锻烁还林条例》已经2002年12月6日国务院第66次常务会议通过，现予公布，自2003年1月20日起施行。

总理　朱镕基
二00二年十二月十四日

退耕还林条例

　　第一章 总 则

　　第一条 为了规范退耕还林活动，保护退耕还林者的合法权益，巩固退耕还林成果，优化农村产业结构，改善生态环境，制定本条例。

　　第二条 国务院批准规划范围内的退耕还林活动，适用本条例。

　　第三条 各级人民政府应当严格执行"退耕还林、封山绿化、以粮代赈、个体承包"的政策措施。

　　第四条 退耕还林必须坚持生态优先。退耕还林应当与调整农村产业结构、发展农村经济，防治水土流失、保护和建设基本农田、提高粮食单产，加强农村能源建设，实施生态移民相结合。

　　第五条 退耕还林应当遵循下列原则：

　　（一）统筹规划、分步实施、突出重点、注重实效；

　　（二）政策引导和农民自愿退耕相结合，谁退耕、谁造林、谁经营、谁受益；

　　（三）遵循自然规律，因地制宜，宜林则林，宜草则草，综合治理；

　　（四）建设与保护并重，防止边治理边破坏；

　　（五）逐步改善退耕还林者的生活条件。

　　第六条 国务院西部开发工作机构负责退耕还林工作的综合协调，组织有关部门研究制定退耕还林有关政策、办法，组织和协调退耕还林总体规划的落实；国务院林业行政主管部门负责编制退耕还林总体规划、年度计划，主管全国退耕还林的实施工作，负责退耕还林工作的指导和监督检查；国务院发展计划部门会同有关部门负责退耕还林总体规划的审核、计划的汇总、基建年度计划的编制和综合平衡；国务院财政主管部门负责退耕还林中央财政补助资金的安排和监督管理；国务院农业行政主管部门负责已垦草场的退耕还草以及天然草场的恢复和建设有关规划、计划的编制，以及技术指导和监督检查；国务院水行政主管部门负责退耕还林还草地区小流域治理、水土保持等相关工作的技术指导和监督检查；国务院粮食行政管理部门负责粮源的协调和调剂工作。

　　县级以上地方人民政府林业、计划、财政、农业、水利、粮食等部门在本级人民政府的统一领导下，按照本条例和规定的职责分工，负责退耕还林的有关工作。

　　第七条 国家对退耕还林实行省、自治区、直辖市人民政府负责制。省、自治区、直辖市人民政府应当组织有关部门采取措施，保证退耕还林中央补助资金的专款专用，组织落实补助粮食的调运和供应，加强退耕还林的复查工作，按期完成国家下达的退耕还林任务，并逐级落实目标责任，签订责任书，实现退耕还林目标。

　　第八条 退耕还林实行目标责任制。

　　县级以上地方各级人民政府有关部门应当与退耕还林工程项目负责人和技术负责人签订责任书，明确其应当承担的责任。

　　第九条 国家支持退耕还林应用技术的研究和推广，提高退耕还林科学技术水平。

　　第十条 国务院有关部门和地方各级人民政府应当组织开展退耕还林活动的宣传教育，增强公民的生态建设和保护意识。

　　在退耕还林工作中做出显著成绩的单位和个人，由国务院有关部门和地方各级人民政府给予表彰和奖励。

　　第十一条 任何单位和个人都有权检举、控告破坏退耕还林的行为。

　　有关人民政府及其有关部门接到检举、控告后，应当及时处理。

　　第十二条 各级审计机关应当加强对退耕还林资金和粮食补助使用情况的审计监督。

　　第二章 规划和计划

　　第十三条 退耕还林应当统筹规划。

　　退耕还林总体规划由国务院林业行政主管部门编制，经国务院西部开发工作机构协调、国务院发展计划部门审核后，报国务院批准实施。

　　省、自治区、直辖市人民政府林业行政主管部门根据退耕还林总体规划会同有关部门编制本行政区域的退耕还林规划，经本级人民政府批准，报国务院有关部门备案。

　　第十四条 退耕还林规划应当包括下列主要内容：

　　（一）范围、布局和重点；

　　（二）年限、目标和任务；

　　（三）投资测算和资金来源；

　　（四）效益分析和评价；

　　（五）保障措施。

　　第十五条 下列耕地应当纳入退耕还林规划，并根据生态建设需要和国家财力有计划地实施退耕还林：

　　（一）水土流失严重的；

　　（二）沙化、盐碱化、石漠化严重的；

　　（三）生态地位重要、粮食产量低而不稳的。

　　江河源头及其两侧、湖库周围的陡坡耕地以及水土流失和风沙危害严重等生态地位重要区域的耕地，应当在退耕还林规划中优先安排。

　　第十六条 基本农田保护范围内的耕地和生产条件较好、实际粮食产量超过国家退耕还林补助粮食标准并且不会造成水土流失的耕地，不得纳入退耕还林规划；但是，因生态建设特殊需要，经国务院批准并依照有关法律、行政法规规定的程序调整基本农田保护范围后，可以纳入退耕还林规划。

　　制定退耕还林规划时，应当考虑退耕农民长期的生计需要。

　　第十七条 退耕还林规划应当与国民经济和社会发展规划、农村经济发展总体规划、土地利用总体规划相衔接，与环境保护、水土保持、防沙治沙等规划相协调。

　　第十八条 退耕还林必须依照经批准的规划进行。未经原批准机关同意，不得擅自调整退耕还林规划。

　　第十九条 省、自治区、直辖市人民政府林业行政主管部门根据退耕还林规划，会同有关部门编制本行政区域下一年度退耕还林计划建议，由本级人民政府发展计划部门审核，并经本级人民政府批准后，于每年8月31日前报国务院西部开发工作机构、林业、发展计划等有关部门。国务院林业行政主管部门汇总编制全国退耕还林年度计划建议，经国务院西部开发工作机构协调，国务院发展计划部门审核和综合平衡，报国务院批准后，由国务院发展计划部门会同有关部门于10月31日前联合下达。

　　省、自治区、直辖市人民政府发展计划部门会同有关部门根据全国退耕还林年度计划，于11月30日前将本行政区域下一年度退耕还林计划分解下达到有关县（市）人民政府，并将分解下达情况报国务院有关部门备案。

