生态系统服务研究在生态红线政策保护成效评估中的应用
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摘要
生态保护红线政策是中国推进生态保护与建设的宏观政策,其保护成效评估是国内外关注的重大科学问题。在分析国内外生态系统服务研究进展及中国生态保护红线内涵、划定进程及管控要求的基础上,结合生态红线政策与生态系统服务研究的关联及生态系统服务研究在红线政策保护成效评估应用中面临的挑战,提出了红线政策实施效果评估的技术框架和基本思路。开展生态红线政策保护成效评估,能从科学上明确生态红线政策实施对多尺度利益相关者成本、效益的影响,为生态红线政策的综合研究提供框架和科学方法;从政策设计上,为生态红线布局进一步优化提供依据;从制度建设上,提出符合生态红线政策实施的制度框架,推动生态保护红线制度建设由理论走向实践。
The ecological redline policy(ERP) is a key macro-level policy to manage different land-use functions in accordance with development and environmental limits. The effectiveness of the ERP is a central scientific question for both domestic and international concerns on sustainable development. In this study, we first analyzed the domestic and international progress of ecosystem services research and the connotation, demarcation process, and management requirements of China′s ecological protection redline. We then proposed the technical framework and the basic ideas for an effectiveness evaluation of the ERP based on the analysis of the connection between the ERP and ecosystem services research and the challenges of the application of ecosystem services for the effectiveness evaluation of the ERP. We proposed to conduct a comprehensive policy analysis using field surveys and monitoring, remote sensing monitoring, questionnaires, and scenario simulations to evaluate the effectiveness of the ERP with the aims of 1) scientifically clarifying the impact of the ERP on the multi-scale stakeholders′ costs and benefits to assess the protection efficiency of the ERP and to provide a framework and scientific method for the comprehensive study of the ERP; 2) simulating ecosystem services outcomes under alternative scenarios and provide the scientific basis for further optimization of the redline layout from a policy design standpoint; and 3) propose an institutional framework that complies with the implementation of the ERP from the point of institutional construction, to move institutional reforms from theory to practice.
The ecological redline policy(ERP) is a key macro-level policy to manage different land-use functions in accordance with development and environmental limits. The effectiveness of the ERP is a central scientific question for both domestic and international concerns on sustainable development. In this study, we first analyzed the domestic and international progress of ecosystem services research and the connotation, demarcation process, and management requirements of China′s ecological protection redline. We then proposed the technical framework and the basic ideas for an effectiveness evaluation of the ERP based on the analysis of the connection between the ERP and ecosystem services research and the challenges of the application of ecosystem services for the effectiveness evaluation of the ERP. We proposed to conduct a comprehensive policy analysis using field surveys and monitoring, remote sensing monitoring, questionnaires, and scenario simulations to evaluate the effectiveness of the ERP with the aims of 1) scientifically clarifying the impact of the ERP on the multi-scale stakeholders′ costs and benefits to assess the protection efficiency of the ERP and to provide a framework and scientific method for the comprehensive study of the ERP; 2) simulating ecosystem services outcomes under alternative scenarios and provide the scientific basis for further optimization of the redline layout from a policy design standpoint; and 3) propose an institutional framework that complies with the implementation of the ERP from the point of institutional construction, to move institutional reforms from theory to practice.
引文
[1] Ouyang Z Y,Zheng H,Xiao Y,Polasky S,Liu J G,Xu W H,Wang Q,Zhang L,Xiao Y,Rao E M,Jiang L,Lu F,Wang X K,Yang G B,Gong S H,Wu B F,Zeng Y,Yang W,Daily G C.Improvements in ecosystem services from investments in natural capital.Science,2016,352(6292):1455- 1459.
[2] Wong C P,Jiang B,Kinzig A P,Lee K N,Ouyang Z Y.Linking ecosystem characteristics to final ecosystem services for public policy.Ecology Letters,2015,18(1):108- 118.
