Transcript Policy Recommendations to the Chinese Government 国合会首席

中国环境与发展国际合作委员会2011年圆桌会
China Council for International Cooperation on Environment and Development
Roundtable Meeting 2011
给中国政府的政策建议（2010年）
Policy Recommendations to the Chinese Government
国合会首席顾问及其支持专家组
Chief Advisors and Supporting Team
背
景
BACKGROUND
2010年年会关键词
Keywords of 2010 AGM
生态系统管理
Ecosystem Management
绿色发展
Green Development
探索中国环境保护新道路
New Pathway for
Environmental Protection in
China
刚刚闭幕的十一届五中全会
中国共产党第十七届五中全会
为中国“十二五”乃至未来
一段时期的发展构建了一个
“绿色转型”、“以民为本”
的路线图
以科学发展为主题，以加快
转变经济发展方式为主线
调整经济结构、促进科技进
步与创新；
将保障和改善民生作为转变
经济发展方式的根本出发点
和落脚点，把坚持改革开放
作为推动经济发展方式转变
的动力
包容性增长
5th Plenary Session of the 17th CPC
Central Committee
A roadmap to “green transformation”
and “people-centered” during the 12th
FYP period and beyond
The theme of this roadmap is “scientific
development” and the main topics is
“expedited economic growth pattern”
Economic restructuring, technological
development and innovation
Transformation of economic growth
pattern should be based on the
improvement of people’s livelihood;
should be driven by continuous reform
and openness policy
Inclusive development
刚刚闭幕的十一届五中全会
特别是，中国政府提出将建设
资源节约型、环境友好型社会
作为加快转变经济发展方式的
重要着力点
其实质是要通过环境保护优化
中国的经济发展，致力处理好
在快速工业化和城市化过程中
的环境与经济的关系
为此，中国目前正在积极探索
一条以代价小、效益好、排放
低、可持续为特征的环境保护
新道路。
In particular, the Chinese government has
identified the building of a resourceconserving and environment-friendly
society as an important approach to
promote the transformation of economics
growth pattern
environmental protection can improve economic
development, optimize the relationship between
environment and economic development during
the fast industrialization and urbanization process
China is exploring a new pathway for
environmental protection that is featured by:
cost minimization; benefit maximization;
emission reduction; and sustainability.
2010年绿色发展的新进展
过去一年中国政府在应对后金融危
机中保持经济增长和促进绿色发展，
以及建设生态文明等方面所做出的
努力与取得的重要进展
十一五污染物减排目标提前完
成，节能目标有望如期实现
发布《全国主体功能区划》
应对气候变化取得新进展，低
碳经济发展理念正在被全社会
广泛接受
上海世界博览会的圆满成功成
为探索低碳城市和绿色发展的
新亮点
培育和加快发展以清洁、低碳、
绿色为核心的七大战略性新兴
产业
The Chinese government has
made great efforts and substantial
achievements in the post-financial
crisis period.
the 11th FYP’s emission reduction
target is achieved earlier; energy
conservation target is expected.
the National Ecological Zoning Plan
low carbon development is widely
accepted within China
Shanghai Expo has become a
highlight in low-carbon city and
green development.
Seven strategic emerging industrial
sectors, featuring clean, green and
low-carbon development.
推动绿色发展需要高度关注生态系统服务的问题
在应对金融危机过程中，绿色
发展成为世界潮流
绿色发展是丰富的生物多样性
及其健全的生态服务支撑下的
人与自然的协调发展
供给服务；
支持服务；
调节服务；
文化服务
研究表明，全世界60%的生态
系统服务退化；2007年全球人
均生态足迹超过当年生物承载
力50%
The concepts of green development
gained international recognition during the
financial crisis
Harmonious relationships between people
and nature are at the center of green
development underpinned by healthy
ecosystems and sound eco-services.
Provision Service
Supporting Service
Regulating Service
Cultural Service
60% of the world’s ecosystems are
degrading; per capita global ecological
footprint exceeds per capita biological
carrying capacity by 50%.
中国面临的生态系统服务的挑战
经过多年的巨大努力，特别是持续
的投入保障和长期坚持的植被建设
与保护工程，中国的生态保护与建
设取得了较大进展，为社会经济发
展和确保生态安全奠定了较为坚实
的基础。
中国绿色发展面临的一个基本挑战
有限的自然资源和生态系统服务能力
与不断增长的经济社会需求之间的矛
盾
突出表现在生态系统面临着持续退化
的压力，严重的环境污染直接影响到
许多生态系统的服务功能，削弱了实
现绿色发展的基础
After years of tremendous efforts, in
particular continuous input for the
restoration and enhancement of forest
and grasslands programs, China has
achieved considerable progress in
ecological protection and recovery, and
has laid a fairly solid basis for social and
economic development as well as for
ecological security.
China’s Green Development faces one
basic challenge:
the conflict between limited resources and
ecological capacity and the increasing
economic and social demand on natural
systems of all types.
Such a conflict has resulted in continued
ecological degradation, serious
environmental pollution that affects
ecological functions, and a weakened basis
for green development.
中国面临的生态系统服务的挑战（续）
2007年中国的人均生态足迹尽管低
于世界平均水平，但已是其生物承
载力的2倍；尽管增速减缓，但生
态赤字逐年扩大
今年中国全国范围内频繁发生的旱
灾、洪涝、泥石流、台风、地震等
重大自然灾害给中国的警示，凸显
了生态系统的脆弱性和提高生态系
统服务水平的迫切性。
未来气候变化将会对已不堪重负的
生态系统产生更大的压力。
In 2007, China’s ecological footprint per
capita is lower than the world’s average
level, but it is 2 times of her biological
carrying capacity. Meanwhile, the
ecological deficit is increasing annually.
