BBNJ谈判中海洋保护区议题的困境与出路:兼谈中国的应对
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摘要
2015年6月19日第69届联合国大会通过了第292号决议,要求根据《联合国海洋法公约》的规定就国家管辖范围外生物多样性的养护和可持续利用问题拟订一份具有法律约束力的国际文书。围绕其中的海洋保护区议题,多数国家从海洋保护区的定义、目标和原则、选划海洋保护区的标准、海洋保护区的监管与制度性安排等方面阐述了自己的立场或发表了自己的意见。但谈判仍然面临着海洋保护区的定义存在争议、海洋保护区的选划标准尚未明确、海洋保护区的管理模式缺乏共识等困境。为应对这些困境,各国在后续谈判时应当着重从明确界定国家管辖范围外海洋保护区的定义、妥善整合现有海洋保护区选划标准以及确立海洋保护区的全球性管理模式等方面进行磋商。在此过程当中,中国在谈判中应当协调与各方的关系并积极应对他国的主张。在谈判外,中国应当加强对国家管辖范围外海洋生物多样性的科学研究工作,以便为将来参与海洋保护区的构建与管理做好准备。
Resolution 292 was adopted by the 69 th United Nations General Assembly on 19 June 2015, which requires to formulate, in accordance with the provisions of the UNCLOS, a legally binding international instrument on the conservation and sustainable use of biological diversity beyond national jurisdiction. Around the topic of marine protected areas, most countries have stated positions and opinions on its definition, aims, principles, selection criteria,supervision, regulation, and so on. However, Negotiations are still facing difficulties solving disputable and indefinite issues such as the definition, selection criteria and management of marine protected areas, which need to be further discussed. In the process, China should coordinate relations with all parties in the negotiations and actively respond to other countries' proposals. Outside, China should strengthen scientific research on marine biodiversity beyond national jurisdiction in order to be ready for future participation in marine protected areas construction and management.
Resolution 292 was adopted by the 69 th United Nations General Assembly on 19 June 2015, which requires to formulate, in accordance with the provisions of the UNCLOS, a legally binding international instrument on the conservation and sustainable use of biological diversity beyond national jurisdiction. Around the topic of marine protected areas, most countries have stated positions and opinions on its definition, aims, principles, selection criteria,supervision, regulation, and so on. However, Negotiations are still facing difficulties solving disputable and indefinite issues such as the definition, selection criteria and management of marine protected areas, which need to be further discussed. In the process, China should coordinate relations with all parties in the negotiations and actively respond to other countries' proposals. Outside, China should strengthen scientific research on marine biodiversity beyond national jurisdiction in order to be ready for future participation in marine protected areas construction and management.
引文
(1)预委会最多时有来自131个联合国会员国、2个非会员国、联合国2个方案、基金和办事处、联合国系统9个专门机构和有关组织、10个政府间组织和23个非政府组织的代表参加。A/AC.287/2017/PC.4/2,https://undocs.org/A/AC.287/2017/PC.4/2.last visited August 17 2018.
(1)See A/AC.287/2017/PC.4/2,https://undocs.org/A/AC.287/2017/PC.4/2.last visited August 17 2018.
(2)持该立场的国家主要有中国、77国集团、牙买加、日本、新西兰、哥斯达黎加、巴西、新西兰、澳大利亚和欧盟。See Earth Negotiations Bulletin PrepCom1 Final,p.9.http://www.iisd.ca/oceans/bbnj/prepcom1/.last visited August 17 2018.
(3)持有该立场的国家主要是美国、智利、挪威。来源同上。
(4)See Earth Negotiations Bulletin PrepCom2 Final,p.6.http://www.iisd.ca/oceans/bbnj/prepcom2/.last visited August 17 2018.
(5)同上。
(1)See Earth Negotiations Bulletin PrepCom1 Final,p.10.http://www.iisd.ca/oceans/bbnj/prepcom1/.last visited August 17 2018.
(2)同上。
(3)A/AC.287/2017/PC.4/2,https://undocs.org/A/AC.287/2017/PC.4/2.last visited August 17 2018.