　　第二十条 省、自治区、直辖市人民政府林业行政主管部门根据国家下达的下一年度退耕还林计划，会同有关部门编制本行政区域内的年度退耕还林实施方案，经国务院林业行政主管部门审核后，报本级人民政府批准实施。

　　县级人民政府林业行政主管部门可以根据批准后的省级退耕还林年度实施方案，编制本行政区域内的退耕还林年度实施方案，报本级人民政府批准后实施，并报省、自治区、直辖市人民政府林业行政主管部门备案。

　　第二十一条 年度退耕还林实施方案，应当包括下列主要内容：

　　（一）退耕还林的具体范围；

　　（二）生态林与经济林比例；

　　（三）树种选择和植被配置方式；

　　（四）造林模式；

　　（五）种苗供应方式；

　　（六）植被管护和配套保障措施；

　　（七）项目和技术负责人。

　　第二十二条 县级人民政府林业行政主管部门应当根据年度退耕还林实施方案组织专业人员或者有资质的设计单位编制乡镇作业设计，把实施方案确定的内容落实到具体地块和土地承包经营权人。

　　编制作业设计时，干旱、半干旱地区应当以种植耐旱灌木（草）、恢复原有植被为主；以间作方式植树种草的，应当间作多年生植物，主要林木的初植密度应当符合国家规定的标准。

　　第二十三条　退耕土地还林营造的生态林面积，以县为单位核算，不得低于退耕土地还林面积的80％。

　　退耕还林营造的生态林，由县级以上地方人民政府林业行政主管部门根据国务院林业行政主管部门制定的标准认定。

　　第三章 造林、管护与检查验收

　　第二十四条 县级人民政府或者其委托的乡级人民政府应当与有退耕还林任务的土地承包经营权人签订退耕还林合同。

　　退耕还林合同应当包括下列主要内容：

　　（一）退耕土地还林范围、面积和宜林荒山荒地造林范围、面积；

　　（二）按照作业设计确定的退耕还林方式；

　　（三）造林成活率及其保存率；

　　（四）管护责任；

　　（五）资金和粮食的补助标准、期限和给付方式；

　　（六）技术指导、技术服务的方式和内容；

　　（七）种苗来源和供应方式；

　　（八）违约责任；

　　（九）合同履行期限。

　　退耕还林合同的内容不得与本条例以及国家其他有关退耕还林的规定相抵触。

　　第二十五条 退耕还林需要的种苗，可以由县级人民政府根据本地区实际组织集中采购，也可以由退耕还林者自行采购。集中采购的，应当征求退耕还林者的意见，并采用公开竞价方式，签订书面合同，超过国家种苗造林补助费标准的，不得向退耕还林者强行收取超出部分的费用。

　　任何单位和个人不得为退耕还林者指定种苗供应商。

　　禁止垄断经营种苗和哄抬种苗价格。

　　第二十六条 退耕还林所用种苗应当就地培育、就近调剂，优先选用乡土树种和抗逆性强树种的良种壮苗。

　　第二十七条 林业、农业行政主管部门应当加强种苗培育的技术指导和服务的管理工作，保证种苗质量。

　　销售、供应的退耕还林种苗应当经县级人民政府林业、农业行政主管部门检验合格，并附具标签和质量检验合格证；跨县调运的，还应当依法取得检疫合格证。

　　第二十八条 省、自治区、直辖市人民政府应当根据本行政区域的退耕还林规划，加强种苗生产与采种基地的建设。

　　国家鼓励企业和个人采取多种形式培育种苗，开展产业化经营。

　　第二十九条 退耕还林者应当按照作业设计和合同的要求植树种草。

　　禁止林粮间作和破坏原有林草植被的行为。

　　第三十条 退耕还林者在享受资金和粮食补助期间，应当按照作业设计和合同的要求在宜林荒山荒地造林。

　　第三十一条 县级人民政府应当建立退耕还林植被管护制度，落实管护责任。

　　退耕还林者应当履行管护义务。

　　禁止在退耕还林项目实施范围内复耕和从事滥采、乱挖等破坏地表植被的活动。

　　第三十二条 地方各级人民政府及其有关部门应当组织技术推广单位或者技术人员，为退耕还林提供技术指导和技术服务。

　　第三十三条 县级人民政府林业行政主管部门应当按照国务院林业行政主管部门制定的检查验收标准和办法，对退耕还林建设项目进行检查验收，经验收合格的，方可发给验收合格证明。