The frequent natural disasters plaguing
China this year, such as droughts, floods,
landslides, typhoons and earthquakes.
These disasters have raised alarm bells.
They have exposed the fragility of
ecosystems, and, in some instances, the
desperate need for enhanced ecoservices.
In the future, climate change will place
even more pressure on overworked
ecosystems.
国合会今年如何关注生态系统服务问题
中国进入绿色转型的关键
时期，在生物多样性保护
年，国合会研究生态系统
管理与绿色发展问题意义
重大
国合会今年
对（陆地）生态系统（森林、
草地、湿地）和海洋生态系
统开展了课题组研究；
围绕水、土壤等重要生态系
统要素，以及生物多样性保
护、生态足迹等共性问题开
展了专题研究。
Both theory and practice show
that improved ecological
management can help protect
biodiversity and enhance
ecological services.
CCICED established two task
forces this year.
One studied key ecological
factors in terrestrial ecosystems
(forest, grassland and wetland)
the second examined sustainable
use of China’s marine and
coastal ecosystems.
一、转变观念和方法，重构生态
环境保护与建设的国家战略
CHANGE UNDERSTANDINGS AND MANAGEMENT
APPROACHES REGARDING ECOSYSTEM SERVICES AND
MANAGEMENT, AND RECONFIGURE THE NATIONAL
STRATEGY ON ECOLOGICAL PROTECTION AND
DEVELOPMENT
背景
BACKGROUND
中国的生态保护与建设实践还
存在很多问题：
在认识上，重生态系统的资源供
给服务，轻调节、支持和文化服
务的倾向；
在管理方式上， 基本上是按照生
态系统要素划分部门管理职能、
按行政区划实施管理措施，没有
很好地遵循生态系统整体性、地
域性规律对管理的内在要求；
在机制上，主要是政府主导的
“自上而下”的方式，公众和社
区的自主参与严重不足。
生态系统管理的部门职能交叉重
叠，责权利不清，政出多门，规
划、法律和政策各自为战，重建
设轻保护，效率不高和效果不好
等现象不同程度地普遍存在。
Serious problems exist in ecological
protection and development in China
A great deal of attention is given to the
provisioning services that ecosystems
provide. But other functions and
services of ecosystems often tend to
be undervalued or neglected during
development.
the mandates of regulating agencies
are basically divided by sectors related
to economic goods and jurisdictions.
The implementation mechanism is
largely “top-down” , with the
government playing a guiding role while
the spontaneous engagement of
communities and the general public
remains seriously inadequate.
The overlapping of mandates among
different regulating authorities blurs
their responsibilities, powers and
interests related to ecosystems.
国合会建议
CCICED Recommend
必须转变观念和方法，以
形成健康的生态系统及其
健全的生态服务功能为目
标，以实施生态系统管理
方式为核心，重构生态环
境保护与建设的国家战略。
China should change its views
and approaches regarding use
of natural capital; set healthy
ecosystem and highly
functional eco-services as a
key goal; and take a holistic
ecosystem management
approach. With this change,
key goal and principle in mind,
reconfigure the national
strategy on ecological
conservation and development
in an effort to enhance the
overall economic and social
value of China’s natural capital.
具体建议
Including
1、转变观念，科学认识生态系
统的整体性规律和多种生态服
务功能的重要性。
增强全社会保护生态环境的认知
水平和参与意识；
彻底转变管理观念，
将保护、改善和发挥生态系统
的调节、文化和支持功能与供
给功能放在同等重要的地位，
将形成健康和有弹性的生态系
统和健全的生态服务作为生态
保护与建设的目标，
将生物多样性保护纳入生态保
护与建设的主流，
将生态系统管理方式作为保护
与建设的基本方法，确立从
“山顶到海洋”的大系统战略
思路。
1. Change views and recognize the
holistic and multi-function nature of
China’s ecosystems from a scientific
development point of view.
To raise the awareness and
participation of policy makers and the
general public in ecosystem protection.
To transfer management ideology:
To place equal attention to functions of
ecological regulatory processes, cultural
enjoyment and ecological support
A healthy and resilient ecosystem with
continuously improved eco-services
Biodiversity conservation should be
mainstreamed in development strategies
A holistic and integrated view of
ecosystem management embracing the
linkages from mountain tops to China’s
ocean should be upheld as a basic
approach in managing the ecosystem.
2、制定国家中长期生态环境保
护与建设战略纲要，建立统一
协调的行动框架
应制定《国家中长期生态环境保
护与建设战略纲要》
将森林、草原、湿地、海洋、土壤、
水等生态系统的保护与建设，生多
保护、生态保护和污染防治纳入到
一个统一、协调的行动框架下
确定中长期国家生态环境保护与建
设的目标与任务
根据国家战略纲要，再制定和实
施不同重要生态系统的保护与建
设的规划和措施。
2. Introduce National Medium & Long
Term Strategic Guidelines on
Ecological Protection and
Development, establish a coordinated
action framework.
To draft National Medium to Long Term
Strategic Guidelines on Ecological
Protection and Development.
To incorporate the protection of all
ecosystems, including forest, grassland,
wetland, ocean, soil and water, as well as
the endeavors of biodiversity
conservation, ecological preservation and
pollution control
To identify the medium to long term
targets and tasks for ecological protection
and development in China
Based on the proposed Guidelines,
subordinate plans or measures
targeting specific types of important
ecosystems should be developed.
