan. The total area is 25.98 million hectares, of which 9.81 million hectares are forestland. The existing forests cover 8.38 million hectares, making up 35.45%.

The general aims of the project are to give priority to developing in the coastal backbone forest belts, and water and soil conservation in the mountainous and hilly areas. This is basically to consolidate the achievements of the first stage and to lay emphasis on controlling the saline-alkali content of the soil along the muddy coast and areas frequently hit by typhoons. The objective is also to link up all the coastal backbone forest belts, and to restore and develop rare mangrove forest resources, so as to form a stable forest system in the coastal areas in order to beautify the eco-environment in the developed areas along the coast. Taking into consideration the different natural geography and eco-environment along the coast, the program is divided into three zones: one for breaking the wind, fixing the sand, and conserving water and soil at the tablelands of the sandy coast; another for controlling the wind in the plain, tide, drought, flood, saline–alkali content along the silted coast; and the third for conserving water and soil and protecting water sources in the mountainous and hilly areas along the bedrock coast.

Compared with the first stage, the second stage of the program has the following features:

• as a guiding principle, there is a shift from an emphasis on quantity to one on quality and efficiency;
• priority is given to the development of the coastal backbone forest belts;
• with regard to standard, the aim is to create modern forestry by integrating afforestation with beautification, and cities with the rural areas, focusing on the large- and medium-developed cities along the coast so as to meet the demands of local socioeconomic development;
• on the method of forest development, the proportion of mountains to be closed for afforestation will be enlarged;
• on management measures, efforts will be intensified to transform less effective shelterbelt forests and to protect forest resources;
• on the input mechanism, the State and local investments will provide the main support while the people will be mobilized and encouraged to invest;
• in development work, mangrove forest development will be enlarged.

The total afforestation area of the program is 1.36 million hectares, of which 60,000 hectares of mangrove forests will be restored and developed. At the same time, 0.98 million hectares of less effective shelterbelts will be transformed according to the plan.

4.2.4.1 The focus of the program

1. Planting and restoring the coastal backbone forest belts. The coastal backbone forest belt is the most important part of the coastal shelterbelt forest system. It is the foremost defence line against natural calamities such as typhoons, wind, and sandstorms. The development work includes identifying the backbone forest belts, and broadening and restoring it. The total development area is expected to be 12.14 million hectares, of which the plantation area for the broken section and for broadening the belt is 63,900 hectares, while forest-belt regeneration will cover 57,500 hectares.

2. Plantations in the wind gap. Owing to special geographical features and environmental conditions, there are about 2,000 large and small wind gaps along the mainland coast where afforestation is very difficult. Up to now they have not been planted. In order to solve the problem of sand erosion at the wind gaps, there are plans to adopt engineering or biological measures in a comprehensive way and to plant 30,700 hectares of trees.

3. Restoring and cultivating mangrove forests. As a unique ecosystem at the edge of the sea, mangrove forests play a particularly important role in the eco-balance, for species conservation, and dike protection in the coastal areas. To protect the existing mangrove forests, the program plans to plant 60,000 hectares of mangrove forests in the second stage by taking measures such as introducing new species, cultivation, trial plantation, and extending their growth, in an endeavor to restore and develop mangrove forests on a massive scale.

After the completion of the second stage of the program, the forest cover in the coastal areas will amount to 38.74%, and more than 17,200 kilometers of coastal backbone forest belts will be linked. With the forest structure rationally adjusted, a multifunction eco-protected shelterbelt system combining trees, shrubs, and grass, and a considerably developed forestry industry system headed by forest tourism, will be in stable shape in the coastal areas. About 2.88 million hectares of coastland which used to suffer from water and soil losses, will be brought under effective control; nearly 0.5 billion cubic meters of water resources will be protected and rationally used; and 0.97 million hectares of farmland will be protected by shelterbelt forests. The shelterbelt system will play an even more important role in withstanding natural disasters, and mangrove and other rare resources will have been restored and developed. Thus, the project will significantly improve the landscape of the coastal areas and promote an open policy for economic and social development.

4.2.5 Second Stage of the Taihang Mountains Afforestation Program

The Taihang Mountains rise beside the Yellow River in the south, stretches to Sanggan River to the north and to the Fen River in the west, and connects with the North China Plain in the east, covering 112 counties (cities, districts) in Shanxi Province, Hebei Province, Henan Province, and Beijing Municipality, with a total area of 12.19 million hectares. According to the concept of the systematic integration of major forestry programs, the second stage will integrate the original 112 counties (cities, districts) into seventy-three counties (cities, districts, forest administration bureaus). The geographical coordinates of this area is between 112°30′–116°25′ E and 34°50′–40°20′ N, and stretches 570 kilometers from north to south, and 240 kilometers from east to west. The total area is 8.40 million hectares, with 3.77 million hectares of forestry-related land, of which 1.12 million hectares are forests, with a coverage of 10.0%.

The general aims of the second stage are to protect the existing forest vegetation and, in view of the actual conditions of the Taihang Mountains, to integrate artificial plantation, aerial seeding, and closing of mountains for afforestation. A combination of trees, shrubs and grass will be planted by closing the mountains or by aerial seeding in the deep or remote mountains and hills and at places where access is difficult, where there is sparse population, and where site conditions are inferior but suitable for afforestation, so as to develop various types of shelterbelt forests. There will also be artificially cultivated economic forests and timber stands on sloping lands with good site conditions. Gradually, a shelterbelt forest system will be built up at the Taihang Mountains with a focus on water-source protection and water and soil conservation. This will help to accelerate the adjustment of the rural production structure in the mountainous areas, hasten poverty reduction for the local people, and achieve sustainable development of the regional social economy.

The project is divided into seven development zones according to the reaches of the rivers:

• the Sanggan River water-source protection zone;
• the upper reaches of the Daqing River water-source protection zone;
• the Hutuo River water-source protection and water and soil conservation zone;
• the upper reaches of the Fuyang River water-source protection and water and soil conservation zone;
• the upper reaches of the Zhang River water-source protection and water and soil conservation zone;
• the upper reaches of the Wei River water-source protection and water and soil conservation forest zone; and
• the Qin River water-source protection and water and soil conservation zone.

The second stage is divided into two periods: the first from 2001 to 2005, corresponding to the Tenth Five-Year Plan, and the second period from 2006 to 2010.

After completion of the second stage of the project, the forest area is expected to increase by 1.08 million hectares, with forest cover increasing by 12.7%. This will form the backbone of the Taihang Mountains shelterbelt forest system, which will exercise various eco-functions. Regional farming conditions will be noticeably improved and the capability to withstand drought, water-logging, flood, wind and sand movements will be markedly enhanced. The implementation of the project will require, directly or indirectly, a labor force of 17 million person-times annually. Thus, not only will the redundant labor force in the rural areas be absorbed, but doors will also be opened to the reemployment of laid-off workers. This will relieve social pressures and contribute to social stability.

4.2.6 Second Stage of the Plain Greening Program

Plain afforestation is China's earliest shelterbelt forest program. The implementation of the second stage will further lift the level of overall afforestation, beautify the environment in the plains, and create a high-quality eco-environment for comfortable living, as well as a good investment environment for sustainable development in these areas.

The second stage covers 944 counties (cities, banners, districts) in twenty-six provinces (autonomous regions, municipalities directly under the Central Government), namely, Beijing, Tianjin, Hebei, Shanxi, Shandong, Henan, Jiangsu, Anhui, Shaanxi, Shanghai, Fujian, Jiangxi, Zhejiang, Hubei, Hunan, Guangdong, Guangxi, Hainan, Sichuan, Liaoning, Jilin, Heilongjiang, Gansu, Inner Mongolia, Ningxia, and Xinjiang. Of the 944 counties, 623 are full plains, 188 are semi plains, and 133 are partial plains, with a total area of 214.32 million hectares.

The objective of the second stage is to create large regional (regional or cross-regional), high-quality green plain belts. The project will integrate the greening of roads, rivers, and irrigation ditches, focusing on the greening of vital communication lines, cities, town, and villages, with tree-planting in the surrounding areas. Keeping the interests of the rural economy in mind, it will adjust the forest structure, build up a sound and comprehensive shelterbelt forest system in the rural plains, improve the overall greening and beautification of the plain areas, and increase the efficacy of forestry in the ecology, society, and economy. This will create a high-quality eco-environment for the sustainable development of the economy and society, as well as a beautiful habitat and good investment environment in the plains.

In view of the development requirements and the actual conditions, the second stage of this project is divided into two periods: the first from 2001 to 2005, and second from 2006 to 2010.

The whole task from 2001 to 2010 is the greening of 5.52 million hectares of land, of which newly-planted forest from farmland will cover 0.42 million hectares, and greening of the barren mountains and surrounding land will cover 2.95 million hectares. In addition, village greening will extend over 1.13 million hectares, while urban gardening will cover 0.30 million hectares, with 0.73 million hectares of farmland transformed into forests.

After the completion of the project, the area of forests from farmland on China's plains will be extended from 32.56 million hectares to 38.66 million hectares, a net increase of 6.10 million hectares. The proportion of forests from farmland will reach 83.9%, while greening along roads, irrigation systems, and rivers will be more than 95%. The area of forest cover in China's plains will increase by 4.79 million hectares, with forest cover rising by 2.2%. The quality of the existing forest belts, covering 0.73 million hectares will be improved remarkably. The efficacy of forests converted from farmland will be greatly improved. All these will contribute to the healthy development of forestry and enhance significantly the eco-environment in the plains. At the same time, the implementation of the project will steadily increase forestry resources in these plain areas, promote the rapid development of industrial enterprises related to forestry, tourism, the processing of forestry products, and other byproducts. It will accelerate the adjustment of the industrial structure in the rural areas and contribute to the formation of a new industrial area, as well as facilitate the progress of the population, the economy and the environment in these plains.

4.2.7 Proper Implementation of the Program under Specific Local Conditions

The development work in the key shelterbelt forest program in the “Three-North,” and the middle and lower reaches of the Yangtze River must be carried under specific local conditions. In consideration of the characteristics of the project, it is important that the publicity, planning, coordination, basic work, and working style must be well executed and coordinated—decisive measures for the project.

4.2.7.1 Importance of publicity to create awareness

It is a prerequisite for the success of the project to prepare the public for the work ahead. Publicity work is important to create awareness among the masses and foster a good social atmosphere. Full use of the mass media, such as broadcast, TV, newspapers and IT networks, can be made to carry out publicity work in various ways, to energetically publicize the important role of shelterbelt systems in economic and social development as well as improve the eco-environment. This will enhance social awareness of the program's strategic significance. Publicizing the program's goals and prospects will boost morale and encourage lofty aspirations by a broad section of the people. It is also important to publicize the program's tremendous achievements in the earlier stages, the successful experiences and outstanding examples, in order to promote confidence in the current program development. The details of the program and the tasks involved should also be made known, as well as the sense of urgency of the times and the sense of national responsibility. The mobilization of the masses is the first step in launching the program's implementation, so that they can fully participate in the development work, using their own initiatives. Thus, a new attitude is created among the people who will attach importance to and give support to the program development wholeheartedly.

