生物多样性 ›› 2025, Vol. 33 ›› Issue (3): 24569. DOI: 10.17520/biods.2024569 cstr: 32101.14.biods.2024569
• 昆蒙框架如何在中国体制下成为主流工作目标专题 • 上一篇 下一篇
收稿日期:
2024-12-19
接受日期:
2025-03-06
出版日期:
2025-03-20
发布日期:
2025-03-07
通讯作者:
*E-mail: ydeng@hbue.edu.cn
基金资助:
Received:
2024-12-19
Accepted:
2025-03-06
Online:
2025-03-20
Published:
2025-03-07
Contact:
*E-mail: ydeng@hbue.edu.cn
Supported by:
摘要:
《生物多样性公约》第十五次缔约方大会(COP15)达成的《昆明-蒙特利尔全球生物多样性框架》中提出了“3030目标”, 其他有效的区域保护措施(other effective area-based conservation measures, OECMs)被普遍认为是能够通过大幅增加陆地和海洋受保护面积、兼顾经济社会发展因素来实现3030目标的具有成本效益的新型保护管理工具。通过对中国OECMs行动的现状分析, 可识别推进中国OECMs行动的关键问题(包括重要机会和现实困境)。在党的二十届三中全会提出的刚性任务背景下, 借助“有目标、有手段、有保障、有监督”的中国体制特色, 可采取推进策略, 将OECMs特征优势与中国体制优势相结合: 明确OECMs国家层面的认定部门和认定程序; 制定OECMs适应性的认定标准和管理规范; 激励OECMs多元化的社会参与和筹融资渠道; 启动OECMs最具成本效益的中国样板研究等。
王晓倩, 邓毅 (2025) 与《昆明-蒙特利尔全球生物多样性框架》衔接的中国OECMs关键问题与推进策略. 生物多样性, 33, 24569. DOI: 10.17520/biods.2024569.
Wang Xiaoqian, Deng Yi (2025) Key issues and advancement strategies for China’s OECMs in alignment with the Kunming-Montreal Global Biodiversity Framework. Biodiversity Science, 33, 24569. DOI: 10.17520/biods.2024569.
国家 Countries | 实践部门 Departments | 实践分工 Division of responsibilities | 实践特色 Distinctive features |
---|---|---|---|
加拿大 Canada | 环境和气候变化部Environment and Climate Change Canada (ECCC) 渔业与海洋部 Fisheries and Oceans Canada (DFO) | ① ECCC通过《加拿大保护区与保护倡议》(CAPCI), 推动OECMs的登记和管理 ECCC promotes the registration and management of OECMs through the Canadian Protected Areas and Conservation Initiative (CAPCI) ② ECCC提交更新版的NBSAP ECCC submits an updated version of NBSAP①(① NBSAP是国家生物多样性战略和行动计划(National Biodiversity Strategy and Action Plan)的缩写. 这是各国根据《生物多样性公约》的要求制定的战略文件, 旨在规划和实施生物多样性保护与可持续利用的具体行动. 在《生物多样性公约》官网上可查阅各国提交的NBSAP文件和相关进展报告.) ③ DFO制定OECMs行动计划, 并制订认定海洋OECMs的指南和具体标准 DFO develops an OECMs action plan and develops guidelines and specific criteria for the identification of marine OECMs ④ ECCC向WDPA报告OECMs数据 ECCC reports OECMs data to WDPA②(② 《生物多样性公约》第十四次缔约方大会鼓励各国将OECMs数据提交到由联合国环境规划署-世界保护监测中心所管理的世界保护地数据库(UNEP-WCMC WDPA).) | ①率先对IUCN开发的OECMs评估工具开展本土化筛选和认定的创新应用 Pioneered the innovative application of localized screening and identification of OECMs assessment tools developed by IUCN ②将海洋OECMs概念本土化为“海洋庇护所” Localization of the marine OECMs concept as “marine refuge” |
南非 South Africa | 环境、森林和渔业部Department of Environment, Forestry and Fisheries (DEFF) 南非国家生物多样性研究所South African National Biodiversity Institute (SANBI) 各省级环保部门 Provincial environmental protection department | ① DEFF通过《国家环境管理: 保护区法案》(NEM: PAA), 制定明确政策框架 DEFF adopted the National Environmental Management: Protected Areas Act (NEM: PAA) to establish a clear policy framework ② DEFF提交更新版的NBSAP DEFF Submits the updated NBSAP ③各省级环保部门负责与社区和私有土地所有者合作, 向DEFF报告OECMs实践进展和数据 Provincial environmental authorities are responsible for working with communities and private landowners to report to DEFF on progress and data on OECMs practices ④ DEFF向WDPA报告OECMs数据 DEFF reports OECMs data to the WDPA | ① SANBI是DEFF的重要技术支持机构, 负责提供科学研究和数据支持 SANBI is an important technical support agency for DEFF, responsible for providing scientific research and data support ②由省级环境保护部门对接各社区和私有保护地 Provincial environmental protection department shall connect the communities and private protected areas |
