文/吳平

海洋是生命的搖籃，占地球表面積的71%，是資源的“聚寶盆”、污染的“消納場(chǎng)”、氣候的“調(diào)節(jié)器”。我國(guó)是海洋大國(guó)，大陸海岸線長(zhǎng)達(dá)1.8萬(wàn)公里，管轄海域面積300余萬(wàn)平方公里，面積500平方米以上的海島6900余個(gè)。我國(guó)海洋生物多樣性十分豐富，分布有濱海濕地、海島、海灣、入海河口等多種類型海洋生態(tài)系統(tǒng)。然而，我國(guó)海洋生態(tài)環(huán)境保護(hù)現(xiàn)狀不容樂觀，近海污染和近岸生態(tài)破壞問題突出。

海洋生態(tài)治理現(xiàn)代化進(jìn)程

我國(guó)通過制定、修訂一系列法律法規(guī)、規(guī)劃綱要方案，提高海洋開發(fā)利用的“生態(tài)門檻”，不斷推進(jìn)海洋生態(tài)治理體系和治理能力現(xiàn)代化。

自1982年頒布《海洋環(huán)境保護(hù)法》以來(lái)，我國(guó)已出臺(tái)《海域使用管理法》《海島保護(hù)法》《深海海底區(qū)域資源勘探開發(fā)法》《無(wú)居民海島開發(fā)利用審批辦法》等涉海資源環(huán)境保護(hù)相關(guān)法律法規(guī)數(shù)十部；特別是十八大以來(lái)，《全國(guó)海洋主體功能區(qū)規(guī)劃》《海洋生態(tài)文明建設(shè)實(shí)施方案》《海岸線保護(hù)與利用管理辦法》《圍填海管控辦法》《海洋督察方案》等多項(xiàng)政策出臺(tái)；生態(tài)紅線制度、重點(diǎn)海域污染物總量控制制度、海洋生態(tài)補(bǔ)償制度、海洋生態(tài)損害賠償制度等一系列制度陸續(xù)實(shí)施，治理體系日益健全。

The ocean is the cradle of life, accounting for 71% of the surface of the earth. It is the cornucopia of resources, container of pollution and a regulator of the climate. China has a large area of ocean, with its coastline stretching up to 18,000 km, its jurisdiction of the sea area of about 300 million square kilometers and more than 6900 islands occupying over 500 square meters. China boasts its marine biodiversity and multiple types of marine ecosystems, such as coastal wetlands, islands, bays, estuaries and so on. However, the marine environmental protection in China is far from enough. Offshore pollution and ecological damages are very severe.

Modernization of Marine Environmental Governance

Through the development and revision of a series of laws, regulations, plans, guidelines and schemes, China aims at raising the threshold for the exploration of marine resources, developing the mechanism of marine environmental governance, shifting the marine industry into a greener structure, establishing various types of marine protected areas, strengthening restoration of marine eco-system, revamping the marine ecological environment monitoring network and constantly promoting the modernization of the marine environmental governance system and governance capacity.

We will establish and improve the marine environmental governance system. Since promulgation of the Marine Environmental Protection Law, China has enacted the Law on the Administration of the Use of Sea Area, the Island Protection Law, the Law on the Exploration and Development of Resources on Deep Seabed Area,the Methods of Approving the Development and Exploration on Uninhabited Islands. Over 10 laws and regulations on marine resources and environmental protection have been carried out. In particular since the 18th National Congress of Communist Party of China, the country has issued the National Major Marine Functional Zone Planning, the Marine Ecological Civilization Construction Scheme, the Administrative Measures on Coastline Protection and Utilization, the Administrative Measures on Reclamation Management, the Marine Inspection Scheme and other policies;implemented the policy of ecological red lines, control of the total amount of marine pollutants, marine ecological compensation,penalties to marine ecological damages and so on. These constitute to improving the governance system.

