Instituto de Estudios Políticos y Derecho Público "Dr. Humberto J. La Roche"
de la Facultad de Ciencias Jurídicas y Políticas de la Universidad del Zulia
Maracaibo, Venezuela
Publicación cientíca en formato digital
ISSN-Versión Impresa 0798-1406 / ISSN-Versión on line 2542-3185
Depósito legal pp 197402ZU34
ppi 201502ZU4645
Vol.40 N° 74
2022
Recibido el 15/06/2022 Aceptado 08/08/2022
ISSN 0798- 1406 ~ De pó si to le gal pp 198502ZU132
Cues tio nes Po lí ti cas
La re vis ta Cues tio nes Po lí ti cas, es una pu bli ca ción aus pi cia da por el Ins ti tu to
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cul tad de Cien cias Ju rí di cas y Po lí ti cas de la Uni ver si dad del Zu lia.
En tre sus ob je ti vos fi gu ran: con tri buir con el pro gre so cien tí fi co de las Cien cias
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avan ces o re sul ta dos de in ves ti ga ción en las áreas de Cien cia Po lí ti ca y De re cho Pú bli-
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Vol. 40, Nº 74 (2022), 195-206
IEPDP-Facultad de Ciencias Jurídicas y Políticas - LUZ
State environmental policy on the issue
of legal regulation of re safety in the
forests of Ukraine
DOI: https://doi.org/10.46398/cuestpol.4074.10
Оlena Gulac *
Oksana Marchenko **
Nataliia Kapitanenko ***
Yurii Kuris ****
Roman Oleksenko *****
Abstract
The purpose of the research was to analyze, at the theoretical
level, the state policy of organizational and legal nature on strategic
issues of ensuring re safety in Ukrainian forests. To achieve this
goal, general scientic and special scientic methods of cognition
were used, in particular, dialectical, logical-formal, analysis and
synthesis, structural-systemic, legal-comparative, legal-formal, prognostic.
The study emphasizes that the lack of approved strategic documents for the
development of the forestry sector prevents the formation of a projected
public policy and, therefore, creates an unresolved organizational and
legal structure of governance in forestry relations in general and reduces
the eectiveness of re safety in forests. It is concluded that among the
priorities for achieving the task of eective re safety in forests are identied
factors that are primarily the formation of a single interagency consensus
vision of the development of the forestry sector, reected in the Strategy for
Sustainable Development of Forest Resources and, consequently, a system
of rules and principles basis of the national forest policy.
Keywords: environmental law; public policies; security and society;
nature; forest preservation.
* National University of Life and Environmental Sciences of Ukraine, Kyiv, Ukraine. ORCID ID: https://
orcid.org/0000-0001-9004-0185
** Bohdan Khmelnitsky Melitopol State Pedagogical University, Ukraine. ORCID ID: https://orcid.
org/0000-0002-4727-3183
*** Zaporizhzhia National University, Zaporizhzhia, Ukraine. ORCID ID: https: //orcid.org/0000-0002-
1475-5784
**** Zaporizhzhia National University, Zaporizhzhia, Ukraine. ORCID ID: https://orcid.org/ 0000-0001-
7169-9
***** Dmytro Motornyi Tavria State Agrotechnological University, Melitopol, Ukraine. ORCID ID: https://
orcid.org/0000-0002-2171-514X
196
Olena Gulac, Oksana Marchenko, Nataliia Kapitanenko, Yurii Kuris y Roman Oleksenko
State environmental policy on the issue of legal regulation of re safety in the forests of Ukraine
Política ambiental estatal sobre el tema de la
regulación legal de la seguridad contra incendios en los
bosques de Ucrania
Resumen
El propósito de la investigación fue analizar, a nivel teórico, la política
estatal de naturaleza organizativa y legal sobre cuestiones estratégicas para
garantizar la seguridad contra incendios en los bosques de Ucrania. Para
lograr este objetivo, se utilizaron métodos de cognición cientícos generales
y cientícos especiales, en particular, dialéctico, lógico-formal, análisis y
síntesis, estructural-sistémico, legal-comparativo, legal-formal, pronóstico.
El estudio destaca que la falta de documentos estratégicos aprobados
para el desarrollo del sector forestal impide la formación de una política
pública proyectada y, por lo tanto, crea una estructura organizativa y legal
de gobernanza no resuelta en las relaciones forestales en general y reduce
la ecacia de la seguridad contra incendios en los bosques. Se concluye
que entre las prioridades para lograr la tarea de seguridad ecaz contra
incendios en los bosques se identican factores que son principalmente la
formación de una visión única consensuada interinstitucional del desarrollo
del sector forestal, reejada en la Estrategia para el Desarrollo Sostenible
de los Recursos Forestales y, en consecuencia, un sistema de normas y
principios base de la política forestal nacional.