印度 India | 环境、森林和气候变化部Ministry of Environment, Forest and Climate Change (MEFCC) 国家生物多样性管理局National Biodiversity Authority (NBA) | ① MEFCC出版OECMs识别标准和纲要 MEFCC publishes OECMs identification standards and outlines ② NBA创建OECMs分类系统 NBA created OECMs classification system ③ MEFCC制定OECMs申报流程 MEFCC establishes the OECMs declaration process ④ MEFCC向WDPA报告OECMs数据 MEFCC reports OECMs data to WDPA | ①自下而上申报(土地所有者自愿提交OECMs提案) Bottom-up declaration (voluntary submission of OECMs proposals by landowners) ②多方共管模式(土地所有者-NBA- MEFCC) Multi-party condominium model (landowner-NBA-MEFCC) |
日本 Japan | 环境部 Ministry of the Environment (MOE) | ① MOE启动国家认证体系(“国家认证可持续管理自然遗址”) MOE launches National certification system (“National Certification for Sustainable Management of Natural Sites”) ② MOE颁布相关法律(“促进加强区域生物多样性活动法”) MOE promulgation of relevant laws (“Law on Promotion of Regional Biodiversity Activities”) ③ MOE制定OECMs认证标准 MOE has established certification standards for OECMs. ④ MOE向WDPA报告OECMs数据 MOE reports OECMs data to WDPA | ①搭建利益相关者平台“3030生物多样性联盟” Build stakeholder platform “3030 Biodiversity Alliance” ②自下而上申报, 并依托平台推出“试点认证制度” Bottom-up declaration, and rely on the platform to launch the “pilot certification system” |
韩国 Korea | 环境部 Ministry of Environment (MOE) 韩国国家公园管理局 Korea National Park Service (KNPS) | ① MOE提交NBSAP MOE submits NBSAP ② MOE开发“K-OECMs”本地化识别工具 MOE develops “K-OECMs” localization identification kit ③ KNPS制定OECMs暂时性身份报告机制 KNPS develops OECMs temporary identity reporting mechanism ④ MOE向WDPA报告OECMs数据 MOE reports OECMs data to WDPA | 强调公众和利益相关者的认知和可接受度(使用韩语术语“自然共存区”代替OECMs) Emphasis on public and stakeholder awareness and acceptability (using the Korean term “natural coexistence zone” instead of OECMs) |
表1 部分国家的其他有效的区域保护措施(OECMs)实践进展
Table 1 Progress in other effective area-based conservation measures (OECMs) implementation in selected countries
国家 Countries | 实践部门 Departments | 实践分工 Division of responsibilities | 实践特色 Distinctive features |
---|---|---|---|
加拿大 Canada | 环境和气候变化部Environment and Climate Change Canada (ECCC) 渔业与海洋部 Fisheries and Oceans Canada (DFO) | ① ECCC通过《加拿大保护区与保护倡议》(CAPCI), 推动OECMs的登记和管理 ECCC promotes the registration and management of OECMs through the Canadian Protected Areas and Conservation Initiative (CAPCI) ② ECCC提交更新版的NBSAP ECCC submits an updated version of NBSAP①(① NBSAP是国家生物多样性战略和行动计划(National Biodiversity Strategy and Action Plan)的缩写. 这是各国根据《生物多样性公约》的要求制定的战略文件, 旨在规划和实施生物多样性保护与可持续利用的具体行动. 在《生物多样性公约》官网上可查阅各国提交的NBSAP文件和相关进展报告.) ③ DFO制定OECMs行动计划, 并制订认定海洋OECMs的指南和具体标准 DFO develops an OECMs action plan and develops guidelines and specific criteria for the identification of marine OECMs ④ ECCC向WDPA报告OECMs数据 ECCC reports OECMs data to WDPA②(② 《生物多样性公约》第十四次缔约方大会鼓励各国将OECMs数据提交到由联合国环境规划署-世界保护监测中心所管理的世界保护地数据库(UNEP-WCMC WDPA).) | ①率先对IUCN开发的OECMs评估工具开展本土化筛选和认定的创新应用 Pioneered the innovative application of localized screening and identification of OECMs assessment tools developed by IUCN ②将海洋OECMs概念本土化为“海洋庇护所” Localization of the marine OECMs concept as “marine refuge” |
南非 South Africa | 环境、森林和渔业部Department of Environment, Forestry and Fisheries (DEFF) 南非国家生物多样性研究所South African National Biodiversity Institute (SANBI) 各省级环保部门 Provincial environmental protection department | ① DEFF通过《国家环境管理: 保护区法案》(NEM: PAA), 制定明确政策框架 DEFF adopted the National Environmental Management: Protected Areas Act (NEM: PAA) to establish a clear policy framework ② DEFF提交更新版的NBSAP DEFF Submits the updated NBSAP ③各省级环保部门负责与社区和私有土地所有者合作, 向DEFF报告OECMs实践进展和数据 Provincial environmental authorities are responsible for working with communities and private landowners to report to DEFF on progress and data on OECMs practices ④ DEFF向WDPA报告OECMs数据 DEFF reports OECMs data to the WDPA | ① SANBI是DEFF的重要技术支持机构, 负责提供科学研究和数据支持 SANBI is an important technical support agency for DEFF, responsible for providing scientific research and data support ②由省级环境保护部门对接各社区和私有保护地 Provincial environmental protection department shall connect the communities and private protected areas |