[3] Guerry A D,Polasky S,Lubchenco J,Chaplin-Kramer R,Daily G C,Griffin R,Ruckelshaus M,Bateman I J,Duraiappah A,Elmqvist T,Feldman M W,Folke C,Hoekstra J,Kareiva P M,Keeler B L,Li S Z,McKenzie E,Ouyang Z Y,Reyers B,Ricketts T H,Rockstr?m J,Tallis H,Vira B.Natural capital and ecosystem services informing decisions:from promise to practice.Proceedings of the National Academy of Sciences of the United States of America,2015,112(24):7348- 7355.
[4] United States Department of Agriculture Forest Service (USDA FS).National forest system land management planning.Federal Register,2012,77:21162- 21276.
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[6] Maes J,Egoh B,Willemen L,Liquete C,Vihervaara P,Sch?gner J P,Grizzetti B,Drakou E G,Notte A L,Zulian G,Bouraoui F,Paracchini M L,Braat L,Bidoglio G.Mapping ecosystem services for policy support and decision making in the European Union.Ecosystem Services,2012,1(1):31- 39.
[7] Bai Y,Jiang B,Wang M,Li H,Alatalo J M,Huang S F.New ecological redline policy (ERP) to secure ecosystem services in China.Land Use Policy,2016,55:348- 351.
[8] Liu J G,Diamond J.China′s environment in a globalizing world.Nature,2005,435(7046):1179- 1186.
[9] 高吉喜,邹长新,王丽霞.划定生态保护红线深化环境影响评价.环境影响评价,2014,(4):11- 14.
[10] 中共中央办公厅,国务院办公厅.中办国办印发《关于划定并严守生态保护红线的若干意见》.人民日报,2017-02-08(01版).
[11] Polasky S,Tallis H,Reyers B.Setting the bar:standards for ecosystem services.Proceedings of the National Academy of Sciences of the United States of America,2015,112(24):7356- 7361.
[12] Ehrlich P R,Kareiva P M,Daily G C.Securing natural capital and expanding equity to rescale civilization.Nature,2012,486(7401):68- 73.
[13] United States Environmental Protection Agency.National Ecosystem Services Classification System (NESCS):Framework Design and Policy Application.Washington,DC:United States Environmental Protection Agency,2015.
[14] United States Environmental Protection Agency.Valuing the Protection of Ecological Systems and Services:A Report of the EPA Science Advisory Board (EPA-SAB-09-012).Washington,DC:United States Environmental Protection Agency,2009.
[15] The Economics of Ecosystems and Biodiversity (TEEB).The Economics of Ecosystems and Biodiversity:Ecological and Economic Foundations.London:Earthscan,2010.
[16] Boyd J,Banzhaf S.What are ecosystem services?The need for standardized environmental accounting units.Ecological Economics,2007,63(2/3):616- 626.
[17] Nahlik A M,Kentula M E,Fennessy M S,Landers D H.Where is the consensus?A proposed foundation for moving ecosystem service concepts into practice.Ecological Economics,2012,77:27- 35.
[18] Bockstael N E,Freeman A M,Kopp R J,Portney P,Smith V K.On measuring economic values for nature.Environmental Science & Technology,2000,34(8):1384- 1389.
[19] Bennett E M,Peterson G D,Gordon L J.Understanding relationships among multiple ecosystem services.Ecology Letters,2009,12(12):1394- 1404.
[20] Zheng H,Li Y F,Robinson B E,Liu G,Ma D C,Wang F C,Lu F,Ouyang Z Y,Daily G C.Using ecosystem service trade-offs to inform water conservation policies and management practices.Frontiers in Ecology and the Environment,2016,14(10):527- 532.
[21] Kremen C.Managing ecosystem services:what do we need to know about their ecology?Ecology Letters,2005,8(5):468- 479.
[22] Zheng H,Robinson B E,Liang Y C,Polasky S,Ma D C,Wang F C,Ruckelshaus M,Ouyang Z Y,Daily G C.Benefits,costs,and livelihood implications of a regional payment for ecosystem service program.Proceedings of the National Academy of Sciences of the United States of America,2013,110(41):16681- 16686.
