評BBNJ協定下建立劃區管理工具的國際合作與協調

Review on the International Cooperation and Coordination of ABMTs Establishment under BBNJ Agreement

包括海洋保護區在內的劃區管理工具是BBNJ協定“一攬子”事項的重要內容。其中，建立令人滿意的BBNJ協定與“相關法律文書和框架以及相關全球、區域、次區域和領域機構”（IFBs）的合作與協調機制是談判和最終協定的核心和關鍵所在。最終協定以規定締約方大會在建立劃區管理工具及採取相關措施方面的職權為主要方式，努力平衡BBNJ協定與IFBs之間的權限範圍，並為二者之間的合作與協調搭建框架機制，同時規定締約方大會作出的建立劃區管理工具及採取相關措施的決定不應損害IFBs。總體上，BBNJ協定所確定的建立劃區管理工具的國際合作與協調機制仍是框架式的，具體如何開展以及成效如何，還有待BBNJ協定生效後的實踐。BBNJ協定建立的科學和技術機構的能力建設令人擔憂，這些科學和技術機構與更為專業的區域或領域機構相比不具優勢。既是BBNJ協定締約方、又是IFBs成員的國家可以在國際合作與協調中發揮重要作用。建議我國深度參與劃區管理工具的國際合作與協調，尤其要積極參與BBNJ協定和IFBs的科學技術工作，高度重視並加大BBNJ協定生效後對未決事項的議定參與度，積極推動BBNJ協定締約方大會的決策按照協商一致的原則作出。

Area-based management tools (ABMTs), including marine protected areas, is one of the important topics in the“package”of the Agreement under the United Nations Convention on the Law of the Sea on the Conservation and Sustainable Use of Marine Biological Diversity of Areas Beyond National Jurisdiction (BBNJ Agreement). It is the core and key to establish satisfactory cooperation and coordination mechanism between BBNJ Agreement and other relevant legal instruments and frameworks and relevant global, regional, subregional and sectorial bodies (IFBs). The final BBNJ Agreement tries to balance the scope of competences between BBNJ Agreement and other IFBs, and to build a structured mechanism for the cooperation and coordination, by providing the competence of the Conference of the Parties (COP) of BBNJ Agreement in establishing ABMTs and related measures, while providing that the COP shall not undermine IFBs in making decisions on establishment of ABMTs and related measures. Generally speaking, the international cooperation and coordination mechanism on ABMTs in the areas beyond national jurisdiction established in the BBNJ Agreement is still only a framework. How it will work and what effect it will have depend on future practice after the Agreement enters into force. The capacity building of the Science and Technology Body established by BBNJ Agreement is disturbingly insufficient. It is very difficult for the Science and Technology Body to showcase advantages, compared with the more professional sectoral and regional bodies. The states that are parties to both BBNJ Agreement and IFBs can play a more important role in the international cooperation and coordination. It is suggested that China should enhance participation in the international cooperation and coordination of ABMTs, especially in the scientific and technological parts of BBNJ Agreement and IFBs, attach great importance to and increase participation in the negotiation of pivoting issues after the Agreement enters into force, and actively promote decision-making by the COP of the Agreement in accordance with the principle of consensus.