(4)持有该立场的主要有77国集团、中国、秘鲁、小岛屿国家联盟和加勒比共同体。See Earth Negotiations Bulletin PrepCom4 Final,p.11.http://www.iisd.ca/oceans/bbnj/prepcom4/.last visited August 17 2018.
(5)Earth Negotiations Bulletin PrepCom3 Final,p.6.http://www.iisd.ca/oceans/bbnj/prepcom3/.last visited August 17 2018.
(6)Earth Negotiations Bulletin PrepCom2 Final,p.8.http://www.iisd.ca/oceans/bbnj/prepcom2/.last visited August 17 2018.
(7)持有该立场的主要有欧盟、日本、阿根廷、斯里兰卡、尼泊尔、摩纳哥、瑞典、哥斯达黎加、印度尼西亚、墨西哥、加勒比共同体等国家。See Earth Negotiations Bulletin PrepCom3 Final,p.6.http://www.iisd.ca/oceans/bbnj/prepcom3/.last visited August 17 2018.
(1)Earth Negotiations Bulletin PrepCom3 Final,p.6.http://www.iisd.ca/oceans/bbnj/prepcom3/.last visited August 17 2018.
(2)Earth Negotiations Bulletin PrepCom4 Final,p.12.http://www.iisd.ca/oceans/bbnj/prepcom4/.last visited August 17 2018.
(3)Earth Negotiations Bulletin PrepCom1 Final,p.9.http://www.iisd.ca/oceans/bbnj/prepcom1/,last visited August 17 2018.
(4)See James Fitzsimons and Geoff Westcott,Big,Bold and Blue:lessons from Australia’s marine protected areas,Australia:CSIRO Publishing,2016:9.
(5)张晓:《国际海洋生态环境保护新视角:海洋保护区空间规划的功效》,《国外社会科学》2016年第5期。
(6)Framework for the National System of Marine Protected Areas of the United States of America,https://nmsmarineprotectedareas.blob.core.windows.net/marineprotectedareas-prod/media/archive/nationalsystem/framework/final-mpa-framework-0315.pdf.last visited August 17 2018.
(7)World Commission on Protected Areas(WCPA),Guidelines for Marine Protected Areas,https://portals.iucn.org/library/efiles/documents/PAG-003.pdf.last visited August 17 2018.
(1)See Graham J.Edgar,et al.Global conservation outcomes depend on marine protected areas with five key features,Nature,506(13 February 2014),p.216.
(2)See Atlas of Marine Protection,http://www.mpatlas.org/protection-dashboard/country-ranks/.last visited August 17 2018.
(3)See Very Large MPAs,http://www.mpatlas.org/protection-dashboard/very-large-mpas/.last visited August 17 2018.
(4)James Harrison,Making the law of the sea:a study in the development of international law,New York:Cambridge University Press,2011:113.
(1)Earth Negotiations Bulletin PrepCom3 Final,p.5.http://www.iisd.ca/oceans/bbnj/prepcom3/.last visited August 17 2018.
(2)卢晓强、刘立、吴军、崔鹏、胡飞龙、丁晖、徐海根:《〈生物多样性公约〉框架下描述具有重要生态或生物学意义的海洋区域的进程与展望》,《生态与农村环境学报》2017年第2期。
(3)Earth Negotiations Bulletin PrepCom3 Final,p.6.http://www.iisd.ca/oceans/bbnj/prepcom3/.last visited August 17 2018.
(1)唐议、盛燕燕、陈园园:《公海深海底层渔业国际管理进展》,《水产学报》2014年第5期。
(2)联合国粮农组织全球渔业捕获产量数据库,http://www.fao.org/fishery/statistics/global-capture-production/en,最后访问时间:2018年7月21日。
(3)中华人民共和国农业部《“十三五”全国远洋渔业发展规划》,http://jiuban.moa.gov.cn/zwllm/ghjh/201712/t20171221_5985078.htm,最后访问时间:2018年9月9日。
(4)Convention Future Multilateral Cooperation North-East Atlantic Fisheries,Article 3(9).