4.2.7.2 Planning and specification of tasks

The tasks of planning and specification are keys to the program's development. Planning can be done at the provincial level but the implementation must be mapped out at county levels in accordance with the projects approved by the State, separating the objectives and tasks at different levels, and assigning specific tasks to grassroot units, including each hill and plot of land.

1. In the course of specifying the tasks, it is imperative to give top priority to districts that are the most vulnerable to the eco-environment and seriously afflicted by disasters but which can experience significant impact when the eco-environment is harnessed.
2. The program should be incorporated into the local economic and social development plans and be deliberated upon and approved by the people's congresses at the appropriate levels, so as to ensure authority and seriousness of the program.
3. The implementation should be organized in strict accordance with the program. The formulation and issuance of annual plans must be based on the program. Any item unlisted in the program must not be incorporated into the annual plan, and any operating designs not in keeping with the annual plans must be rectified within a limited time.

4.2.7.3 Coordination and improvement of policies

The shelterbelt development program is a complex and unified system of engineering works, which is also a social-welfare undertaking highly related with national policy. It involves many trades, sectors, and subjects which can bring immediate benefits to thousands upon thousands of households. The engineering work must accord with not only natural laws, but also the laws of economic and social progress; it requires not only ecological but also engineering and farming measures. It should take into consideration not only immediate interests but also long-term development; not only eco-benefits but also social and economic benefits. Therefore, the local authorities must, under the leadership of local Committees of the CPC and the government, work out an overall plan for coordinated organization and division of labor. It is the responsibility of the forestry sector to guide and coordinate the engineering work, but all trades and sectors must also pool their resources, exercise their functions, contribute their capabilities, and coordinate efficiently to ensure the achievement of all the objectives and tasks of the engineering work as scheduled. Local governments at all levels should go a step further in formulating and improving their policies and measures in accordance with the practical requirements of the engineering work. Forestry departments at all levels should on their own initiative report to the CPC committees and local governments on the progress of the engineering work, put forward ideas, and serve as advisors to their leadership in solving practical problems and difficulties. It is necessary to overcome sectarian bias and help the government in coordinating, communicating, and building up good relationships with other trades and sectors, combine positive factors from various circles and levels, and ensure the efficient implementation of various policies.

4.2.7.4 Attention to basic work and implementation of measures

In the course of the engineering work, it is necessary to take dynamic measures to strengthen every aspect of the project's infrastructure development.

1. It is necessary to build up as quickly as possible a number of high-quality nursery gardens, and set up a multilevel supply system for seedlings. With improved state-owned nurseries as the main suppliers, supplemented by village and household nurseries, and with improved management, these nurseries can supply suitable high-quality seeds and seedlings for the project.

2. The management of the engineering work must be improved continuously. It is necessary to make full use of the “3S” [that is, geographical information system (GIS), global positioning system (GPS), and remote sensing (RS)] technology, set up as soon as possible an information technology (IT) network and monitoring system, intensify dynamic monitoring and supervision of the engineering work, in order to obtain digital, accurate scientific data and raise the management to a new level.

3. A “three-preventions” system should be set up in earnest, with particular emphasis on the prevention and treatment of plant diseases and pests. It is also necessary to select high-resistance varieties, and adopt comprehensive preventive measures, such as creating mixed forests, so that the prevention and treatment of plant diseases and pests can be efficiently administered. Developing an infrastructure for anticipating plant diseases and pests, quarantine, public security, resource management, and forest-fire prevention would also be useful so that the “three-preventions” system can be constantly improved.

4. Forestry units and contingents should be organized at the grassroot level. The forestry departments at the county level have to bear heavy responsibilities in the engineering work as they are the direct organizers and executors. The forestry stations at the township level act as the grassroot units to specificially organize, manage, and guide the implementation of the program plans.

5. The forestry units and contingents at the grassroot level must be stabilized. The practice of designating township forestry stations as competent units representing county-level forestry departments should be promoted. Their management functions need to be strengthened in an effort to build up a relatively efficient system of forest management and technological services at the grassroot level, to ensure the implementation of every aspect of the engineering work.

4.2.7.5 The style of leadership

Improvement in work style is an important means to ensure the implementation of all tasks in the engineering work. In the course of the work, it is necessary to invoke the spirit of the Sixth Plenary Session of the Fifteenth Central Committee of the CPC and to improve the work style. The key to the success of the project lies in the leadership's commitment to the project and their input. The experience over many years has shown that when the leadership attaches importance to a program, that program will be successful. It must be stressed that it is also the responsibility of the local governments at all levels to put in their best effort in the program. The local governments must think highly of the program, and assign experienced leaders to be personally in charge of the overall work, as well as specific tasks. The leadership at all levels should set an example, and guide and raise the level of the entire program. The leadership of the forestry sector must ernestly change their work style. They should carry out in-depth investigations and studies throughout the whole process of the program. Through their program investigations and studies, they can identify accurately the various problems and unusual phenomena that may arise, as well as symptoms of trends that would affect the overall situation. Consequently, they can constantly adjust their ideas to better conform to realities.

It is also necessary to lay stress on studying the effective ways to mobilize all ranks of society and the masses to participate in the project, and build up and improve a new mechanism which accords with the demands of the market economy system. In the face of existing management problems arising from the lack of resources, funds, and quality, it is necessary to make timely studies, formulate effective management methods, and adopt forceful measures to solve these problems. Studies on new technologies and modes of engineering work that suit the local natural and social conditions, and can improve the efficiency of the program, are essential. Thus, finding advanced models, adapting them, and publicizing and disseminating their experiences would be very useful. In carrying out the investigations, and setting examples, it is essential to do the job with all ernestness, and not be content with only reading materials or listening to reports. The leadership must go down to the grassroots, observe the true situation, and understand fully the aspirations of the people and resolve their practical difficulties and problems.

4.3 The Conversion of Farmland to Forest Program

The conversion of farmland to forest is an ecological development program with many aspects and featuring clear-cut policies. It is a complex process and involves broad mass participation. It will mainly solve the problem of water and soil erosion in the most affected areas. It is, therefore, a basic policy measure to readjust land usage, increase forest cover, and control mud and sand.

4.3.1 Conversion of Farmland to Forest to Improve China's Ecological Environment

Long years of land reclamation and excessive herding resulting in the destruction of forests and pastures have brought about the deterioration of water sources, soil erosion, and land desertification. It has been proven that this is the main cause for the deterioration of the ecological environment and the frequent occurrences of natural calamities.

Owing to the destruction of forests and pastures, and land reclamation and slope cultivation, the upper and middle reaches of the Yangtze and the Yellow rivers have become regions badly affected by water-source deterioration and soil erosion. Every year, over 2 billion tons of silt flow into the two rivers, two-thirds of which comes from cultivated slopes. The deterioration of water sources and soil erosion have resulted in growing sedimentation in the rivers, lakes, and reservoirs, and more floods in these areas, causing great harm to China's national economy and people's lives. The conversion of farmland to forest and expansion of forest and pasture vegetation will not only solve these water and soil problems in China, but also provide ecological safeguards for the areas of flatland in the middle and lower reaches. It will also promote the development of industry and agriculture in these areas and lay a solid foundation for sustainable socio-economic development.

The conversion of farmland to forest serves as an effective means to readjust China's agricultural structure, promote local economic development, and help the poor people out of poverty. Bound by backward economic conditions and low agricultural productivity, farmers had randomly reclaimed forestland over the years in order to produce more grain. As a result, a vicious cycle of poverty and a deteriorating ecological environment has taken shape—“the poorer farmers are, the more forestland they open up, and vice versa.” The implementation of the program to convert farmland to forest has helped to change farmers' traditional cultivation habits—extensive farming—and making good use of forestland for afforestation, and arable land for farming. It can also help to prevent water-supply problems and soil erosion and improve the ecological environment. It can also raise the productivity of agriculture on one hand and, on the other, speed up the capital development of farms with financial and material resources combined with intensive management. This will raise the per-unit-area yield of grain and ensure the increase of output and income, as well as improve the efficiency of agricultural production for the purpose of acquiring WTO (World Trade Organization) membership for China's agriculture. The pilot programs over two years have shown that wherever the program for the conversion of farmland to forest has been carried out, the farmers there not only enjoyed a constant supply of grain, but also ample time and energy to participate in diversified economic activities to supplement their incomes.

The conversion of farmland to forest is a major move for China to expand its rural market, spur demand in home consumption, and step up sustainable and healthy development of its national economy. During the period of the Tenth Five-Year Plan, by further promoting domestic consumption, China can realize moderate and fast development of its national economy. In recent years, China's rural economic development has lagged far behind in its urban economic development. Because of disasters such as droughts and floods as well as little increase in farmers' incomes, the economic growth in many rural regions have come to a standstill. The first priority for promoting home consumption must be to increase the incomes of 900 million farmers, and develop a vast rural market. The conversion of farmland to forest and the opening of granaries to the poor and needy can help to increase farmers' incomes and activate the rural market, and further promote domestic consumption. This will not only play an important role in promoting the healthy development of China's national economy, but also improve the people's lives, contributing to the prosperity and future development of China.

The implementation of the conversion program marks the society's deeper understanding of the laws of nature, and a new stage in China's socio-economic development.

4.3.1.1 Thorough understanding of the problem

As planned, farming has been stopped on the cultivated land most liable to water-supply problems, soil erosion, and land desertification. The Central Committee of the CPC and the State Council understand and attach great importance to the conversion program, and the CPC committee and local governments at different levels as well as the cadres and people in the areas of the upper and middle reaches of the Yangtze and Yellow Rivers also support this program. The whole society has reached a broad consensus on the conversion of farmland to forests. They realize that the earlier this project is carried out, the better the results would be. Failure to take this move will result in more relentless and severe punishment by nature.

4.3.1.2 Sound economic backing

For more than fifty years since the founding of the PRC, and especially in the twenty years since China's reform and opening up of the country to the outside world, it has witnessed rapid economic development and remarkable improvement in national strength, as well as in financial revenue. There has been more grain than needed at different periods and in different regions. The people's standard of living has improved. China is now able to allocate some financial and material resources for supporting ecological development throughout the country, especially in the central western region, thus providing a historic opportunity for the implementation of the program to convert farmlands to forest.

