CITES 第二十次缔约方大会：进展、争论与治理转型

doi:10.17520/biods.2026222

生物多样性

CITES 第二十次缔约方大会：进展、争论与治理转型

曾岩^1,2#*, 陆杨^3,4#, 刘薇^4,5, 廖菁⁶, 邢迎春⁷, 季伟⁸, 平晓鸽^1,2, 殷亚方^2,3

1. 中国科学院动物研究所，北京 100101 2. 中华人民共和国濒危物种科学委员会，北京 100101 3. 中国林业科学研究院木材工业研究所，北京 100091 4. 国家林业和草原局野生动植物保护司，北京 100714 5. 中华人民共和国濒危物种进出口管理办公室，北京 100714 6. 国家林业和草原局国际合作司，北京 100714 7. 中国水产科学研究院资源与环境研究中心，北京 100141 8. 上海市野生动植物保护协会，上海 200065

收稿日期:2026-06-12 修回日期:2026-09-01
通讯作者: 曾岩

CITES CoP20: Progress, debates, and governance transition

Yan Zeng^1,2*#, Yang Lu^3,4#, Wei Liu^4,5, Jing Liao⁶, Yingchun Xing⁷, Wei Ji⁸, Xiaoge Ping^1,2, Yafang Yin^2,3

1 Institute of Zoology, Chinese Academy of Sciences, Beijing 100101, China

2 Endangered Species Scientific Commission, P. R. C., Beijing 100101, China

3 Research Institute of Wood Industry, Chinese Academy of Forestry, Beijing 100091, China

4 Department of Wildlife Conservation, National Forestry and Grassland Administration, Beijing 100714, China

5 CITES Management Authority, P. R. China, Beijing 100714, China

6 Department of International Cooperation, National Forestry and Grassland Administration, Beijing 100714, China

7 Resource and Environmental Research Center, Chinese Academy of Fishery Sciences, Beijing 100141

8 Shanghai Wildlife Conservation Association, Shanghai 200065, China

Received:2026-06-12 Revised:2026-09-01
Contact: Yan Zeng

摘要/Abstract

摘要： 2025年是《濒危野生动植物种国际贸易公约》(CITES)生效50周年，第二十次缔约方大会(CoP20)在乌兹别克斯坦撒马尔罕召开。本文系统评述CoP20的主要进展与关键争论，分析CITES在全球野生动植物贸易治理中面临的新挑战与转型趋势。CoP20审议了51项附录修订提案及116项议题，通过了350余项决定。在附录修订层面，高鼻羚羊(Saiga tatarica)哈萨克斯坦种群从禁贸降级为有条件贸易管理；非洲象(Loxodonta spp.)、游隼(Falco peregrinus)等魅力物种的贸易松绑提案仍遭否决；部分商业性渔业物种的列入被会议通过投票大比例否决；植物修订聚焦于注释解释与执法可行性的操作层面。在国际贸易科学治理层面，物种相似性标准的适用、特有物种的分布国权益、真菌纳入CITES管辖等议题分歧显著；而完善遵约机制、应用分子标记与人工智能鉴定技术等，反映了公约在执行层面的探索。与此同时，公约在财政可持续性和社区参与方面的困境进一步凸显。缔约方的关注重心正在从“是否加强贸易管制”转向“如何确保有效执行”。欧盟的议程主导地位在多项议题上受到挑战。全球南方国家进一步积极参与规则制定，在全球生物多样性治理中发挥日益重要的作用。建议我国在加强履约能力建设、强化技术支撑与知识供给的基础上，更精准地参与CITES议题讨论和议程设置。

关键词: 附录修订, 野生动植物贸易, 生物多样性治理, 履约, 全球南方

Abstract

Background: The year 2025 marks the 50^th anniversary of the entry into force of the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES). The 20^th meeting of the Conference of the Parties (CoP20) to CITES was held in Samarkand, Uzbekistan, from 24 November to 5 December 2025. This paper reviews the major progress and key debates of CoP20, analyzing the emerging challenges and transformation trends in global wildlife trade governance under CITES.

Results: The Conference considered a record 51 proposals to amend the Appendices and 116 agenda items, adopting over 350 decisions. A regime of conditional trade management was established for the Kazakhstan population of Saiga tatarica. However, proposals to downlist or relax controls on some charismatic species such as African elephants (Loxodonta spp.) and peregrine falcons (Falco peregrinus) continued to be rejected. Several proposals to list commercially exploited marine species were rejected by a wide margin by the Parties. Plant-related amendments focused on practical implementation issues, particularly annotation interpretation and enforcement feasibility. The European Union's agenda-setting dominance was visibly challenged across multiple agenda items.

Challenges: At the scientific governance level, major disagreements persisted over the application of the look-alike criterion, the rights of range states regarding endemic species, and the potential inclusion of fungi within the Convention's scope. On the implementation front, the strengthening of compliance mechanisms and the application of molecular and AI-based identification technologies reflected ongoing efforts to improve enforcement effectiveness. At the same time, structural challenges in financial sustainability and community participation were further laid bare.

Prospects: CoP20 revealed a clear shift in CITES' focus: from "whether to tighten trade controls" to "how to ensure effective implementation". The Global South is actively engaged in rule-making and playing an increasingly important role in global biodiversity governance. It is recommended that China further strengthen its implementation capacity, enhance technical support and knowledge provision, and engage more precisely in CITES discussions and agenda-setting.

Key words: Appendix amendments, wildlife trade, biodiversity governance, implementation, Global South

曾岩, 陆杨, 刘薇, 廖菁, 邢迎春, 季伟, 平晓鸽, 殷亚方. CITES 第二十次缔约方大会：进展、争论与治理转型. 生物多样性, DOI: 10.17520/biods.2026222.

Yan Zeng, Yang Lu, Wei Liu, Jing Liao, Yingchun Xing, Wei Ji, Xiaoge Ping, Yafang Yin. CITES CoP20: Progress, debates, and governance transition. Biodiversity Science, DOI: 10.17520/biods.2026222.

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链接本文: https://www.biodiversity-science.net/CN/10.17520/biods.2026222

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