非公有制林业法律管理由于其规范的对象数量众多，并且涉及森林资源这一特殊的资源性资产，其影响范围更大，不仅包括其生产经营者，还关系到森林资源所在社区周边的广大民众。在这种情况下，相关的政策一旦变动往往牵一发而动全身，在林业政策的贯彻实施过程中更应注意遵循稳定性和连续性的原则。所以，我国在制定非公有制林业法律制度时，要坚决杜绝出现政策的多变和不连续。有关政策一旦出台，就要十分注意其稳定性和连续性，要保证各项政策都能够真正地落到实处，以免失信于民和造成社会的不稳定。

　　(四)效率优先兼顾公平原则

　　效率一般是指投入与产出或成本与收益之间的对比关系。在社会经济的发展过程中，人们经常面临着公平和效率这一对矛盾，在非公有制林业的发展过程中，这一对矛盾依然存在。非公有制林业作为我国林业生产的必要组成部分，属于国民经济的基础产业，在国民收入分配领域属于初次分配的范畴，加上我国非公有制林业的主要经营对象是商品林业，其最直接的目的就是获取最大的经济效益。所以应鼓励其经营者通过合法的途径追求最大的经济效益，以便为我国经济建设和人民生活需要提供各种林产品。因此，在制定非公有制林业管理方面的法律时，应重点体现效率原则[7]。

　　由于林权制度改革是一个利益重新分配的过程，林业资源会在不同的利益主体之间进行调整。林权流转有利于林木、林地资源流向经济实力较强的人手中，使他们的实力越来越强，形成良性循环，被抬高的竞卖价格使经济条件差的人无力承包经营，从而陷入恶性循环。贫富差距的拉大，不利于社会的协调发展。因此，在改革的进一步推进的过程中，对贫困人群要给予一定的帮助和扶持，处理好公平和效率的问题。

　　参考文献： 国家林业局.中国森林资源报告(2005)[M].北京:中国林业出版社,2005:30-32 周少州,缪光平.中国非公有制林业研究综述[J].林业经济.2002,(8):38-40 巴连柱,李淑新.关于非公有制林业的法律思考[J].林业经济.2003,(1):47-49 雷加富.关于非公有制林业的几个理论问题[J].绿色中国.2005,(4):5-9 宋学初,赵士洲,陈立洪,胡金海.浅谈非公有制林业在林业发展中的地位和作用[J].江苏林业科技.2005,(2):52-54 肖艳.东北国有林区发展非公有制林业的制度体系研究.哈尔滨:东北林业大学博士论文.2007:12 魏远竹,张春霞.浅析发展非公有制林业应遵循的若干基本原则—非公有制林业发展研究之二[J].林业经济问题.2006,(4):295

　　On the Connotation and Ultimate Principles of Non-public Forestry Legal Management

　　Abstract: Non-public forestry is an important component of China's forestry, the development of which is of great significance for China's forestry development to leap and for forest tenure reform to further deepen. In order to develop non-public forestry, we must use legal means to carry out non-public forest management and make non-public forestry management system to achieve legal. The legal management of non-public forestry is on legal adjustment and regulation to non-public forestry, which is enacted through state legislative activities, concluding laws, administrative regulations, departmental rules and local laws and regulations and other normative legal documents related to forestry. The legal management of non-public forestry must follow certain ultimate principles, which includes the principle of sustainable development of forestry, the principle of protecting legal rights of non-public forest managers, and the principles of stability and continuity as well as giving priority to efficiency and fairness taken into account.

　　Keywords: Non-public forestry, Legal management, Ultimate principles

　　Author:

　　Bao Yuhua, female, born in 1963, Shuang Cheng of Heilongjiang Province, ,the professional head of the text School of Law in Northeast Forestry University, Professor, Master of Science in Civil and Commercial Law, Ph.D. in Forestry Economics and Management.

　　Research: forestry policies and regulations, natural resources law.

　　Address: No.26 Hexing Road, Xiangfang District, HarbinCity, Heilongjiang Province.

　　Zip code: 150040

　　Tel: 0451-82191614 (Office) 13504519090.

　　Yan Shipeng, male, born in 1976, Huma County of Heilongjiang Province, Associate Professor in Languages Law of Northeast Forestry University, Doctor of Law Environmental and Resources Protection.

　　Research: basic theory of environmental law, natural resources law.

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