As the supply of grain and industrial consumer goods currently exceeds demand in China, it is an opportune time to convert farmlands to forest and improve the ecological environment. Since 1995, there have been bumper harvests and increases in grain stocks for several years. At present, China's surplus grain exceeds 25 billion kilograms every year, its grain stock has reached 263 billion kilograms and farmers have stocked up another 200 billion kilograms. Thus, China's total stock is close to 500 billion kilograms, as much as its annual grain output. It is estimated that 2,250 kilograms per hectare are produced in the Yangtze River valley, and 1,500 kilograms per hectare in the Yellow River valley every year. The maximum annual demand is 21.96 million tons of subsidized grain which only accounts for the average annual grain output during the Ninth Five-Year Plan, or 4.4% of China's present grain stock.

The low grain output from the cultivated slopes has little impact on China's total output. Such land is infertile because of the shortage of water and manure as well as serious loss of water and soil, and naturally the yield is low and unstable. The average yield per hectare of China's hill slopes exceeding 15% is only 1,845 kilograms and nothing is reaped if there are natural calamities such as droughts and floods. “Sow seeds in the fields, reap two basketsful of grass with only a hatful of harvest”—that is what farmers say. Even if the total 14.67 million hectares of cultivated slope land is converted, the loss in grain output will only be some 27 billion kilograms, which represents only 5.4% of China's average annual yield during the Ninth Five-Year Plan. Therefore, reforesting the cultivated slopes and desertified land will not affect China's grain stock much.

The conversion of farmland to forest will play a positive role in readjusting the agricultural structure, by promoting the coordinated development of agriculture, forestry, and animal husbandry. It means, in fact, the rational readjustment of land utilization, by reforesting the cultivated slopes which are not suitable for growing crops. A beneficial cycle is created that promotes agriculture, forestry, and animal husbandry, which will not only effectively increase the supply of food, but also optimize the food structure, as well as improve the people's standard of living.

4.3.2 Distribution of the Conversion of Farmland to Forest Program

With emphasis on the most affected areas, the program for the conversion of farmland to forest has been implemented extensively in twenty-five provinces (autonomous regions and cities directly under the Central Government). Subsidies for households have mainly taken the form of individual contracts together with other diversified forms in order to speed up this program. This has facilitated steady progress with the help of the new mechanism.

The following are the guidelines for this program. With the aim of developing China's western region, as laid down by the Central Committee of the CPC and State Council, and the protection-cum-improvement of the ecological environment as the guiding principle, and sustainable development as its objective, this program will transform the cultivated slopes and desertified land along the Yangtze and Yellow rivers by adopting comprehensive measures for the “conversion of cropland to forest, afforestation of hills, food for relief, and individual contract” in order to put an end to the loss of water and erosion of soil and serious desertification of the cultivated land and promote coordinated development of the ecology, the economy, and society.

This program will cover 1,887 counties in all, with 856 of them identified as key counties in twenty-five provinces (autonomous regions and cities directly under the Central Government): Beijing, Tianjin, Hebei, Shanxi, Inner Mongolia, Liaoning (including Dalian), Jilin, Heilongjiang (including the Heilongjiang Land Reclamation Bureau), Anhui, Jiangxi, Henan, Hubei, Hunan, Guangxi, Hainan, Chongqing, Sichuan, Guizhou, Yunnan, Tibet, Shannxi, Gansu, Qinghai, Ningxia, and Xinjiang, as well as the Xinjiang Production and Construction Corps.

According to the survey data from the Ministry of Land and Resources, there are 6 million hectares of cultivated slopes in the program development areas, of which 0.92 million hectares are terraced fields, with 0.55 million hectares already reforested, and 4.4 million hectares of slopes where the ecological system has been badly damaged. About 2.73 million hectares are terraced fields, while 0.13 million hectares have been converted to forestland and 8 million hectares of slope land remain not converted. There are also 17.73 million hectares of cultivated slopes of between 6–15 degrees, of which 5.6 million hectares are terraced fields, 0.07 million hectares have been converted to forestland, and 12.07 million hectares needing afforestation. There are 833,330 hectares of cultivated land that have been desertified in these areas (including desertified slopes of between 6 and 15 degrees), and over 4 million hectares are in need of some kind of control in the ecologically sensitive zones, such as the areas around Beijing, and along the Hei and Talimu rivers. The total area of cultivated slopes and desertified land is close to 16.67 million hectares.

The region for development under this program is divided into the following ten subregions: mountainous canyons in the southwest; mountainous and hilly Sichuan, Chongqing, Hubei, and Hunan, low mountainous and hilly areas in the middle and lower reaches of the Yangtze River, the Yunnan-Guizhou Plateau, mountainous and hilly Hainan and Guangxi, high cold steppes and meadow areas around the source of the Yangtze and Yellow rivers, dry desert areas in Xinjiang; loess plateau featuring hills and ravines, dry and half-dry North China; and the mountainous and sandy Northeast. Attention will be given to the most affected areas, especially in the western region. The problems to be solved include damage caused by water, and soil loss, wind erosion and desertification, as well as topographical and geomorphological problems. Proper vegetation with a good combination of trees, shrubs, and grasses, as well as tree and grass species for afforestation, has been specified for each subregion.

According to the policy drawn up at the second plenary session of the State Council for the development of China's western region, the spirit is to lose no time to draw up a general program for the conversion of cropland to forest in China, the goal of which is to stop cultivation in 6.67 million hectares of land between 2001–05, and 14.67 million hectares of land between 2001–10, and to launch afforestation on the barren mountains and wasteland which are suitable for growing trees. Thus, afforestation under the Conversion of Farmland to Forest Program will cover 14.67 million hectares, and afforestation on the barren mountains and wasteland will cover 17.33 million hectares between 2001–10. The main policy for the conversion of farmland to forest is detailed below.

The State provides the households concerned with free grain and a cash subsidy: 2,250 kilograms of grain (crop) per hectare annually for the farms along the Yangtze River and South China, and 1,500 kilograms of grain per hectare, at 30 yuan per hectare each year. Grain and cash subsidies will be given for two years for restoring pastures, five years for restoring economic forests, and eight years for restoring ecological forests.

The State also provides these households with seedlings and establishment fees at 750 yuan per hectare for afforestation on land to be converted, as well as barren mountains and wasteland suitable for tree-planting. This policy is not applied to slope land, either in fallow or not contracted to any household, which can be used for afforestation. An allocation of 750 yuan per hectare is provided as subsidy for seedlings and afforestation. Depending on the actual conditions, the provinces concerned decide how to use these subsidies.

As for converted land subject to agricultural tax, the State will provide a grain subsidy to farmers after deducting the agricultural tax when the grain yield reaches the annual average level, starting from the year of conversion of the farmland to forest. It will reduce the agricultural tax and the grain subsidy when the yield is below the average level. As for the converted land not subject to agricultural tax, no matter how much its yield, no agricultural tax will be deducted from the grain subsidy. The revenue shortfall in the counties implementing this program will be subsidized by the Central Government of the CPC by means of transferring payments.

After the implementation of this program, the farmers concerned will be assured of the right to plant trees on their converted land and on the barren hills and wasteland. However, they should go through the procedures concerning the change of land usage and get certificates, confirming their ownership issued by the government at the national level. When the farmers' ownership of land and right to use it is confirmed, the policy of “Farmers who reforest their cultivated land and do the work well will surely benefit” is implemented. The farmers sign contracts for this program, with terms that can last for fifty years. They are allowed by law to inherit or transfer their contracted land. At the expiration of the contracts, they can be renewed according to the laws and regulations concerned.

This program is carried out in various ways. In certain areas with ripe conditions, the rural households that specialize in afforestation, social organization, enterprises, or other undertakings can rent and contract land through consultation and voluntary participation, and the share of benefits would be decided by both parties. Concentrated and contiguous afforestation is encouraged in these areas and individuals are allowed to operate their household forests and start a diversified economy.

The success of this program will bring about great ecological, economic, and social benefits.

1. Ecological benefits. On completion of this program the cultivated slopes will be basically reforested, 31.9% of desertified land will be put under control, and forest and pasture coverage will increase by 4.5% in these areas as a result of an increase of 320 hectares of forest and pastureland. In addition, 86.67 million hectares of land subject to water loss and soil erosion will be put under control and forest vegetation will be increased so as to reduce the damage caused by floods. The area to be shielded from wind and sand drifting will reach 102.67 million hectares and the annual capacity of soil for storing water will increase by 72,000 million cubic tons. At the same time, an increase of carbon in these forests will reduce the greenhouse effect remarkably.

2. Economic benefits. After completion of this program, more than 6 million hectares of economic forests will mature gradually and benefit the farmers. It is estimated that direct economic benefits produced annually will reach 92.5 billion yuan, of which the annual value of economic forests is expected to reach 40 billion yuan. The annual value of felled timber will reach 18.5 billion yuan, and the annual value of fuel wood, 34 billion yuan. Indirect economic benefits produced ecologically and socially will reach 120 billion yuan, of which the annual benefit of water and soil conservation will be 42 billion yuan, that of shielding against wind and sand drifting, 6 billion yuan, and that of water-source containment, 72 billion yuan. It is hard to estimate the benefits from tourism brought about by an improved environment and investments from home and abroad.

3. Social benefits. When this program is completed, not only will the ecological environment be improved, but floods of the Yangtze and Yellow rivers will also be effectively contained so that damage caused by floods in the middle and lower reaches of the two rivers will be greatly reduced, and stable and high yields of grain in these areas will be ensured. Meanwhile, the desertification process in the Three-North region will be effectively checked and the hazards caused by wind and sand in North China, such as Beijing and Tianjin, and east and central China will be eased. A conducive climate will be created to attract a great number of talents to the central and western regions, bringing investments from all walks of life. New jobs will also be created and some 40 million job opportunities can be offered to locals. The rural industrial structure will also be readjusted, with production capability optimized, and management level raised. The healthy and orderly development of production in a diversified economy will enhance the economic development of the ethnic minority areas, thus promoting unity among the ethnic groups in China and maintaining social prosperity and stability.

4.3.3 Ensuring Smooth Implementation of the Program

As cultivated land is in the immediate interests of millions of farmers, this program is dependent on the cooperation of the masses and the right policies. There have been successful experiences and failures in the past. Carried out in the context of building a socialist market economy, this program faces new circumstances and problems, and therefore demands good organization and management for its implementation. Learning from past experience, attention must be given to the following key points so as to ensure the smooth implementation of this program.

