中国生物多样性保护政策的共同要素、不足和优化建议

doi:10.17520/biods.2023293

摘要/Abstract

摘要：

中央政府已经推出了多项生物多样性保护政策, 对全面提升生物多样性保护水平起到了良好的规范作用, 但是关于生物多样性保护的内容规定相对宏观。对此, 部分地方政府相继出台了各自的生物多样性保护政策。通过梳理40份地方生物多样性保护政策的文本内容发现: (1)各地政策的共同要素包括调查、监测、评估, 优化保护空间, 监督管理和保障措施; (2)部分省市的规定具有一定的特色, 为生物多样性保护提供了具体的实施方案; (3)多数省市的政策还存在着调查、监测、评估避重就轻, 保护与发展对立思路主导空间划定, 监督管理措施相对单一, 保障措施缺乏针对性和有效性。基于此, 建议未来完善生物多样性保护政策时考虑: (1)建立有效的生物多样性调查、监测、评估机制; (2)生物资源保护空间划定融入可持续发展理念; (3)构建多元完善的生物多样性监督管理机制; (4)因地制宜建立完善保障措施。

关键词: 生物多样性保护, 监督管理, 自然保护地, 生态廊道, 可持续发展

Abstract

Background & Aim: China has formulated policies for biodiversity conservation, which have helped to advance and normalize biodiversity conservation on a broad scale. However, the national biodiversity conservation provisions are somewhat ambiguous, and certain municipal governments have subsequently released their own biodiversity protection policies. This paper aims to review the common elements and deficiencies in biodiversity conservation policies in China. It suggests improvements based on the current situation of biodiversity conservation in China.

Review results: By analyzing 40 biodiversity conservation policy documents, we draw the following conclusions: (1) Research, monitoring, assessment, conservation space optimization, oversight, governance, and safeguard measures are common components found in the selected biodiversity conservation policy texts. (2) Some provincial and municipal biodiversity protection regulations have their own characteristics and provide specific implementation plans for biodiversity protection. (3) The majority of province-level and city-level biodiversity conservation policies face issues with evasive monitoring, assessment, and investigation; conflicting views on balancing development and conservation over spatial demarcation; relatively homogenous supervisory and governance measures; and a deficiency of relevant and practical safeguards.

Recommendations: It is suggested that the following factors should be addressed when modifying and strengthening biodiversity conservation policies in the future; (1) Establishing an effective biodiversity inquiry, monitoring, and assessment mechanism; (2) Integrating the principle of sustainable development into the spatial delineation of biological resources conservation; (3) Developing a multifaceted and comprehensive biodiversity monitoring and governance mechanism; and (4) To create and improve safeguards that are relevant to the local circumstances.

Key words: biodiversity conservation, supervision and administration, protected area, ecological corridor, sustainable development principle

鄢德奎 (2024) 中国生物多样性保护政策的共同要素、不足和优化建议. 生物多样性, 32, 23293. DOI: 10.17520/biods.2023293.

Dekui Yan (2024) Common elements, deficiencies, and optimization suggestions of biodiversity conservation policies in China. Biodiversity Science, 32, 23293. DOI: 10.17520/biods.2023293.

导出引用管理器 EndNote|Ris|BibTeX

链接本文: https://www.biodiversity-science.net/CN/10.17520/biods.2023293

https://www.biodiversity-science.net/CN/Y2024/V32/I5/23293

图/表 4

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工作事项 Work list	发文数量 No. of documents
完善调查监测技术标准体系 Improvement of the technical standard system for investigation and monitoring	5/1
深化本底调查 Deepening background survey	8/4
开展专项调查 Conducting specialized surveys	14/5
推进生物遗传资源和种质资源调查、编目及数据库建设 Surveys, cataloguing and database construction of biological genetic resources and germplasm resources	14/5
构建生物多样性监测网络 Construction of biodiversity monitoring network	16/5
开展以重大病虫、外来有害生物为重点的常态化监测 Regular monitoring focusing on major pests and diseases and exotic pests	1/0
推进生物多样性保护信息化建设 Informatization of biodiversity conservation	16/5
建立生物多样性预警技术体系和应急响应机制 Establishment of biodiversity early warning technology system and emergency response mechanism	7/3
推进野生动物疫源疫病监测预警体系建设 Construction of monitoring and early-warning system for wildlife epidemic-stricken and diseases	1/0
健全生物多样性评估标准体系 Biodiversity assessment standard system	11/3
开展林草生态综合监测评价及森林生态价值评估 Comprehensive monitoring and evaluation of forest and grassland ecology and assessment of forest ecological value	5/0
定期开展水生生物多样性保护效果评估 Periodic assessment of the conservation effects of aquatic biodiversity	2/0
建立指示性物种清单 Establishment of indicator species lists	12/3
编制或更新生物多样性相关名录 Formation and updating of biodiversity-related lists	8/4
公布更新生物多样性资源状况 Publication and updating of biodiversity resource status	6/2