3、构建生态环境保护与建设的
大部门体制与机制，提高公众
和社会团体参与的程度
现阶段要着眼于建立有效的部门
协调机制，逐步形成生态保护与
建设的合力。通过建立生态服务
共享和补偿等利益调整机制
鼓励公众、社区、企业、非政府
组织积极参与生态保护与建设
形成“自上而下”与“自下而上”
相结合的治理方式。
3. Build an overarching institutional
and administrative mechanism for
ecological environmental protection;
Improve the participation of public
and organizations.
First set up an effective coordination
mechanism among relevant authorities,
and gradually form a unified force for
ecological conservation.
Encourage wider participation by the
public, communities, enterprises and
NGOs in ecological protection through
the introduction of incentives including
eco-services sharing and
compensation.
By doing this, both “top down” and
“bottom up” approaches can play a role
in managing the ecosystem.
二、强化管理，让重要陆地生态系统
休养生息
STRENGTHEN ENVIRONMENTAL MANAGEMENT AND ALLOW
KEY TERRESTRIAL ECOSYSTEMS TO REHABILITATE
背景
中国在大约34.9%的陆地国土上承载
着96%的人口，持续而快速增长的经
济社会活动对森林、草地、湿地、水
体等陆地生态系统提供的多重服务需
求巨大，生态系统不堪重负：
中国的森林覆盖率虽持续增长，但
森林资源总量不足，分布不均，服
务功能差的态势非常明显；
草原和湿地生态系统仍处于局部改
善而整体恶化的态势；
土壤退化状况愈趋严重，部分地区
土壤污染严重，成为危害生态环境、
危及食品安全的重要因素，严重威
胁公众健康；
水生态系统的自然生态服务功能退
化明显；
物种濒危程度加剧，遗传资源不断
丧失和流失。
More than 96% of the Chinese population lives
on 34.9% of the land territory. Continuous and
fast growth of economic and social activities
brings about huge demand for the multiple
services from terrestrial ecosystems, including
forest, grassland, wetland and other freshwater
aquatic systems.
In spite of increasing forest coverage, most of China’s
forests remain inadequate in total volume, imbalanced
in distribution and poor in eco-services;
the overall grassland and wetland quality continues to
deteriorate despite improvement in certain areas;
soil problems, including soil erosion, desertification,
salinization, nutrient impoverishment, and soil pollution,
have become increasingly serious. In some areas, soil
has been so badly polluted that it becomes a threat to
ecological safety, food safety and human health.
Furthermore, water ecosystems provide much poorer
eco-services than before and their biodiversity has
decreased.
The status of endangered species is deteriorating,
genetic resources are lossing.
国合会建议
从陆地生态系统的整体性
出发，用系统和协同的方
法，从法律、规划、政策、
管理制度、投入等方面，
大力加强生态保护与建设，
让重要陆地生态系统及相
关水生态系统休养生息。
China should regard the
terrestrial ecosystems as a
whole; use systematic and
coordinated approaches to
improve terrestrial ecosystems
management; introduce
relevant laws and regulations,
plans, policies, and measures;
and grant more financial
support to ensure success of
these measures. The
measures will help the
important terrestrial and their
associated aquatic ecosystems
to recuperate.
具体建议
1、分类指导，因地制
宜，调整和制定重要
陆地生态系统保护与
恢复规划
在建议制定的国家中长期生
态环境保护与建设战略纲要
的统领下，针对重要陆地生
态系统及其水生态系统，按
照自然地理区域和流域的生
态分布规律和特征，建立彼
此相互联系、支持和协调的
各专项生态保护与建设规划
近期尽快制定《中国土壤环
境保护规划》
1. Take into consideration of the
characteristics of different land
ecosystems and regions, and amend
or draft protection and recovery plans
on important terrestrial ecosystems.
In light of the proposed National
Medium to Long Term Strategic
Guidelines on Ecological Protection
and Development, sub-plans on
specific terrestrial and freshwater
aquatic ecosystems can be formulated
on the basis of geographical
distribution and ecological boundaries.
It is particularly urgent to introduce a
national plan on soil environmental
protection
2、加强生态系统管理
的法治建设
完善生态系统管理的法律法
规体系，在相关的立法、法
律修订和执法过程中贯彻生
态系统完整性原则，注重体
现政府、企业与社会公众等
利益相关方的生态责任
尽快制定专门的土壤环境保
护与污染防治法，完善土壤
环境标准体系，制定国家和
地方土壤环境质量指导标准。
制定关于生物多样性保护的
框架法律
2. Strengthen legislation on
ecosystem management.
The legal system for ecosystem
management should be continuously
improved. Throughout the legislation,
revision and implementation process,
China should safeguard the holistic
nature of the ecosystem, consider the
ecological responsibilities of the
government, enterprises and the public,
and try to build a sound legal basis that
helps balance the interests of different
stakeholders.
To issue a law on soil environmental
protection and pollution treatment and
to introduce national and local
standards for soil environmental quality.
An umbrella law on biodiversity
conservation should be mapped out,
3、明确生态系统管理的责任，建
立跨部门、跨地区的综合协调机制
将生物多样性保护和生态系统管理
纳入工业、农业和其他产业部门的
工作之中，明确省级人民政府对生
态系统管理的责任
在中央层面，特别是在涉及跨省
（市、区）的大流域生态系统管理
领域，要建立跨部门、跨地区的综
合协调机制
在生态建设规模大、任务重的中西
部省（市、区）建立省级和省际生
态系统管理和协调机构，使其成为
生态建设、规划和管理的决策主体
促进和提高生态系统管理中的公众
参与，推行企业社会责任；加强社
区的能力建设；增强公众对生态系
统保持健康状态重要性的认知
近期抓紧探索建立适合中国国情的
土壤环境监管体制，强化国家级生
物多样性保护专门机构和协调机制。
3. Clarify the responsibilities of relevant authorities,
and establish a comprehensive cross-sector and
trans-regional coordination mechanism.