4.3.3.1 Strengthening the organization and leadership

1. A good understanding of this program is crucial. The conversion of farmland to forest is a major strategic move to improve the ecological environment, meet the pressing need for sustainable socio-economic development, readjust the rural industrial structure, and increase farmers' income. It will also promote economic development in different regions, spur demand for home consumption, and maintain fast growth in the national economy. It is not merely an ecological environment program, but also requires a vast and complicated system of engineering that is closely related to environmental control, rural development, and economic growth.
2. Good organization and leadership are essential factors for the success of this program. As it is highly dependent on relevant policies related to many aspects and hard to put into operation, organization and leadership are of great importance. In other words, the success of this program relies heavily on three factors.
   • Relevant organizations must be set up. These must be efficient with clear division of functions and capable of mediation so as to provide unified leadership and coordination.
   • Responsibilities must be clear-cut. The general responsibilities for this program are held by the provincial governments while specific tasks are assigned to local governments below the provincial level. This is to ensure that each is responsible for realizing its respective targets and determining the duties for the main government leaders at different levels. The responsibility system for both the program legal advisor and contracting personnel should be clear so that the system can be enforced strictly. The results of this program will be regarded as important achievements of the leading officers in their political career at provincial, prefectural, county, and village levels.
   • There must be a clear division of work and collaboration among the departments concerned. The forestry administration of the State Council is in charge of implementing the conversion of farmland to forest across China. The departments of forestry, finance, planning, and food stuff at provincial and lower levels should be held responsible according to their functions, and cooperate closely with one another. Engaged in important duties such as plan design, seedling organization, program management, guidance and coordination, technological services, and examination and supervision, forestry departments at various levels should act as good government consultants and carry out their work efficiently.
3. Policies should be carried out fully. As importance has been given to ecology, the conversion of farmland to forest should be launched first in the ecologically sensitive areas which are subject to water loss and soil erosion, and wind and sand hazards. Areas of ecological importance should be given priority. Afforestation must be carried out according to local conditions, and measures for water and soil conservation must be taken when necessary. Engaging in afforestation for immediate benefits should be avoided. To ensure the quality of ongoing projects, grain and cash subsidies must be given to the farmers in accordance with the relevant policies so that farmers will be motivated to convert their farmlands to forests.
4. Allocated funds must be made available. After the annual state plan is released, the departments concerned will allocate to the relevant provinces (autonomous regions and cities directly under the Central Committee of the CPC) various funds for program development according to certain procedures and the latter should allocate these funds to the lower organizations regularly. First, the seedling subsidy fund should be allocated to the operation units at the grassroots according to schedule of the programs so that the preparation work can be done by seedling-supplying nurseries. Second, the funds for the initial phase of the projects should be allocated at an early date, and any shortage of funds should be handled by the financial departments at various levels. Third, grain and cash subsidies should be allocated to counties in time to facilitate grain departments to distribute the subsidized grain. After checking and verifying, the grain and cash subsidies are then distributed to the rural households. If needed, some subsidized grain can be given to the farmers in advance for their household consumption after they have reforested their cultivated land.
5. Management measures must be put in place. According to the various regulations and standards issued by the State that have been adapted to local conditions, a standardized management system must be applied to the entire process of project implementation, such as preparatory work, seedling-supply, development at the worksite, testing, checking and acceptance, and policy implementation.

   No time should be lost in signing contracts with the rural households concerned on the conversion of farmland to forests. Individual household registry cards and check-cum-acceptance cards should be issued promptly.

   The handling of development funds should be improved. In accordance with the regulations of the State, it is necessary to ensure that deposits are made for special households, and separate accounts are established for funds with specified purposes so that misappropriation, fraudulent applications, and claims can be prevented.

   Farmers' rights must be ensured and cards issued to them. After reforestation, the farmers' ownership of their land should be confirmed according to the relevant laws and certificates of afforestation should be issued to them. The responsibility for looking after and protecting these forests must be made clear to the farmers so that their survival and conservation can be ensured.

4.3.3.2 Ensuring the quality and success of this program

1. Various preparations at the initial stage must be well done and a strict standard set on design work. Attention must be given to the three aspects of the basic work:
   • Immediately draw up plans for the conversion of farmland to forest for the provinces concerned, keeping in mind the goals and tasks of this project in accordance with the Tenth Five-Year Plan for the Conversion of Farmland to Forest Program, or the 2010 Plan, approved by the State Council.
   • After the tasks stipulated in the state plan are assigned, the provinces (autonomous regions and cities directly under the Central Committee of the CPC) must immediately draw up their annual plans based on the principle that the project should “concentrate on areas close to each other, carry out this project in contiguous stretches, and in accordance with different river basins.” They must determine the specific counties for implementing the project in the current year according to the provincial plans within the national plan, work out various effective measures to assess the proportion of forest types, tree species selection, afforestation practices, vegetation arrangement, and seedling organization, and assign their tasks and plans to the respective counties. The provincial plans should be submitted to the State Forestry Administration for examination and verification. After verification, they will become the main criteria for the State's check and acceptance procedure.
   • Operational designs must be worked out in a scientific manner. They are the most fundamental and essential link of this project, as well as the basis for the check and acceptance of this project. In accordance with the annual plan of the province (autonomous region and cities directly under the Central Committee of the CPC), every county assigned with this project must find qualified designers to work out sound operational designs and allocate development to every rural household to carry out this project on hilltops and slopes.
2. Seedling production and supply must be well managed, and demand for seedlings strickly controlled.
   • The forecast for seedling demand must be carefully made. After investigation, plans for adjusting the amount of seedlings needed should be made as soon as possible for the areas in greater need.
   • Seedling production and the supply system at the provincial, prefectural, county, and village levels should be established, making use of the existing seed bases, farms, and nurseries to produce seedlings and ensure seedling supply.
   • Effective measures must be taken to facilitate the selection and introduction of fine seedlings, make better use of good breeds, and improve the cultivation of drought-resistant seedlings by applying new technologies to ensure their quality.
   • The supervision and management of seedling production and supply, and law enforcement should be improved. The Seed Law of the PRC must be strictly enforced across the country. The production and marketing of seedlings that do not meet quality standards must be banned. Seeds and seedlings for production and marketing must labelled, and quality and quarantine certificates issued by the agricultural or forestry departments. Seeds and seedlings without these labels and certificates should not be allowed to come on the market.
3. Science and technology must be improved and quality strictly demanded. A system must be worked out to ascertain the responsibility for unacceptable quality according to the Regulations Concerning the Administrative Responsibility for Afforestation Quality issued by the State Forestry Administration. These who fail to reach the quality standards for afforestation set by the State in the course of conversion of farmland to forest must be held responsible in accordance with this document, and those who violate the laws concerned should be turned over to judicial organs. Forestry departments must insist on the quality of afforestation. A scientific and technological system to support the Conversion of Farmland to Forest Program should be established and a support plan made in-line with local conditions so as to ensure a scientific and technological safeguard for the whole development process.
   • Training must be conducted in an active way, with technological training at different levels, particularly for the program's technicians and farmers so as to raise the quality of the program's builders and managers.
   • Applicable science and technology should be introduced, and the result of scientific research should be compiled in a guidebook. The Modes Concerning the Technology of Conversion of Farmland to Forest summarizes and introduces 153 feasible modes and technology.
   • Development guides and science and technology services should be developed at the village and township forestry stations.
   • Science and technology departments can be organized at various levels to tackle technical difficulties faced in the course of the program development. Various incentives and mechanisms can be adopted to encourage technicians to work hard in the program implementation and solve practical problems along the way.
   • The program should be monitored and supervised continuously. Thus, it is necessary to set up a system to monitor and supervise the results of the program and to evaluate the ecological, economic, and social benefits in quantitative terms.
4. Supervision and examination of the project must be carried out constantly. Check and acceptance form an important link in project management. Their results serve as a basis for the implementation of policies and important decision-making on project management, science and technical support, and plan adjustment and control. Therefore, the work of checking and acceptance must be strengthened.
   • There must be stable professional teams responsible for this work. Such teams at the state and provincial levels can be chosen from professionals in the forestry surveying and designing academies at corresponding levels. Good professionals with a strong sense of responsibility should be assigned by the counties concerned to do this work.
   • The details of this work must be properly executed. The checks organized by the State must be carried out based on self-examination at the county level and verification at the provincial level. In accordance with the Regulations on Checking and Acceptance of the Program for the Conversion of Farmland to Forest, newly revised by the State Forestry Administration, the main indexes, such as the verified rate of land reforested, and the survival and conservation rate for afforestation must be strictly examined. Seedling quality, operational design, and archive and card building, as well as the implementation of policies and the issuance of forest ownership certificates must also be checked.
   • Relevant policies should be carried out based on the results of the check and acceptance. For example, grain and cash subsidies should be given to farmers according to the results of checks conducted by the State. With its huge investment, this is a key program unprecedented in the history of ecological improvement. Therefore, it is imperative to strengthen the supervision of this program in order to ensure its smooth implementation.

4.3.3.3 Responsibilities of provincial governments

The State Council has made it clear that the five assignments concerning this program should be honored, and the provincial governments must be made accountable to the State. The following are the basic contents of the assignments—the target of this program is assigned to the provinces, as well as its tasks, funds, and grain allocation. These responsibilities have been made clear to the provinces.

1. The program target is assigned to the provinces. The State assigns the general target of its plan to the provinces in different phases and it is the provincial governments that are responsible for implementing this program of the State.
2. The tasks are assigned to the provinces. The State directly assigns the tasks of its annual plan to the provinces. Within the framework of the state general plan, the provincial governments or the authorized departments in charge of this program decide on the counties to implement the program for the current year, and work out annual plans in-line with the general policy and technical requirements. They also assign to different counties specific tasks for the conversion of farmland to forest, and afforestation on the barren hills and wasteland.
3. Funds are allocated to the provinces. In-line with the annual plans, the state departments concerned will allocate to the provinces seedling, grain, and cash subsidies, and the provincial governments in turn will allocate these funds to the counties which are responsible for their use and the handling of these funds.
4. Grain is allocated to the provinces. According to the standards of grain subsidy set by the State, the central financial department will assign to the provincial governments the responsibility for grain allocation. The provincial governments will then acquire local grain for this purpose. The local financial departments will bear the expenses of grain transportation, which will be covered by the local financial budgets.
5. Responsibility for the project is assigned to the provincial governments. In this program, the provincial governments are responsible to the State, and they have to sign responsibility warrants with the municipal and county governments. They also have to draw up targets and regulations for checking and examining the program development. By examining, checking, and accepting this program and auditing the funds used, the State can evaluate the quality and results of the program in the different provinces.

The essence of the five assignments is that the responsibilities, rights, and interests are integrated. Pursuing these assignments helps the local governments at different levels and the broad masses of farmers to participate in the program. This will improve the supervision and management of the program, and raise the quality of program development. With these assignments, the provincial governments enjoy full autonomy, and make decisions in accordance with actual local conditions. At the same time, they undertake the main responsibility for implementing the program assigned by the State and fulfil the targets and tasks set by the central government. This represents a reform of management for this important ecological program as well as a specific expression of the change of government functions. The provincial governments concerned should have a good understanding of these assignments and pursue their mission.

4.4 Building a Green Shield Around Beijing and Tianjin

The sand control program in Beijing and Tianjin is both China's and the cities “image program.” It is the main ecological development program to control wind and sand hazards in the areas around Beijing and Tianjin. The Green Olympics and the capital's image constitute the unique international and political backdrop of this program.

