I. Background for Development

Wood security is an important component of the nation’s development strategy. As the economy and society continue to develop, the demand for high-quality timber is steadily increasing, making the construction of national reserve forests increasingly vital. To thoroughly implement the strategy of ecological civilization development, enhance the nation’s strategic timber reserves, and promote the high-quality development of national reserve forests, the National Forestry and Grassland Administration has undertaken... The “Administrative Measures for the Construction of National Reserve Forests (Trial)” (Lin Gong Gui [2023] No. 2), issued on March 8, 2023, has been revised and the revised “Administrative Measures for the Construction of National Reserve Forests” (Lin Gui Gui [2025] No. 1) was officially released on March 6, 2025. This revision further optimizes the management mechanisms for national reserve forest projects, strengthens the balance between ecological protection and resource utilization, clarifies the rights and responsibilities of project implementers, and standardizes the processes for fund use and supervision. The aim is to promote high-quality development of national reserve forests, provide institutional support for ensuring national timber security, boosting rural revitalization, and achieving the “dual carbon” goals.

II. Definition of National Reserve Forests

National Reserve Forests refer to forest resources—including industrial raw material forests and high-grade timber forests of large-diameter trees—that are established and cultivated through intensive artificial forest management, rehabilitation of existing forests, and tending of middle- and young-aged forests in areas with favorable natural conditions, all aimed at meeting the demand for high-quality timber and medium- to long-term strategic reserves necessary for economic and social development and for enhancing people’s quality of life.

Its core features include:  

1. Focusing on high-quality timber reserves while balancing ecological and economic benefits.

2. Comprehensively apply scientific forest management practices such as intensive cultivation, reforestation, and tending.

3. Strictly limit the scope to regions with favorable natural conditions and annual precipitation of 600 millimeters or more, and strictly prohibit the occupation of sensitive areas such as ecological protection redlines and nature reserves.

4. Relying on central funding and financial loans, we encourage the participation of diverse stakeholders and emphasize the combination of market-oriented operations with government guidance.

III. Main Content

The newly revised “Administrative Measures” consist of seven chapters and forty articles, covering general provisions, scope and content of construction, division of responsibilities, organization and implementation, supervision and management, guarantee measures, and supplementary provisions.

Chapter One General Provisions. The “Administrative Measures” outline that the purpose of formulating these measures is to strengthen the management of reserve forest construction, enhance timber reserve capacity, and promote sustainable forestry development. The Measures clearly define the concept of national reserve forests and set forth construction principles (such as integrated planning and adaptation to local conditions), specify the eligibility requirements for construction entities and the scope of application, and emphasize that projects must comply with relevant regulations governing central government funding and financial loans.

Chapter Two Scope and Content of Construction. Management Measures The construction scope shall, in principle, be located in areas with favorable natural conditions and annual precipitation. In areas with an elevation of 600 millimeters or more, the occupation of ecologically sensitive land is strictly prohibited. Construction activities include afforestation efforts (such as intensive cultivation of artificial forests), supporting industries, and infrastructure development. The tree species used in these projects must comply with the requirements specified in the catalog; the cultivation of specific tree species is encouraged. Resources thus generated shall be subject to national allocation and management.

Chapter Three Division of Responsibilities. The National Forestry and Grassland Administration is responsible for overall coordination, planning formulation, and standard-setting, among other tasks. Local forestry and grassland authorities at all levels are responsible for organizing projects in their respective regions, providing guidance on implementation, ensuring policy enforcement, supervising construction, and conducting follow-up reviews of project outcomes.

Chapter Four "Organization and Implementation." The project will be implemented under a corporate responsibility system, requiring the preparation of a feasibility study report and its approval in accordance with regulations. Implementation must strictly adhere to the approved report and design, and a tendering and bidding system as well as a construction supervision system will be adopted. Funds will be earmarked for specific purposes and managed separately for centrally funded projects. A project database will be established to standardize project initiation and financing procedures. The project developer will prepare the preliminary design, and all stages of the project will be managed according to prescribed regulations, ensuring the proper use of funds.

Chapter Five Supervision and Management. The local forestry and grassland authorities organize project implementers to submit information through the platform, enabling them to dynamically monitor project implementation and strengthen supervision through multiple channels. They also enhance inter-departmental collaboration and auditing efforts, while financial institutions are required to standardize loan disbursements and post-loan inspections. Daily supervisory agencies conduct comprehensive checks on various aspects of projects, establishing mechanisms for self-inspection, re-inspection, and random spot checks. Project outcomes are mapped and visualized, and any violations will be dealt with strictly.

Chapter Six "Guarantee Measures." The project can apply for policy support such as subsidized loans and forest insurance, safeguarding the rights and interests of the entities constructing and managing forest land and timber resources. At the provincial level, harvesting quotas will be reasonably allocated and monitored and evaluated. Localities will strengthen talent development, technological support, publicity and training, improve infrastructure, and encourage the development of supporting industries. The procedures for project adjustments will be standardized, and special circumstances will be handled appropriately.

