论海岸带综合管理:国际经验与中国实践

Integrated Coastal Zone Management: International Experience and Practice of China

海岸带综合管理具有适应性,超越了海岸带分行业、分部门管理的传统模式,具有综合性、动态性和协调性,体现了人类对海洋的认识和探索。通过法律推动综合管理实践,一些沿海国家缓解了海岸带开发与保护的矛盾。海岸带综合管理的发展可以划分为支离破碎、交流沟通、协调、和谐、一体化五个阶段,并呈现出日益重视生态系统方法、聚焦公共治理机制的建构、遵循陆海统筹原则等新趋势。20世纪90年代以来,我国在沿海多地开展了海岸带综合管理试点,积累了宝贵的经验。未来应加快推进海岸带管理专项立法,建立跨部门长效协调机制,遵循陆海统筹原则,积极采用生态系统方法,加强海岸带综合管理,促进沿海区域可持续发展。

Coastal zones are the interface between land and sea. With a high degree of development, this area suffers from various challenges such as high population pressure, overuse of resources, ecological degradation and serious pollution problems. Integrated coastal zone management(ICZM), as opposed to the traditional management model segmented by different industries and administrative branches, is an adaptive, integrated, dynamic and coordinated approach, a result of the shift in our mindset toward the sea. Participated by multiple parties, ICZM is a governmental action that controls, regulates and influences the behavior of actors within the coastal area with an ultimate aim to achieve sustainable development. ICZM legislation in some countries had led to successful practices that helped balance the development and protection of coastal zones. The idea of ICZM was first put into practice by developed coastal countries since it was created in the 1930s. Later in the 1980s, the model was introduced into China and other developing countries. Based on the integration level among marine administrative bodies, ICZM can be divided into five development stages: Segmentation, Communication,Coordination, Synchronization and Integration. The first stage is characterized by the lack of communication among governmental bodies and the failure to consider the consequences of independent actions upon other institutions. In the second stage, different administrative bodies communicate with each other mainly via meetings. During the third phase, specific actions are taken to achieve interdepartmental coordination. The fourth stage witnesses a jointly drafted management plan that transcends institutional barriers and promotes cooperation. In the last stage, various government organizations work together to establish a long-term coordination mechanism to ensure the achievement of previously set objectives through the collaboration of different industrial sectors. Since the year 2000, the development of ICZM has shown new trends such as increasing emphasis on the ecosystem approach,more attention to the construction of public governance mechanisms, and the adoption of the land-sea integration principle. Since the 1990s, China has strengthened exchanges and cooperation with international organizations for marine conservation, and has accumulated valuable experience through pilot ICZM projects in its coastal areas. To further improve ICZM, China needs to increase its effort in the following aspects: accelerate legislation on ICZM and enact the Coastal Zone Management Act;establish a long-term interdepartmental coordination mechanism at the national level;follow the principle of land-sea integration, and re-plan the industrial development and layout on land fully considering its impact on the sea so as to achieve balanced movement and allocation of resources between sea and land;adopt the ecosystem approach, establish an ecosystem-based, integrated marine management system as well as a supervision and evaluation system, and promote marine management and restoration.This paper is innovative in the following aspects. Firstly, it draws on the experiences of developed countries and analyzes the development trends of ICZM including greater emphases on the application of the ecosystem approach, the participation of multiple parities in building public governance mechanisms, and the integration of land and sea. Secondly, based on the analysis of the pilot projects in Xiamen, Fujian Province, Beibu Gulf in the South China Sea and regions around the Bohai Sea(including Shandong, Liaoning and Hebei Provinces and Tianjin municipality), the paper proposes suggestions covering legislation, establishment of coordination mechanisms and land-sea integration to improve ICZM in China.