印度 India | 环境、森林和气候变化部Ministry of Environment, Forest and Climate Change (MEFCC) 国家生物多样性管理局National Biodiversity Authority (NBA) | ① MEFCC出版OECMs识别标准和纲要 MEFCC publishes OECMs identification standards and outlines ② NBA创建OECMs分类系统 NBA created OECMs classification system ③ MEFCC制定OECMs申报流程 MEFCC establishes the OECMs declaration process ④ MEFCC向WDPA报告OECMs数据 MEFCC reports OECMs data to WDPA | ①自下而上申报(土地所有者自愿提交OECMs提案) Bottom-up declaration (voluntary submission of OECMs proposals by landowners) ②多方共管模式(土地所有者-NBA- MEFCC) Multi-party condominium model (landowner-NBA-MEFCC) |
日本 Japan | 环境部 Ministry of the Environment (MOE) | ① MOE启动国家认证体系(“国家认证可持续管理自然遗址”) MOE launches National certification system (“National Certification for Sustainable Management of Natural Sites”) ② MOE颁布相关法律(“促进加强区域生物多样性活动法”) MOE promulgation of relevant laws (“Law on Promotion of Regional Biodiversity Activities”) ③ MOE制定OECMs认证标准 MOE has established certification standards for OECMs. ④ MOE向WDPA报告OECMs数据 MOE reports OECMs data to WDPA | ①搭建利益相关者平台“3030生物多样性联盟” Build stakeholder platform “3030 Biodiversity Alliance” ②自下而上申报, 并依托平台推出“试点认证制度” Bottom-up declaration, and rely on the platform to launch the “pilot certification system” |
韩国 Korea | 环境部 Ministry of Environment (MOE) 韩国国家公园管理局 Korea National Park Service (KNPS) | ① MOE提交NBSAP MOE submits NBSAP ② MOE开发“K-OECMs”本地化识别工具 MOE develops “K-OECMs” localization identification kit ③ KNPS制定OECMs暂时性身份报告机制 KNPS develops OECMs temporary identity reporting mechanism ④ MOE向WDPA报告OECMs数据 MOE reports OECMs data to WDPA | 强调公众和利益相关者的认知和可接受度(使用韩语术语“自然共存区”代替OECMs) Emphasis on public and stakeholder awareness and acceptability (using the Korean term “natural coexistence zone” instead of OECMs) |
行动层面 Action level | 行动进展 Action progress | 行动内容 Action content |
---|---|---|
在行动计划上支持《昆蒙框架》Support the Kunming-Montreal Global Biodiversity Framework on action plans | ① 2010年, 环境保护部会同20多个部门和单位编制《中国生物多样性保护战略与行动计划》(2011-2030年) (简称初版NBSAP) In 2010, the Ministry of Environmental Protection, together with more than 20 departments and units, formulated the China National Biodiversity Conservation Strategy and Action Plan (2011-2030) (referred to as the First NBSAP) ② 2024年, 发布了《中国生物多样性保护战略与行动计划(2023-2030)》(简称更新版NBSAP) In 2024, the China National Biodiversity Conservation Strategy and Action Plan (2023-2030) (referred to as the Updated NBSAP) was released | 初版NBSAP并未明确提及OECMs, 但在更新版NBSAP的优先行动9 “生物多样性就地保护”中, 对应《昆蒙框架》中的行动目标3, 明确提出了OECMs的行动要求, 包括保护的量化目标及其范围、保护手段、保护优先级、管理有效性等方面。The First NBSAP did not explicitly mention OECMs, but in the updated NBSAP priority action 9 “Biodiversity conservation in situ”, corresponding to the action target 3 of the Kunming-Montreal Global Biodiversity Framework, clearly put forward the action requirements of OECMs, including the quantitative objectives and scope of conservation, protection means, protection priorities, management effectiveness and other aspects |