[23] Nelson E,Mendoza G,Regetz J,Polasky S,Tallis H,Cameron D R,Chan K M A,Daily G C,Goldstein J,Kareiva P,Lonsdorf E,Naidoo R,Ricketts T H,Shaw M R.Modeling multiple ecosystem services,biodiversity conservation,commodity production,and tradeoffs at landscape scales.Frontiers in Ecology and the Environment,2009,7(1):4- 11.
[24] Cowling R M,Egoh B,Knight A T,O′Farrell P J,Reyers B,Rouget M,Roux D J,Welz A,Wilhelm-Rechman A.An operational model for mainstreaming ecosystem services for implementation.Proceedings of the National Academy of Sciences of the United States of America,2008,105(28):9483- 9488.
[25] Leslie H M.A roadmap to nature′s benefits.Science,2012,332(6035):1264- 1265.
[26] Burkhard B,Kroll F,Nedkov S,Müller F.Mapping ecosystem service supply,demand and budgets.Ecological Indicators,2012,21:17- 29.
[27] Schirpke U,Scolozzi R,de Marco C,Tappeiner U.Mapping beneficiaries of ecosystem services flows from Natura 2000 sites.Ecosystem Services,2014,9:170- 179.
[28] Nedkov S,Burkhard B.Flood regulating ecosystem services-mapping supply and demand,in the Etropole municipality,Bulgaria.Ecological Indicators,2012,21:67- 79.
[29] Stürck J,Poortinga A,Verburg P H.Mapping ecosystem services:the supply and demand of flood regulation services in Europe.Ecological Indicators,2014,38:198- 211.
[30] 于丹丹,吕楠,傅伯杰.生物多样性与生态系统服务评估指标与方法.生态学报,2017,37(2):349- 357.
[31] Crossman N D,Burkhard B,Nedkov S,Willemen L,Petz K,Palomo I,Drakou E G,Martín-Lopez B,McPhearson T,Boyanova K,Alkemade R,Egoh B,Dunbar M B,Maes J.A blueprint for mapping and modelling ecosystem services.Ecosystem Services,2013,4:4- 14.
[32] 饶恩明,肖燚,欧阳志云,郑华.海南岛生态系统土壤保持功能空间特征及影响因素.生态学报,2013,33(3):746- 755.
[33] Li C,Zheng H,Li S Z,Chen X S,Li J,Zeng W H,Liang Y C,Polasky S,Feldman M W,Ruckelshaus M,Ouyang Z Y,Daily G C.Impacts of conservation and human development policy across stakeholders and scales.Proceedings of the National Academy of Sciences of the United States of America,2015,112(24):7396- 7401.
[34] Polasky S,Segerson K.Integrating ecology and economics in the study of ecosystem services:some lessons learned.Annual Review of Resource Economics,2009,1:409- 434.
[35] National Research Council (NRC).Valuing Ecosystem Services:Toward Better Environmental Decision-Making.Washington,DC:National Academies Press,2005.
[36] Barbier E B.Valuing ecosystem services as productive inputs.Economic Policy,2007,22(49):178- 229.
[37] Barbier E B,Enchelmeyer B S.Valuing the storm surge protection service of US gulf Coast wetlands.Journal of Environmental Economics and Policy,2014,3(2):167- 185.
[38] Barbier E B,Koch E W,Silliman B R,Hacker S D,Wolanski E,Primavera J,Granek E F,Polasky S,Aswani S,Cramer L A,Stoms D M,Kennedy C J,Bael D,Kappel C V,Perillo G M E,Reed D J.Coastal ecosystem-based management with nonlinear ecological functions and values.Science,2008,319(5861):321- 323.
[39] Ricketts T H,Daily G C,Ehrlich P R,Michener C D.Economic value of tropical forest to coffee production.Proceedings of the National Academy of Sciences of the United States of America,2004,101(34):12579- 12582.