The responsibility of biodiversity conservation and
ecological preservation should be mainstreamed
into the portfolio of the economic, industrial and
agricultural agencies. The responsibilities of local
governments have to be clarified.
At the central level, cross-sector and trans-regional
coordination mechanisms should be established
and strengthened, especially for major river basins
covering many provinces.
The coordination mechanism should clarify the
labor distribution between the central and local
government, among national agencies, and
between upper and lower jurisdictions.
Encourage deeper public participation in ecosystem
management, promote corporate social
responsibility ; strengthen capacity building in
communities and incorporate ecosystem protection
into school curriculum as well as education and
publicity programs
Establishing a soil environmental supervision
system, and strengthen national regulation and
coordination concerning biodiversity conservation.
4、增强对陆地生态系统保护和管
理的长期投入
建立和完善多元化的投融资机制
继续实施退耕还林（草）、天然林
保护、京津风沙源治理、退牧还草、
湿地保护和水土保持等生态建设工
程
在中西部生态脆弱区，规划和实施
新的生态保护与恢复工程
将江河源头区、严重水土流失区、
重要饮用水源地、自然保护区和重
要生态功能保护区等纳入国家生态
保护和建设工程的范围，
统一规划，分省区实施，并通过中
央财政转移支付、专项建设资金和
生态补偿等资金机制，为中西部生
态保护与建设提供稳定的资金支持。
培育生态建设产业和市场
切实解决污染土壤预防和修复治理
的资金机制
建立并加强对生态保护与管理项目
资金筹集、分配与使用的评估和审
计体系，提高资金效率和效果。
4. Increase long term input for the
protection and management of terrestrial
ecosystems.
Increase long term financial input by exploring
and leveraging multiple investment and
financing channels,
Existing ecological programs need to be
continued
For the ecologically fragile regions in central
and western China, there should be plans
developed for, and the introduction of new
ecological programs that cover river basins and
their source water areas, seriously eroded
areas, key ecological function conservation
areas, and for China’s extensive network of
nature reserves.
Foster ecologically-dependent industries and
markets,
Create a financial mechanism for soil
remediation,
Build an evaluation and auditing system to
oversee the collection, distribution and use of
ecological funds, ensuring the effectiveness of
these funds.
三、强化科技创新与支撑，切实
加强生态系统管理的能力建设
PROMOTE SCIENTIFIC INNOVATION, IMPROVE
TECHNOLOGICAL SUPPORT, AND STRENGTHEN CAPACITY
BUILDING ON ECOSYSTEM MANAGEMENT
背景
当前，中国生态系统管理的科技支
撑和能力显著不足，生态系统管理
决策和实践缺乏坚实的科学基础。
对主要生态系统及其变化的监测不
足，生态系统管理相关的科学研究、
决策、监督和公众参与缺乏实时、
可靠和开放的基础数据支持；
生态系统监测与研究的网络体系部
门化现象明显，相关部门的监测和
研究获取的有效数据和成果的共享
和转化机制尚未形成；
第生态系统服务与管理方面的基础
研究、应用研究和技术开发尚显薄
弱，不能有效支撑生态系统管理决
策和实践的需求；
生态系统服务与管理的科学研究缺
乏向政策、决策和实践转化的有效
渠道。
Currently, one prominent problem in ecosystem
management is the lack of scientific support and
management capacity. Relevant policies on
ecosystem management and the implementation
process of these policies are not well supported by
scientific studies.
China does not have adequate monitoring of its main
ecosystems and their changes. Hence timely,
accountable and transparent data on ecosystems is
limited for researchers, policy makers, supervisors and
the general public.
Each relevant agency has its own independent network
of ecosystem monitoring and research, and the data
and results gained are neither commonly applicable for
decision making nor readily available to other agencies.
Basic research, applied research and technological
development on ecosystem services and management
remain weak and they could not satisfy the needs of
decision making and policy implementation.
China lacks a mechanism for the scientific results to be
successfully applied in policy making and
implementation. What we see right now is that large
amounts of available scientific results cannot be applied
in daily work, and policies and plans on ecosystem
protection and recovery are not well founded on
scientific studies.
国合会建议
建立和完善全国和重点
区域生态系统状况的可
测量、可核查、可报告
的国家生态系统监测与
评估体系，大力加强生
态系统管理的科技支撑
与能力建设。
China should set up and
continuously improve a
measurable, verifiable and
reportable monitoring and
evaluation system on
China’s ecosystems to cover
the whole country and in
particular the key ecological
regions. More input should
be given to scientific
research and capacity
building on ecosystem
management.
具体建议
1、建立国家生态系统观
测研究网络
在国家层面完善区域生态系
统野外科学观测研究网络布
局
提供长期稳定的经费支持，
统一技术规范、数据标准和
共享机制，
为生态系统管理提供关键科
学数据、优化管理示范模式
和关键技术。
1. Set up a national
observation and research
network on the ecosystem.
The central government should
improve the outdoor observation
and research network for regional
ecosystems
Support the network by long-term
and stable financial resources,
Unify relevant technical and data
standards.
To provide key scientific data,
develop key technologies and
improve management of
ecosystems and their services.