　　第三十四条 省、自治区、直辖市人民政府应当对县级退耕还林检查验收结果进行复查，并根据复查结果对县级人民政府和有关责任人员进行奖惩。

　　国务院林业行政主管部门应当对省级复查结果进行核查，并将核查结果上报国务院。

　　第四章 资金和粮食补助

　　第三十五条 国家按照核定的退耕还林实际面积，向土地承包经营权人提供补助粮食、种苗造林补助费和生活补助费。具体补助标准和补助年限按照国务院有关规定执行。

　　第三十六条 尚未承包到户和休耕的坡耕地退耕还林的，以及纳入退耕还林规划的宜林荒山荒地造林，只享受种苗造林补助费。

　　第三十七条 种苗造林补助费和生活补助费由国务院计划、财政、林业部门按照有关规定及时下达、核拨。

　　第三十八条 补助粮食应当就近调运，减少供应环节，降低供应成本。粮食补助费按照国家有关政策处理。

　　粮食调运费用由地方财政承担，不得向供应补助粮食的企业和退耕还林者分摊。

　　第三十九条 省、自治区、直辖市人民政府应当根据当地口粮消费习惯和农作物种植习惯以及当地粮食库存实际情况合理确定补助粮食的品种。

　　补助粮食必须达到国家规定的质量标准。不符合国家质量标准的，不得供应给退耕还林者。

　　第四十条 退耕土地还林的第一年，该年度补助粮食可以分两次兑付，每次兑付的数量由省、自治区、直辖市人民政府确定。

　　从退耕土地还林第二年起，在规定的补助期限内，县级人民政府应当组织有关部门和单位及时向持有验收合格证明的退耕还林者一次兑付该年度补助粮食。

　　第四十一条 兑付的补助粮食，不得折算成现金或者代金券。供应补助粮食的企业不得回购退耕还林补助粮食。

　　第四十二条 种苗造林补助费应当用于种苗采购，节余部分可以用于造林补助和封育管护。

　　退耕还林者自行采购种苗的，县级人民政府或者其委托的乡级人民政府应当在退耕还林合同生效时一次付清种苗造林补助费。

　　集中采购种苗的，退耕还林验收合格后，种苗采购单位应当与退耕还林者结算种苗造林补助费。

　　第四十三条 退耕土地还林后，在规定的补助期限内，县级人民政府应当组织有关部门及时向持有验收合格证明的退耕还林者一次付清该年度生活补助费。

　　第四十四条 退耕还林资金实行专户存储、专款专用，任何单位和个人不得挤占、截留、挪用和克扣。

　　任何单位和个人不得弄虚作假、虚报冒领补助资金和粮食。

　　第四十五条 退耕还林所需前期工作和科技支撑等费用，国家按照退耕还林基本建设投资的一定比例给予补助，由国务院发展计划部门根据工程情况在年度计划中安排。

　　退耕还林地方所需检查验收、兑付等费用，由地方财政承担。中央有关部门所需核查等费用，由中央财政承担。

　　第四十六条 实施退耕还林的乡（镇）、村应当建立退耕还林公示制度，将退耕还林者的退耕还林面积、造林树种、成活率以及资金和粮食补助发放等情况进行公示。

　　第五章 其他保障措施

　　第四十七条 国家保护退耕还林者享有退耕土地上的林木（草）所有权。自行退耕还林的，土地承包经营权人享有退耕土地上的林木（草）所有权；委托他人还林或者与他人合作还林的，退耕土地上的林木（草）所有权由合同约定。

　　退耕土地还林后，由县级以上人民政府依照森林法、草原法的有关规定发放林（草）权属证书，确认所有权和使用权，并依法办理土地变更登记手续。土地承包经营合同应当作相应调整。

　　第四十八条 退耕土地还林后的承包经营权期限可以延长到70年。承包经营权到期后，土地承包经营权人可以依照有关法律、法规的规定继续承包。

　　退耕还林土地和荒山荒地造林后的承包经营权可以依法继承、转让。

　　第四十九条 退耕还林者按照国家有关规定享受税收优惠，其中退耕还林（草）所取得的农业特产收入，依照国家规定免征农业特产税。

　　退耕还林的县（市）农业税收因灾减收部分，由上级财政以转移支付的方式给予适当补助；确有困难的，经国务院批准，由中央财政以转移支付的方式给予适当补助。

　　第五十条 资金和粮食补助期满后，在不破坏整体生态功能的前提下，经有关主管部门批准，退耕还林者可以依法对其所有的林木进行采伐。

　　第五十一条　地方各级人民政府应当加强基本农田和农业基础设施建设，增加投入，改良土壤，改造坡耕地，提高地力和单位粮食产量，解决退耕还林者的长期口粮需求。

　　第五十二条 地方各级人民政府应当根据实际情况加强沼气、小水电、太阳能、风能等农村能源建设，解决退耕还林者对能源的需求。

　　第五十三条 地方各级人民政府应当调整农村产业结构，扶持龙头企业，发展支柱产业，开辟就业门路，增加农民收入，加快小城镇建设，促进农业人口逐步向城镇转移。

　　第五十四条 国家鼓励在退耕还林过程中实行生态移民，并对生态移民农户的生产、生活设施给予适当补助。

　　第五十五条 退耕还林后，有关地方人民政府应当采取封山禁牧、舍饲圈养等措施，保护退耕还林成果。

　　第五十六条 退耕还林应当与扶贫开发、农业综合开发和水土保持等政策措施相结合，对不同性质的项目资金应当在专款专用的前提下统筹安排，提高资金使用效益。

　　第六章 法律责任

　　第五十七条 国家工作人员在退耕还林活动中违反本条例的规定，有下列行为之一的，依照刑法关于贪污罪、受贿罪、挪用公款罪或者其他罪的规定，依法追究刑事责任；尚不够刑事处罚的，依法给予行政处分：

　　（一）挤占、截留、挪用退耕还林资金或者克扣补助粮食的；

　　（二）弄虚作假、虚报冒领补助资金和粮食的；

　　（三）利用职务上的便利收受他人财物或者其他好处的。

　　国家工作人员以外的其他人员有前款第（二）项行为的，依照刑法关于诈骗罪或者其他罪的规定，依法追究刑事责任；尚不够刑事处罚的，由县级以上人民政府林业行政主管部门责令退回所冒领的补助资金和粮食，处以冒领资金额2倍以上5倍以下的罚款。

　　第五十八条 国家机关工作人员在退耕还林活动中违反本条例的规定，有下列行为之一的，由其所在单位或者上一级主管部门责令限期改正，退还分摊的和多收取的费用，对直接负责的主管人员和其他直接责任人员，依照刑法关于滥用职权罪、玩忽职守罪或者其他罪的规定，依法追究刑事责任；尚不够刑事处罚的，依法给予行政处分：

　　（一）未及时处理有关破坏退耕还林活动的检举、控告的；

　　（二）向供应补助粮食的企业和退耕还林者分摊粮食调运费用的；

　　（三）不及时向持有验收合格证明的退耕还林者发放补助粮食和生活补助费的；

　　（四）在退耕还林合同生效时，对自行采购种苗的退耕还林者未一次付清种苗造林补助费的；

　　（五）集中采购种苗的，在退耕还林验收合格后，未与退耕还林者结算种苗造林补助费的；

　　（六）集中采购的种苗不合格的；

　　（七）集中采购种苗的，向退耕还林者强行收取超出国家规定种苗造林补助费标准的种苗费的；

　　（八）为退耕还林者指定种苗供应商的；

　　（九）批准粮食企业向退耕还林者供应不符合国家质量标准的补助粮食或者将补助粮食折算成现金、代金券支付的；

　　（十）其他不依照本条例规定履行职责的。

　　第五十九条 采用不正当手段垄断种苗市场，或者哄抬种苗价格的，依照刑法关于非法经营罪、强迫交易罪或者其他罪的规定，依法追究刑事责任；尚不够刑事处罚的，由工商行政管理机关依照反不正当竞争法的规定处理；反不正当竞争法未作规定的，由工商行政管理机关处以非法经营额2倍以上5倍以下的罚款。

