给中国政府的政策建议（2010年）Policy Recommendations.ppt

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1、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,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,背 景,Background,Keywords of 2010 AGM,生态系统管理 绿色发展 探索中国环境保护新道路,Eco

2、system Management Green Development New Pathway for Environmental Protection in China,2010年年会关键词,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 CP

3、C 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 Transf

4、ormation of economic growth pattern should be based on the improvement of peoples 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

5、、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 resource-conserving and environment-friendly society as an important approach to promote the transformation of economics growth pattern environmental protection can improve economic development, optimize

6、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

7、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

8、11th FYPs 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 industri

9、al 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

10、 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 worlds ecosystems are degrading; per capita global ecologica

11、l 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 effo

12、rts, 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. Chinas

13、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 ec

14、ological 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, Chinas ecological footprint per capita is lower than th

15、e worlds 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. T

16、hey have exposed the fragility of ecosystems, and, in some instances, the desperate need for enhanced eco-services. 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

17、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, gr

18、assland and wetland) the second examined sustainable use of Chinas 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

19、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 de

20、velopment 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 eco

21、nomic 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

22、 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

23、 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 Chinas natural capital.,具体建议 Including,1、转变观念，

24、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 Chinas ecosystems from a s

25、cientific 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 health

26、y 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 Chinas ocean should be upheld as a basic approach in managi

27、ng 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 Improve the participation of public and organizations. First set up an effec

28、tive 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 co

29、mpensation. 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

30、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 a

31、ctivities 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 Chinas forests remain inadequate in total volume, imbalanced in distribution and poor i

32、n 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 s

33、o 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

34、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 gr

35、ant 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

36、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 an

37、d 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

38、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 proces

39、s, 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

40、 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

41、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 m

42、echanism. 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

43、 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. E

44、ncourage 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 sy

45、stem, 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

46、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,

47、 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 func

48、tion conservation areas, and for Chinas 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

49、 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 ma