[40] Cooter E J,Rea A,Bruins R,Schwede D,Dennis R.The role of the atmosphere in the provision of ecosystem services.Science of the Total Environment,2013,448:197- 208.
[41] Wong C P,Jiang B,Bohn T J,Lee K N,Lettenmaier D P,Ma D C,Ouyang Z Y.Lake and wetland ecosystem services measuring water storage and local climate regulation.Water Resources Research,2017,53(4):3197- 3223.
[42] 中华人民共和国环境保护部.生态保护红线划定技术指南.北京:中华人民共国环境保护部,2015.
[43] 高吉喜,邹长新,郑好.推进生态保护红线落地保障生态文明制度建设.环境保护,2015,43(11):26- 29.
[44] 邹长新,王丽霞,刘军会.论生态保护红线的类型划分与管控.生物多样性,2015,23(6):716- 724.
[45] 郑华,欧阳志云.生态红线的实践与思考.中国科学院院刊,2014,29(4):457- 461,448- 448.
[46] 中华人民共和国环境保护部,中华人民共和国国家发展和改革委员会.生态保护红线划定指南.北京:环境保护部,国家发展改革委,2017.
[47] Jiang B,Bai Y,Wong C P,Xu X B,Alatalo J M.China′s ecological civilization program—Implementing ecological redline policy.Land Use Policy,2019,81:111-114.
[48] 高吉喜.探索我国生态保护红线划定与监管.生物多样性,2015,23(6):705- 707.
[49] Baró F,Haase D,Gómez-Baggethun E,Frantzeskaki N.Mismatches between ecosystem services supply and demand in urban areas:A quantitative assessment in five European cities.Ecological Indicators,2015,55:146- 158.
[2] Wong C P,Jiang B,Kinzig A P,Lee K N,Ouyang Z Y.Linking ecosystem characteristics to final ecosystem services for public policy.Ecology Letters,2015,18(1):108- 118.
[3] Guerry A D,Polasky S,Lubchenco J,Chaplin-Kramer R,Daily G C,Griffin R,Ruckelshaus M,Bateman I J,Duraiappah A,Elmqvist T,Feldman M W,Folke C,Hoekstra J,Kareiva P M,Keeler B L,Li S Z,McKenzie E,Ouyang Z Y,Reyers B,Ricketts T H,Rockstr?m J,Tallis H,Vira B.Natural capital and ecosystem services informing decisions:from promise to practice.Proceedings of the National Academy of Sciences of the United States of America,2015,112(24):7348- 7355.
[4] United States Department of Agriculture Forest Service (USDA FS).National forest system land management planning.Federal Register,2012,77:21162- 21276.
[5] Waage S,Kester C.Global Public Sector Trends in Ecosystem Services:2009- 2013.San Francisco,CA:Business for Social Responsibility,2014.
[6] Maes J,Egoh B,Willemen L,Liquete C,Vihervaara P,Sch?gner J P,Grizzetti B,Drakou E G,Notte A L,Zulian G,Bouraoui F,Paracchini M L,Braat L,Bidoglio G.Mapping ecosystem services for policy support and decision making in the European Union.Ecosystem Services,2012,1(1):31- 39.
[7] Bai Y,Jiang B,Wang M,Li H,Alatalo J M,Huang S F.New ecological redline policy (ERP) to secure ecosystem services in China.Land Use Policy,2016,55:348- 351.
[8] Liu J G,Diamond J.China′s environment in a globalizing world.Nature,2005,435(7046):1179- 1186.
[9] 高吉喜,邹长新,王丽霞.划定生态保护红线深化环境影响评价.环境影响评价,2014,(4):11- 14.
[10] 中共中央办公厅,国务院办公厅.中办国办印发《关于划定并严守生态保护红线的若干意见》.人民日报,2017-02-08(01版).