　　第六十条 销售、供应未经检验合格的种苗或者未附具标签、质量检验合格证、检疫合格证的种苗的，依照刑法关于生产、销售伪劣种子罪或者其他罪的规定，依法追究刑事责任；尚不够刑事处罚的，由县级以上人民政府林业、农业行政主管部门或者工商行政管理机关依照种子法的规定处理；种子法未作规定的，由县级以上人民政府林业、农业行政主管部门依据职权处以非法经营额2倍以上5倍以下的罚款。

　　第六十一条 供应补助粮食的企业向退耕还林者供应不符合国家质量标准的补助粮食的，由县级以上人民政府粮食行政管理部门责令限期改正，可以处非法供应的补助粮食数量乘以标准口粮单价1倍以下的罚款。

　　供应补助粮食的企业将补助粮食折算成现金或者代金券支付的，或者回购补助粮食的，由县级以上人民政府粮食行政管理部门责令限期改正，可以处折算现金额、代金券额或者回购粮食价款1倍以下的罚款。

　　第六十二条 退耕还林者擅自复耕，或者林粮间作、在退耕还林项目实施范围内从事滥采、乱挖等破坏地表植被的活动的，依照刑法关于非法占用农用地罪、滥伐林木罪或者其他罪的规定，依法追究刑事责任；尚不够刑事处罚的，由县级以上人民政府林业、农业、水利行政主管部门依照森林法、草原法、水土保持法的规定处罚。

　　第七章 附 则

　　第六十三条 已垦草场退耕还草和天然草场恢复与建设的具体实施，依照草原法和国务院有关规定执行。

　　退耕还林还草地区小流域治理、水土保持等相关工作的具体实施，依照水土保持法和国务院有关规定执行。

　　第六十四条 国务院批准的规划范围外的土地，地方各级人民政府决定实施退耕还林的，不享受本条例规定的中央政策补助。

　　第六十五条 本条例自2003年1月20日起施行。

Regulations on Conversion¹ of Farmland to Forests

　　（Adopted at the 66th Executive Meeting of the State Council on December 6, 2002, promulgated² by Decree No. 367 of the State Council of the People's Republic of China on December 14, 2002, and effective as of January 20, 2003）

　　Chapter I General Provisions

　　Article 1These Regulations are formulated³ for the purposes of standardizing⁴ conversion of farmland to forests, protecting the lawful⁵ rights and interests of those who convert their farmland to forests, consolidating⁶ the achievements made in conversion of farmland to forests, optimizing⁷ the structure of rural industries and improving the ecologic environment.

　　Article 2These Regulations are applicable to conversion of farmland to forests covered by the planning approved by the State Council.

　　Article 3The people's governments at all levels shall strictly⁸ implement⁹ the policies and measures of "converting farmland to forests, closing mountains for greening, providing grain as relief and making contracts with individuals."

　　Article 4Top priority shall be put on ecology in conversion of farmland to forests. Conversion of farmland to forests shall be combined with the restructuring of rural industries, development of rural economy, control of soil and water erosion, conservation and development of capital farmland, increase of per unit area yield, enhancement of rural energy development and eco-driven immigration.

　　Article 5The following principles shall be abided by in conversion of farmland to forests:

　　（1） overall planning, phased implementation¹⁰ and due attention to emphasis and actual effect;

　　（2） integration¹¹ of policy guidance and willingness of farmers to convert farmland to forests, and a policy of "those who convert, plant and manage receive the benefit";

　　（3） following the natural law and adjusting measures to local conditions, planting trees or grass on right sites, and managing in a comprehensive manner;

　　（4） putting equal emphasis on new conversion and protection of converted land with an aim of preventing possible damage that happens in the progress of conversion;

　　（5） gradually improving the living conditions of those who convert their farmland to forests.

　　Article 6The institution of western development of the State Council is responsible for the overall coordination¹² in conversion of farmland to forests, organizes relevant sectors¹³ for the study and formulation of policies and methods related to conversion of farmland to forests, and organizes and coordinates¹⁴ implementation of the overall planning of conversion of farmland to forests; the competent forestry¹⁵ administrative¹⁶ department of the State Council is responsible for compilation¹⁷ of the overall planning and the annual plan for conversion of farmland to forests, superintends the nationwide implementation of conversion of farmland to forests, and is responsible for guidance, supervision¹⁸ and inspection¹⁹ of conversion of farmland to forests; the development planning department of the State Council, jointly²⁰ with other departments concerned, is responsible for examination of the overall planning for conversion of farmland to forests, collection of plans, compilation and aggregate²¹ balancing of the annual capital construction plan; the competent finance administrative department of the State Council is responsible for arrangement, supervision and management of subsidies²² provided by the Central Government for conversion of farmland to forests; the competent agriculture administrative department of the State Council is responsible for compilation of the related planning and plans of conversion of reclaimed²⁴ grassland²⁵ to grass and rehabilitation²⁶ and development of natural grassland, and provides technical guidance and conducts inspection therefor; the competent water resources administrative department of the State Council is responsible for technical guidance and inspection of watershed²⁷ management and soil and water conservation in the areas being converted to forests and grassland; the grain administrative department of the State Council is responsible for the coordination and redistribution of grain resources.

　　The administrative departments for forestry, development planning, finance, agriculture, water resources and grain of the local people's governments at or above the county level are, in accordance with these Regulations and their respective duties, responsible for the work related to conversion of farmland to forests under the unified²⁸ leadership of the people's government at the same level.

　　Article 7The State applies the system under which the people's governments of provinces, autonomous²⁹ regions and municipalities directly under the Central Government shall assume the responsibility for conversion of farmland to forests. The people's governments of provinces, autonomous regions and municipalities directly under the Central Government shall designate relevant departments to take measures to ensure that the subsidies granted by the Central Government for conversion of farmland to forests are exclusively used for the set purposes, organize redistribution and provision of grain subsidy³⁰, strengthen reexamination of conversion of farmland to forests, fulfill³¹ the tasks in conversion of farmland to forests assigned by the State on schedule, and set up objective and responsibility and sign responsibility agreement level by level to achieve the objective of conversion of farmland to forests.

　　Article 8The objective and responsibility system shall be applied³² in conversion of farmland to forests.

　　The relevant departments of local people's governments at or above the county level shall sign responsibility agreements with the leaders and technical persons in charge of conversion of farmland to forests, which define the responsibilities assumed by them respectively.