工作事项 Work list	发文数量 No. of documents
完善调查监测技术标准体系 Improvement of the technical standard system for investigation and monitoring	5/1
深化本底调查 Deepening background survey	8/4
开展专项调查 Conducting specialized surveys	14/5
推进生物遗传资源和种质资源调查、编目及数据库建设 Surveys, cataloguing and database construction of biological genetic resources and germplasm resources	14/5
构建生物多样性监测网络 Construction of biodiversity monitoring network	16/5
开展以重大病虫、外来有害生物为重点的常态化监测 Regular monitoring focusing on major pests and diseases and exotic pests	1/0
推进生物多样性保护信息化建设 Informatization of biodiversity conservation	16/5
建立生物多样性预警技术体系和应急响应机制 Establishment of biodiversity early warning technology system and emergency response mechanism	7/3
推进野生动物疫源疫病监测预警体系建设 Construction of monitoring and early-warning system for wildlife epidemic-stricken and diseases	1/0
健全生物多样性评估标准体系 Biodiversity assessment standard system	11/3
开展林草生态综合监测评价及森林生态价值评估 Comprehensive monitoring and evaluation of forest and grassland ecology and assessment of forest ecological value	5/0
定期开展水生生物多样性保护效果评估 Periodic assessment of the conservation effects of aquatic biodiversity	2/0
建立指示性物种清单 Establishment of indicator species lists	12/3
编制或更新生物多样性相关名录 Formation and updating of biodiversity-related lists	8/4
公布更新生物多样性资源状况 Publication and updating of biodiversity resource status	6/2

生物安全管理措施 Biosafety govermance measures		发文数量 No. of documents
生物技术风险防范Biotechnology risk prevention	建立健全生物安全工作协调机制 Coordination mechanism for biosafety work	3/3
	建立生物安全专家库 Biosafety expert pool	1/0
	建立生物安全培训、跟踪检查、定期报告等工作制度 Biosafety training, tracking and checking, periodical report and other working system	14/3
	健全实验室生物安全管理体系 Laboratory biosafety management system	7/1
	制定风险防控计划和生物安全事件应急预案 Risk prevention and control plan and emergency plan for biosafety incidents	11/4
遗传资源及其相关传统知识获取和惠益分享监管 Regulation of access to and benefit-sharing of genetic resources and related traditional knowledge	制定遗传资源目录 Genetic resources catalog	4/1
	健全遗传资源及相关传统知识获取与惠益分享制度 Access and benefit-sharing system for genetic resources and related traditional knowledge	15/6
	强化遗传资源对外提供和合作研究利用的监督管理 Supervision and management of external provision and cooperative research and utilization of genetic resources	11/5
	完善获取、利用、进出境审批责任制和责任追究制 Responsibility investigation system for access, utilization and exit/entry approval accountability system	10/3
迁地保护 Ex-situ conservation	规范野生动植物繁育和利用行为 Standardization of the breeding and utilization of wild animals and plants	6/1
	迁地保护制度 Relocation protection system	18/9
	对各级自然保护区进行强制保护 Mandatory protection of nature reserves at all levels	2/1
	制定生物多样性保护负面清单 Negative list for biodiversity conservation	0/1
外来入侵物种防控 Invasive species management	完善外来入侵物种防控部际协调机制 Inter-ministerial coordination mechanism for prevention and control of invasive alien species	7/3
	规范物种引进传播 Normalization of species introduction and spread	16/7
	开展外来入侵物种普查 Census of invasive alien species	12/6
	完善外来物种入侵防范体系 Prevention system for invasive alien species	14/5
	构建外来物种风险评价和监管技术支撑体系 Technical support system for risk evaluation and supervision of alien species	7/2
执法措施 Enforcement measures	建立健全管理机构/联合执法机制 Establishment and improvement of governance institutions/joint enforcement mechanisms	14/6
	建立健全案件分级管理、应急处置机制 Case hierarchy management and emergency response mechanism	3/3
	建立健全案件挂牌督办机制 Supervise the handling of cases system	5/3
	严厉打击破坏野生动植物资源的违法行为 Combating illegal behaviors of destroying wild animal and plant resources severely	7/4
	全面开展执法监督检查 Law enforcement supervision and inspection	5/2
	定期组织开展专项执法行动 Periodicity of specialized law enforcement actions	7/3
	健全行政执法与刑事司法联动机制 Administrative enforcement of law and criminal judicial joint mechanism	8/4
行政监督 Administrative supervision	建立健全案件通报约谈机制 Cases notification and regulatory talks mechanism	1/2
	将生物多样性保护成效作为省级生态环境保护督察考核内容 Taking biodiversity conservation effectiveness as provincial ecological environmental protection supervision and appraise contents	4/0
	人大协同监督机制 Coordinated supervision mechanism of the National People’s Congress	0/3
行政考核 Administrative assessment	开展生态质量评估 Ecological quality assessment	1/1
	将生物多样性保护成效作为政府目标管理绩效考核内容 Taking biodiversity conservation effectiveness as the government’s target management and performance appraisal content	3/0
	将生物多样性保护成效作为领导干部综合考核评价及责任追究、离任审计的重要参考 Taking biodiversity conservation effectiveness as an essential reference for the comprehensive appraisal and evaluation of leading cadres, as well as for accountability and exit audits	12/3