Palabras clave: derecho ambiental; políticas publicas; seguridad y
sociedad; naturaleza; preservación de los bosques.
Introduction
Today, more than ever, security issues are at the forefront of the life
support system of the entire world community. An important component
of it is the symbiosis of «man - nature» and, accordingly, the need to
implement a set of measures aimed at harmonizing these inseparable
components from each other. That is why the problems of re safety are
becoming increasingly important.
These problems are closely related to the problems of economic,
social, man-made and environmental security, are interconnected and
interdependent. Analytical data from the annual National Report on the
State of Man-Made and Natural Security in Ukraine show that the problem
of saving forests from re has become especially acute in recent years due to
rising air temperatures. Forest res, including at the United Nations level,
have been identied as a major threat to humanity in the near future.
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In particular, by mid-August 2019, the atmospheric monitoring system
had detected more than 1,600 forest res in Europe, which is three times
more than the average for the decade as a whole (Zibtsev et al., 2019).
According to the National Report on the State of Man-Made and Natural
Safety, in our country on average there are about 3.5 thousand forest res
a year, destroying more than 5 thousand hectares of forest (Nacionalna
dopovid, 2017). According to the Eastern European Forest Fire Monitoring
Center, the annual area of res in the forest fund of Ukraine is over 10
thousand hectares.
However, despite a number of inconsistencies in statistics presented in
various sources, the only common position of experts indicates extremely
threatening trends in forest re risks, primarily related to global climate
change, catastrophic rainfall, a signicant share of conifers in the structure
of the Wood Fund of Ukraine (40%) (Reference book of forest resources of
Ukraine, 2012) long-term hostilities and a signicant area of radioactively
contaminated forests in our country. “Issues of organizational and legal
nature of coordination and coherence of work on re safety in forests are
not only local, regional and state cooperation, but, importantly, the need for
interstate coordination of joint eorts. Given the large-scale growing forest
res around the world and the signicant long-term negative consequences
for the entire global ecosystem, experts and the scientic community are
faced with the important task of creating an eective system for combating
forest res (Gulac, 2020).
The eectiveness of such work lies, rst of all, in the context of the
implementation of successful foreign experience, interstate cooperation
and coordinated inter-institutional cooperation.
As Ukraine is an active member of international integration processes,
a signatory to many international agreements at the global level, it is
responsible for implementing its commitments (in particular, among
the Sustainable Development Goals to 2030 adopted in September 2015
at the United Nations Summit, one of the priorities is security), the
implementation of global goals requires their incorporation into relevant
strategic regulations of domestic law, including the Strategy for Fire Safety,
the Strategy for Sustainable Development of Forest Resources and a number
of other documents of long-term vision. should be based on common agreed
state positions, taking into account the right balance between economic,
social and environmental interests of society, the development and approval
of which is urgently needed today (Oleksenko et al., 2021).
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Olena Gulac, Oksana Marchenko, Nataliia Kapitanenko, Yurii Kuris y Roman Oleksenko
State environmental policy on the issue of legal regulation of re safety in the forests of Ukraine
1. Objectives
The purpose of this work is to dene and substantiate the principles of
state environmental policy in the eld of re safety in the forests of Ukraine.
2. Materials and methods
To achieve this goal, general scientic and special scientic methods of
cognition were used, in particular dialectical, formal-logical, analysis and
synthesis, system-structural, comparative-legal, formal-legal, prognostic.
In particular, the application of the dialectical method allowed to study
public relations in the eld of re safety in the forests of Ukraine in their
unity and relationship, to identify patterns of their development, as well
as to consider the dynamics of legislation in this area. Taking into account
the scientic theory «the place of man in the safety of life» presented the
author’s model of re safety in the forests of Ukraine and formed his own
vision of a comprehensive, multilevel nature of the public system of re
safety in the forests of Ukraine.
3. Results and discussion
The role of the state in establishing the principles of development of
natural resources in a safe environment for life and health of citizens is
crucial. The leading place in this is occupied by the law-making function
of the state, in particular the formation of normative-legal bases of
administrative-legal regulation in the sphere of public relations studied by
V. Pechulyak rightly stated:
The functions of implementation of forest legislation and control over its
implementation are to ensure compliance by all forest owners, forest users and
other entities whose activities aect the state of forests, legal norms and provisions
of forest policy. The functions of the state as the owner of forests are reduced to
ensuring the ecological and social value of forests, making a prot from them. The
function of state support for the needs of the forestry industry includes research,
vocational education and training; statistics, forest management and planning;
consulting services; re and phytosanitary control; material quality control
(Pechulyak, 2011: 352).