(5)Conservation and Management of High Seas Fishery Resources in the South Pacific Ocean,article 16.
(1)Conservation Measures 91-05(2016)Ross Sea region marine protected area.
(2)Decision adopted by the conference of the parties to the convention on biological diversity at its seventh meeting,VII/5.Marine and coastal biological diversity,p.2.https://www.cbd.int/doc/decisions/cop-07/cop-07-dec-05-en.pdf.last visited August 20 2018.
(1)Daniel C.Dunn,et al.The Convention on Biological Diversity's Ecologically or Biologically Signi?cant Areas:Origins,development,and current status,Marine Policy,Volume 49,November 2014,p.7.
(1)Anna-Maria Hubert,UN General Assembly Resolution to Develop a New Legally Binding Instrument on the Conservation and Sustainable Use of Marine Biological Diversity of Areas Beyond National Jurisdiction,p.3.
(2)张磊:《走出开发与保护二元对立的定势--风险预防原则在深海资源开发领域的变通适用》,《探索与争鸣》2018年第5期。
(3)陈力:《南极海洋保护区的国际法依据辨析》,《复旦学报(社会科学版)》2016年第2期。
(4)唐建业:《南极海洋保护区建设及法律政治争论》,《极地研究》2016年第3期。
(1)胡学东、高岩、戴瑛:《生物多样性国际谈判的基础问题与解决途径》,《中国海洋报》2017年6月28日第002版。
(1)See A/AC.287/2017/PC.4/2,https://undocs.org/A/AC.287/2017/PC.4/2.last visited August 17 2018.
(2)持该立场的国家主要有中国、77国集团、牙买加、日本、新西兰、哥斯达黎加、巴西、新西兰、澳大利亚和欧盟。See Earth Negotiations Bulletin PrepCom1 Final,p.9.http://www.iisd.ca/oceans/bbnj/prepcom1/.last visited August 17 2018.
(3)持有该立场的国家主要是美国、智利、挪威。来源同上。
(4)See Earth Negotiations Bulletin PrepCom2 Final,p.6.http://www.iisd.ca/oceans/bbnj/prepcom2/.last visited August 17 2018.
(5)同上。
(1)See Earth Negotiations Bulletin PrepCom1 Final,p.10.http://www.iisd.ca/oceans/bbnj/prepcom1/.last visited August 17 2018.
(2)同上。
(3)A/AC.287/2017/PC.4/2,https://undocs.org/A/AC.287/2017/PC.4/2.last visited August 17 2018.
(4)持有该立场的主要有77国集团、中国、秘鲁、小岛屿国家联盟和加勒比共同体。See Earth Negotiations Bulletin PrepCom4 Final,p.11.http://www.iisd.ca/oceans/bbnj/prepcom4/.last visited August 17 2018.
(5)Earth Negotiations Bulletin PrepCom3 Final,p.6.http://www.iisd.ca/oceans/bbnj/prepcom3/.last visited August 17 2018.
(6)Earth Negotiations Bulletin PrepCom2 Final,p.8.http://www.iisd.ca/oceans/bbnj/prepcom2/.last visited August 17 2018.
(7)持有该立场的主要有欧盟、日本、阿根廷、斯里兰卡、尼泊尔、摩纳哥、瑞典、哥斯达黎加、印度尼西亚、墨西哥、加勒比共同体等国家。See Earth Negotiations Bulletin PrepCom3 Final,p.6.http://www.iisd.ca/oceans/bbnj/prepcom3/.last visited August 17 2018.
(1)Earth Negotiations Bulletin PrepCom3 Final,p.6.http://www.iisd.ca/oceans/bbnj/prepcom3/.last visited August 17 2018.
(2)Earth Negotiations Bulletin PrepCom4 Final,p.12.http://www.iisd.ca/oceans/bbnj/prepcom4/.last visited August 17 2018.
(3)Earth Negotiations Bulletin PrepCom1 Final,p.9.http://www.iisd.ca/oceans/bbnj/prepcom1/,last visited August 17 2018.
