以生态系统为基础的国际河流流域的管理制度

Study on the ecosystem-based management for the international river basin

生态系统管理是指在对生态系统组成、结构和功能过程的最佳理解的基础上,在一定的时空尺度范围内将人类价值和社会经济条件整合到生态系统经营中,以恢复或维持生态系统的整体性和可持续性。在可持续理论的指导下,采用生态系统管理的方法对国际河流流域进行综合性的开发与管理是发展的必然趋势。因此,国际河流流域管理的理念与制度应向流域生态系统整体保护方向变革。在分析现代国际水法中有关综合性流域管理的法律制度缺失、关于国际水道生态系统保护与保全的规定又过于原则和不全面,严重制约和妨碍了国际河流流域的可持续发展的基础上,提出国际河流流域综合性管理,应以满足人类基本需要和保护生态系统为核心,不能将流域内的环境资源割裂开,应关注流域生态系统整体的保护,更要关注外界因素对流域生态环境的影响,把流域内有关的经济、社会问题也纳入流域管理范围。笔者认为,基于生态系统管理的国际河流流域管理制度的基本原则主要应包括:公平合理利用和不损害国外环境原则;可持续发展原则;整体性原则;预防原则;流域信息共享原则;对阈值进行识别与规定的原则;区域联合管理与国家管理相结合的原则。同时提出构建如下法律架构:行政综合决策制度;流域环境影响评价制度;流域水资源保护与分配制度;流域生态工业及循环经济产业制度;流域生态补偿制度;流域生态恢复与重建制度。

Ecosystem management based on our best understanding of the ecosystem composition, the structure and function, and in defmite spatiotemporal scales, it integrates human values and social-economic principles into managing ecosystems to restore and/or sustain ecosystem integrity and sustainability. Under the direction of sustainable theory, it is the tendency to adopt the method of ecosystem management to develop and manage the intemational river basin comprehensively. Therefore, the concept and system of the intemational river basin management should be changed towards the systematic protection of the river basin ecosystem. On the basis of analyzing the disadvantage of legal regime of comprehensive river basin management in the intemational water law, and also the weakness of regulations of protecting international water course ecosystem, which restricts the sustainable development of intemational river basin, the author suggests that the comprehensive management of intemational river basin may satisfy the basic demand of human beings and also regard protecting ecosystem as its core duty, not separating the environmental resources in the river basin. The author also suggests that the intemational river basin management may pay attention to the protection of basin ecosystem systematically, especially the influences of exterior factors, and the relevant economic and social issues may be taken into account in the basin management. The author considers that the basicprinciple of the intemational river basin ecosystem-based management should mainly include： principle of equitable utilization and no injuring foreign environment; principle of sustainable development; holistic principle; preventive principle; principle of sharing basin information; principle of identifying or stipulating thresholds; and principle of combining regional co-operation management together with the national management. The author also suggests simultaneously that some legal systems may be established as follows： comprehensive decision-making administration systems; estimating environmental influences systems; protecting and distributing water resources in basin systems; eco-industry and circulatory economic industry in basin systems; compensation to environment systems; recovering and rebuilding basin environment systems.