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| Title: | 重塑「以糧為綱」的中國環境治理—環境惡化下的中國糧食安全與其因應
Bring Food Security Back to the Environment Governance—China’S Food Security under Environmental Degradation and Its Adaptation |
| Authors: | 林義鈞 |
| Contributors: | 國關中心 |
| Keywords: | 中國環境治理;資源稀少;糧食安全;社會獨創性;適應性
Chinese environmental governance;resource scarcity;food security;social ingenuity;adaptation |
| Date: | 2018-10 |
| Issue Date: | 2025-07-22 09:54:23 (UTC+8) |
| Abstract: | 傳統中國環境治理的内容主要圍繞於如何增產糧食，並且兼顧永續使用山林水利等稀少資 源為目標，水利社會因此成為描述古中國環境治理的模式。1950年代到2000年代中葉，「以糧 為綱」的立場更加主導中國環境治理的發展，無論是毁林開荒、圍湖造田、防治工業污染農業、 履行生物多樣性公約等行動都說明保障糧食生產一直居於中國環境治理的重點。世紀之交期間， 由於石化燃料等溫室氣體排放成為全球環境治理的焦點，並且在21世紀初期成為中國環境汙染 的主要因素，使得中國環境治理的重心從鄉村走向城市，治理的焦點從「以糧為綱」轉變為「以 節能為中心」的内容，不僅對内繼承先前的糧食生產資源省長責任制政策，形成當代的能源改革 以減少溫室氣體排放的省長責任制等環境治理特色；對外更改變過去參與生物多樣性公約的主動 履行過程，形成「共同而有區別」的環境外交原則以參與氣候變遷綱要公約。然而，隨著中國糧 食需求速度遠超越增產幅度；糧食生產資源大幅惡化；科技貢獻度停滯發展；生物多樣性公約增 修案開始限制基因改造食物的推廣等因素，使得鄉村為主的「以糧為綱」環境治理焦點再度獲得 重視，並且學習當代「以節能為中心」的環境治理内容，對内形成跨省境（甚至跨國界）的糧食 安全複合體治理機制，對外也採用「共同而有區別」的環境外交原則以面對生物多樣性公約增修 案的約束，形成新一波的中國環境治理特色。
本研究案因此發問：新一波「以糧為綱」的環境治理特色有何延續與改變？並且借用Thomas F. Homer-Dixon的社會獨創性（social ingenuity)為重要環境調適能力以面對資源稀少的限制等理 論，認為「以糧為綱」的環境治理特色源始於中國傳統的獨創環境觀，因此擅長於内部環境治理 機制的成形，並且重視稀少資源的維護與環境變遷衝擊的適應性能力（adaptive capacity)，此種 環境治理機制正在學習21世紀初期所興起「以節能為中心」的外來環境觀，創造出獨特的環境 外交原則，並且培養出防治汙染的能力與面對環境變遷衝擊的緩解性能力（mitigation capacity)。 本研究案希望因此解決社會獨創性理論長期缺乏環境治理案例證明的詬病，並且系統性說明中國 環境治理機制的繼承與變遷。
Missions of the ancient Chinese environmental governance were assigned to safeguard food security by utilizing its limited natural resources with sustainability. As a result, a term, hydraulic society, was coined to describe the ancient Chinese environmental governance. From the 1950s to the mid-2000s, concerns of Chinese food security further dominated the development of its environmental governance agenda. Actions of retrieving farmland by deforestation, reclaiming farmland from lakes, preventing grains from pollution, and following the Convention on Biological Diversity (CBD, considered for better food production) all presented that food security remained as the core issue in the Chinese environmental governance mechanisms. However, as management of greenhouse gas emissions has become an urgent global environmental issue since the late-1990s, and sources of greenhouse gas emissions have even exacerbated China’s air quality problems, the mission of the Chinese environmental governance has been shifted from rural farmland conservation into urban air improvement. “Energy conservation and emission reduction (ECER)” therefore replaced the priority of food security and developed as the core issue in China’s environmental governance agenda. Not only has domestically the essence of the provincial governor’s responsibility system, previously for food security, been followed to save energy and reduce emission, but globally a new environmental diplomacy concept—common but differentiated responsibility (CBDR)—has been applied to join the United Nations Framework Convention on Climate Change, different from China’s applying the CBD without any conditions. Nevertheless, since the water and soil pollution has been causing China’s food quality and quantity problems recently, the previous rural perspective of the Chinese environmental governance mission, safeguarding food security, has been coming back. China’s currently new food security-based environmental governance mechanism has adopted ECER’s regional security complex and CBDR lessons to both secure its domestic food security status and to avoid responsibility from supplementary agreements to the CBD.
The implementation of this new environmental governance mechanism drives an interesting question to come out: what parts of the Chinese environmental governance mechanisms has been continued and changes? This project will use Thomas F. Homer-Dixon’s theory, social ingenuity as a crucial capacity to deal with resource scarcity, to answer the question. The new Chinese food security-based environmental governance mechanism has inherited its traditional strength—adaptive capacity, from the hydraulic society—and developed its new ingenuity—mitigation capacity, from the ECER experience—to face its newly emerging, though traditionally still, environmental problem, food security. Findings of this project are expected to contributing a substantial evidence to the social ingenuity theory, as well as to describing the continuities and changes of the Chinese environmental governance mechanisms. |
| Relation: | 科技部, MOST105-2410-H004-024-MY2, 105.08-107.07 |
| Data Type: | report |
| Appears in Collections: | [國際關係研究中心] 國科會研究計畫
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