科学与政策相互作用视角下的南极特别保护物种制度分析

Analysis of the Antarctic Specially Protected Species System from the Perspective of the Interaction Between Science and Policy

确认脆弱生态系统或需要特别保护物种,然后以此为由建立保护区,渐成为全球海洋治理中一个惯常的、符合“科学”的逻辑。在此背景下,南极特别保护物种制度在近几届南极条约协商会议上成为会议讨论的重要议题。基于对南极条约协商会议的会议文件的分析,本文发现部分国家试图在南极创设和实行“政策目标导向的科学治理”和“保护物种-保护区”的治理逻辑,实质改变现有的南极保护物种制度,使其成为保护区制度的附属品。中国应对这两种治理逻辑持谨慎态度,因为前者可能导致南极条约协商会议在坚实科学基础上采取协商一致的决策机制受到冲击,后者则会使需要保护的物种无法得到有效保护。

Vulnerable ecosystems or species in need of special protection are identified,and then the protected areas are established on that basis.This has become a common and"scientific"logic in global ocean governance.In this context,the regime of the Antarctic specially protected species has become an important topic in recent Antarctic Treaty Consultative Meetings(ATCMs).Through the analysis of the meeting documents of the ATCMs,it is observed that some countries are applying two mechanisms in Antarctic governance,one is a'policy-oriented research-based governance'and the other is'species protection-protected area'mechanism.The two mechanisms may subvert the existing Antarctic specially protected species regime,making it a subsidiary of the protected areas regime.China should be cautious about the two mechanisms,because the former may cause adverse impacts on the consensus decision-making on solid scientific basis adopted by the ATCMs;and the latter will prevent the species in need of protection from being effectively protected.