As the political, cultural, and economic center of China, Beijing is the symbol of the PRC and an important venue for friendly contacts between China and other countries. A sound ecological environment will be a major sign of its contemporary position, which is closely related to China's image across the world. At the Fifth Plenary Session of the Fifteenth Congress of the CPC, it was made clear that the ecological development around Beijing and Tianjin must be stepped up so as to lead the course of forestry development in the areas around Beijing. It is due to the special position of Beijing and the urgency to improve the ecological environment in these areas that this has been implemented as a major ecological program.

The program is an important step taken both to implement Green Olympics, Sci-tech Olympics, and People's Olympics, and to realize modernization in the areas around Beijing. Together with the fourth phase of the project of building shelter-forests in the northern, northwestern, and northeastern China, it constitutes a shelter against desertification of the three regions. The Law of the PRC on Desert Prevention and Transformation must be enforced in earnest and the National Plan for Ecological Environment Construction must be taken as the guideline. This entails the protection of the existing vegetation, the control of drifting sand, and closing hillsides to facilitate afforestation. Other tasks include planting trees to build forests, reforesting cultivated farmlands in a planned and systematic way, restoring the vegetation in the sandy and hilly areas, building shelter-forests with trees, shrubs, and grass to protect against wind and drifting sand, bringing under control the desertified, salinized, and degraded meadows in a comprehensive way, banning herd grazing but encouraging raising them in folds, and restoring meadow ecology and its productive function. In addition, water and soil erosion must be brought under control, and water resources used in a rational way. The development of this program can be combined with urban afforestation and the green passageway program, thus advocating the integration of urban and rural afforestation as well as various kinds of forests. With participation by people from all walks of life, a green ecological shield can be built around Beijing after ten years of work so that the areas around the capital will become a good source of water, and provide a steady shield against drifting sand. There will be gardens full of flowers and fruits, providing a suitable habitat for birds and animals and forming a tourist attraction. All this leads to sustainable socio-economic development.

4.4.1 Program Planning and Key Areas for Development

This program development covers a large stretch between 109°30′ and 119°20′ east longitude and 38°50′ and 46°40′ north latitude, with Damao Banner of Inner Mongolia in the west to Pingquan County of Hebei in the east, and Dai County of Shanxi in the south to Dongwuzhumuqin Banner of Inner Mongolia in the north. It involves seventy-five counties (banners, cities and districts) in Inner Mongolia, Hebei, Shanxi, Beijing, and Tianjin, amounting to 0.46 million square kilometers.

The program development will take up to ten years (2001–10), and is divided into two phases: the first phase from 2001–05, and the second from 2006–10.

The objectives of this development are that by 2010, with the help of biological protection measures such as afforestation, the following will be achieved. Drifting sand will be controlled. Afforestation by aerial sowing and planting trees, conversion of farmland to forests, and bringing grasslands under control, and other measures such as the improvement of small drainage areas will bring 11.69 thousand hectares of desertified land under control, and the existing vegetation in the development zone will be effectively protected with forests and meadows, covering 5.21 million hectares. Forest cover will be increased by 11.4%, from 8.7% at present to 20.1% in 2010.

The development area will be divided into four subzones. The first subzone is the desertification control area in the northern dry grasslands. It covers the west and northwest of Beijing, including seven banners (counties and cities) in Xilinguole league, Wulanchabu league, and Baotou. This area is a desertified meadow mainly engaged in animal husbandry. Owing to excessive grazing over the years, this area has deteriorated and become desertified. The main task here is to organize the management of meadows and building grasslands, improve the production of animal husbandry, restore the vegetation, and explore the utilization of rain water resources to assess the demand. The project will determine the number of livestock that can be supported by the grass available, improve the grassland, and build shrub networks and protective shields to keep pastures away from the scourge of wind and sand. It is expected that afforestation will cover 0.86 million hectares, 2.63 million hectares of grassland will be brought under control, 0.48 million square meters of warm sheds built, 4,000 feed machines purchased, 9,800 water projects and 9,800 water-saving irrigation systems completed, and comprehensive control of small drainage areas covering 800 square kilometers.

The second subzone is the sand control area in Hunshandake. It is to the north of Beijing and includes seventeen banners (counties, cities, and districts) in Xilinguole league and Chifeng. It is a sandy area mainly devoted to animal husbandry but with some agriculture. Owing to the long-term effects of irrational activities, such as excessive grazing, reclamation, and firewood cutting, irrigated areas and grasslands decreased, pastures became degraded, and vegetation was greatly damaged so that sand dunes became activated and the problem of drifting sand escalated. The main task in this area is to tackle these problems by protecting the existing vegetation of trees and grass, stabilizing the shifting dunes, curbing activation in the sandy areas, building more grassland, and expanding tree and grass vegetation. It is planned that afforestation will reach 1.93 million hectares, 3.98 million hectares of grasslands will be brought under control, 588 thousand square meters of warm sheds will be built, 4,900 feed machines purchased, 16,000 water-source projects and another 16,000 water-saving irrigation systems will be built, and 3,080 square kilometers of small drainage areas will be brought under comprehensive control.

The third subzone comprises the desertification control areas where agriculture and animal husbandry are the main activities. It covers twenty-four banners (counties) in Inner Mongolia, Shanxi, and Hebei. Wind erosion and desertification are the main problems and hence the following counter-measures have to be taken: ban reclamation and restrict grazing, expand vegetation, convert the desertified cultivated fields to forests, and persuade farming households to specialize in afforestation while the State provides them with free grain and feed. Other measures have also to be actively implemented, such as closing mountains for afforestation, building sandbreaks for pastureland, restoring vegetation, and changing the traditional method of animal husbandry from grazing on meadows to feeding in folds. On completion of this project, afforestation is expected to reach 8.06 million hectares, and 1.91 million hectares of grasslands will be brought under control, 1.39 million square meters of warm sheds built, 12,200 feed machines purchased, 11,516 water-source projects and 11,590 water-saving irrigation systems completed, as well as 10,810 square kilometers of small drainage areas brought under comprehensive control.

The fourth subzone comprises the water-source conservation areas of the Yanshan hilly region, covering Beijing, Tianjin, and the area south of Zhangjiakou and Chengde, which serve as the water source of three large reservoirs: Guanting, Miyun, and Panjiakou reservoirs. The main problems in this area are firewood cutting and steep slope-farming, and deterioration of the vegetation has resulted in water loss and soil erosion, and land desertification. Hence, the major policy measures are to close the existing forests and keep them from extinction, reforest the cultivated steep slopes in the drainage areas and around the reservoir areas, build multilayers of water-source protection forests comprising trees, shrubs and grasses on the barren hills and wastelands, raise extensive windbreak and sandbreak forests, and transform the production method of animal husbandry from grazing on grasslands to feeding in folds. It is planned that afforestation will cover 1.35 million hectares, and 2.12 million hectares of grasslands will be brought under control, 0.40 million square meters of warm sheds built, 2,000 feed machines purchased, 28,743 water-source projects and 10,440 water-saving irrigation systems completed, and 8,755 square kilometers of small drainage areas will be brought under comprehensive control.

After the completion of this program, the expansion of land desertification within the program zone will be effectively curbed, and the ecological environment around Beijing and Tianjin greatly improved. The wind and sand hazards will be alleviated to a large extent and so will air pollution. When the wind speed slows down because of the forests, the drifting sand and floating dust will be effectively reduced, so will the windy and stormy weather. As desertification will be curbed in general, the ecological environment around Beijing will improve markedly. At the same time, this program will play an irreplaceable role in safeguarding water sources and conserving water and soil in the areas around Beijing and Tianjin, especially the protection of water sources and water quality in the three reservoirs of the two cities.

The implementation of this program will also promote the reorganization of agricultural production and the transfer of the redundant rural workforce in the development zone, ensure stable and high yields in agriculture and animal husbandry, and increase farmers' income.

4.4.2 Taking a Long-Term View

4.4.2.1 Improve program management and quality

The main goal of this program is to put an end to the wind and sand hazards and improve the ecological environment in Beijing and its surrounding areas. If this ecological goal is abandoned in the course of implementing the program, it would mean overlooking the fundamentals. Effective steps should be taken to ensure proper program management linked to this central task. First, the operational design must take into account this ecological goal and any deviation from this goal should not be allowed. The design must be undertaken by qualified program designing firms, and must include various tasks concerning hill slopes, grasslands, and small drainage areas. Second, it is important to have a responsibility system involving government officials at different levels. The responsibility undertaken by provincial governments must include the following five aspects: funds, tasks, goals, grain, and other responsibilities. The local governments must sign guarantees of responsibility so that they are held responsible for achieving the goals assigned to them. Third, measures, standards, and systems must be worked out and implemented as soon as possible, and program management standardized and improved. The different aspects of management, such as the responsibility system, the bidding and tendering system, the supervision system, the fund reimbursement system, and the investigation system to ensure quality, should be introduced into the program development. Fourth, fund management must be streamlined to prevent any form of misappropriation or holding back of program funds. Project managers must improve their supervision over fund usage and coordinate in an active way with the state departments concerned to ensure proper and efficient disbursement of funds. Fifth, it is important to monitor the program implementation efficiently and conduct annual checks and acceptance procedures. The findings of annual checks should be used as the basis for the payment of tasks performed and completed.

4.4.2.2 Mass participation in the program

In line with the material benefits principle, the people should be encouraged to fully participate in the program. Thus, preferential policies should be formulated to motivate enterprises owned by them, especially private enterprises and individuals, to participate in, for example, the sandbreak program. An individual responsibility and honor system should be promoted so that those who participate in the program and supervise and protect it will benefit from it. Efforts should be made to give funding support, preferential taxation, and protection of the legitimate rights of program managers so that the State can benefit by having more grassland, the local governments more revenue, and the people, a better standard of living.

4.4.2.3 The laws of nature, and scientific and technological inputs

As the ecological program falls under both social and natural sciences, it is imperative to follow the laws of nature and not to violate them. Therefore, selecting the method, and steps to be taken, as well as any decisions related to the program must be in accordance with local conditions. At the same time, importance must be attached to the role of science and technology as a driving force. First, modern science and technology, as well as practical techniques, should be introduced and applied purposefully. The latest science and technology should be assembled and coordinated so that a group of high-level bases can be set up to demonstrate how to prevent and control sand erosion, for example, to enable the results to be promoted and applied elsewhere. Second, difficult problems that crop up during the implementation of this program can be solved using science and technology. The study of advanced techniques of afforestation and grass cultivation can also be carried out, and plant varieties found that are resistant to drought, cold, saline-alkali, disease, pests and rats, and suitable for growing in different regions. Third, the training of specialized technicians and managers is of great importance. Multilevel and multiform training courses can be organized, including courses run by both the State and local governments for administrative officers and technicians to upgrade their skills.