Likewise, Gulac reports that:
Therefore, eective public administration in the eld of forest relations is
possible only in the presence of a comprehensive system of regulations governing
these relations, the adoption and implementation of which should be based on
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a balanced strategic forest policy, which should be characterized by sucient
predictability and stability (Gulaс, 2020: s/p).
Protection and conservation of forests is an important state task,
especially within our country, which is sparsely forested in general, as the
forest fund is less than 16% of the area, and highly corrupt, especially in the
eld of forest relations. Currently, the level of forest protection organization
in our country remains extremely low. Despite a number of optimization
measures, a signicant part of the problems in this area is caused, including
the imperfection of legal regulation.
Currently, the sphere of forest relations is regulated by a number of
normative legal acts, which, although not devoid of certain progressive
theses and provisions, are still characterized by a certain contradiction and
imperfection. The main ones are: laws of Ukraine: Forest Code of Ukraine
(Law of Ukraine, 1994), Land Code of Ukraine (Land code of Ukraine, 2001
«On Environmental Protection» (Law of Ukraine, 1991), «On Hunting farm
and Hunting» (Law of Ukraine, 2000), «On Wildlife» (Law of Ukraine,
2001), «On Basic Principles (Strategy)» State Environmental Policy of
Ukraine for the period up to 2030 ”(Law of Ukraine, 2019); Resolutions
of the Cabinet of Ministers of Ukraine: «On approval of the State target
program» Forests of Ukraine «for 2010-2015» (Resolution of the Cabinet
of Ministers of Ukraine, 2009) «On approval of the Regulation on state
forest protection» Ukraine, 2009.
Despite the fact that some areas of forest relations have undergone
signicant progressive regulatory changes, but practice shows that the
adoption of new regulations in the eld of forest protection and use does
not always help to eectively address existing problems. The reasons for the
ineectiveness of the adopted legislation, in our opinion, are the following:
the lack of a unied state policy in the eld of forest relations; lack of a
unied strategic vision for the development of the forestry industry; absence
of the head of the branch for a long time; contradictions in regulations of
dierent levels; conict of ecological and economic interests of society and
the state; the actual priority of economic interests over environmental ones
(Gulac, 2013).
Thus, the Decision of the Committee on Agrarian Policy and Land
Relations of February 13, 2018 (Minutes № 68) «On the results of the eld
meeting on» Problems of forestry reform in Ukraine «identied a number
of problematic issues in the forest sector that need immediate solution .
However, the main problem is the lack of strategic documents for the
development of the industry, which would form the projected public policy.
As a result, as stated in the Decision, there is an unregulated organizational
and legal structure of forest management, which is manifested in the
inecient use of forest resources (Yavorovsky and Gurzhiy, 2017).
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Olena Gulac, Oksana Marchenko, Nataliia Kapitanenko, Yurii Kuris y Roman Oleksenko
State environmental policy on the issue of legal regulation of re safety in the forests of Ukraine
In particular, the lack of such strategic documents for forest development
has a negative impact on the state of forest re protection and, consequently,
on re safety in forests in general, as only national forest programs have
been funded for a long time. As you know, the last approved State Program
in the forest sector was the resolution of the Cabinet of Ministers of Ukraine:
«On approval of the State target program» Forests of Ukraine «for
2010-2015.» And the national task of ensuring re safety in forests requires
signicant funding for the implementation of a set of all necessary preventive
measures. In addition, rapid climate change requires the inclusion in the
forest strategy of a set of measures to protect forests from res and the
adaptation of the forest sector to climate change in general.
The Forest Sector Development Strategies, which have been developed,
but not adopted or implemented, already focus on this issue, which, as
everyone knows, will only become relevant over time. Thus, a number of
strategic vision documents remain at the Project level, in particular:
1. The Concept of Forestry and Hunting Reform of Ukraine, discussed
on April 27, 2015 at the meeting of the Coordination Council at the
State Forestry Agency of Ukraine;
2. Strategy of balanced development of forestry and hunting economy
of Ukraine, the need for development and adoption of which is
determined by the said Concept;
3. The Strategy for Sustainable Development and Institutional Reform
of Ukraine’s Forestry until 2022, adopted on November 15, 2017 at a
meeting of the Cabinet of Ministers of Ukraine, but due to a number
of comments, pressure from experts and the public, has not been
implemented;
4. Program «Forests of Ukraine - 2030», the approval of which is
provided by the Decree of the President of Ukraine «On additional
measures for forestry development, environmental management
and conservation of nature reserves» from 21.11.2017 № 381 to
implement the Strategic Plan of the Organization United Nations
Forest. However, even these draft regulations do not contain
systemic issues in terms of the need to ensure re safety in forests.