2、定期开展国家生态系统状况
评估，建立适应重点区域管理
的生态系统监测评估体系
在森林、草地、湿地、海洋、土壤、
水、生物多样性等资源普查和本底
调查的基础上，运用国家生态系统
观测研究网络、遥感分析和模型模
拟技术等，分析脆弱生态系统问题
演变态势，客观评价生态系统服务
的变化过程，开展五年一次的综合
评估
建设重点区域生态系统“空—地”
一体化监测体系，实现重点区域生
态系统的连续系统监测，全面把握
生态系统变化态势和生态建设工程
所取得的生态成效与问题，提出具
有针对性的应对方案
2. Carry out regular evaluation on the
status of China’s ecosystems, and set up
monitoring and evaluation systems for
adaptive management of ecosystems in
key regions.
Comprehensive evaluation of China’s
ecosystems should be carried out every five
years in order to illustrate a full picture of the
ecosystem and support the formulation of
the Five Year Plans. These evaluations
should utilize the results of various censuses
and surveys on forests, grasslands,
wetlands, oceans, soil, water and
biodiversity; make use of the national
observation and research network on
ecosystems, and apply remote sensing,
modeling and other technologies
Establish an air to ground monitoring system
for key ecosystems and have systematic and
non-stop monitoring in these regions.
3、开展生态系统服务
与管理的基础理论研
究、关键技术开发和
成果应用
研究主要退化生态系统的特
点和区域分布
研究和开发生态恢复的关键
技术和优化模式应用示范
研究和总结中国不同地区不
同生态系统的优化管理模式，
建立适合当地生态区特点的
技术规范和模式
3. Carry out basic studies on and
develop key technologies of
ecosystem services and management,
and promote their application.
Study the features and regional
distribution of the main types of
degrading ecosystems in order to
define the mechanism and pattern of
their degradation.
Based on these studies, key
technologies for ecological recovery
should be developed, with promotion of
their application.
Review different management models
and apply the management system that
suit the localities best. In this way, our
ecological preservation efforts can be
more effective and sustainable.
4、加强对土壤环境监管工作的
科技支撑
建立不同地区和不同农产品产区优
先控制污染物清单。
筛选和建立污染土壤修复技术体系，
开发污染土壤修复技术与装备
对于急待开发的污染场地土壤，重
点研发快速的物理、化学联合修复
技术，提高修复的效率，降低修复
成本。
针对农田土壤（含污灌区），要着
力发展能大面积应用、安全、低成
本、环境友好的生物修复技术和物
化稳定技术，实现边修复边生产
鼓励发展农田土壤环境中重金属污
染植物修复技术。
4. Strengthen scientific support for soil
pollution management
Formulate catalogues on controlled
pollutants in different regions and
agricultural fields,
Set up a screening system of soil
remediation technologies and develop soil
reclamation technologies and equipment.
For contaminated sites urgently needed for
development, Chinese authorities should
develop and apply fast remediation physical
and chemical technologies so as to raise
efficiency and reduce costs.
For polluted farmlands, including fields
irrigated by polluted water, however, the
priority should be to introduce safe,
economical and environment-friendly
biological and physical-chemical solutions
that suits larger areas
Ecosystem restoration policies should
encourage the development and use of biobased remediation technologies for removal
of heavy metals in farmlands, for example
the use of plants that take up these elements
from the soil.
四、高度重视海洋生态系统管理，
促进海洋可持续发展
PLACE MARINE ECOSYSTEM MANAGEMENT HIGH ON THE
POLICY AGENDA AND PROMOTE SUSTAINABLE MARINE
DEVELOPMENT
背景
中国是海洋大国，目前的海洋
生态环境形势不容乐观，海洋
承担着很多陆地不可持续行为
的污染后果，如废弃物填埋、
耕地过度开垦、来自农业、工
业的污染等，造成许多海域近
海环境污染严重
目前中国的海洋生态环境管理
严重滞后：
缺少统一的国家海洋基本法；
缺乏能够统筹陆地流域和海洋的
综合战略规划；
海洋环境管理存在结构性缺陷
条块分割的管理模式将统一的海洋
生态系统人为分解为不同领域，由
不同部门监管，使得不同海洋自然
资源或生态要素及其功能被分而治
之，不能根据海洋生态系统的整体
性进行综合管理。
China has a vast marine territory.
China’s ocean is currently facing
challenges at an unprecedented scale.
China’s ocean ecological and
environmental management largely
lagged behind the demand for
improving the degraded ocean
ecology and environment.
An umbrella national law on the sea is
still absent;
A comprehensive strategic plan that
incorporates the impacts of rivers and
coastal land use on the sea is also
lacking;
There is a number of institutional
deficiencies in China’s marine
environmental management system.
国合会建议
中国应充分考虑陆地、流域、
沿海地区发展对海洋生态系
统的影响，以生态系统为基
础，坚持陆海一体、河海一
体的基本原则，统筹海洋开
发与生态环境保护之间的关
系，统筹沿海区域和流域的
经济社会发展，加强海洋生
态环境保护与建设，提高海
洋的生态系统服务能力，确
保海洋资源的可持续利用。
近期高度关注渤海流域，制
定中国海洋绿色发展战略，
实现海洋经济社会和环境资
源的协调发展。
Taking into account the impacts of development in
river basins and coastal lands on China’s marine
and coastal ecosystems, and of marine effects on
cities and terrestrial areas, the government of
China should develop mechanisms to reduce the
impact of land-based sources of environmental and
ecological problems in the seas of China. As well,
China should strengthen marine ecological
protection and scientific sustainable development
as the basis for all present and future economic
development in the ocean. Only in these ways will
it be possible to guarantee sustainable ocean use,
with continued growth in the contribution of the
ocean economy to China’s GDP growth. Currently
there is no green development strategy for China’s
seas. The most obvious and immediate case in
need of such a strategy is the Bohai Sea.