4.4.2.4 Monitoring and supervision

Monitoring and supervision are important aspects of program implementation and full use should be made of satellite remote sensing and ground checking technology. Advanced monitoring and efficiency evaluating methods can be drawn from abroad to launch and implement a suitable “monitoring system to check desertified land in the windy and sandy areas (around Beijing and Tianjin) and ascertain the results of this program.” In this way, the dynamic relationship between the results of implementation and the expansion or decline of desertification can be established.

4.4.2.5 Implementation according to the relevant laws

It is timely to introduce and implement the Law of the PRC on Desert Prevention and Transformation, which serves as a powerful legal guarantee for the smooth implementation of the program to control the windy and sandy areas around Beijing and Tianjin. This is among the first group of state programs to enforce this law and will play a demonstration part in enforcing the law across the country in the future, which is of great significance. The opportunity should be taken to further promote various kinds of work under this law and realize the objectives of sand-control.

• This law should be made known in a positive manner among the people and the local cadres in the sandy areas. The leaders engaged in the administration must learn, understand, observe, and carry out their work according to the appropriate laws.
• Relevant rules and regulations must be established as soon as possible to form a legal system, based on the Law of the PRC on Desert Prevention and Transformation.
• The protection of the existing vegetation, forests, and grasslands must be earnestly pursued, and the relevant laws must be strictly enforced. Misdeeds that damage the vegetation in the sandy areas should be investigated according to the law, and the culprits should be punished severely.
• It is important to build up a strong law-enforcement team and improve the ways and means of enforcement, to raise the standards of enforcement and supervision.

4.5 The Essence of Maintaining Eco-Balance

This is an ecological protection program that looks to the future. It is also a “diplomatic program” that responds to the international environment and projects a good image for China. It will mainly solve such problems as gene preservation, biodiversity protection, natural conservation, and wetland protection. It is the essence of ecological protection and forestry development.

4.5.1 Protection of Wild Animals and Plants, and the Development of Nature Reserves

Forests, wetlands, wild animals, and plants are valuable natural resources for mankind. Implementing this program will play a significant role in safeguarding China's ecological balance, promote sustainable development of the national economy, and ensure the long-term interests of the Chinese nation. It is, therefore, a program that will benefit mankind greatly.

Implementing this program, protecting the natural resources for sustainable development, and maintaining the ecological balance are the prerequisites for advancing productive forces. The forests, wetlands, wild animals and plants have always remained an important basis for the development of social productive forces. Only by ensuring a gradual improvement of the ecological environment and the sustainable utilization of natural resources can harmony between man and nature be realized. Implementing this program and building a green civilization is urgently needed to promote the development of an advanced culture. Forests, wetlands, and wild animals and plants play a principal part in this green culture. Along with man's deeper understanding of nature, and continuing research in different cultures in the world in his pursuit of a harmonious relationship with nature, the green culture, a new cultural trend, has become the major force to promote this harmonious relationship.

Thus, implementing this program and protecting precious resources is an important undertaking to safeguard the fundamental interests of the people. Scientists have defined forests as “the lungs of the earth,” wetlands as “the kidneys of the earth,” and wild animals and plants as “mankind's friends” because they constitute the principal parts of the ecological system. The cream of China's forests and wetlands is concentrated in the nature reserves while the cream of the nature reserves is wild animals and plants. Building nature reserves is therefore the most effective way to protect the “lungs,” “kidneys,” and “friends” of the people.

This program is also a major means to safeguard biodiversity and build up wealth for mankind. Forests, wetlands, wild animals and plants are the products of nature's evolution over billions of years. They give birth to various types of species and play an irreplaceable role in safeguarding and optimizing the natural environment. Special species of wild animals and plants protect the stability and evolution of the land ecological system, and the various functions of this ecological system are directly affected if they are destroyed. The disappearance of key species in particular will produce chain reactions and even bring about disastrous consequences. The biodiversity produced by forests, wetlands, and wild organisms has built up huge material wealth for mankind. Along with the continuous development of science and technology, and a deeper understanding of biodiversity, the application of biological technology and the fair development and utilization of forests, wetlands, and wild organism resources will definitely generate more material wealth. Furthermore, forests, wetlands, wild animals and plants form diverse natural scenery, providing an environment for resorts, leisure and entertainment, and promoting ecological tourism.

This program will also contribute to giving a good image of China to the world. The protection of the ecological environment has become a common concern for the world today, with the conservation of forests, wetlands, and wild organisms as the main focus. China's efforts in conservation has played an important part in the global conservation of the natural environment and natural resources and attracted attention from the international community. Thus, the protection of wild organisms might support the foreign affairs of a country, establish a good image, and enhance its reputation in the world.

The purpose of making this one of the six key forestry programs is to abolish the conventional, decentralized and isolated modes of development, and to integrate the conservation of forests, wetlands, and wild organisms into the organic whole of forestry development. Implementing this program in a comprehensive and systematic way will boost China's conservation efforts and ensure in a relatively short period of time the improvement of China's ecological environment.

4.5.2 General Objectives of the Program

China's overall strategy is to strengthen its ecological development, by pursuing the policy to “strengthen protection of resource environment; carry out domestication and breeding in an active manner, and practice development, exploitation and utilization in a rational way.” Conservation will be taken as the basis, development as the purpose, protection of the habitats of wildlife and wild plants as the foundation, the conservation program as the focus, the rapid development of nature reserves as the breakthrough, and the improvement of the management system as the guarantee. Furthermore, it will promote law-enforcement, give publicity to scientific research and capital input, and protect the biodiversity. This will contribute toward the conservation of wildlife and wild plants, revitalize the cycle of wildlife and plant resources and their sustainable utilization, and push forward the development of China's national economy and civilization.

The general objective of this program is to rescue and protect China's wildlife and plants. China is giving priority for conservation, and wants to expand, improve, and establish areas of nature reserves, game refuges and bases for rare species protection and rare plant cultivation at the national level. On completion of this program, there will be 2,500 nature reserves across China (of which 2,000 will be forest nature reserves), which cover 172.8 million hectares of land, amounting to 18% of China's land (of which 16% will be forest nature reserves). A conservation network will be formed comprising nature reserves and major wetlands which will be characterized by rational arrangement, variety of types, advanced facilities, sound management, and of international repute. Furthermore, it will promote scientific research and resource-monitoring, step up the building and supervision of management organizations, formulate laws and regulations, as well as set up a market circulation system and management capability to realize sustainable development and utilization of wildlife and wild plant resources.

The overall plan covers the following three periods: the short-term is from 2001–10 (2001–05 overlaps China's Tenth Five-Year Plan), the midterm from 2011–30, and the long-term from 2031–50.

The short-term objective (2001–10) is to give priority to the implementation of rescue projects for the following fourteen wildlife and wild plants: giant panda, crested ibis (Nipponia Nippon), tiger, golden monkey (Rhinopitecus roxellanae), Tibet antelope (Pantholops hodgsoni), Chinese alligator (Alligator sinensis), Asiatic elephant (elephas maximus), white-handed gibbon (Hylobates lar), moschus, przewalski's procapra (Procapra przewalkskii), wild deers, cranes, orchids, sago cycas (Cycas revoluta), and others. The aim is to build fifteen domestication breeding centers for wildlife, and thirty-two monitoring centers for wildlife and wild plants. In 2010, the nature reserves across China will total 1,800, of which 220 will reach national level. This network will effectively protect 90% of wild animals and plants under state care, and 90% of typical varieties in the ecological system, as well as greatly improve the living conditions of endangered species. It will also set up 94 national demonstration zones for wetland conservation, and rational utilization will monitored and supervised, while scientific research will be carried out on wetland conservation. Relevant international conventions will be consulted in earnest and the export and import of endangered species of China's wild animals and plants will be carefully controlled.

The midterm objective (2011–30) is that by 2030, China's nature reserves will total 2,000, of which 280 will be at national level. The total area to be covered is 161.2 million hectares, amounting to 16.8% of China's land, and a sound management system for nature reserve conservation will take shape. This system will help restore and effectively protect 95% of the typical varieties of wildlife and plants in the ecological system. There will be 76 national demonstration zones for wetland conservation, where a rational utilization system will be established. The mechanism for perfecting wetland conservation across China and the rational utilization system will put an end to the destructive exploitation of natural wetlands and curb their decline.

For the long-term objective (2031–50), it is envisaged that by 2050, the number of nature reserves in China will reach 2,500, of which 350 will be at the then national level. Their total area will amount to 172.8 million hectares, accounting for 18% of China's territory. A number of game refuges and bases for breeding wildlife and the cultivation of wild plants will also be established so as to restore the number of wild animals and plants, and protect the typical varieties in China's ecological system. The project will also build up conservation, management, and development systems with Chinese characteristics for the nature reserves so as to make China a leader in terms of the management of nature reserves in the world. This will include sound laws, policies, and monitoring systems for the conservation, as well as efficient management and rational utilization of wetlands.

4.5.3 The Importance of Conservation, Cultivation, and Rational Utilization

With its unique position, this program plays an essential part in accelerating forestry development and beautifying China's mountains and rivers. In the course of implementing the program, attention must be paid to the following aspects.

4.5.3.1 The relationship between conservation, utilization, and development

This program can only achieve success if the relationship between conservation, utilization, and development is properly managed, and conservation is taken as the basis, with development as the core, and at the same time promoting the use of science and technology.

The principle of “conservation first” must be upheld. Conservation serves as the basis and precondition for development and utilization. Once a species is extinct, it can never come to life again. Once lost, genes can never be brought back again. Once damaged, nature's ecological system can hardly survive. Only when wild animals and plants as well as nature's ecological system are well protected, can conditions be suitable for utilization and development. Without conservation, there can be no guarantee of rational utilization and development of the resources, and no sustainable development.

The principle of “rational utilization” must also be upheld. In the final analysis, conservation and development mean that mankind can make sustainable use of natural resources and benefit from the natural environment. If conservation is persistently pursued, it will become a natural phenomenon, and there will be no need for development. Special emphasis must be given to the idea that utilization means scientific and rational utilization with the aim of conservation. At the same time, the following principles must be followed: first, depending on the existing resources and requirements “resource consumption must not exceed its growth,” and there must be strict control over the amount of resources utilized to ensure the natural growth of resources. Second, there should be better use of science and technology by adopting scientific means to obtain maximum economic results with minimum resource consumption. Third, artificial breeding can be promoted to ease the pressure from the conservation of natural resources. Fourth, the rational utilization of resources can be integrated with the development of the local economy and poverty alleviation for the masses.

The principle of “making development the core of this program” must be upheld. China's efforts in the conservation of wild animals and plants have remained insignificant for a long time because of its weak economic status and late implementation. The harsh reality facing the country now is the shortage of resources, the sensitive ecological environment, and inadequate conservation. If this state continues, the status quo cannot be maintained. If a normal development course is pursued, the wide gap between the present state and the requirements of conservation is likely to grow wider. Only by pursuing development ernestly and taking great leaps will conservation be upgraded and strengthened in a relatively short time, and rational utilization can secure a firm foundation. Without development, conservation and rational utilization does not mean much. In other words, the greater the development the less difficult it will be to achieve them.