秦皇島實(shí)施“河長(zhǎng)制”為美麗海洋保駕護(hù)航

中央及各地在生態(tài)保護(hù)與監(jiān)測(cè)等領(lǐng)域積極探索。例如2009年國(guó)務(wù)院同意建立渤海環(huán)境保護(hù)省部際聯(lián)席會(huì)議制度；浙江由海洋部門牽頭負(fù)責(zé)全省岸線及周邊區(qū)域的保護(hù)與管理，理順了海岸帶這一海陸統(tǒng)籌關(guān)鍵區(qū)域的管理職責(zé)。福建廈門、山東青島連續(xù)多年探索實(shí)施地方政府海洋生態(tài)環(huán)境保護(hù)目標(biāo)責(zé)任考核；遼寧實(shí)施“河長(zhǎng)制”，通過流域和入海斷面考核將減排責(zé)任分解到流域內(nèi)各市縣。通過設(shè)立海洋自然保護(hù)區(qū)、海洋特別保護(hù)區(qū)、海洋公園、海洋生態(tài)文明建設(shè)示范區(qū)等各類示范區(qū)、保護(hù)區(qū)樹立治理典范。實(shí)施“藍(lán)色海灣”“南紅北柳”“生態(tài)島礁”等重點(diǎn)工程，積極推進(jìn)海洋生態(tài)建設(shè)和整治修復(fù)，加快“美麗海洋”建設(shè)。初步建立起層級(jí)分明、覆蓋面廣的海洋生態(tài)環(huán)境監(jiān)測(cè)網(wǎng)絡(luò)，涵蓋多個(gè)監(jiān)測(cè)類別，實(shí)現(xiàn)對(duì)管轄海域全覆蓋的動(dòng)態(tài)監(jiān)測(cè)。

Local governments have worked actively to protect and monitor the ecological environment.In 2009 the State Council agreed to build an inter-ministerial joint meeting system for environmental protection of Bohai Sea; in Zhejiang, the Oceanic Administration took the lead to protect and manage the province’s coastlines and the surrounding area; in Xiamen of Fujian and Qingdao of Shandong, local governments are assessed according to their realization of marine environmental protection goals for many years; in Liaoning, officials in different cities and counties are put accountable for waste reduction and are assessed based on the results of discharge in the waters and estuaries. Good examples are being set, such as marine nature reserves, marine special protection areas, marine parks, all kinds of demonstration areas including marine ecological civilization demonstration area and protected areas. Key projects, such as the Blue Bay, the Mangrove in the South and Tamarix Chinensis in the North, the Ecological Island Reef, are implemented to promote marine ecological construction and to remedy and speed up the construction of beautiful ocean. A preliminary multi-tiered marine ecological environment monitoring network will be established to conduct real time monitoring of different types in the whole marine jurisdiction.

海洋生態(tài)治理面臨多重挑戰(zhàn)

進(jìn)入21世紀(jì)以來(lái)，我國(guó)海洋經(jīng)濟(jì)快速發(fā)展，目前已占國(guó)內(nèi)生產(chǎn)總值（GDP）近1／10，成為國(guó)民經(jīng)濟(jì)的重要組成部分。但是，傳統(tǒng)海洋產(chǎn)業(yè)欠缺綠色規(guī)制，發(fā)展方式粗放。海上風(fēng)電、深海養(yǎng)殖、深遠(yuǎn)海資源開發(fā)等新興海洋產(chǎn)業(yè)處于起步階段，海洋產(chǎn)業(yè)亟待轉(zhuǎn)型升級(jí)。由于陸源污染、大規(guī)模填海造地、過度捕撈以及船舶溢油等因素影響，我國(guó)濱海濕地大量喪失，近岸海洋生態(tài)系統(tǒng)退化，部分海域嚴(yán)重污染，海洋生態(tài)已經(jīng)基本處于“亞健康”狀態(tài)。

海陸分割體制依然存在。海洋污染的絕大多數(shù)是陸源污染，而且陸源污染往往是跨行政區(qū)域的，污染源的擴(kuò)散受天氣、潮流等因素影響較大，具有不可控性，所以海洋環(huán)境污染只看結(jié)果，不看源頭，單以行政區(qū)域的監(jiān)測(cè)結(jié)果作為考核指標(biāo)是片面的。