　　Article 9The State supports research and extension of applied technology for conversion of farmland to forests, so as to enhance the scientific and technological³³ capacity.

　　Article 10The relevant departments of the State Council and local people's governments at all levels shall organize and undertake publicity³⁴ and educational activities in respect of conversion of farmland to forests, so as to enhance the public awareness³⁵ on conservation and improvement of environment.

　　Units or individuals who make remarkable³⁶ achievements in conversion of farmland to forests are to be cited and rewarded by the relevant departments of the State Council and the local people's governments at all levels.

　　Article 11All units and individuals shall have the right to report or charge against any act causing damage to conversion of farmland to forests.

　　The relevant people's governments and their related departments shall promptly³⁷ handle such report or charge upon receipt.

　　Article 12Auditing institutions at all levels shall strengthen auditing³⁸ supervision over the use of funds and grain subsidized for conversion of farmland to forests.

　　Chapter II Planning and Plan

　　Article 13Conversion of farmland to forests shall be planned in an overall way.

　　The overall planning for conversion of farmland to forests shall be compiled by the competent forestry administrative department of the State Council and, after coordination of the institution of western development of the State Council and being reviewed by the development planning department of the State Council, submitted to the State Council for approval before implementation.

　　The competent forestry administrative department of the people's government of a province, autonomous region or municipality directly under the Central Government shall, according to the overall planning for conversion of farmland to forests and together with other relevant departments, compile the planning for conversion of farmland to forests within its administrative area and submit it to the relevant department of the State Council for the record after being approved by the people's government at the same level.

　　Article 14A planning for conversion of farmland to forests shall include the following main contents:

　　（1） scope, layout and key issues;

　　（2） duration, objectives and tasks;

　　（3） investment estimation and sources of funds;

　　（4） benefit analysis and assessment³⁹; and

　　（5） supporting measures.

　　Article 15The following farmland shall be covered by the planning for conversion of farmland to forests, and be converted to forests in a planned manner according to the ecological⁴⁰ development requirements and the State financial resources:

　　（1） those seriously affected⁴¹ by soil and water erosion;

　　（2） those seriously affected by sandy desertification, salinization or rocky desertification; and

　　（3） those of ecological importance but with low and unstable⁴² grain yield.

　　Steep slope farmland in river headwater regions and on both sides of river valleys, those around the lakes and reservoirs, as well as farmland in regions of ecological importance subject to serious soil and water erosion and grave windy and sandy jeopardy⁴³ shall be put on top priority in the planning for conversion of farmland to forests.

　　Article 16Farmland covered by capital farmland conservation programmes and farmland that has relatively⁴⁴ good productive conditions with grain yield exceeding the State standard for grain subsidy for conversion of farmland to forests and that has no potential cause of soil and water erosion shall not be covered by the planning for conversion of farmland to forests. However, the farmland may be covered by the planning for conversion of farmland to forests if, for specific ecological conservation purpose, it has been excluded from the capital farmland conservation programme after approval by the State Council and in accordance with the procedures as stipulated⁴⁵ in the relevant laws and administrative regulations.

　　The long-term livelihood⁴⁶ requirements of the farmers whose farmland has been converted shall be taken into consideration in the compilation of the planning for conversion of farmland to forests.

　　Article 17The planning for conversion of farmland to forests shall be linked with the national economic and social development programme, the overall planning of the rural economic development and the overall planning of land-use, and shall be in coordination with the planning of environmental protection, soil and water conservation and desertification control.

　　Article 18Conversion of farmland to forests shall be carried out in accordance with the approved planning. No unauthorized change may be made to the planning for conversion of farmland to forests without the agreement of the original approval organ thereof.

　　Article 19The competent forestry administrative department of the people's government of a province, autonomous region or municipality directly under the Central Government shall, according to the planning of conversion of farmland to forests and jointly with relevant departments, compile a proposal on the annual plan for conversion of farmland to forests within its administrative area for next year and upon approval of the people's government at the same level after being reviewed by the development planning department of the people's government at the same level, submit the proposal to the institution of western development, the forestry department and the development planning department of the State Council before August 31st every year. The competent forestry administrative department of the State Council shall, based on the proposals it has collected, compile a proposal on the national annual plan for conversion of farmland to forest, which, upon approval of the State Council after being coordinated⁴⁷ by the institution for western region development of the State Council and examined and balanced by the development planning department of the State Council, shall be issued before October 31st by the development planning department of the State Council jointly with relevant departments.

　　The development planning department of the people's government of a province, autonomous region or municipality directly under the Central Government shall, jointly with relevant departments and based on the national annual plan for conversion of farmland to forest, break down the annual plan for conversion of farmland to forests within their respective administrative areas for next year and assign to relevant people's governments of counties （cities） before November 30th, and submit a report on the breakdown⁴⁸ and assignment to the relevant departments of the State Council for the record.

　　Article 20The competent forestry administrative department of the people's government of a province, autonomous region or municipality directly under the Central Government shall, according to the plan for conversion of farmland to forests issued by the State for next year and jointly with the relevant departments, compile the annual implementation plan for conversion of farmland to forests within its administrative area, which, after being reviewed by the competent forestry administrative department of the State Council, shall be submitted to the people's government at the same level for approval.

　　The competent forestry administrative department of the people's government at the county level may, according to the approved provincial⁴⁹ annual implementation plan for conversion of farmland to forests, compile the annual implementation plan for conversion of farmland to forests within its administrative area, which shall be submitted to the people's government at the same level for approval, and shall be reported to the competent forestry administrative department of the people's government of the province, autonomous region or municipality directly under the Central Government for the record.

　　Article 21An annual implementation plan for conversion of farmland to forests shall include the following main contents:

　　（1） specific region of conversion of farmland to forests;

　　（2） proportion of ecological forest and cash forest;

　　（3） species selection and vegetation structure;

　　（4） afforestation mode;

　　（5） supply method of seeds and seedlings⁵¹;

　　（6） management and protection of vegetation with supplementary⁵² and supporting measures; and

　　（7） project director and technical persons in charge.

　　Article 22The competent forestry administrative departments of the people's governments at the county level shall designate professional staff or qualified⁵³ designing units to compile operation design at the town and township level according to the annual implementation plan for conversion of farmland to forests, and associate the content defined in the implementation plan with the specific piece of land and the land management contractors⁵⁴.

