《生物多样性公约》及其议定...议题的磋商、挑战及政策建议_章嫡妮.pdf

2023,31(4):22588,pages 19 doi:10.17520/biods.2022588 收稿日期:2022-10-18;接受日期:2023-04-14 基金项目:国家重点研发计划(2020YFC1806305-04)、国家自然科学基金委员会国际(地区)合作与交流项目(41961144022)、生态环境部生物多样性调查、观测和评估项目(2019-2023)*共同通讯作者 Co-authors for correspondence.E-mail:liuyannies.org;wcynies.org https:/www.biodiversity-生物多样性公约及其议定书下“能力建设与发展”议题的磋商、挑战及政策建议 章嫡妮,王蕾,卢晓强,王长永*,刘燕*生态环境部南京环境科学研究所,南京 210042 摘要:能力建设与发展一直是生物多样性公约(以下简称公约)及其议定书下的重要议题,昆明-蒙特利尔全球生物多样性框架更是将其作为履约的有效执行手段之一。本文旨在增进生物多样性利益相关方对能力建设与发展问题的全面、深入理解,以及探讨为处理这个问题可选择的优先政策事项。首先,从能力、能力建设和能力发展基本概念入手,概述了这些术语在公约及其议定书相关文件中的演变历史;然后,基于历届公约及其议定书的决定,全面梳理了能力建设与发展的磋商进程和COP15主要争论焦点,分析了该领域面临的资金、规划、项目、信息分享以及与其他国际公约之间的协同等关键性挑战及其原因;最后,针对能力建设与发展问题,在国际层面上,从扩宽资金渠道、制定或协调不同层次的战略与行动规划、确保项目和方案的长期性和可持续性、完善信息交流机制、提升相关公约间协同增效等方面提出了政策关注点;在国内层面上,从强化顶层设计、更新生物多样性战略与行动计划、查明生物安全和生物遗传资源领域的能力建设需求、加大宣传与参与以及充分利用“昆明生物多样性基金”和“一带一路”倡议等方面提出了政策建议。关键词:能力建设与发展;生物多样性公约;议定书;履约;昆明-蒙特利尔全球生物多样性框架;战略框架;行动计划 章嫡妮,王蕾,卢晓强,王长永,刘燕(2023)生物多样性公约及其议定书下“能力建设与发展”议题的磋商、挑战及政策建议.生物多样性,31,22588.doi:10.17520/biods.2022588.Zhang DN,Wang L,Lu XQ,Wang CY,Liu Y(2023)Convention on Biological Diversity and its protocols:Negotiation,challenges and recommendations on the“capacity-building and development”.Biodiversity Science,31,22588.doi:10.17520/biods.2022588.Convention on Biological Diversity and its protocols:Negotiation,challenges and recommendations on the“capacity-building and development”Dini Zhang,Lei Wang,Xiaoqiang Lu,Changyong Wang*,Yan Liu*Nanjing Institute of Environmental Sciences,Ministry of Ecology and Environment,Nanjing 210042 ABSTRACT Background&Aim:Capacity-building and development(CDD)is an integral part to implementing the protocols of the Convention on Biological Diversity(CBD),and an effective means to put the new Kunming-Montreal Global Biodiversity Framework(GBF)into action.CDD is crucial,in developing countries,for promoting the implementation of the CBD and achieve positive results.This paper aims to provide guidance for effective implementation of the Kunming-Montreal GBF and completion of its goals,and further explore policy priorities that could potentially address the issue.Review Results:It is known that none of the“Aichi Targets”have been fully achieved at the global level.Furthermore,the international community realizes the need to alter past approaches that were largely focused towards setting targets than taking actions.Here,we systematically review the policy decisions adopted by the Conferences of the Parties(COPs)to the CBD and its protocols in regard to CDD.The findings show that due to the increasing concerns for the CDD under CBD,the COPs recommend a reorienting of priorities from the long-term focus on information exchange 保护与治理对策 昆蒙全球生物多样性框架专题 章嫡妮等:生物多样性公约及其议定书下“能力建设与发展”议题的磋商、挑战及政策建议 2023年|31卷|4期|22588|第2页 and technology transfer to the establishment and performance of a complete institution for the CDD.The latest negotiation results and debates on the CDD contained in the Kunming-Montreal GBF are also presented.Challenges:The efforts to promote CDD under the CBD and its Protocols still face ongoing challenges,including insufficient co-finance,shortage of systematic needs assessment and inventory,limited knowledge and information sharing,lack of long-term and sustainable interventions,and inadequate synergy among biodiversity-related international conventions.Recommendations:Strategic recommendations to enhance the CDD are provided,namely,at the international level,(1)strengthening financial support;(2)national biodiversity strategies and action plans(NBSAP)to fully guarantee the implementation of capacity-building and development activities;(3)ensuring the projects and programs for the CDD are systematic,institution-oriented,sustainable;(4)improvement of the information clearing house;and(5)enhancing the synergy of biodiversity-related international conventions;and at the domestic level,(1)strengthening top-level design and employing the China National Commission for Biodiversity Conservation to coordinate the efforts related to biodiversity;(2)updating the NBSAP;(3)identifying capacity-building needs in the areas of biosecurity and genetic resources;(4)improving the publicity campaigns and the participation of various stakeholders;and(5)helping other developing countries to improve the CDD by means of the“Kunming Biodiversity Fund”and the“Belt and Road”to promote a responsible China.Key words:capacity-building and development;Convention on Biological Diversity;protocol;international compliance;Kunming-Montreal Global Biodiversity Framework;strategic framework;action plan 全球生物多样性丧失日益加剧,人类活动改变了75%的陆地表面,影响了66%的海洋环境,从而导致25%的物种正在遭受灭绝威胁(IPBES,2019)。生物多样性公约(以下简称公约)现有196个缔约方,是全球缔约方最多的国际环境公约,有效地推进了全球生物多样性众多议题的磋商及其计划的执行。2010年10月公约缔约方大会(Conference of the Parties,COP)第十次会议(COP10)通过的20个爱知生物多样性目标(以下简称“爱知目标”,CBD/COP/X/2)为随后十年全球生物多样性治理提供了战略框架和行动指南。然而,2020年9月公约发布的全球生物多样性展望5指出,在全球层面,所有“爱知目标”都没有完全实现,其原因有多种,其中一条经验教训明确指出需要更重视执行工作,并针对各国国情提供持续的支持(SCBD,2020)。在履约过程中,大多数发展中国家缔约方在资金、人力、技术和科学合作等方面普遍存在能力不足的问题。正因如此,2022年12月COP15第二阶段会议上通过的 昆明-蒙特利尔全