海洋生態(tài)治理能力有待提升。海洋生態(tài)環(huán)境監(jiān)測(cè)數(shù)據(jù)分別來(lái)自海洋和環(huán)保兩個(gè)部門，而兩個(gè)部門的監(jiān)測(cè)站位、方法和程序不同，導(dǎo)致監(jiān)測(cè)數(shù)據(jù)不統(tǒng)一。

多管齊下提升海洋生態(tài)治理水平

健全海洋生態(tài)治理體系。加強(qiáng)海洋立法工作，健全海洋生態(tài)法治保障。建立健全海洋資源產(chǎn)權(quán)法律制度，制定完善海洋空間開發(fā)保護(hù)、海洋生態(tài)環(huán)境保護(hù)、海域海島自然資源保護(hù)和利用等配套法律法規(guī)；加快推進(jìn)海洋督察、海洋主體功能區(qū)、圍填?？偭靠刂?、自然岸線保有率控制、海洋生態(tài)補(bǔ)償、海域環(huán)評(píng)限批等重點(diǎn)制度。加快制定《海洋基本法》，將海洋生態(tài)保護(hù)作為海洋發(fā)展的基本原則。

Challenges of Marine Environmental Governance

Since the beginning of the 21st century, marine economy has grown rapidly, now accounting for nearly 1/10 of gross domestic product (GDP) and making up an important part of the national economy. However, Regulations are still lacking for the green development traditional marine industry and the development mode is still extensive. Offshore wind power, deep sea farming, deep sea resources development and other emerging marine industries are still at the initial stage and the marine industry needs to be transformed and upgraded. Due to land-based pollution, large-scale land reclamation, over-fishing and oil spill, coastal wetlands have largely disappeared, coastal marine ecosystems are degraded and some marine areas are seriously polluted in China. Marine ecology has been basically in the “sub-health” state.

The land and the sea system are still separated. The vast majority of marine pollution comes from the land, which often knows no administrative areas. The proliferation of pollution sources is highly affected by weather, currents and other factors, leading to great uncertainties, so it is one-sided to just look at the results of one administrative area but ignore the sources of the marine environmental pollution.

The capacity of marine environmental governance is yet to be improved. Marine ecological environment monitoring data are mainly generated by the marine and the environmental protection departments, but their monitoring data are often inconsistent because of different monitoring stations, methods and procedures.

Multipronged Measures to Improve Marine Environmental Governance

We will improve the marine environmental governance system.Marine law making will be enhanced to create a comprehensive legal system of marine environmental governance. We will establish and improve the legal system of maritime resources property rights, develop wide-range supporting laws and regulations related to the marine space development and protection, marine environmental protection, sea island natural resources protection and utilization. Essential measures will be taken, including marine inspection, building of marine main functional areas, the total reclamation control, maintenance of natural shorelines, marine ecological compensation and sea area environmental assessment.We will speed up the development of the Basic Law of the Ocean and make the marine ecological protection a basic principle of marine development.

建立海洋生態(tài)環(huán)境保護(hù)目標(biāo)責(zé)任制，完善相關(guān)行政法規(guī)與規(guī)章。建立跨行政區(qū)和海陸聯(lián)動(dòng)機(jī)制，明確海洋生態(tài)環(huán)境保護(hù)地方政府負(fù)責(zé)制和目標(biāo)責(zé)任制。形成海陸統(tǒng)籌的考核體制機(jī)制。

加快海洋經(jīng)濟(jì)綠色轉(zhuǎn)型。推廣生態(tài)健康養(yǎng)殖，加快漁業(yè)產(chǎn)業(yè)結(jié)構(gòu)調(diào)整，充分發(fā)揮漁業(yè)的碳匯功能。加快海洋清潔能源開發(fā)，擴(kuò)大海水利用應(yīng)用規(guī)模。統(tǒng)籌協(xié)調(diào)海陸發(fā)展，把海洋資源的開發(fā)利用、保護(hù)與陸域經(jīng)濟(jì)發(fā)展結(jié)合，與沿海的產(chǎn)業(yè)群、港口群、城市群結(jié)合，與推進(jìn)內(nèi)陸腹地的開放開發(fā)結(jié)合。