具体建议
1、建立健全海洋管理
法律法规体系
尽快启动《中华人民共和国
海洋基本法》的立法程序
制定《中华人民共和国海岸
带管理》和《中华人民共和
国渤海区域环境管理法》
尽快完善《海洋环境保护法》
配套条例、办法、规定、标
准的制定
在海洋管理立法中，要以生
态系统管理方式为基本原则，
以全面保护和改善海洋生态
系统的多功能为目标
1. Set up and improve the legal system
of marine management
Initiate the legislation process for the
Basic Law of the Sea of the People’s
Republic of China asap
Draft the Coastal Zone Management
Law of the People’s Republic of China
and the Bohai Sea Environmental
Management Law of the People’s
Republic of China
The supporting regulations, methods,
rules and standards of the Marine
Environmental Protection Law should
be formulated or improved at the
earliest date
In all laws concerning use of the sea,
China should abide by the principle of
holistic ecosystem management and
set substantial improvement and
protection of marine ecosystems as a
goal.
2、尽快制定国家海洋生
态环境保护战略与规划。
在综合评估《中国海洋21
世纪议程》的基础上，研
究制定新的《中国海洋和
海岸带可持续发展战略》
提出未来20年中国海洋
和海岸带可持续发展的
基本原则、指导方针和
战略目标
提出沿海区域经济发展、
海洋经济发展、海洋环
境保护和资源养护的重
点任务，
规划应优先考虑围填海、
富营养化带来的赤潮和
渔业等紧迫问题。
2. Map out a national strategy
and plan on marine ecological
protection
Drawing upon the China Ocean
Agenda 21, China should
consider formulating a new China
Strategy on Marine and Coastal
Sustainable Development.
Map out the basic principles,
guiding philosophy and strategic
targets in the next 20 years
Detail the key tasks for coastal
and marine economic
development, marine
environmental protection and
resource preservation.
Prioritize such issues as sea
reclamation, addressing marine
eutrophication and its impacts
such as toxic red tides, and
fishery development.
3、建立陆海统筹的海
洋生态环境管理协调机
制
短期内应设立国家海洋委员
会，协调陆海统筹和不同部
门间的海洋环境管理事务
国家海洋委员会的首要任务：
制订国家海洋发展战略；
强化各涉海管理部门之间的
沟通；
协调和指导海洋发展中跨部
门、跨行业、跨区域的重大
事项；
将解决渤海生态环境问题作
为最优先的工作任务。
3. Establish a terrestrial & marine
coordination mechanism for the
marine environment management
Set up a National Marine Committee for
the time being
The main tasks of the Committee
should include:
Formulating a national strategy on marine
development,
Promoting communications among
relevant agencies
Coordinating major marine affairs that
involve different agencies, sectors and
regions.
Among them, the first priority should be
solving the ecological problems in the
Bohai Sea.
4、采取基于生态系统管理方式的
海洋综合管理对策
以生态系统为基础修编海洋功能区划
建立围填海红线制度，确定海岸带/海洋
生态敏感区、脆弱区和生态安全节点，
确定优先保护区域；
对典型的生态系统、珍稀和濒危物种建
立海洋自然保护区、海洋特别保护区及
海洋公园，形成海洋保护区网络;
在典型海洋生态系统集中分布区、外来
物种入侵区、海岛、气候变化影响的敏
感区等实施典型生态修复工程，建立海
洋生态建设示范区，恢复海洋生物多样
性维护能力，提高抵御海洋灾害和应对
气候变化能力;
建立海洋生物资源养护与增殖体系;
大力发展环境友好型海水养殖业，发展
碳汇渔业新模式，改善水域生态环境；
采取“以海定陆”的原则，兼顾技术经
济可行性，以削减农业、工业污染负荷
为高度优先，制订流域-河口污染控制方
案；
加强流域水利工程对河口水沙调控的综
合管理，将入河口泥沙锐减导致的三角
洲海岸侵蚀造成的负面影响降到最低。
4. Introduce an ecosystem-based
approach to marine management.
Ecosystem-based sea zoning plan;
Mark the protected areas on the sea;
Form a network of protected areas on the sea ;
Carry out ecological recovery programs and set
up demonstration areas of marine preservation,
Establish conservation and proliferation system
for marine species;
Expand sea farming in an environment-friendly
way, promote the carbon sink functions of
fishery and improve ecosystem capabilities;
Introduce the approach of determining inland
pollution cap based on the receiving capacity of
the sea, reducing agricultural and industrial
pollution loads on the ocean should be high
priorities;
Strengthen mud and sand regulation by dams
and minimize negative effects of delta erosion
caused by sudden decrease of mud and sand
volume.
5、健全海洋重大污染事件
风险预警及应急响应制度。
按照国际海洋生态保护的预
防预警原则，建立健全海洋
重大污染事件风险预警及应
急响应制度。
在建议设立的国家海洋委员
会下设海洋重大污染事件应
急响应与处置领导小组，领
导和协调部门的应急行动，
健全海洋污染事件应急响应
制度。
建立海洋重大污染事件通报
和区域潜在环境风险评估、
预警及信息共享机制，完善
区域突发海洋环境事件应急
处置体系，加强对潜在环境
风险责任主体的监督管理
5. Build up the early warning and
emergency response system of
serious marine pollution incidents.
