基于中加比较的我国海洋渔业管理发展研究
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摘要
伴随着人类对渔业资源从开发不足、充分开发、过度开发到资源衰退的利用过程，人类逐渐开始重视渔业管理。从自由捕捞、投入控制为主、投入控制与产出控制相结合到基于生态系统的渔业管理方式的实施，渔业管理经历了不同的发展阶段。由于人类日益加剧的捕捞和污染，加之渔业资源具有共有性和流动性，渔业海洋生态系统具有动态性和复杂性，传统的渔业管理方法已经无力改变渔业资源持续衰退的现状。我国海洋渔业管理的发展面临渔政管理体制不够健全、渔业管理机制不够完善、科研指导管理不够充分、渔业管理模式不够先进、渔业管理措施不够到位的主要问题。
学界对基于生态系统的渔业管理方式解决当前渔业资源衰退、生态系统恶化危机的有效性和必要性已经初步达成了共识，认为实施基于生态系统的渔业管理方式是世界渔业管理发展的趋势和目标。对基于生态系统的渔业管理、渔民及其社区和其他利益相关者的参与型管理和科学指导管理的渔业管理理念等问题的研究已成为现代渔业管理理论研究的主要方向。Pitcher et al.（2009）对世界33个国家实施基于生态系统的渔业管理方式的原则、指标和执行情况进行了评价，结果表明目前各国无一达到良好标准，加拿大达标，我国的评级为不及格。中国和加拿大都处于从单物种渔业管理向基于生态系统的渔业管理转变的过渡阶段，但加拿大的渔业管理位居世界先进国行列，我国的渔业管理仍处于较为初级的发展阶段。尽管中加两国的渔业海洋生态环境不同、渔业资源状况不同、国情不同、渔业管理体制和制度不同，客观的比较是困难的，但整体观的比较可以明晰两国海洋渔业管理的先进经验和失败教训，在现阶段进行这样的比较研究是必要的且非常有意义的。本文旨在探索解决我国海洋渔业发展问题的现实途径和制度安排，为完善我国海洋渔业管理发展提供切实可行的参考建议，为我国的渔业管理决策提供理论和技术支撑。
论文从我国海洋渔业管理发展存在的主要问题入手，以渔业管理相关理论为基础，对我国和加拿大的渔业海洋环境、海洋渔业资源利用、渔业管理机制和渔业管理制度进行了横向比较，并着眼于从过去到现在的历史沿革展开纵向比较。通过对中加海洋渔业管理比较研究发现，加拿大具有优越的海洋区位优势、丰富的渔业资源、悠久的渔业管理历史，已经形成了以综合性的、预防性的、利益相关者高参与度的、以法治为基础、科学资源评估为指导的精细化渔业管理。在管理的有效性方面，加拿大已经达到了渔业资源保护和利用之间更好的平衡。相比之下，我国近海的主要经济渔业资源衰退、生态系统恶化，渔业资源无法实现可持续利用。渔业管理盲目追求经济利益最大化的发展目标，呈现“以资源养护需要为考虑的技术性措施、以渔业投入为中心的控制机制，以政府为主导的管理过程”的特点，尚处于初级阶段，与渔业的发展不相适应。
论文选取了我国和加拿大的两个较为典型的渔业资源管理案例——东海带鱼和加拿大斯科舍陆架的银无须鳕，对其渔业及渔业管理制度进行了比较研究。带鱼与银无须鳕具有相似的生物学特征，从比较研究的角度对二者进行管理效果的评估在国内尚属首次。通过构建产量——补充量模型（反Ricker模型）分析银无须鳕资源的产量与补充量关系，并计算实现最大渔获量时最大补充量的值对其管理效果进行评估。结果表明加拿大政府1994年实施的一系列管理措施得当，利于实现对银无须鳕资源的养护。产量与补充量关系模型的构建是对Ricker模型在生物学领域应用的进一步延伸和推进，可以作为海洋渔业资源管理效果评估的一个参考目标，是本文的一个创新点。论文还对两种鱼类的补充量与海洋环境因子进行了相关性分析，研究了海洋环境因素对渔业资源变动的影响。总的分析表明带鱼和银无须鳕的管理制度都处在单一鱼种管理的阶段。带鱼的管理以采取禁渔制度为主，虽有短期效益，但实质资源状况并未改善，我国近海较为稳定的海洋环境有利于带鱼资源的养护；银无须鳕的管理制度较为有效，银无须鳕资源变动受环境因子影响较大，资源量虽有波动，但仍处于可持续的发展状态。银无须鳕管理制度中针对非目标鱼种的兼捕控制措施、多物种的空间保护区制度和应对环境变化的适应性政策框架是值得我国渔业管理借鉴的部分。
论文最后提出了加拿大在坚持法治原则、贯彻实现渔业的可持续发展目标、重视海洋渔业资源评估、赋予渔民参与管理决策权和积极开展国际渔业合作五个方面的海洋渔业管理经验。根据我国海洋渔业的发展现状，对完善我国海洋渔业管理的发展提出了由技术性措施保障实施的管理向基于权利的法治管理转变、由政府管治为主导向共同管理转变、由“粗放式”的目标管理向“精细化”的过程管理转变、由“单物种”的管理方式向“基于生态系统的渔业管理”方式转变的路径选择建议。
Fishery resources exploitation has developed from the status of being less exploited,fullyexploited, overexploited tothe status of being depleted, so people pay more attention tofishery management. There are four stages in the development of fishery management: freefishing, input controls only, input and output controls, ecosystem based fishery management(EBFM). While facing at the features of fishery resources (common, straddled), thecharacteristics of fishery marine ecosystems (dynamic and complex) and the increasing captureand pollution, traditional fishery management methods are of no effects to solve the situations ofresources depletion.There are some disadvantages existed in the China‘s marine fisherymanagement process: administrative institution arrangement is not adequate， fisherymanagement mechanism is not reasonable, scientific decision-making is not high emphasized,fishery management mood is not advanced, fishery management measures is not effective.