在国际标准上积极衔接 Actively align with international standards | ① 2019年, 发布了《其他有效的区域保护措施识别与报告指南》 In 2019, Recognising and Reporting Other Effective Area-based Conservation Measures was released ② 2024年, 发布了《其他有效的区域保护措施(OECMs)场地级识别工具(第一版)》 In 2024, Site-level Tool for Identifying Other Effective Area-based Conservation Measures (OECMs) was released | 《其他有效的区域保护措施识别与报告指南》和《其他有效的区域保护措施(OECMs)场地级识别工具(第一版)》提供了详细的识别工具和操作指南 “Recognising and Reporting Other Effective Area-based Conservation Measures” and “Site-level tool for Identifying Other Effective Area-based Conservation Measures (OECMs)” provide detailed identification tools and operational guidelines |
在组织建设上紧密依托IUCN Closely rely on the IUCN in terms of organizational development | 2023年, IUCN中国代表处通过系列研讨会, 持续推动OECMs理念的区域和国际交流, 并倡导组建OECMs中国专家组以启动本土化研究 In 2023, the IUCN China Office, through a series of workshops, continued to promote regional and international exchanges on the concept of OECMs and advocated for the establishment of a Chinese expert group to initiate localized research on OECMs | 2024年, IUCN中国代表处联合OECMs中国专家组在多方支持下共同编写的《OECM中国现状研究报告》发布, 报告梳理了OECMs在中国的相关政策和机遇, 识别了中国潜在OECMs的层级与类型 In 2024, the IUCN China Office, in collaboration with the OECMs Chinese expert group and with support from multiple stakeholders, released the “A Stocktaking Report on Other Effective Area-based Conservation Measures in China.” The report outlines relevant policies and opportunities for OECMs in China and identifies the levels and types of potential OECMs in the country. |
在实施应用上充分借助公益力量 Fully leverage the power of public welfare in implementation and application | 2024年, 在生态环境部自然生态保护司的支持下, 由华泰证券资助, 中华环境保护基金会、华泰公益基金会以及山水自然保护中心联合发起“OECMs中国潜力案例”征集, 最终12个案例入选“中国潜力OECMs典型案例”、34个案例入选“中国潜力OECMs入围案例” In 2024, with the support of the Department of Natural Ecological Protection of the Ministry of Ecology and Environment and funded by Huatai Securities, China Environmental Protection Foundation, Huatai Public Welfare Foundation and Shanshui Nature Conservation Center jointly launched the “OECMs China Potential Case Collection”. Finally, 12 cases were selected as “Typical Cases of China’s Potential OECMs” and 34 cases were selected as “China’s Potential OECMs Shortlisted Cases” | 借助“自下而上”的案例征集, 不仅有效挖掘了中国OECMs示范案例, 包括近自然城市绿地、校园、企业厂区、自然友好农田、社区保护地、公益保护地等, 还积极提升了全社会对于OECMs的认知和关注 With the help of the “bottom-up” case collection, we have not only effectively mined China’s OECMs demonstration cases, including near-nature urban green spaces, campuses, enterprise factories, natural friendly farmland, community protected areas, public welfare protected areas, etc., but also actively enhanced the awareness and attention of the whole society to OECMs |
表2 中国的其他有效的区域保护措施(OECMs)行动
Table 2 China’s other effective area-based conservation measures (OECMs) actions
行动层面 Action level | 行动进展 Action progress | 行动内容 Action content |
---|---|---|
在行动计划上支持《昆蒙框架》Support the Kunming-Montreal Global Biodiversity Framework on action plans | ① 2010年, 环境保护部会同20多个部门和单位编制《中国生物多样性保护战略与行动计划》(2011-2030年) (简称初版NBSAP) In 2010, the Ministry of Environmental Protection, together with more than 20 departments and units, formulated the China National Biodiversity Conservation Strategy and Action Plan (2011-2030) (referred to as the First NBSAP) ② 2024年, 发布了《中国生物多样性保护战略与行动计划(2023-2030)》(简称更新版NBSAP) In 2024, the China National Biodiversity Conservation Strategy and Action Plan (2023-2030) (referred to as the Updated NBSAP) was released | 初版NBSAP并未明确提及OECMs, 但在更新版NBSAP的优先行动9 “生物多样性就地保护”中, 对应《昆蒙框架》中的行动目标3, 明确提出了OECMs的行动要求, 包括保护的量化目标及其范围、保护手段、保护优先级、管理有效性等方面。The First NBSAP did not explicitly mention OECMs, but in the updated NBSAP priority action 9 “Biodiversity conservation in situ”, corresponding to the action target 3 of the Kunming-Montreal Global Biodiversity Framework, clearly put forward the action requirements of OECMs, including the quantitative objectives and scope of conservation, protection means, protection priorities, management effectiveness and other aspects |