　　In compiling the operation design, attention has to be paid to the arid⁵⁵ and semi-arid regions where drought resistant⁵⁶ species of shrub⁵⁷ （grass） shall be planted and rehabilitation of original vegetation shall be made; perennial⁵⁸ plants shall be used if intercropping pattern is adopted, and the initial planting density⁵⁹ of the main tree species shall conform to the standards set by the State.

　　Article 23The area of ecological forest to be established on converted farmland, with a county as an accounting⁶⁰ unit, shall not be less than 80% of the total area of the converted farmland.

　　The ecological forest established on the converted farmland shall be verified by the competent forestry administrative department of the local people's government at or above the county level in accordance with the standard set by the competent forestry administrative department of the State Council.

　　Chapter III Afforestation, Management, Protection, Inspection and Acceptance

　　Article 24The people's governments at the county level or the people's governments at the township level entrusted⁶¹ thereby⁶² shall sign contracts for conversion of farmland to forests with land management contractors assigned with tasks of conversion of farmland to forests.

　　The contract for conversion of farmland to forests shall include the following main contents:

　　（1） region and its area of the farmland to be converted to forests, and the region and its area of the wasteland and barren hills suitable for afforestation;

　　（2） pattern of the farmland conversion as defined in the operation design;

　　（3） survival rate of planted seedlings and the rate of up-to-standard planted area;

　　（4） management and protection responsibilities;

　　（5） the norm and time of subsidy, as well as the methods of disbursement⁶⁴ of funds and grain subsidy;

　　（6） methods and contents of technical guidance and technical service;

　　（7） seed and seedling⁵⁰ sources and the way of supply;

　　（8） liability for breach⁶⁵ of contracts; and

　　（9） duration of fulfillment of the contract.

　　The contents of the contract for conversion of farmland to forests shall not contravene⁶⁶ these Regulations and other provisions of the State on conversion of farmland to forests.

　　Article 25The seeds and seedlings required for conversion of farmland to forests may be purchased by the people's governments at the county level in the way of centralized purchase in the light of their respective actual conditions, or by those who convert their farmland to forests on their own. In case of centralized purchase, opinions of those who convert their farmland to forests shall be solicited⁶⁷ and taken into consideration, the way of open bidding shall be adopted, and written contracts shall be signed. The extra cost exceeding the State standard of subsidy for seed and seedling for afforestation shall not be forcedly collected from those who convert their farmland to forest.

　　No unit or individual may designate seed and seedling providers for those who convert their farmland to forests.

　　The monopoly of seeds and seedlings and the bidding up of seed and seedling prices are prohibited.

　　Article 26The seeds and seedlings used for conversion of farmland to forests shall be produced locally and redistributed to adjacent areas, and priority shall be given to indigenous⁶⁸ species and superb seeds and seedlings with high resistance properties in the selection of seeds and seedlings.

　　Article 27The competent administrative departments for forestry and agriculture shall improve technical guidance for production of seeds and seedlings and strengthen the management of service to ensure the quality of the seeds and seedlings.

　　The seeds and seedlings sold and supplied for conversion of farmland to forests shall pass the inspection by the competent administrative departments for forestry and agriculture of the people's governments at the country level, and be attached with labels and quality inspection certificates; those redistributed across counties shall also acquire quarantine certificates according to law.

　　Article 28The people's governments of the provinces, autonomous regions or municipalities directly under the Central Government shall strengthen the construction of seed and seedling production bases and seed collection bases in accordance with the planning for conversion of farmland to forests within their respective administrative areas.

　　The State encourages the multiple ways of seed and seedling production and industrialized management taken by enterprises and individuals.

　　Article 29Those who convert their farmland to forests shall plant trees and grass in accordance with the provisions of the operation design and the contract.

　　Intercropping grain crops in between trees or acts of damaging the existing tree and grass vegetation are prohibited.

　　Article 30Those who convert their farmland to forests shall afforest barren hills and wasteland suitable for afforestation in accordance with the provisions of the operation design and the contract during the period when they receive the funds and grain subsidy.

　　Article 31The people's government at the county level shall establish the system for vegetation management and protection of converted farmland in order to fulfill the management and protection duties.

　　Those who convert their farmland to forests shall perform the obligation of management and protection.

　　Reclamation⁶⁹ of converted farmland in the areas designated for conversion of farmland to forests and conduction of the activities in such areas which are likely to damage surface vegetation, such as illegal felling or digging, are prohibited.

　　Article 32The local people's governments at all levels and their subordinate departments concerned shall assign technical extension units or technical staff for the provision of technical guidance and technical service to conversion of farmland to forests.

　　Article 33The competent forestry administrative departments of the people's governments at the county level shall inspect and accept the project of conversion of farmland to forests in accordance with the standard and methods for inspection and acceptance set by the competent forestry administrative department of the State Council, and acceptance certificate shall be granted if the results of inspection are up to the standard.

　　Article 34The people's governments of the provinces, autonomous regions or municipalities directly under the Central Government shall execute reexamination on the outcome of the county-level inspection and acceptance of conversion of farmland to forests, and offer reward to or impose punishment on the county-level people's governments and the responsible persons concerned according to the outcome of the reexamination.

　　The competent forestry administrative department of the State Council shall review the outcome of the provincial-level reexamination, and report to the State Council the findings of its review.

　　Chapter IV Funds and Grain Subsidies

　　Article 35The State shall provide land management contractors with grain subsidy, seed and seedling subsidy for afforestation and living allowance according to the verified actual area of converted farmland. Specific standard and duration for such subsidies and allowance shall be subject to the relevant provisions of the State Council.

　　Article 36For slope farmland not yet being contracted to households and slope farmland in fallow to be converted to forests, as well as plantable barren hills and wasteland listed in the planning of conversion of farmland to forests, only the seed and seedling subsidy for afforestation shall be granted.

　　Article 37Seed and seedling subsidy for afforestation and living allowance shall be timely verified, allocated⁷⁰ and distributed by the departments for development planning, finance and forestry of the State Council in accordance with the relevant provisions.

　　Article 38Subsidized grain shall be allocated and transported from nearby places to shorten the supply chains and reduce the supply costs. Grain subsidy fee shall be subject to relevant policies of the State.

