区域渔业管理组织中的尺度政治

Scalar-politics in regional fisheries management organizations

  • 摘要:
    目的 探究多尺度区域机制在灵活管理人类共有生物资源方面的机遇与挑战。
    方法 以尺度政治理论为视角,以海洋法框架下的区域渔业管理组织(RFMOs)为研究对象,分析其在物质空间大小、组织空间层级和表达空间范围三大维度,利用尺度下推、尺度上推和尺度重组策略协调权力合法性和强弱关系,以维持或重塑利己性权力过程和结构的尺度化进程。
    结果 RFMOs在对共享渔业的尺度规制中,存在内外管理范畴交错重叠、横纵管理层级张力显化、强弱成员监管策略分异等特征。从不同资格参与者的身份和角色,到谈判磋商中的多元决策和博弈方式,都体现出渔业行为体对尺度的灵活运用,借助不同层级的竞合博弈重构尺度权力关系。在区域渔业管理新形势下,涌现出组织功能扩大化、组织理念现代化、组织分区精细化、组织成员复杂化、资源分布动态化、权责分摊公平化和小国议事集团化等典型案例。
    结论 随着全球海洋治理迈入新阶段,渔业治理不仅涉及对现有RFMOs管理尺度的调整,还包括加强对尚无RFMOs管辖公海区域的监管。渔业行为体可借助尺度策略提升影响力、推动提案落地、维持或重构权力关系,发挥多边合作机制,在遏制域外管辖权单边扩张、维护全球治理体系稳定中发挥重要作用。

     

    Abstract: Regional fisheries management organizations (RFMOs) function as regional eco-scalar fix to mediate spatial production contradictions in modern fisheries governance by dynamically matching ocean scales and management authority. In order to explore the opportunities and challenges of multi-scalar regional mechanisms in flexibly managing shared biological resources, this paper leverages the theory of scalar politics to examine how RFMOs employ scalar strategies represented by upscaling, downscaling, and rescaling under the international law of the sea. The size of physical space, the hierarchy of organizational space, and the scope of expressional space are analyzed respectively. Through various scalar strategies, RFMOs negotiate power legitimacy and rebalance the relations among fisheries actors to maintain or reshape power dynamics within scalar processes. It is found that RFMOs are characterized by overlapping geographical mandates, increasing tensions between horizontal and vertical hierarchies, and differentiated approaches between stronger and weaker stakeholders in their scalar management of shared fisheries. From flexible membership and participation models to diverse decision-making mechanisms, fisheries actors manipulate institutional scales to align with their interests, leveraging scalar cooperation or contention to rescale power relations. Driven by emerging governance dynamics, notable trends are displayed in the expanded functions, institutional modernization, refined zoning, mosaic membership, dynamic resource allocation, balanced conservation equity, and small-State clubbed governance within RFMOs. While multi-scale collaboration promotes inclusivity, it can also fragment authority and reduce efficiency. As global ocean governance enters a new phase, restructuring fisheries governance will require not only scale adjustments in existing RFMOs but also strengthened supervision in unregulated high seas beyond RFMOs jurisdiction. Fisheries actors can further apply scalar strategies to improve influence, institutionalize proposals, and recalibrate power dynamics, while multilateral mechanisms remain essential for countering the unilateral expansion of extraterritorial jurisdiction and preserving the integrity of global governance systems.

     

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