Chapter Seven Supplementary Provisions. Provincial-level authorities may formulate implementing rules to evaluate projects that were already underway prior to the issuance of these Measures and determine appropriate handling procedures. The National Forestry and Grassland Administration shall interpret these Measures, which shall take effect upon publication and hereby repeal the previously试行 (trial) Measures. 。

IV. Key Areas of Focus

1. What are the scope and land requirements for the construction of national reserve forests? The scope of national reserve forest construction is, in principle, located in areas with suitable natural conditions and an average annual precipitation. In areas with an elevation of 600 millimeters or more, construction land must have favorable site conditions. It is strictly prohibited to occupy various nature reserves, grasslands, important wetlands, wildlife habitats, wild plant conservation sites, cultivated land, national-level public welfare forests, or land within ecological protection redlines—areas explicitly prohibited from afforestation under national laws, regulations, and policies. This is done to ensure that while safeguarding the construction of national reserve forests, we also maintain ecological balance, protect precious ecological resources, and ensure that development and ecological conservation advance in harmony.
2. What are the regulations regarding tree species for the construction of national reserve forests? In principle, the tree species selected for afforestation should meet the requirements of the National Reserve Forest Tree Species Catalog. We encourage the cultivation of native tree species, valuable tree species, and fire-resistant tree species. Native tree species exhibit strong adaptability to the local environment and can integrate more effectively into the local ecosystem; valuable tree species have high economic value and can enhance the economic benefits of reserve forests; while fire-resistant tree species help strengthen the forest’s fire-prevention capabilities, reduce the risk of forest fires, and safeguard forest resources.
3. How are responsibilities divided in the construction of the National Reserve Forest Project? The National Forestry and Grassland Administration is responsible for overall coordination, guidance, and promotion of the work, and in collaboration with relevant departments, it formulates national plans, policies, institutional frameworks, and technical standards. Local forestry and grassland authorities at all levels are responsible for organizing projects within their respective regions, providing guidance on implementation, coordinating policy enforcement, monitoring the progress of construction, conducting follow-up reviews of project outcomes, and fulfilling their regulatory responsibilities. This division of labor clearly defines the responsibilities from the national to the local level, fostering a collaborative working pattern that links top-down efforts and promotes coordinated advancement, thereby ensuring the orderly development of the national forest reserve program.
4. How is the National Reserve Forest Project managed? Implement project database management: Local forestry and grassland authorities guide project implementers to submit entry materials via the online management platform for the National Reserve Forest Project Database. After review and approval by the provincial-level forestry and grassland authorities, the projects will be officially registered in the database. Projects must go through the project approval process; for those involving financial loans, implementers shall submit financing applications to financial institutions. Based on the feasibility study report, project implementers shall prepare preliminary designs (operational designs). The projects will adopt a corporate responsibility system, a tendering and bidding system, a construction supervision system, and a contract management system. Strict regulations will be enforced to ensure that all stages of project construction are conducted in accordance with established procedures and in a standardized and orderly manner.
5. How is the National Reserve Forest Project supervised and managed? Local forestry and grassland authorities dynamically monitor project implementation through various means, strengthen communication and collaboration with multiple departments, and conduct regular audits. Financial institutions disburse loan funds in accordance with contractual agreements and carry out post-loan inspections. The directly responsible entities for daily supervision conduct oversight and inspection of project construction procedures, progress, and fund utilization. Project implementers perform annual self-inspections and acceptances, followed by re-examinations at the provincial level and spot checks by the National Forestry and Grassland Administration, ensuring that projects are implemented strictly according to regulations and safeguarding both fund security and construction quality.
6. What guarantee measures are in place for the construction of national reserve forests? The project can, in accordance with regulations, apply for policy support such as subsidized loans and forest insurance. The rights and interests of the construction entity related to forest land and timber are protected by law. Provincial forestry and grassland authorities shall rationally allocate harvesting quotas and conduct monitoring and evaluation. Localities should strengthen talent development, technological support, and publicity and training efforts; improve infrastructure construction; and encourage the development of supporting industries to enhance repayment capacity. Standardize project adjustment procedures, properly handle special circumstances, and provide solid guarantees for the construction of national reserve forests from multiple aspects including policies, rights protection, technology, and industry. 。

These Measures shall take effect as of the date of their promulgation. National Forestry and Grassland Administration The “Administrative Measures for the Construction of National Reserve Forests (Trial)” (Lin Gong Gui [2023] No. 2), issued on March 8, 2023, is hereby repealed simultaneously.

Administrative Measures for the Construction of National Reserve Forests ( The issuance of the 2025 Revised Edition marks a crucial step toward more refined and standardized management of China’s forestry resources. Through scientific planning, stringent supervision, and policy incentives, this measure will effectively enhance the nation’s timber reserve capacity, striking a balance between ecological conservation and industrial development, and providing a solid foundation for building a sustainable, modern forestry system. All localities must, in conjunction with the implementation details, strengthen accountability and ensure steady, long-term progress in the construction of national reserve forests.

The original text of the document is as follows: ↓

Notice from the National Forestry and Grassland Administration on Issuing the “Administrative Measures for the Construction of National Reserve Forests”

Lin Gui Gui [ No. 1 of 2025

Forestry and Grassland Authorities of Provinces, Autonomous Regions, and Directly-Administered Municipalities; Forestry and Grassland Bureau of the Xinjiang Production and Construction Corps; Daxinganling Forestry Group :

To further strengthen the construction and management of national reserve forests and promote their high-quality development, our bureau has revised the “Administrative Measures for the Construction of National Reserve Forests (Trial)” (Lin Gong Gui [2023] No. 2), issued on March 8, 2023. The revised document is now being distributed to you; please comply with its provisions.

Hereby notified.

National Forestry and Grassland Administration

March 6, 2025