　　Costs for allocation and transportation of grain shall be borne by local treasury⁷¹; enterprises providing subsidized grain and those who convert their farmland to forests shall not be required to share these costs.

　　Article 39The people's governments of the provinces, autonomous regions and municipalities directly under the Central Government shall decide the varieties of subsidized grain on the basis of local custom of food consumption, traditions of crop growing and actual situation of local grain stockpiles.

　　Subsidized grain shall meet the State quality standard. Grain that is not up to the State quality standard shall not be provided to those who convert their farmland to forests.

　　Article 40In the first year of conversion of farmland to forests, the subsidized grain for that year may be disbursed⁷² twice, and the amount of each time shall be decided⁷³ by the people's government of the province, autonomous region or municipality directly under the Central Government.

　　Starting from the second year of conversion of farmland to forests and within the stipulated duration of subsidies, the people's governments at the county level shall assign related departments and units to disburse⁶³ the annual subsidized grain in a lump sum to those who convert their farmland to forests and hold the inspection and acceptance certificates.

　　Article 41Subsidized grain shall not be converted into cash or coupons⁷⁴ in disbursement. The enterprises providing subsidized grain shall not repurchase the subsidized grain.

　　Article 42Seed and seedling subsidy for afforestation shall be used for purchasing seeds and seedlings and the surplus may be used for afforestation, mountain closure and tending practices.

　　Where those who convert their farmland to forests purchase seeds and seedlings on their own, the people's government at the county level or the people's governments at the township level entrusted by it shall pay off in a lump sum the seed and seedling subsidy for afforestation upon the entry-into-force of land conversion contracts.

　　Where seeds and seedlings are purchased in the way of centralized purchase, the units responsible for seed and seedling purchase shall settle the seed and seedling subsidy accounts with those who convert their farmland to forests after the converted farmland are inspected and accepted.

　　Article 43After conversion of farmland to forests is completed, within the stipulated duration of subsidizing, the people's governments at the county level shall instruct relevant departments to pay off in a lump sum the living allowance for that year to those who convert their farmland to forests and hold the inspection and acceptance certificates.

　　Article 44Funds for conversion of farmland to forests shall be deposited in a special account and exclusively used for the set purpose. No unit or individual may illegally occupy, intercept⁷⁵, misappropriate or dock the funds.

　　No unit or individual may make falsifications or fake reports to falsely claim subsidized funds or grain.

　　Article 45Preparation cost and scientific and technical supporting cost for conversion of farmland to forests shall be proportionally subsidized by the State in the investment for capital construction for conversion of farmland to forests and be allocated by the development planning department of the State Council in line with the progress.

　　The costs for the inspection, acceptance and disbursement by various localities in conversion of farmland to forests shall be borne by the local treasury. The costs for examinations by the relevant departments of the Central Government shall be borne by the State treasury.

　　Article 46A publication system shall be established at each township （town） and village where conversion of farmland to forests is carried out, making public such information as area of conversion, tree species for afforestation, survival rate and the details about the distribution of funds and grain subsidies.

　　Chapter V Other Supporting Measures

　　Article 47The State shall protect the ownership of forests （grass） on the converted land enjoyed by those who convert their farmland to forests. For those who convert their farmland to forests on their own, the land management contractors have the ownership of the forests （grass） on the converted land. For persons converting farmland on commission of or in collaboration⁷⁶ with other persons, the ownership of the forests （grass） on the converted land shall be determined⁷⁷ as agreed in the contract.

　　Once farmland being converted to forests, the people's government at or above the county level shall issue forests （grass） ownership certificates in accordance with the relevant provisions of the Forestry Law or the Grassland Law to confirm the ownership and usufruct, and go through registration⁷⁸ procedures for the change of land-use according to law. The land management contracts must be adjusted accordingly.

　　Article 48The period of the contracted land management right may be extended to 70 years after the farmland being converted to forest. Upon the expiration⁷⁹ of such period, land management contractors may renew their contracts according to the provisions of the relevant laws and regulations.

　　The contracted land management right of converted farmland or afforested barren hills and wasteland may be inherited and transferred according to law.

　　Article 49Those who convert their farmland to forests are entitled to enjoy the preferential treatment in taxation⁸⁰ according to the relevant provisions of the State, and the income obtained from special agricultural products after the farmland being converted to forests （grass） shall be exempted⁸¹ from special agricultural product tax according to the provisions of the State.

　　In case the counties （cities） where conversion of farmland to forests is carried out suffer from disasters, they shall be subsidized for the decrease in agriculture tax revenue by the treasury at a higher level in a manner of transfer payment; for those counties （cities） with real difficulties, appropriate subsidies shall be granted by the State treasury in a manner of transfer payment upon approval by the State Council.

　　Article 50Upon expiration of the duration for granting funds and grain subsidies, those who convert their farmland to forests may, upon approval of the relevant competent departments, harvest the trees owned by them according to law, provided that such harvesting does not cause damage to the overall ecological functions.

　　Article 51Local governments at various levels shall strengthen construction of capital farmland and agricultural infrastructure⁸², increase investment, meliorate soil and slope farmland, improve land fertility and increase yield of per unit area with an aim to meet, in the long run, the demands for grain rations⁸³ by those who convert their farmland to forests.

　　Article 52Local governments at various levels shall, in the light of the actual situation, strengthen the rural energy construction in respect of biogas, small-scale hydropower, solar energy and wind energy to meet the demands for energy by those who convert their farmland to forests.

　　Article 53Local governments at various levels shall adjust rural industrial structures, support leading enterprises, develop mainstay industries, explore employment opportunities, increase farmers' income, speed up development of small cities and towns, and smooth the progress of the gradual transfer of agricultural population to urban areas.

　　Article 54The State shall encourage eco-driven immigration during conversion of farmland to forests and provide proper subsidies for the immigrating⁸⁴ households for their production and living facilities.

　　Article 55After conversion of farmland to forests is completed, the relevant local people's governments shall take measures including mountain closure, banning of grazing, and captive breeding to protect the achievements made in conversion of farmland to forest.

　　Article 56Conversion of farmland to forests shall be combined with the policies and measures for poverty alleviation⁸⁵ through development, integrated agricultural development and soil and water conservation. All the project funds, regardless of their kinds, shall be taken into overall arrangement under the precondition that the funds be exclusively used for the set purpose so as to increase benefits of funds.