有效推進(jìn)海洋生態(tài)修復(fù)，強(qiáng)化海洋生態(tài)環(huán)境監(jiān)測(cè)。加強(qiáng)海洋生物多樣性保護(hù)。實(shí)施“南紅北柳”生態(tài)工程，南方種植紅樹林等，北方種植檉柳等，因地制宜開展濱海濕地、河口濕地生態(tài)修復(fù)工程。推進(jìn)海島保護(hù)與開發(fā)，促進(jìn)有居民海島有序開發(fā)，加強(qiáng)無(wú)居民海島保護(hù)，并強(qiáng)化特殊用途海島管理。

強(qiáng)化科技、人才、資金作用，提升全民海洋意識(shí)，參與全球海洋治理。加大海洋基礎(chǔ)研究和前沿海洋技術(shù)開發(fā)力度，重點(diǎn)在深水、綠色、安全的海洋高技術(shù)領(lǐng)域取得突破。確保“科海協(xié)同”工作機(jī)制順利開展，促進(jìn)科技創(chuàng)新與海洋發(fā)展“互通互聯(lián)”，推進(jìn)海洋科技創(chuàng)新向創(chuàng)新引領(lǐng)型轉(zhuǎn)變。加快海洋教育發(fā)展，發(fā)揮多學(xué)科協(xié)同優(yōu)勢(shì)，培養(yǎng)復(fù)合型海洋人才。加大對(duì)海洋生態(tài)保護(hù)領(lǐng)域的資金投入。加強(qiáng)海洋生態(tài)文明理念宣傳，提高全民族海洋意識(shí)。建立公共參與機(jī)制，營(yíng)造全社會(huì)關(guān)愛海洋、保護(hù)海洋，支持海洋生態(tài)文明建設(shè)的良好氛圍。拓展雙邊海洋合作，引導(dǎo)多邊區(qū)域合作，加快國(guó)際海域調(diào)查與極地考察能力建設(shè)，全面參與國(guó)際海洋事務(wù)。

The accountability system of marine environmental protection targets should be established and relevant administrative measures and regulations should be improved. The interregional and land-sea coordination mechanism should be set up to clarify the responsibilities and targets of marine environmental protection for local governments. Assessment system should be built.

We will speed up the transformation to green marine economy.We will lead this transformation in pursuit of a sustained development model that promote harmony between man and the ocean and coordination among economic, social, marine development. We will promote healthy ecological farming, speed up the adjustment of fishery industry structure, and give full play to the fishery’s role as a carbon sink. We will accelerate the development of marine clean energy and expand the scale of seawater utilization. By combining the development, utilization and protection of marine resources with economic development on the land,coastal industrial clusters, port groups and urban agglomeration,we will promote coordinated development between the land and the sea.

We will effectively promote the marine ecological restoration and strengthen monitoring of marine ecological environment. And protect marine biodiversity. By planting the Mangrove in the South and Tamarix Chinensis in the North, the project of the Mangrove in the South and Tamarix Chinensis will be implemented to remediate coastal wetlands and estuary wetland according to local conditions.

We will make full use of science and technologies, professionals,funds, improve marine awareness and encourage people to participate in global marine governance. The marine basic research and cutting-edge marine technology development will be increased to make breakthrough in the field of deep water, green, safe marine high-tech. We will ensure mechanism for coordination between the State Oceanic Administration and Ministry of Science and Technology to be carried out smoothly to connect technological innovation and marine development and promote innovation-driven marine development. The development of marine education will be accelerated to play multi-disciplinary synergies and cultivate comprehensive marine professionals. Finical input will be ramped up to marine ecological protection. Publicity of marine ecological civilization will be promoted to improve people’s awareness in marine environmental protection. Public participation mechanism will be built to create a climate where the whole society care for and protect the ocean and support the construction of marine ecological civilization. We will expand bilateral maritime cooperation and take a lead in multilateral regional cooperation. We speed up capacity building of international maritime and polar investigation and fully participate in international ocean affairs.