In particular, the Strategy for Sustainable Development and
Institutional Reform of Ukraine’s Forestry until 2022 envisages,
among other things, the need to amend the Criminal Code and
the Code of Administrative Oenses of Ukraine in terms of
strengthening liability for arson in natural landscapes. In addition,
the State Forest Agency notes that the activities of the State Forest
Protection, provided by the relevant Regulations on this service, are
a combination of economic and control functions, as the functions
of state forest protection are performed by individual ocials of
state forest enterprises (Results of the eld meeting, 2018).
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The State Forest Agency in this Strategy proposes the creation of the
State Fund for Forestry Development and maintaining state support for
the tasks. Establishment of the Fund is also provided by the Decree of
the President of Ukraine dated 21.11.2017 № 381, the funds of which are
planned to be used to nance primarily measures for reforestation, creation
of protective forest belts and other protective plantations and protection
(including res) of forests, purchase of re-ghting and forestry machinery
and equipment.
Accumulation of funds is proposed to be realized at the expense of:
30% - from the rent for special use of forest resources in the part of wood
harvested from felling of the main use; 25% - from the net prot (income)
of state forestries; voluntary contributions of legal entities and individuals;
international technical assistance; other revenues (Results of the eld
meeting, 2018).
In matters of re safety in forests, it is especially important to increase
the role of legal monitoring. After all, only on the basis of complete and
reliable information on the practice of application of regulations it is
possible to make the necessary proposals to improve legislation, improve
activities (including the adoption of necessary management decisions),
eliminate possible corruption in the relevant ministry.
Such work should be based on a planned basis, taking into account
information and suggestions from civil society institutions and the
media (Monitoring, 2011). In its ambitious plans to implement eective
governance, the Government of Ukraine is working to create a modern
system of local self-government that promotes the dynamic development
of regions and transfers as much power as possible to the level closest to
citizens - communities, including forest re safety.
In the framework of the technical assistance project «Support to Forest
Sector Reform in Ukraine» (PROFOR) in early 2018, an expert assessment
of bills and recommendations for improving the relevant legislation, which
states that the purpose of lawmaking is to adopt fair, eective and perfect
laws as the foundation of forest relations. The basic basis for the development
of quality laws is the formed state policy, which provides a holistic vision
of the goals and directions of development of the forest sector. In Ukraine,
unfortunately, forest policy is not dened by law. Accordingly, according
to experts, the state of legislative activity in the eld of forest relations is
characterized by:
Lack of a systematic and planned approach; low professional level of legislative
proposals; populism and declarativeness; disregard for the specics of forest
relations in the development of related legislation; inaction of the Government as
a subject of legislative initiative in the development of relevant bills; low quality
of legislative equipment, uncertainty of the implementation mechanism; stang
issues; lack of monitoring of adopted laws, etc. (Storchous, 2013: s/p).
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Olena Gulac, Oksana Marchenko, Nataliia Kapitanenko, Yurii Kuris y Roman Oleksenko
State environmental policy on the issue of legal regulation of re safety in the forests of Ukraine
The main components of solving the problem of legislative activity in
the forest industry in general, which will directly aect the eectiveness
of re safety in the forests of Ukraine are: legal (adoption of forest policy,
development strategies, prioritization of legislative work); organizational
(short-term and long-term planning, forecasting the consequences of the
adoption of bills, professional examination of submitted bills, ensuring the
evaluation of the eectiveness of their adoption, coordination of legislative
work of parliament and government); economic (nancial and economic
support of the legislative capacity of central executive bodies, expert groups
on a contractual basis, sta incentives, etc.) (Storchous, 2013).
We must pay attention to the fact that the forest is a natural resource of
the nation, which, rst of all, having a long period of restoration (about 150
years) should be used to ensure environmental safety and the functioning of
the environment as a whole. The priority of economic and economic needs
over environmental ones has already led to extremely serious consequences
in a number of territories of our state, violating the basic principles of
ecosystem and natural environment, causing irreparable damage to natural
areas and people living in them.
