《生物多样性公约》下我国珊瑚礁养护履约进程与改善建议

Conservation of coral reef systems under Convention on Biological Diversity:China’s performance and suggestions

珊瑚礁生态系统是《生物多样性公约》(下称《公约》)的重点保护对象。自1998年珊瑚礁出现大规模白化现象以来,珊瑚礁养护议题一直受到《公约》缔约方大会的关注。本文通过梳理我国珊瑚礁养护管理的法律法规和相关履约措施,结合海南、广西、广东三省的珊瑚礁资源变化状况,评价我国在履约方面的表现并识别存在的主要差距。研究发现,总体上我国积极采取了多种措施进行珊瑚礁的养护和管理,活珊瑚覆盖度和种类数量有一定程度的恢复,但仍存在相关立法分散、综合性治理方案缺乏、气候变化适应不足、跨部门协调机制不完善、海洋保护区管理有效性不足、资金缺乏且当地社区参与度低、珊瑚礁监测标准和规范简单且不统一、监测数据不足以进行有效评估、国际合作程度低、公众参与度不高等问题。建议我国结合履约要求,与《公约》的目标和精神基本保持一致,并考虑正在讨论的《2020后全球生物多样性保护框架》,进一步完善珊瑚礁养护立法、行动计划和气候变化适应方案,加强综合管理和协调机制建设,提升海洋保护区的管理实效性,改进珊瑚礁监测和数据采集,提升国际合作,进一步提高公众参与度,从而不断提升履约能力,构建更加完善的珊瑚礁养护体系。

Aims Coral reef ecosystems are important protecting targets under the Convention of Biological Diversity(CBD).Since its accelerated bleaching has attracted enormous attention in 1998,the conservation of coral reef systems has been a significant topic in the Conference of the Parties(COP).To review China’s compliance under CBD,this article explores the following questions:Whether China fulfills its obligations to protect coral reef systems as prescribed under the CBD?What are the challenges for protecting coral reef systems in China by considering the requirements of the CBD?What suggestions are there for improving compliance with the CBD?Methods A comparative method was applied to identify the compliance gap under the CBD.Relevant reports on the changes of coral reef systems in Hainan,Guangxi and Guangdong province at national and provincial levels were explored.The law,regulations,and compliance reports of coral reef protection at national and provincial level were investigated.Results The results indicated that China has adopted many specific measures which have reversed the decline of coral reefs in general.However,there are several problems in its compliance,primarily fragmented legislation,the lack of comprehensive strategies and action plans,insufficient adaptation to climate change,inadequate coordination across departments,ineffective management in marine protected areas,low engagement with local communities,unintegrated standards and norms for supervision,poor monitoring data which could not support effective evaluation,little international cooperation,and low public participation.Suggestions This study suggests that compliance measures should be taken in consistency with the goals and spirits of the CBD,and in consideration of the post-2020 CBD framework.These measures include enhancing domestic legislative framework,comprehensive action plan and capacity to adapt to climate change,strengthening integrated management and coordination,improving the effectiveness in management of MPAs,ensuring better monitoring and data collection,better international cooperation and enhancing public participation.