在国际标准上积极衔接 Actively align with international standards | ① 2019年, 发布了《其他有效的区域保护措施识别与报告指南》 In 2019, Recognising and Reporting Other Effective Area-based Conservation Measures was released ② 2024年, 发布了《其他有效的区域保护措施(OECMs)场地级识别工具(第一版)》 In 2024, Site-level Tool for Identifying Other Effective Area-based Conservation Measures (OECMs) was released | 《其他有效的区域保护措施识别与报告指南》和《其他有效的区域保护措施(OECMs)场地级识别工具(第一版)》提供了详细的识别工具和操作指南 “Recognising and Reporting Other Effective Area-based Conservation Measures” and “Site-level tool for Identifying Other Effective Area-based Conservation Measures (OECMs)” provide detailed identification tools and operational guidelines |
在组织建设上紧密依托IUCN Closely rely on the IUCN in terms of organizational development | 2023年, IUCN中国代表处通过系列研讨会, 持续推动OECMs理念的区域和国际交流, 并倡导组建OECMs中国专家组以启动本土化研究 In 2023, the IUCN China Office, through a series of workshops, continued to promote regional and international exchanges on the concept of OECMs and advocated for the establishment of a Chinese expert group to initiate localized research on OECMs | 2024年, IUCN中国代表处联合OECMs中国专家组在多方支持下共同编写的《OECM中国现状研究报告》发布, 报告梳理了OECMs在中国的相关政策和机遇, 识别了中国潜在OECMs的层级与类型 In 2024, the IUCN China Office, in collaboration with the OECMs Chinese expert group and with support from multiple stakeholders, released the “A Stocktaking Report on Other Effective Area-based Conservation Measures in China.” The report outlines relevant policies and opportunities for OECMs in China and identifies the levels and types of potential OECMs in the country. |
在实施应用上充分借助公益力量 Fully leverage the power of public welfare in implementation and application | 2024年, 在生态环境部自然生态保护司的支持下, 由华泰证券资助, 中华环境保护基金会、华泰公益基金会以及山水自然保护中心联合发起“OECMs中国潜力案例”征集, 最终12个案例入选“中国潜力OECMs典型案例”、34个案例入选“中国潜力OECMs入围案例” In 2024, with the support of the Department of Natural Ecological Protection of the Ministry of Ecology and Environment and funded by Huatai Securities, China Environmental Protection Foundation, Huatai Public Welfare Foundation and Shanshui Nature Conservation Center jointly launched the “OECMs China Potential Case Collection”. Finally, 12 cases were selected as “Typical Cases of China’s Potential OECMs” and 34 cases were selected as “China’s Potential OECMs Shortlisted Cases” | 借助“自下而上”的案例征集, 不仅有效挖掘了中国OECMs示范案例, 包括近自然城市绿地、校园、企业厂区、自然友好农田、社区保护地、公益保护地等, 还积极提升了全社会对于OECMs的认知和关注 With the help of the “bottom-up” case collection, we have not only effectively mined China’s OECMs demonstration cases, including near-nature urban green spaces, campuses, enterprise factories, natural friendly farmland, community protected areas, public welfare protected areas, etc., but also actively enhanced the awareness and attention of the whole society to OECMs |
图1 中国其他有效的区域保护措施(OECMs)行动逻辑的分析框架。PAs: 保护地。
Fig. 1 Analytical framework for the action logic of China’s other effective area-based conservation measures (OECMs). PAs, Protected areas.
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