The researchers reached the consensus about necessities and effects on solving fisheryresource depletion and ecosystem crisis by EBFM implementation, with the agreement thatEBFM implementation is the target and tendency of the development of global fisherymanagement.Studies on modern fishery management theories focus on EBFM, participatorymanagement and scientific-based manament. The performance of33countries was evaluated forEBFM in three fields (principles, criteria and implementation) using quantitative ordinationincluding uncertainty (Pitcher et al.2009). No country rated overall as good‘, Canada was adequate‘, while China received fail‘grades.China and Canada aretransforming from singlefishery management to EBFM.Canada‘sfishery management is listed at the top level of theworld, while China‘s fishery management still stays in the primary stage.China and Canadadiffer in fishery marine environment, fishery resources status, national situations, fisherymanagement mechanisms and regimes, so the fair comparison is difficult. However, comparisonfrom a whole picture is necessary and meaningful in current stage. The purpose of this study isto clarify each other‘ssuccesses or failures, to find out the practical and institutional solutions,providereferences for China‘s fishery management development and also support fordecision-making in theories and techniques.
This paper discusses the major problems in the development of China‘s fisherymanagement and conducts analysis based on the fishery management theories, with historicalcomparison on fishery marine environment, marine fishery reso urces exploitation, fisherymanaging mechanisms and regimes between China and Canada. It can be concluded bycomprehensive and systemic comparison between China and Canada that Canada formedcomprehensive, precaution-based principle, high involvement of stake holders, rule by law,scientific decision-making process with good ocean position, abundant fishery resources andlong fishery management history. On the contrary, China‘s fishery resource cannot be exploitedsustainably with the depletion of major commercial fishery resources and the deterioration ofecosystem. China peruses economy interests maximized and its current managing focus ontaking technique measures to conserve resource, managing by input control mainly andgovernance of government-oriented. China‘s fishery management still stays in the primarystage,not adapting to the development of fishery resources exploitation.
This paper studies fishery and fishery regimes of two typical species cases, hairtail in theEast China Sea and silver hake in the scotia shelf of Canada. It is the first time in China toassess managing efforts for hairtial from being compared to silver hake, which with similarbiological characteristics as hairtail. The relationship between silver hake‘s landing andrecruitment is analyzed by building the―landing-recruitment‘model (reverse-Ricker model),and the value of max recruitment is calculated when reached the max landing for the purpose ofassessing its managing efforts. The results show that management measures were effective beingimplemented in1994by Canadian government, which is beneficial for resources conservation.Modeling the relationship between landing and recruitment is the further applicationfor Rickermodel in the field of biology and it can be used as a reference objective. Such is an originality ofthis paper. Still, the relevant relationship between recruitments of these two species andenvironmental factors is analyzed in order to study the influence of marine environment shifts tothe variation of fishery resources. As general results show that hairtail and silver hake aremanaged by single species management methods. Hairtail managing relies on moratorium andactually there is no release for the resources recovery although a short-term benefit occurred.Also the stable marine environment helps the conservation of hairtail resource. While, althoughthere are some fluctuations in the biomass of silver hake influenced by environment factors,silver hake still keep in the status of sustainable development, which means that silver hakemanaging is effective. China could learn the pioneer experience of silver hake managementregimes, such as by-catch controls of non-target fishery resources, marine protected areafocused on multi-species and adaptive policy frame in response to the environment shifts.