　　Chapter VI Legal Liability

　　Article 57Where a State functionary⁸⁶, in violation⁸⁷ of these Regulations, commits one of the following acts in conversion of farmland to forests, he shall be investigated for criminal liability according to the provisions of the criminal law on the crime of corruption⁸⁸, the crime of accepting a bribe⁸⁹, the crime of misappropriating public funds or other crimes; if his act is not serious enough for criminal punishment, he shall be given an administrative sanction according to law:

　　（1） illegally occupying, intercepting⁹⁰ or misappropriating the funds for conversion of farmland to forests, or docking the subsidized grain;

　　（2） making falsifications or fake reports to falsely claim subsidized funds or grain;

　　（3） taking advantages of his office to accept other persons' money, property or other benefits.

　　Any person other than State functionaries⁹¹ who commits any act in Item （2） in the preceding paragraph shall be investigated for criminal liability according to the provisions of the criminal law on the crime of fraud or other crimes; if his act is not serious enough for criminal punishment, the competent forestry administrative department of the people's government at or above the county level shall order him to return those falsely claimed funds or grain and impose a fine of not less than two times but not more than five times of the amount of the falsely claimed funds.

　　Article 58Where a State functionary, in violation of these Regulations, commits one of the following acts in conversion of farmland to forests, the unit he belongs to or the competent department at the next higher level shall order him to make corrections within a specified⁹² time limit and to return the funds shared and overcharged; the persons directly in charge and other directly responsible persons shall be investigated for criminal liability according to the provisions of the criminal law on the crime of power abuse, the crime of neglect of duty or other crimes; those whose acts are not serious enough for criminal punishment shall be given administrative sanctions according to law:

　　（1） failing to handle in time the reports or charges against destruction of conversion of farmland to forests;

　　（2） requiring enterprises providing subsidized grain or those who convert their farmland to forests to share the costs for allocating⁹³ and transporting the subsidized grain;

　　（3） failing to disburse in time the subsidized grain and living allowance to those who convert their farmland to forests and hold the acceptance certificates;

　　（4） failing to pay off in a lump sum seed and seedling subsidies in time to those who convert their farmland to forests and purchase the seeds and seedlings on their own upon entry-into-force of the land conversion contracts;

　　（5） failing to, after the converted farmland is inspected and accepted, settle the seed and seedling subsidy accounts with those who convert their farmland to forests and purchase the seeds and seedlings in the way of centralized purchase;

　　（6） the seeds and seedlings purchased in the way of centralized purchase are not up to the standard;

　　（7） forcedly charging those who convert their farmland to forest, in the centralized purchases of seeds and seedlings, seed and seedling fee in excess of the standard for seeds and seedling subsidy set by the State;

　　（8） designating seed and seedling suppliers for those who convert their farmland to forests;

　　（9） approving grain enterprises to provide subsidized grain which is not up to the State quality standard to those who convert their farmland to forests, or to convert subsidized grain into cash or coupons;

　　（10） failing to perform his duties in accordance with these Regulations in other manners.

　　Article 59Anyone who takes unfair measures to monopolize⁹⁴ seed and seedling markets, or bid up seed and seedling prices, shall be investigated for criminal liability according to the provisions of the criminal law on the crime of illegal business operation, the crime of forced transaction or other crimes; those whose acts are not serious enough for criminal punishment shall be punished according to the Law Against Unfair Competition by the administrative department for industry and commerce; if there is no corresponding provision in the Law Against Unfair Competition, a fine of not less than two times but not more than five times of the amount of the illegal turnover⁹⁵ shall be imposed by the administrative department for industry and commerce.

　　Article 60Anyone who sells or provides seeds and seedlings without passing the inspections⁹⁶ or without labels, quality inspection certificates of or quarantine certificates shall be investigated for criminal liability according to the provisions of the criminal law on the crime of manufacturing or selling fake or substandard seeds or other crimes; those whose acts are not serious enough for criminal punishment shall be punished according to the Seed Law by the competent administrative department for forestry or agriculture or by the administrative department for industry and commerce of the people's government at or above the county level; if there is no corresponding provision in the Seed Law, a fine of not less than two times but not more than five times of the amount of the illegal turnover shall be imposed by the competent administrative department for forestry or agriculture of the people's government at or above the county level.

　　Article 61Where any enterprise providing subsidized grain provides to those who convert their farmland to forests subsidized grain that is not up to the State quality standard, the grain administration department of the people's government at or above the county level shall order such enterprise to make corrections within a specified time limit, and may impose a fine of not more than one time of the amount of the product by multiplying the quantity of illegally provided subsidized grain by the unit price of standardized⁹⁷ grain for food consumption.

　　Where any enterprise providing subsidized grain converts subsidized grain into cash or coupons or repurchases subsidized grain, the grain administration department of the people's government at or above the county level shall order such enterprise to make corrections within a specified time limit, and may impose a fine of not more than one time of the amount of the cash or coupons converted or the money paid for the grain repurchased.

　　Article 62Where those who convert their farmland to forests reclaim²³ farmland converted, intercrop grain crops in between trees, illegally cut or fell trees or dig within the area designated for conversion of farmland to forests or commits other acts damaging surface vegetation, they shall be investigated for criminal liability according to the provisions of the criminal law on the crime of illegal occupation of farmland, the crime of illegally felling trees or other crimes; those whose acts are not serious enough for criminal punishment shall be given administrative sanctions according to the Forest Law, the Grassland Law and the Law of Water and Soil Conservation by the competent administrative departments for forestry, agriculture or water resources of the people's government at or above the county level.

　　Chapter VII Supplementary Provisions

　　Article 63The implementation of converting reclaimed grassland and rehabilitating⁹⁸ and improving natural grassland shall be subject to the Grassland Law and the relevant provisions of the State Council.

　　The implementation of watershed management and water and soil conservation within the regions where farmland is converted to forests or grassland shall be subject to the Law of Water and Soil Conservation and the relevant provisions of the State Council.

　　Article 64Where local governments at various levels decide to convert land outside the scope approved by the State Council, the subsidies of the Central Government specified in these Regulations shall not be granted therefor.

　　Article 65These Regulations shall be effective as of January 20, 2003

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