生物安全管理措施 Biosafety govermance measures		发文数量 No. of documents
生物技术风险防范Biotechnology risk prevention	建立健全生物安全工作协调机制 Coordination mechanism for biosafety work	3/3
	建立生物安全专家库 Biosafety expert pool	1/0
	建立生物安全培训、跟踪检查、定期报告等工作制度 Biosafety training, tracking and checking, periodical report and other working system	14/3
	健全实验室生物安全管理体系 Laboratory biosafety management system	7/1
	制定风险防控计划和生物安全事件应急预案 Risk prevention and control plan and emergency plan for biosafety incidents	11/4
遗传资源及其相关传统知识获取和惠益分享监管 Regulation of access to and benefit-sharing of genetic resources and related traditional knowledge	制定遗传资源目录 Genetic resources catalog	4/1
	健全遗传资源及相关传统知识获取与惠益分享制度 Access and benefit-sharing system for genetic resources and related traditional knowledge	15/6
	强化遗传资源对外提供和合作研究利用的监督管理 Supervision and management of external provision and cooperative research and utilization of genetic resources	11/5
	完善获取、利用、进出境审批责任制和责任追究制 Responsibility investigation system for access, utilization and exit/entry approval accountability system	10/3
迁地保护 Ex-situ conservation	规范野生动植物繁育和利用行为 Standardization of the breeding and utilization of wild animals and plants	6/1
	迁地保护制度 Relocation protection system	18/9
	对各级自然保护区进行强制保护 Mandatory protection of nature reserves at all levels	2/1
	制定生物多样性保护负面清单 Negative list for biodiversity conservation	0/1
外来入侵物种防控 Invasive species management	完善外来入侵物种防控部际协调机制 Inter-ministerial coordination mechanism for prevention and control of invasive alien species	7/3
	规范物种引进传播 Normalization of species introduction and spread	16/7
	开展外来入侵物种普查 Census of invasive alien species	12/6
	完善外来物种入侵防范体系 Prevention system for invasive alien species	14/5
	构建外来物种风险评价和监管技术支撑体系 Technical support system for risk evaluation and supervision of alien species	7/2
执法措施 Enforcement measures	建立健全管理机构/联合执法机制 Establishment and improvement of governance institutions/joint enforcement mechanisms	14/6
	建立健全案件分级管理、应急处置机制 Case hierarchy management and emergency response mechanism	3/3
	建立健全案件挂牌督办机制 Supervise the handling of cases system	5/3
	严厉打击破坏野生动植物资源的违法行为 Combating illegal behaviors of destroying wild animal and plant resources severely	7/4
	全面开展执法监督检查 Law enforcement supervision and inspection	5/2
	定期组织开展专项执法行动 Periodicity of specialized law enforcement actions	7/3
	健全行政执法与刑事司法联动机制 Administrative enforcement of law and criminal judicial joint mechanism	8/4
行政监督 Administrative supervision	建立健全案件通报约谈机制 Cases notification and regulatory talks mechanism	1/2
	将生物多样性保护成效作为省级生态环境保护督察考核内容 Taking biodiversity conservation effectiveness as provincial ecological environmental protection supervision and appraise contents	4/0
	人大协同监督机制 Coordinated supervision mechanism of the National People’s Congress	0/3
行政考核 Administrative assessment	开展生态质量评估 Ecological quality assessment	1/1
	将生物多样性保护成效作为政府目标管理绩效考核内容 Taking biodiversity conservation effectiveness as the government’s target management and performance appraisal content	3/0
	将生物多样性保护成效作为领导干部综合考核评价及责任追究、离任审计的重要参考 Taking biodiversity conservation effectiveness as an essential reference for the comprehensive appraisal and evaluation of leading cadres, as well as for accountability and exit audits	12/3

		发文数量 No. of documents	合计 Total
法治建设 Rule of law	制定规划 Planning formulation	17/3	20
	完善立法 Legislation consummation	15/4	19
	制定配套政策 Supporting policies	16/7	23
科技与人才支撑 Science, technology and talent support	培育人才队伍 Cultivation of talents	17/6	23
	大力建设科研中心 Scientific research center	5/1	6
	加强科学技术研究 Science and technology research	16/6	22
资金投入 Financial inputs	加大政府经费投入 Government funding	17/11	28
	引导社会资本参与 Social capital participation	16/7	23
	探索投融资机制 Investment and financing mechanism	13/4	17
国际合作与交流 International cooperation and communication	完善合作机制 Cooperation mechanisms	7/5	12
	切实履行国际条约 Fulfillment of international treaties	5/1	6
	参与跨境执法 Participation in cross-border law enforcement	2/2	4
公众参与 Public engagement	宣传教育 Propaganda and education	17/9	26
	公益诉讼机制 Public interest litigation mechanism	11/4	15
	信息公开 Disclosure of information	9/5	14
	媒体监督 Media supervision	8/6	14