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
王晓倩, 邓毅
生物多样性
2025, 33 ( 3):
24569-.
DOI: 10.17520/biods.2024569
《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。
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 |
View table in article
表2
中国的其他有效的区域保护措施(OECMs)行动
正文中引用本图/表的段落
自2010年爱知目标11首次提出OECMs以来, 中国已在国际生物多样性治理领域展现出领导力, 并从参与者转变为引领者。虽然中国的OECMs仍处于早期阶段, 但已采取开创性举措, 包括在行动计划上支持全球生物多样性框架、积极与国际标准衔接、依托IUCN等国际组织进行组织建设, 并在实施应用上充分借助公益力量等(表2)。这些努力旨在推动中国潜在OECMs的实现或实施, 并为未来的研究和实施奠定坚实基础。
其中, 依据的国际标准包括: (1) 2018年《公约》COP14通过的OECMs的定义、指导原则和标准(IUCN-WCPA, 2019)。定义澄清了PAs和OECMs的空间关系, 表明它们在地理上并不重叠; 指导原则强调了相较于PAs的目标导向, OECMs应呈现出结果导向; 标准给出了潜在OECMs的基础版筛选工具。(2)面向《昆蒙框架》履约, 依据生物多样性保护在OECMs多源管理目标中的重要性差异, 将其划分为主要保护(primary conservation)、次级保护(secondary conservation)和辅助保护(ancilliary conservation) 3种类型。明确不同类型OECMs的功能定位, 可为生物多样性保护提供更灵活和多样化的管理工具, 有效提高保护效率, 并促进社会参与。(3) 2024年IUCN出版的《其他有效的区域保护措施(OECMs)场地级识别工具(第一版)》。该工具分3步指导专家评估团队完成潜在OECMs认定工作, 并对暂不符合认定的区域提供改进信息。(4) 2020年IUCN发布的《基于地点的评估认定方案(草案)》(Marnewick et al, 2020)。通过规范潜在OECMs认定的评估流程, 强调了基于区域的保护治理主体及利益相关方的知情同意权, 以及专家评估团队的职责。
本文的其它图/表
|