A proper handling of the relationship between conservation, utilization, and development must be the main theme of conservation work. This theme must always be kept in mind so that a solid foundation for rational utilization and rapid development can be built. Conservation can be improved through rational utilization so that rapid results can be achieved in the conservation of wild animals and plants.

4.5.3.2 The role of this program

As various types of China's wildlife and wild plants, wetlands, and nature reserves are scattered far and wide, with diversified ecological systems, especially when many rare endangered species are largely in the remote and backward regions, it is hard to launch a comprehensive effort in conservation throughout the country with China's limited financial and material resources. Owing to national conditions and the stagnant status of forestry during the socialist phase in China, priority must now be given to implement this program to promote all-round conservation in incremental steps.

1. Priority attention should be given to key species, especially the rare, endangered species found exclusively in China. They include giant panda, red ibis, tiger, and sage palm, as well as other wild animals and plants badly needed in China's economic development, such as the musk deer, wild deer, pheasant, and Chinese yew. The implementation of this program can promote resource restoration and development. Apart from taking care of the fifteen endangered species set by the State, all the provinces, autonomous regions, and cities directly under the Central Committee of the CPC should identify the key species in the locality according to local conditions, and improve their efforts in conservation.

2. Priority should be given to key areas. Rescue conservations need to be enforced especially in ecologically sensitive areas, resource-rich areas, and those with typical ecological systems. Demonstration zones in the nature reserves and wetlands need to be set up which are multitiered, complementary to one another, and special in their own way, so as to prevent irretrievable losses caused by delayed conservation.

3. Priority must be given to key links. There should be improved supervision of habitat conservation, management, circulation, and utilization of resources, export and import of wild animals, plants, and their products, and crimes such as illegal hunting, illegal management, and smuggling should be effectively curbed.

Scientific and technological support for this program must be strengthened. A large number of scientific and technological problems related to gene preservation, species conservation, and habitat restoration have remained unsolved. They have become a bottleneck in this conservation cause. Any breakthrough in these problems has a direct bearing on the results of this program. By increasing the input, bringing in qualified professionals, and improving the capacity of the existing research organizations, a sound scientific and technological support system can be built for the program. An interdisciplinary cooperative mechanism also needs to be established to tackle these problems. This can be done by collaborating with universities and research institutions to solve such problems as germ-plasm resource preservation, species breeding, and reintroduction to the wild.

4.5.3.3 Strengthen international cooperation and exchanges

China should take advantage of the “diplomatic role” of this program to make a steady step forward toward the outside world.

It is important to solve the difficult problems attracting world attention, such as illegal trade, adverse breeding conditions, and uncivilized utilization of resources so as to improve China's image and standing in the world. If substantial progress is made in China's conservation work, understanding and trust will emanate from the international community.

In accordance with the international conventions that China has signed, such as the CITES, the Ramsar Convention, and the Convention on Biological Diversity, China must honor its commitment to the international conservation cause as well as its bilateral agreements on conservation with Japan, Australia, the United States, India, and Russia, and promote its image and reputation in the world.

It is important to keep up sound cooperation with the following international organizations: the World Bank, the United Nations Development Program, and the World Wildlife Fund, by taking advantage of the program's attraction and diversity to study corresponding mechanisms and policies and further expand the channel for international cooperation and exchanges, and secure more funds and technological assistance.

4.5.3.4 Intensify conservation awareness

Publicity and education play extremely important roles in the conservation of wild animals and plants. As this program involves many aspects and links, and China is still a developing country that has just solved its food and clothing problems, the people's awareness of conservation is still minimal. Therefore, it is important to increase their awareness by intensifying publicity. One way is by attracting the masses to participate directly in the conservation cause so that twice the results can be gained for half the effort. In fact, publicity itself promotes conservation, and the importance attached to it.

1. Publicity can be conducted among government leaders at various levels by giving them detailed reports on the significance and tasks of this program to gain their care and concern, and to secure support for the implementation of the program.

2. The launching of this program can be used to spread information about the program and win support from the whole society.

3. Publicity must be geared to the needs of the people. Publicity should be conducted with the clear aim of helping the public to know the significance, role and progress of the program, and to gain the understanding and support of the people in the program development area so as to create a sound social environment for the implementation of the program.

4. The role of the media can be used to exert extensive influence both at home and abroad in a positive way. It is important to generate publicity based on the principles of “rational utilization” with “development as the core” to create a conducive environment for the conservation of wild animals and plants, and assist in the smooth implementation of the program.

4.6 Development Program for Fast-growing and High-yielding Forests

The development program for fast-growing and high-yielding forests in key regions focuses on timber plantations which are the backbone of China's forestry industrial system. It is “the program of hope” to strengthen China's forestry, which will mainly solve the supply of China's timber and forest products. The program will ease the contradiction between the supply and demand of China's forest products, and greatly promote the smooth implementation of the Natural Forest Protection Program and other ecological programs.

4.6.1 Contradiction between the Supply and Demand of Forest Products

Forest products, mainly timber, are important materials for the national economy and the people. Along with the rapid development of the national economy and continuous improvement of people's lives, the demand for forest products has been growing increasingly, especially the demand for timber, such as pulpwood, wood-based panel wood, and large timber. It is estimated that the timber needed for China's production and development will amount to nearly 240 million cubic meters (of which 170 million cubic meters will be pulpwood, wood-based panel wood, and large timber) in 2005, and to 330–40 million cubic meters (of which 250 million cubic meters will be pulpwood, wood-based panel wood, and large timber) in 2015. Based on an estimation of the existing forest resources, 169 million cubic meters of timber can be produced in 2005, with a shortage of 60-70 million cubic meters, whereas by 2015, only 195 million cubic meters of timber will be produced, with a greater shortage of 140-50 million cubic meters.

In the recent years, China has stepped up its import of timber to meet the requirements for socio-economic development and ease the difference between demand and supply. From a long-term strategic perspective, China's demand for timber and forest products will remain increasingly large as it has a huge population and its economy continues to develop. Therefore, China must find ways to solve the supply and demand of timber and forest products. This situation is determined by its basic national conditions.

Forestry development in this new era has shifted its focus from timber production to improving the ecology, which is a major change affecting the nature and position of China's forestry and its guidelines. Since implementing the Natural Forest Protection Program, commercial felling of natural forests in the upper reaches of the Yangtze River and the upper and middle reaches of the Yellow River has been completely suspended, while timber production has been reduced by a big margin in the key state-owned forest areas in the northeast and Inner Mongolia. These measures serve as an important move to protect and improve the ecological environment and the only option for ensuring sustainable development of the national economy and the long-term interests of the Chinese nation. Therefore, the only ways to close the gap between the supply and demand of forest products lies in developing fast-growing and high-yielding timber forests in a big way, and increasing timber plantations, to meet the demands of socio-economic development for forest products. In accordance with the characteristics and laws of forestry development, the concepts and principles in forestry classification, and the conditions of China's existing forestland and its potential for development, it must develop extensively fast-growing and high-yielding forests, as well as short-term forests used as raw industrial materials by drawing on the experiences of the more advanced developed countries. In those selected areas where natural conditions such as land, water, and heat are better, forest industry development can be more focused and use intensive management for the purpose of high input and high production in relatively smaller areas. This will improve China's supply of forestry products, ease the pressure on the consumption of natural forest resources, and promote smooth implementation of the key programs of ecological development.

Therefore, implementing the program to plant fast-growing and high-yielding forests to speed up the growth of plantations will help to gradually realize the change from felling natural forests to felling plantations. This basic policy is to ease the difference between the supply and demand of timber and forest products in China. It will also facilitate the smooth implementation of the Natural Forest Protection Program and other ecological development programs, and reaffirm the priority given to ecological development.

4.6.2 Planning, Distribution, and Economic Benefits of the Program

According to the forest classification and based on the development of existing fast-growing and high-yielding forests, the program areas are mainly located east of 400 mm isohyets, especially in the areas of 600 mm isohyets where the location and natural conditions are good, and the land is flat so that it will not cause water and soil erosion and affect the ecological environment. This program covers 886 counties (cities, districts) and 114 forestry administrations (farms) in eighteen provinces (autonomous regions): Hebei, Inner Mongolia, Liaoning, Jilin, Heilongjiang, Jiangsu, Zhejiang, Anhui, Fujian, Jiangxi, Shandong, Henan, Hunan, Hubei, Guangdong, Guangxi, Hainan, and Yunnan.

4.6.2.1 The subtropical zone of Guangdong, Guangxi, Hainan, and Fujian

This region covers 201 counties and fifteen forestry bureaus (farms) in four provinces. The coastal tableland in this region is suitable for planting eucalyptus and acacia as pulp materials, while the low hilly land can support mainly masson pine, Caribbean pine, and slash pine, used for pulp and wood-based panel materials, and valuable large timber forests of teak, mahogany, and alder birch.

4.6.2.2 The middle and lower reaches of the Yangtze River

This north subtropical region covers 349 counties in seven provinces: Jiangsu, Zhejiang, Anhui, Jiangxi, Hubei, Hunan, and Yunnan. The areas along the Yangtze and around the Dongting and Boyang Lakes are suitable for developing forests for industrial use, such as Canada poplar and pond cypress, while the low hilly areas can support masson pine, slash pine, loblolly pine, and bamboo used as industrial materials.

4.6.2.3 The middle and lower reaches of the Yellow River

This warm temperate region covers 215 counties in three provinces: Hubei, Shandong, and Henan. It is suitable for developing forest producing fine industrial material, mainly triploid Chinese white poplar and Canada poplar, to provide short-fiber bleached pulp and wood-based panel materials.

4.6.2.4 The Northeast and Inner Mongolia

This temperate region covers 121 counties and ninety-nine forestry administrations in four provinces (autonomous regions): Heilongjiang, Jilin, Liaoning, and Inner Mongolia. It is suitable for developing forests of broad-leaved species such as Ussuri poplar, sweet poplar, David poplar, Baicheng poplar, and coniferous species, such as Dahurian larch, Korean larch, and Japanese larch used for pulpwood and wood-based panel materials, as well as valuable large-diameter timber forests of Korean pine, Manchurian ash, Manchurian walnut, Amur corktree, spruce, and larch.

The general goal of this program is as follows. By 2015, the green industrial zone will consist of fast-growing and high-yielding forests in the north and south. These forests can meet 40% of the demand for timber from domestic production, and by felling and utilizing these forest resources, the domestic supply of and demand for timber will be almost equal. The following is the objective for the different phases.

