Governance of Biodiversity Conservation in China And Taiwan

By regulation, each nature reserve, irrespective of ecosystem and wildlife
type, must be divided into these three zones. The zonal system is impractical
or unworkable in several nature reserves (such as large wetland or grassland
areas, or in deserts where mining is the only possible economic activity), and
it creates conflict with community groups.
The PATF has recommended that China adopt the international standards of
the World Conservation Union, which would introduce greater flexibility into
the zonation system. The IUCN management categories are:

● Category Ia: strict nature reserve/wilderness PA, managed mainly for

science or wilderness protection;

● Category Ib: wilderness area – PA, managed mainly for wilderness

protection;

● Category II: national park – PA managed mainly for ecosystem

protection and recreation;

● Category III: natural monument – PA managed mainly for conserva-

tion of specific natural features;

● Category IV: habitat/species management area: PA managed mainly

for conservation through management intervention;

● Category V: protected landscape/seascape – PA managed mainly

for landscape/seascape conservation or recreation; and

● Category VI: managed resource PA, managed mainly for the sustain-

able use of natural resources.^28

A large number of PAs in China would fit much better within the national park
classification (category II) or as protected landscape/seascape. Overall, the
current system, in the opinion of the PATF:

‘Faces a lack of flexibility to adjust to local conditions and solve conflicts between

conservation and development objectives. This is the biggest reason for the poor

management of China’s NRs. China needs to develop a PA system suited to Chinese

conditions and the six-category scheme of IUCN will be the most important

reference.’^29

Our interviews with managers and scholars of biodiversity conservation
confirmed this observation. Flaws in system design were responsible for much
of protected areas’ failure to achieve their conservation mission.

Administrative Organization and Enforcement

Both horizontal and vertical administrative problems adversely affect
management. At the central government level, protective functions are divided
among a large number of agencies, each with different missions. A forestry
administrator discussed this type of conflict:

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