This paper summarizes Canadian successful managing practices in the following aspects:persisting in legal governance, implementing sustainable fishery development objectives,emphasizing assessment of marine fishery resources, authorizing fisherman participating anddecision-making rights and being active in international fishery cooperation. Based on China‘scurrent developing fishery management, this papersuggests China‘s future approaches in marinefishery management, which arebeing transformedfrom technique measures implementedmanagement to right-based management legal governance, from orientated governance tocommon management mechanisms,from extensive targeted management to intensive processmanagement and from single species resources management to EBFM.
学界对基于生态系统的渔业管理方式解决当前渔业资源衰退、生态系统恶化危机的有效性和必要性已经初步达成了共识，认为实施基于生态系统的渔业管理方式是世界渔业管理发展的趋势和目标。对基于生态系统的渔业管理、渔民及其社区和其他利益相关者的参与型管理和科学指导管理的渔业管理理念等问题的研究已成为现代渔业管理理论研究的主要方向。Pitcher et al.（2009）对世界33个国家实施基于生态系统的渔业管理方式的原则、指标和执行情况进行了评价，结果表明目前各国无一达到良好标准，加拿大达标，我国的评级为不及格。中国和加拿大都处于从单物种渔业管理向基于生态系统的渔业管理转变的过渡阶段，但加拿大的渔业管理位居世界先进国行列，我国的渔业管理仍处于较为初级的发展阶段。尽管中加两国的渔业海洋生态环境不同、渔业资源状况不同、国情不同、渔业管理体制和制度不同，客观的比较是困难的，但整体观的比较可以明晰两国海洋渔业管理的先进经验和失败教训，在现阶段进行这样的比较研究是必要的且非常有意义的。本文旨在探索解决我国海洋渔业发展问题的现实途径和制度安排，为完善我国海洋渔业管理发展提供切实可行的参考建议，为我国的渔业管理决策提供理论和技术支撑。
论文从我国海洋渔业管理发展存在的主要问题入手，以渔业管理相关理论为基础，对我国和加拿大的渔业海洋环境、海洋渔业资源利用、渔业管理机制和渔业管理制度进行了横向比较，并着眼于从过去到现在的历史沿革展开纵向比较。通过对中加海洋渔业管理比较研究发现，加拿大具有优越的海洋区位优势、丰富的渔业资源、悠久的渔业管理历史，已经形成了以综合性的、预防性的、利益相关者高参与度的、以法治为基础、科学资源评估为指导的精细化渔业管理。在管理的有效性方面，加拿大已经达到了渔业资源保护和利用之间更好的平衡。相比之下，我国近海的主要经济渔业资源衰退、生态系统恶化，渔业资源无法实现可持续利用。渔业管理盲目追求经济利益最大化的发展目标，呈现“以资源养护需要为考虑的技术性措施、以渔业投入为中心的控制机制，以政府为主导的管理过程”的特点，尚处于初级阶段，与渔业的发展不相适应。
论文选取了我国和加拿大的两个较为典型的渔业资源管理案例——东海带鱼和加拿大斯科舍陆架的银无须鳕，对其渔业及渔业管理制度进行了比较研究。带鱼与银无须鳕具有相似的生物学特征，从比较研究的角度对二者进行管理效果的评估在国内尚属首次。通过构建产量——补充量模型（反Ricker模型）分析银无须鳕资源的产量与补充量关系，并计算实现最大渔获量时最大补充量的值对其管理效果进行评估。结果表明加拿大政府1994年实施的一系列管理措施得当，利于实现对银无须鳕资源的养护。产量与补充量关系模型的构建是对Ricker模型在生物学领域应用的进一步延伸和推进，可以作为海洋渔业资源管理效果评估的一个参考目标，是本文的一个创新点。论文还对两种鱼类的补充量与海洋环境因子进行了相关性分析，研究了海洋环境因素对渔业资源变动的影响。总的分析表明带鱼和银无须鳕的管理制度都处在单一鱼种管理的阶段。带鱼的管理以采取禁渔制度为主，虽有短期效益，但实质资源状况并未改善，我国近海较为稳定的海洋环境有利于带鱼资源的养护；银无须鳕的管理制度较为有效，银无须鳕资源变动受环境因子影响较大，资源量虽有波动，但仍处于可持续的发展状态。银无须鳕管理制度中针对非目标鱼种的兼捕控制措施、多物种的空间保护区制度和应对环境变化的适应性政策框架是值得我国渔业管理借鉴的部分。
论文最后提出了加拿大在坚持法治原则、贯彻实现渔业的可持续发展目标、重视海洋渔业资源评估、赋予渔民参与管理决策权和积极开展国际渔业合作五个方面的海洋渔业管理经验。根据我国海洋渔业的发展现状，对完善我国海洋渔业管理的发展提出了由技术性措施保障实施的管理向基于权利的法治管理转变、由政府管治为主导向共同管理转变、由“粗放式”的目标管理向“精细化”的过程管理转变、由“单物种”的管理方式向“基于生态系统的渔业管理”方式转变的路径选择建议。
Fishery resources exploitation has developed from the status of being less exploited,fullyexploited, overexploited tothe status of being depleted, so people pay more attention tofishery management. There are four stages in the development of fishery management: freefishing, input controls only, input and output controls, ecosystem based fishery management(EBFM). While facing at the features of fishery resources (common, straddled), thecharacteristics of fishery marine ecosystems (dynamic and complex) and the increasing captureand pollution, traditional fishery management methods are of no effects to solve the situations ofresources depletion.There are some disadvantages existed in the China‘s marine fisherymanagement process: administrative institution arrangement is not adequate， fisherymanagement mechanism is not reasonable, scientific decision-making is not high emphasized,fishery management mood is not advanced, fishery management measures is not effective.