Set up and continuously improve
the early warning and emergency
response system of serious
pollution incidents on the sea
Under the proposed National
Marine Committee, China could
establish a Leading Group on
Emergency Response to Major
Marine Pollution
Establish mechanisms on
notification of major marine
pollution, for evaluation of potential
environmental risks, and for
improving early warning and
information sharing issues
6、建立陆海一体化的生
态环境监测和预测体系。
整合流域-河口-海域的监测工作，
统一监测指标和技术标准，构
建大气、流域、海洋/海岸带一
体化环境监测体系，建立信息
共享平台，促进数据共享。
近期，增加NOx作为大气监测
和控制指标，增加营养盐（总
氮和总磷）作为流域水环境监
测和控制指标。
开展流域-海域生态系统相关科
学问题综合研究。
在沿海人口与经济活动密集区
建立从环境监测网络、实验研
究、野外台站观察和区域生态
修复示范为一体的海洋生态环
境研究和监测体系。
6. Set up an integrated environmental
monitoring and analysis system that
covers both the land and the sea
Combine the work of upstream-water
mouth-sea monitoring, set unified
monitoring indicators and technical
standards, build an integrated monitoring
system that covers air, river basins, the
sea and coastal areas, and set up an
information sharing system.
add NOX as a new indicator for air
monitoring and control, and total nitrogen
and phosphorus as new indicators for
water monitoring and control.
Carry out scientific research on river
basin-ocean linked ecosystems and
deepen understanding of the marine
ecosystems
China should create an integrated
research and monitoring network in the
populous and economically prosperous
coastal.
五、抓住薄弱环节，强化关键领域，
推进中国“十二五”经济发展方式的
绿色转型
ATTACH GREATER IMPORTANCE TO WEAK LINKS, STEP UP
EFFORTS IN KEY FIELDS, AND HELP PROMOTE THE GREEN
TRANSITION OF ECONOMIC DEVELOPMENT PATTERN
DURING THE 12TH FIVE YEAR PLAN PERIOD
背景
“十二五”期间是中国全面建设小
康社会的关键时期，是转变经济发
展方式的攻坚时期，也是实现绿色
转型、走绿色发展道路的重要机遇
期。
既要对中国共产党十七届五中全会
为未来五年中国构建的绿色转型的
路线图充满信心，又要清醒地认识
到绿色转型面临的可预见的和不可
预见的困难和挑战。
“十二五”期间，中国面临的资源
环境矛盾更加突出，人民对良好生
态环境的要求更加迫切，应对气候
变化等国际环境问题的形势更加严
峻，节能减排的边际效益递减更增
加了实现环境与发展目标的难度。
The 12th Five Year Plan period is critical for
China’s efforts towards an all-round well-off
society, this period is also a pivotal time to
transform the existing economic development
pattern, and it brings strategic opportunities for
green transition and green development.
Council members have full confidence in
achieving the targets towards green transition
in the next five years put forward by the 5th
Plenary Session of the 17th CPC Central
Committee; however, it is clear that there will
be both foreseeable and unexpected difficulties
and challenges during the process of green
transition.
In the next five years, China will shoulder
heavier resources and environmental pressures,
people’s call for a good ecological environment
will become stronger, the country will face more
challenges in tackling climate change, and it
will be more difficult to achieve environment
and development targets due to diminishing
marginal utility.
国合会建议
“十二五”期间，中国在环境与发
展领域的中心任务和目标应该是统
筹好保护环境与转变发展方式的关
系，在改善环境质量和推动绿色发
展上获得双赢，探索出一条环境保
护新道路。要完成这一任务和目标，
不仅要强化那些已被重视的环保领
域和实践证明确有成效的政策措施，
继续加强节能减排，而且还要紧紧
抓住和大力加强目前尚处薄弱的领
域和亟待强化的政策措施，全面加
强生态系统管理和农村环境保护，
提升生态环境保护对促进经济发展
方式绿色转型的作用。
China’s core mission in the field of environment
and development during the next five years is
to integrate environmental protection and the
shift in economic development pattern; to
achieve success in both improving
environmental quality and promoting green
development; and to explore a new path for
environmental protection. To fulfill this mission,
it is necessary to not only step up efforts on
traditional priorities and strengthen policies and
programs that proved to be effective, including
the energy conservation and pollution reduction
program, but also give more attention to weak
links that require immediate actions, including
ecosystem management and rural
environmental protection. These actions will
help give full play to the role of ecological
protection in promoting the green transition of
economic development pattern.
具体建议
1．强化关键领域及其政策措施，
助推经济发展方式的绿色转型。
严格环境影响评价，从源头调
整产业结构和空间布局；
提高环境标准，严格环境执法，
从上游和末端倒逼产业结构调
整
推动环境产品认证，引导绿色
消费
制定环境经济政策，引导传统
企业的绿色转型，培育新兴和
环保产业
提高环境信息公开程度，引导
公众参与绿色发展；
加强环境科技和政策创新与应
用，为绿色发展提供技术和智
力支持。
1. Step up efforts in key fields and
promote the green transformation of
economic growth pattern.
environmental impact assessment should
be carried out more strictly and
systematically;
raise environmental standards, tighten
environmental enforcement and force the
industrial structure to adjust by both
source and end measures;
promote environmental product
certification and encourage green
consumption;
introduce environmental economic
instruments, guide the traditional
enterprises to “green” themselves and
foster emerging and green industries;
deepen environmental information
disclosure programs and encourage
public participation in green development;
provide technical and scientific support to
green development through
environmental innovation and
technological application.