By 2005, it is expected that fast-growing and high-yielding forest bases will cover 4.69 million hectares. After the completion of these bases, 49.05 million cubic meters of timber will be supplied annually, which will provide 6.20 million tons for wood pulp production, 6.40 million cubic meters for wood-based panel production, and 3.77 million cubic meters of large timber.

By 2010, bases of this kind are expected to reach 9.2 million hectares. After their completion, 96.70 million cubic meters of timber can be supplied annually, which will provide 11.90 million tons for wood pulp production, 13.15 million cubic meters for wood-based panel production, and 7.32 million cubic meters of large timber.

The target for 2015 is 13.33 million hectares. After the completion of all the bases, 133.37 million cubic meters of timber will be available, which will provide 13.86 million tons for wood pulp production, 21.50 million cubic meters for wood-based panel production, and 15.79 million cubic meters of large timber.

The entire program, lasting from 2001 to 2015, is divided into two stages, and implemented in three phases. In Stage 1 (2001–05), the first phase of the program will build a forest base of industrial materials mainly in the south, while in Stage 2 (2006–15), the second and third phases of this program will build fast-growing and high-yielding forest zones in the north and south.

4.6.3 Building Fast-growing and High-yielding Forest Bases

Building forest bases of this kind is the key to achieving economic results. It relies mainly on local and commercial investments, and inputs of external capital, such as from enterprises and individuals as well as foreign funds. This is unique to the six key programs under development. Therefore, economic results must be the main aim of this program. The key to the success of this program lies in changing the concept of management and transforming the mechanism for business.

1. There must be a paradign shift in thinking to break loose from the bondage of a planned economy so that the implementation of this program can be carried out under the principles of a market economy. According to the Forest Law of the PRC, anyone who is interested in afforestation are welcome to participate in this program. More flexible policies must be adopted to encourage non-public ownership of and support for forestry development to add new vitality to the program.

2. The principle of material gains must be encouraged to protect the legitimate interests of forestry managers and to provide an incentive for people from all walks of life and the broad masses to participate. Material gains are the most fundamental and important principle of a market economy, and the key to the input of external capital into forest management. In the past, not enough attention was paid to this problem and policy measures taken in this regard were not reasonable while excessive taxes and fees dampened the initiative of forestry managers, and especially most forest farmers. This problem, which has remained unsolved for many years, must be given greater attention. The forestry department ought to take the lead in cutting down illegal fees. The problem will never be solved if the department does not take the initiative but expects others to do so.

3. The policies, regulations, and technical procedures that do not meet the requirements of a market economy, or curb and even impede the development of timber forests must be thoroughly examined. If necessary, they must be revised or done away with. A solution must be found now for the felling quota of timber forests because there are grievances and strong reactions from the local governments concerned. This problem is sensitive and depends on relevant policies as it involves many aspects. Therefore, a cautious and positive approach must be taken to solve the problem. The general principle on felling timber forests must be made flexible so that managers are free to make their own decisions according to the market requirements. Through investigation and experiments, detailed regulations should be worked out as early as possible. The important task at present is to reform the resource management system.

To realize this “program of hope,” which will surely strengthen forestry, priority must be given to the following aspects: improving the cultivation of timber forests, developing extensively economic forests and bamboo industries, while expanding the avenues for forestry industrial development and actively launching forest tourism and the floral industry. Programs concerning natural forest conservation, the conversion of farmland to forest, and the development of shelterbelt systems in the three regions in north China must be integrated with forestry industrial bases. In the areas where conditions are suitable, commercial forests should also be cultivated and measures taken to promote better growth and enhance the quality of the standing forests, as well as the production potential of forestland to build up reserve resources as soon as possible.

For the development of timber forests, advantage should be taken of the favorable conditions in the coastal areas in east China and the collective forest areas in south China, such as abundant rainfall, suitable climate, and plentiful tree species to speed up the development of fast-growing and high-yielding trees and build bases for industrial materials. Guided by the demands of the market, productive potential of forestland should be employed to improve the management of plantations in a scientific way and promote the cultivation and felling of plantations in a correct manner. The development of forests for industrial materials should be intensified by cultivating fast-growing and high-yielding forests to broaden the scope of plantations for commercial purposes. The distribution of tree species should be rationally adjusted, especially the planting of valuable and fast-growing timber forests. Diversity should be encouraged in timber forest resources to close the gap between supply and demand. Science and technology input need to be employed to study and introduce the technique of using wood by tender, develop more sophisticated processing of timber and raise the timber utility rate. Commercial forest bases can also be developed for pulp and paper-making, wood-based panels, and the forest chemical industry. Improved marketing can promote the quality and credibility of the products so that they can be competitive and reap economic benefits.

The development of economic forests must take into consideration the demands of foreign and domestic markets, the use of technology and resources, and whether new species of economic forests can be developed extensively. Fine quality, high-yield, and highly efficient forest industries of economic value can promote the integration of trade, industry, and forestry. Intensive and efficient processing of economic forest products can promote regional economic development and encourage the rational distribution of diversified forest products, as well as enhance market competitiveness. Market information services and better circulation channels can help to open new markets. Therefore, it is important to study and forecast the trend of the market and build a network to collect, sort out, and transmit information on economic forest products so as to be ahead of the competition. Product-marketing teams should also be developed and strengthened. Three kinds of foreign-investment ventures can be employed. By making use of the channels for foreign and domestic trade, China's fruits can be promoted in the international market as well as the home market. Well-known fruits and new varieties can be introduced and promoted in a big way while the old and damaged orchards can be actively revived. These special rare resources of the economic forests can be gradually expanded to build a competitive edge to enter the international market. Importance must be attached to technological progress in the economic forest industry, with priority given to applying sci-tech to upgrade product standards and create new brands, raising production, quality and economic results with the help of sci-tech. The management of leading enterprises must be strengthened, and bases built and developed for economic forest industries, thus integrating trade, industry, and forestry. These will become commodity and society-oriented industries in scope, with inhouse management. Economic forest products such as fruits, oils, and perfumes can also be developed. Research is required to increase the varieties to meet the requirements of the market.

With regard to the development of the bamboo industry, this is a rich resource with a short life cycle. China's bamboo resources can be expanded by cultivating bamboo forests in the areas where conditions are suitable. Bamboo forest resources can be increased if special attention is given to the transformation of low-yield bamboo forests. The management of existing bamboo forests should be improved so that the number of standing bamboo per unit area can be increased. Full advantage should be taken of the rich labor resources in the bamboo-producing areas, and being close to the international market, initiate an export-oriented strategy, and actively develop export products to earn foreign exchange. This step will also promote the internationalization of China's bamboo industry, and increase its share of bamboo products in the international market. Through this, China can become a trading power from a resource power. Small-scale, scattered, and extensive management and low efficiency should be discouraged. Instead, large group corporations should be promoted to raise the economic value of China's bamboo industry and create a link between small enterprises and the larger market, and between small areas and the larger economy. It would be advantageous to cultivate various bamboo species extensively, such as bamboo shoot forests for dual purposes, as well as promote focused management and intensive processing of bamboo. If cultivation of bamboo is improved, it will bring about economic results but a rational way of felling must be chosen so as to protect the ecological environment.

With regard to the development of the floral industry, intensification, mass-production, industrialization, and internationalization of the industry must be promoted. First, wildflower resources must be protected, properly developed, and utilized, and priority should be given to the selection, cultivation, and introduction of new varieties. As China is rich in wildflower resources, many of which are unique in the world, the rational development and utilization of these resources must be intensively promoted. Following experiments in cultivation, successful new species can be introduced in batches. Through selection, cultivation and introduction to the market, the most profitable and rarest floral varieties can be grown in different areas for economic benefits. Second, science and technology will be the key to the development of the floral industry. The introduction and study of new technologies can be applied to traditional, rare, wildflower resources in different areas to produce new varieties that can compete on the international market. Research can also be conducted on how to keep flowers and leaves fresh, how to store and transport them, the technology of soilless culture and making nutrient solutions, the technology to lower fertilizer and other chemical requirements, and the technology of disease and pest control so as to turn science and technology achievements into productive forces and raise the standards of flower production. Third, the floral market can be standardized and a distribution system established. Flower shops can be set up in cities, developed towns, and villages to meet the people's demand for flowers. State-owned, collective, and individual flower shops can be developed hand-in-hand, as they are different in scale, diversified in form, and make use of local resources. Fourthly, guidance can be given to the management of flower production to turn them into intensive industries, transforming them from low-grade to high-grade, and from small-scale to large-scale productions. Strong support should be given to leading enterprises, to improve their product quality, create famous brands, and gradually realize the integration of production, scientific research, management, marketing, and services by applying the experiences gained from selected spots to larger areas so as to enlarge the production bases. The aim is to cultivate fine breeds, standardize management, promote series marketing, and raise the general level of the industry.

In the course of developing forestry industrial bases, the whole industry must be upgraded and be actively promoted to take advantage of China's economic structure and to improve economic results. In line with the distribution of large and medium-sized projects for pulp and papermaking and depending on the actual conditions of the areas concerned, raw material bases can be set up for making pulp and paper. The structure and regional distribution of wood-based industries should be adjusted and priority given to reforming and tapping the potential of existing enterprises. Improved technology and processing methods can help to upgrade product quality and performance, and allow the industry to focus on developing new varieties favored by the market. Other export-oriented products such as rosin and turpentine can be developed to earn foreign exchange. Enterprises producing rosin and turpentine must improve their product quality and processing methods. Another area is to develop an industrial perfume processing capability by effectively utilizing lignin and non-lignin forest resources. A tertiary industry related to forestry is tourism which can be improved by developing landscape forestry, and building key forest tourism attractions and tourist infrastructure in-line with the development of commerce and services. With regard to job creation, priority must be given to the rational distribution of forest industries, giving strong support for secondary industries such as the production of pulp and papermaking, manufacturing and processing of various wood-based products, and the production of major forest chemicals. Forest tourism should also be actively promoted.

The extensive scale and broad scope of the six key programs and the tremendous investments involved have been rarely seen in history. Four of the six key programs are each larger in scale than other world-famous programs, such as Stalin's nature plan in the USSR, or Roosevelt's great meadow forestry program in the United States, or the green-dam program in the five nations of northern Africa. The six key programs will be the leading ecological programs in the world and a magnificent feat for China in rebuilding the beautiful mountains and rivers. The implementation of the six key programs will bring about great changes both at home and abroad. Mark D. Wilson, head of the World Bank's Rural Development and Natural Resources Sector Unit for East Asia and Pacific Region, said that the six key programs will realign China's forestry and bring new life and vitality to the industry in the new century. Kevin Kamp, the acting representative of the UN Food and Agriculture Organization mission in China, expressed his approval that the Chinese government will invest 11 billion yuan in natural forest protection. Tong Rushi, Minister in the New Zealand embassy in China, likened the six key programs to a beacon shining in China's forest sea, leading the development of China's forestry in the new century.