[11] Polasky S,Tallis H,Reyers B.Setting the bar:standards for ecosystem services.Proceedings of the National Academy of Sciences of the United States of America,2015,112(24):7356- 7361.
[12] Ehrlich P R,Kareiva P M,Daily G C.Securing natural capital and expanding equity to rescale civilization.Nature,2012,486(7401):68- 73.
[13] United States Environmental Protection Agency.National Ecosystem Services Classification System (NESCS):Framework Design and Policy Application.Washington,DC:United States Environmental Protection Agency,2015.
[14] United States Environmental Protection Agency.Valuing the Protection of Ecological Systems and Services:A Report of the EPA Science Advisory Board (EPA-SAB-09-012).Washington,DC:United States Environmental Protection Agency,2009.
[15] The Economics of Ecosystems and Biodiversity (TEEB).The Economics of Ecosystems and Biodiversity:Ecological and Economic Foundations.London:Earthscan,2010.
[16] Boyd J,Banzhaf S.What are ecosystem services?The need for standardized environmental accounting units.Ecological Economics,2007,63(2/3):616- 626.
[17] Nahlik A M,Kentula M E,Fennessy M S,Landers D H.Where is the consensus?A proposed foundation for moving ecosystem service concepts into practice.Ecological Economics,2012,77:27- 35.
[18] Bockstael N E,Freeman A M,Kopp R J,Portney P,Smith V K.On measuring economic values for nature.Environmental Science & Technology,2000,34(8):1384- 1389.
[19] Bennett E M,Peterson G D,Gordon L J.Understanding relationships among multiple ecosystem services.Ecology Letters,2009,12(12):1394- 1404.
[20] Zheng H,Li Y F,Robinson B E,Liu G,Ma D C,Wang F C,Lu F,Ouyang Z Y,Daily G C.Using ecosystem service trade-offs to inform water conservation policies and management practices.Frontiers in Ecology and the Environment,2016,14(10):527- 532.
[21] Kremen C.Managing ecosystem services:what do we need to know about their ecology?Ecology Letters,2005,8(5):468- 479.
[22] Zheng H,Robinson B E,Liang Y C,Polasky S,Ma D C,Wang F C,Ruckelshaus M,Ouyang Z Y,Daily G C.Benefits,costs,and livelihood implications of a regional payment for ecosystem service program.Proceedings of the National Academy of Sciences of the United States of America,2013,110(41):16681- 16686.
[23] Nelson E,Mendoza G,Regetz J,Polasky S,Tallis H,Cameron D R,Chan K M A,Daily G C,Goldstein J,Kareiva P,Lonsdorf E,Naidoo R,Ricketts T H,Shaw M R.Modeling multiple ecosystem services,biodiversity conservation,commodity production,and tradeoffs at landscape scales.Frontiers in Ecology and the Environment,2009,7(1):4- 11.
[24] Cowling R M,Egoh B,Knight A T,O′Farrell P J,Reyers B,Rouget M,Roux D J,Welz A,Wilhelm-Rechman A.An operational model for mainstreaming ecosystem services for implementation.Proceedings of the National Academy of Sciences of the United States of America,2008,105(28):9483- 9488.
[25] Leslie H M.A roadmap to nature′s benefits.Science,2012,332(6035):1264- 1265.
[26] Burkhard B,Kroll F,Nedkov S,Müller F.Mapping ecosystem service supply,demand and budgets.Ecological Indicators,2012,21:17- 29.
[27] Schirpke U,Scolozzi R,de Marco C,Tappeiner U.Mapping beneficiaries of ecosystem services flows from Natura 2000 sites.Ecosystem Services,2014,9:170- 179.
[28] Nedkov S,Burkhard B.Flood regulating ecosystem services-mapping supply and demand,in the Etropole municipality,Bulgaria.Ecological Indicators,2012,21:67- 79.
[29] Stürck J,Poortinga A,Verburg P H.Mapping ecosystem services:the supply and demand of flood regulation services in Europe.Ecological Indicators,2014,38:198- 211.