The researchers reached the consensus about necessities and effects on solving fisheryresource depletion and ecosystem crisis by EBFM implementation, with the agreement thatEBFM implementation is the target and tendency of the development of global fisherymanagement.Studies on modern fishery management theories focus on EBFM, participatorymanagement and scientific-based manament. The performance of33countries was evaluated forEBFM in three fields (principles, criteria and implementation) using quantitative ordinationincluding uncertainty (Pitcher et al.2009). No country rated overall as good‘, Canada was adequate‘, while China received fail‘grades.China and Canada aretransforming from singlefishery management to EBFM.Canada‘sfishery management is listed at the top level of theworld, while China‘s fishery management still stays in the primary stage.China and Canadadiffer in fishery marine environment, fishery resources status, national situations, fisherymanagement mechanisms and regimes, so the fair comparison is difficult. However, comparisonfrom a whole picture is necessary and meaningful in current stage. The purpose of this study isto clarify each other‘ssuccesses or failures, to find out the practical and institutional solutions,providereferences for China‘s fishery management development and also support fordecision-making in theories and techniques.
This paper discusses the major problems in the development of China‘s fisherymanagement and conducts analysis based on the fishery management theories, with historicalcomparison on fishery marine environment, marine fishery reso urces exploitation, fisherymanaging mechanisms and regimes between China and Canada. It can be concluded bycomprehensive and systemic comparison between China and Canada that Canada formedcomprehensive, precaution-based principle, high involvement of stake holders, rule by law,scientific decision-making process with good ocean position, abundant fishery resources andlong fishery management history. On the contrary, China‘s fishery resource cannot be exploitedsustainably with the depletion of major commercial fishery resources and the deterioration ofecosystem. China peruses economy interests maximized and its current managing focus ontaking technique measures to conserve resource, managing by input control mainly andgovernance of government-oriented. China‘s fishery management still stays in the primarystage,not adapting to the development of fishery resources exploitation.
This paper studies fishery and fishery regimes of two typical species cases, hairtail in theEast China Sea and silver hake in the scotia shelf of Canada. It is the first time in China toassess managing efforts for hairtial from being compared to silver hake, which with similarbiological characteristics as hairtail. The relationship between silver hake‘s landing andrecruitment is analyzed by building the―landing-recruitment‘model (reverse-Ricker model),and the value of max recruitment is calculated when reached the max landing for the purpose ofassessing its managing efforts. The results show that management measures were effective beingimplemented in1994by Canadian government, which is beneficial for resources conservation.Modeling the relationship between landing and recruitment is the further applicationfor Rickermodel in the field of biology and it can be used as a reference objective. Such is an originality ofthis paper. Still, the relevant relationship between recruitments of these two species andenvironmental factors is analyzed in order to study the influence of marine environment shifts tothe variation of fishery resources. As general results show that hairtail and silver hake aremanaged by single species management methods. Hairtail managing relies on moratorium andactually there is no release for the resources recovery although a short-term benefit occurred.Also the stable marine environment helps the conservation of hairtail resource. While, althoughthere are some fluctuations in the biomass of silver hake influenced by environment factors,silver hake still keep in the status of sustainable development, which means that silver hakemanaging is effective. China could learn the pioneer experience of silver hake managementregimes, such as by-catch controls of non-target fishery resources, marine protected areafocused on multi-species and adaptive policy frame in response to the environment shifts.
This paper summarizes Canadian successful managing practices in the following aspects:persisting in legal governance, implementing sustainable fishery development objectives,emphasizing assessment of marine fishery resources, authorizing fisherman participating anddecision-making rights and being active in international fishery cooperation. Based on China‘scurrent developing fishery management, this papersuggests China‘s future approaches in marinefishery management, which arebeing transformedfrom technique measures implementedmanagement to right-based management legal governance, from orientated governance tocommon management mechanisms,from extensive targeted management to intensive processmanagement and from single species resources management to EBFM.
引文
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