In particular, Article 2 of the Forest Code of Ukraine «Forest Relations»
conrms our position, noting that «forest relations - public relations
relating to the possession, use and disposal of forests and aimed at ensuring
the protection, reproduction and sustainable use of forest resources taking
into account environmental, economic , social and other interests of society
«(Law of Ukraine, 1994) and somewhat contradicts the interpretation of
the terms specied in Art. 1 of the Forest Code of Ukraine. Thus, in the
denitions of the main legal categories of the forest sector provided for in
Article 1 of the Forest Code of Ukraine, namely: «Forest plot» and «Forest
land plot»
Accordingly, in our opinion, in the current realities of our country’s low
forest cover and other negative trends in the forest sector, in particular,
due to rapid climate change, the activities of central executive bodies in
forest management should be coordinated by the Cabinet of Ministers.
natural resources, as the head of the central executive bodies, which is the
main in the formation and implementation of state policy in the eld of
environmental protection. It should also be borne in mind that the activities
of the State Forest Agency have long been coordinated and directed through
the Minister of Ecology and Natural Resources, and in 2010 the Ministry
of Agrarian Policy was entrusted with a signicant part of the Ministry of
Environment.
In particular, in accordance with current legislation, the Ministry of
Environment approves standards for the use of forest resources, estimated
felling (logging in the order of felling of the main use), approves forest
management materials, approves limits on the use of hunting animals,
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shooting rates, etc. Through the coordination of the State Coinspection,
the Ministry of Environment exercises state control over compliance with
legislation in the eld of protection, conservation, use and reproduction
of forest resources, ora and fauna. Performing such functions requires
constant cooperation with the State Forestry Agency and enterprises,
institutions, organizations belonging to its sphere of management.
In addition, the analysis of the Forest Code of Ukraine, in particular,
Articles 28-29 of this Code, which dene the powers of central executive
bodies in the eld of forestry and forestry, in particular, shows the
following: duplication of the same functions various central executive
bodies, including control bodies, which does not make the system of public
administration in the forest sector eective; dominance in the eld of
forest relations, rst of all, economic and economic component; extremely
complex management system in the eld of forest relations, primarily at the
central level of executive power.
Therefore, not only Articles 28-29 of the Forest Code of Ukraine should
be amended and optimized, but also, rst of all, the state policy on forest
relations: relations «man - forest», «natural environment - man - his needs
- forest» have to experience system-forming, fundamentally dierent views,
and hence the normative consolidation, rst of all, in the system of relevant
subjects of management and their interaction with each other.
Therefore, we consider it expedient to provide in the Resolution of
the Cabinet of Ministers of Ukraine «On optimizing the system of central
executive bodies» and other regulations, change the coordination and
direction of central executive bodies, which directly performs the functions
of maintaining and managing the forest fund. accordingly ensures the
formation of state policy in the eld of forestry to the Minister, who ensures
the formation of state policy in the eld of forest relations.
Conclusions
Emphasis is placed on the fact that the lack of approved strategic
documents for the development of the forest sector makes it impossible to
form a projected state policy, and thus creates unregulated organizational
and legal management structure in forest relations in general and reduces
the eectiveness of re safety in forests in particular; and the subordination
of the State Forestry Agency to the Ministry of Agrarian Policy (as it was from
the end of 2010 to 2019) and not to the Ministry of Environment (Ministry
of Environment) created a number of inconsistencies and contradictions in
forming strategic positions in forestry relations.
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Olena Gulac, Oksana Marchenko, Nataliia Kapitanenko, Yurii Kuris y Roman Oleksenko
State environmental policy on the issue of legal regulation of re safety in the forests of Ukraine
Among the priorities in achieving the task of eective re safety in forests
are identied administrative and legal factors, which are as follows: the
formation of a single interagency agreed vision of forest sector development,
reected in the Strategy for Sustainable Development of Forest Resources,
and hence the regulatory framework, which would consolidate the principles
of national forest policy; improving the mechanism of re safety control
in communal forests and self-aorested agricultural lands; institutional
strengthening of forest re protection by involving forest public inspectors,
local and voluntary re protection units in this work; improving the system
of nancing re-ghting measures in forests by creating the State Fund for
Forest Resources Development; development of mechanisms for ensuring
re safety in forests harmonized with international and European standards;
introduction of modern innovative technologies in preventive re-ghting
measures and extinguishing forest res; providing a network of forest roads
and reservoirs; equipping all observation towers with television cameras.
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Esta revista fue editada en formato digital y publicada
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