[30] 于丹丹,吕楠,傅伯杰.生物多样性与生态系统服务评估指标与方法.生态学报,2017,37(2):349- 357.
[31] Crossman N D,Burkhard B,Nedkov S,Willemen L,Petz K,Palomo I,Drakou E G,Martín-Lopez B,McPhearson T,Boyanova K,Alkemade R,Egoh B,Dunbar M B,Maes J.A blueprint for mapping and modelling ecosystem services.Ecosystem Services,2013,4:4- 14.
[32] 饶恩明,肖燚,欧阳志云,郑华.海南岛生态系统土壤保持功能空间特征及影响因素.生态学报,2013,33(3):746- 755.
[33] Li C,Zheng H,Li S Z,Chen X S,Li J,Zeng W H,Liang Y C,Polasky S,Feldman M W,Ruckelshaus M,Ouyang Z Y,Daily G C.Impacts of conservation and human development policy across stakeholders and scales.Proceedings of the National Academy of Sciences of the United States of America,2015,112(24):7396- 7401.
[34] Polasky S,Segerson K.Integrating ecology and economics in the study of ecosystem services:some lessons learned.Annual Review of Resource Economics,2009,1:409- 434.
[35] National Research Council (NRC).Valuing Ecosystem Services:Toward Better Environmental Decision-Making.Washington,DC:National Academies Press,2005.
[36] Barbier E B.Valuing ecosystem services as productive inputs.Economic Policy,2007,22(49):178- 229.
[37] Barbier E B,Enchelmeyer B S.Valuing the storm surge protection service of US gulf Coast wetlands.Journal of Environmental Economics and Policy,2014,3(2):167- 185.
[38] Barbier E B,Koch E W,Silliman B R,Hacker S D,Wolanski E,Primavera J,Granek E F,Polasky S,Aswani S,Cramer L A,Stoms D M,Kennedy C J,Bael D,Kappel C V,Perillo G M E,Reed D J.Coastal ecosystem-based management with nonlinear ecological functions and values.Science,2008,319(5861):321- 323.
[39] Ricketts T H,Daily G C,Ehrlich P R,Michener C D.Economic value of tropical forest to coffee production.Proceedings of the National Academy of Sciences of the United States of America,2004,101(34):12579- 12582.
[40] Cooter E J,Rea A,Bruins R,Schwede D,Dennis R.The role of the atmosphere in the provision of ecosystem services.Science of the Total Environment,2013,448:197- 208.
[41] Wong C P,Jiang B,Bohn T J,Lee K N,Lettenmaier D P,Ma D C,Ouyang Z Y.Lake and wetland ecosystem services measuring water storage and local climate regulation.Water Resources Research,2017,53(4):3197- 3223.
[42] 中华人民共和国环境保护部.生态保护红线划定技术指南.北京:中华人民共国环境保护部,2015.
[43] 高吉喜,邹长新,郑好.推进生态保护红线落地保障生态文明制度建设.环境保护,2015,43(11):26- 29.
[44] 邹长新,王丽霞,刘军会.论生态保护红线的类型划分与管控.生物多样性,2015,23(6):716- 724.
[45] 郑华,欧阳志云.生态红线的实践与思考.中国科学院院刊,2014,29(4):457- 461,448- 448.
[46] 中华人民共和国环境保护部,中华人民共和国国家发展和改革委员会.生态保护红线划定指南.北京:环境保护部,国家发展改革委,2017.
[47] Jiang B,Bai Y,Wong C P,Xu X B,Alatalo J M.China′s ecological civilization program—Implementing ecological redline policy.Land Use Policy,2019,81:111-114.
[48] 高吉喜.探索我国生态保护红线划定与监管.生物多样性,2015,23(6):705- 707.
[49] Baró F,Haase D,Gómez-Baggethun E,Frantzeskaki N.Mismatches between ecosystem services supply and demand in urban areas:A quantitative assessment in five European cities.Ecological Indicators,2015,55:146- 158.