(4)See James Fitzsimons and Geoff Westcott,Big,Bold and Blue:lessons from Australia’s marine protected areas,Australia:CSIRO Publishing,2016:9.
(5)张晓:《国际海洋生态环境保护新视角:海洋保护区空间规划的功效》,《国外社会科学》2016年第5期。
(6)Framework for the National System of Marine Protected Areas of the United States of America,https://nmsmarineprotectedareas.blob.core.windows.net/marineprotectedareas-prod/media/archive/nationalsystem/framework/final-mpa-framework-0315.pdf.last visited August 17 2018.
(7)World Commission on Protected Areas(WCPA),Guidelines for Marine Protected Areas,https://portals.iucn.org/library/efiles/documents/PAG-003.pdf.last visited August 17 2018.
(1)See Graham J.Edgar,et al.Global conservation outcomes depend on marine protected areas with five key features,Nature,506(13 February 2014),p.216.
(2)See Atlas of Marine Protection,http://www.mpatlas.org/protection-dashboard/country-ranks/.last visited August 17 2018.
(3)See Very Large MPAs,http://www.mpatlas.org/protection-dashboard/very-large-mpas/.last visited August 17 2018.
(4)James Harrison,Making the law of the sea:a study in the development of international law,New York:Cambridge University Press,2011:113.
(1)Earth Negotiations Bulletin PrepCom3 Final,p.5.http://www.iisd.ca/oceans/bbnj/prepcom3/.last visited August 17 2018.
(2)卢晓强、刘立、吴军、崔鹏、胡飞龙、丁晖、徐海根:《〈生物多样性公约〉框架下描述具有重要生态或生物学意义的海洋区域的进程与展望》,《生态与农村环境学报》2017年第2期。
(3)Earth Negotiations Bulletin PrepCom3 Final,p.6.http://www.iisd.ca/oceans/bbnj/prepcom3/.last visited August 17 2018.
(1)唐议、盛燕燕、陈园园:《公海深海底层渔业国际管理进展》,《水产学报》2014年第5期。
(2)联合国粮农组织全球渔业捕获产量数据库,http://www.fao.org/fishery/statistics/global-capture-production/en,最后访问时间:2018年7月21日。
(3)中华人民共和国农业部《“十三五”全国远洋渔业发展规划》,http://jiuban.moa.gov.cn/zwllm/ghjh/201712/t20171221_5985078.htm,最后访问时间:2018年9月9日。
(4)Convention Future Multilateral Cooperation North-East Atlantic Fisheries,Article 3(9).
(5)Conservation and Management of High Seas Fishery Resources in the South Pacific Ocean,article 16.
(1)Conservation Measures 91-05(2016)Ross Sea region marine protected area.
(2)Decision adopted by the conference of the parties to the convention on biological diversity at its seventh meeting,VII/5.Marine and coastal biological diversity,p.2.https://www.cbd.int/doc/decisions/cop-07/cop-07-dec-05-en.pdf.last visited August 20 2018.
(1)Daniel C.Dunn,et al.The Convention on Biological Diversity's Ecologically or Biologically Signi?cant Areas:Origins,development,and current status,Marine Policy,Volume 49,November 2014,p.7.
(1)Anna-Maria Hubert,UN General Assembly Resolution to Develop a New Legally Binding Instrument on the Conservation and Sustainable Use of Marine Biological Diversity of Areas Beyond National Jurisdiction,p.3.
(2)张磊:《走出开发与保护二元对立的定势--风险预防原则在深海资源开发领域的变通适用》,《探索与争鸣》2018年第5期。
(3)陈力:《南极海洋保护区的国际法依据辨析》,《复旦学报(社会科学版)》2016年第2期。
(4)唐建业:《南极海洋保护区建设及法律政治争论》,《极地研究》2016年第3期。
(1)胡学东、高岩、戴瑛:《生物多样性国际谈判的基础问题与解决途径》,《中国海洋报》2017年6月28日第002版。