2．全面加强农村生态环境保护，
缩小城乡生态文明建设差距。
研究制定农村生态环境保护规划，
将解决农村生态环境问题纳入到国
家生态环境保护的重要议事日程；
建立和完善农村环境保护法律法规
和制度，加快畜禽养殖污染防治、
面源污染防治、土壤污染防治、农
业废弃物资源化利用等方面的相关
立法；
加强农村生态环境基础设施建设，
加大对农村生态保护和污染防治的
指导和技术推广力度；
扩大“以奖促治”的覆盖范围，增
加资金力度，研究建立“以奖促防”
机制；
建立健全国家和基层的农村环境监
管机构，全面提升监管能力；
加强宣传教育，提高对农村生态环
境问题的认识和意识。
2. Improve rural environmental protection
and bridge the gap between urban and
rural areas in terms of ecological
civilization.
Formulate an environmental protection
plan for the rural
Improve the legal system of rural
environmental protection, accelerate the
legislation process
Step up infrastructure building for rural
environmental protection
Expand the coverage of “award for
treatment” policy, raise the amount of
such awards and study the feasibility of
introducing “award for prevention” policy;
Set up rural environmental supervision
institutions from the central down to the
grassroots level
Strengthen education and publicity, raise
the awareness and recognition of rural
environmental issues.
3．突出重点，将全面改善多种
生态服务功能和实施生态系统
管理方式纳入国家“十二五”
生态保护与建设工作之中
在“十二五”期间，中国应首先解
决好决策者和相关利益者对生态系
统服务和生态系统管理方式的科学
认知，制订并发布国家中长期生态
环境保护战略纲要和重要生态系统
的专项规划；
在土壤、海洋等重要和薄弱的生态
环境保护领域，率先启动和实施生
态系统管理方式的行动；
以相关科学研究、技术研发和管理
模式示范、监测体系建设等为核心，
提升生态系统管理的科技支撑作用
和基础能力。
3. Focus on priorities, and incorporate the
target of improving various ecological
services and the principle of holistic
ecosystem management into the daily
work of ecological protection and
development during the 12th FYP period.
Raise the awareness of this holistic and
integrated ecosystem management
approach among policy makers and
stakeholders, and formulate and promulgate
the National Medium to Long Term Strategic
Guidelines on Ecological Protection and
Development as well as specialized plans on
key ecosystems;
Implement this approach first in key and
vulnerable ecosystems like the soil and the
sea
Strengthen scientific research, technological
development, management model
demonstration and monitoring system
development in order to better support the
holistic approach of ecosystem management.
4．加快生态补偿的立法进程，
健全相关政策和机制。
中国在“十二五”期间，应尽快
出台《国务院生态补偿条例》，
推动生态补偿机制的全面建立。
重点解决好五个方面的问题：
建立和完善森林、草地与湿地的公
益性补偿基金；
在国家生态补偿框架下，中央政府
应为国家级自然保护区设置充足合
理的预算；
逐步将退耕还林（草）等林地纳入
国家生态补偿范围；
建立海洋生态补偿/赔偿机制。特
别是针对重大海洋工程（包括围填
海工程）、海上溢油、海洋保护区、
流域活动对河口-海域影响等重点问
题，开展生态损害补偿/赔偿、生
态建设补偿的示范；
建立水生态系统保护的生态补偿机
制。
4. Expedite the process of legislation
on ecological compensation, and
improve relevant policies and
mechanisms.
Issue the State Council Regulation on
Ecological Compensation
5 key tasks：
Establish a non-profit compensation fund
for forests, grasslands and wetlands;
Grant sufficient budget to national nature
reserves under the framework of national
ecological compensation scheme;
Gradually incorporate the forests and
grasslands restored from farmlands into
the scheme;
Establish marine ecological
compensation mechanisms, carry out
compensation demonstration for key
marine programs, including sea
reclamation projects, as well as for oil
spills and protected areas.
5、以资源环境承载力为约束，实
施绿色区域发展战略，建立区域生
态环境保护合作机制。
区域发展规划和战略要符合国家发布
的主体功能区划的要求，要以资源环
境承载力为约束性条件来确定区域发
展方向，切实避免随着产业的梯度转
移造成污染转移和生态破坏；
在经济基础较好的东部地区以生态环
境优先为原则，实施区域优化发展战
略。在西部生态环境脆弱区，实施以
生态创新为核心的绿色区域发展战略，
确保区域发展符合建设资源节约型和
环境友好型社会的根本要求；
在现有的基础上，要全面遏制生态环
境恶化的趋势，全面改善生态环境质
量，不仅要靠每个行政辖区的努力，
还需要加强各地方政府间的协调和合
作。
在现有相关政策和实践经验的基础上，
全面建立区域生态保护的合作机制和
污染防治的联防联控联治机制。
5. Implement green regional development
strategies by taking into account
resources and environmental capacity,
and establish regional cooperation
mechanisms on ecological protection.
Regional strategies and plans conform to the
National Plan on Ecological Zoning, and the
development direction of a region should be
determined by its resource and
environmental capacity
in the richer eastern region, ecological
preservation should be a priority and
optimized development strategy should be
implemented; while in the ecologically
vulnerable west, a green development
strategy focusing on ecological innovation
shall be introduced.
In light of the current status of the
environment, coordination and cooperation
among the localities is needed.
To review experience so far and establish a
comprehensive cooperative mechanism on
regional ecological protection and joint
pollution prevention, control and treatment.
谢谢
Thank you!