Abstract：
Building a marine ecological security shelter (MESS) has become the main strategy to adapt marine ecological threats in China. As China\'s marine policy lacks a robust framework document, it is necessary to consider whether the policy system can effectively support the construction of MESS. However, the linkage between the construction measures of MESS and related policies is not clear. Therefore, the purpose of this paper is to clarify the concept of MESS and its connection with policy, by adopting the policy content analysis method to analyze the evolution process of MESS-related policy system. The legislative shortcomings and implementation obstacles of the MESS-related policy system are then summarized and discussed. The results show that from 1981 to 2021 the MESS-related policy system has been continuously improved. However, the policy system\'s support and guarantee capacity for building MESS still needs to be improved. (1) Due to the lack of basic laws and special laws, the coordination among governance subjects and among policies lacks legislative guarantee. (2) The construction of MESS continues the inter-regional and inter-department administrative barriers in collaborative governance of marine environment. To establish an effective collaborative governance model, it is essential to improve the governance structure and mechanism. (3) The government-led governance pattern faces the problem of mechanism failure. The command and control instrument accounts for more than 82%, and the public and enterprises lack strong policy guarantees to participate in marine governance. (4) The policy system\'s adaptability to emerging threats must be improved. Marine policies rarely involve emerging threats such as climate change and new pollutants. Meanwhile, the real-time supervision and monitoring mechanism is weak. The real-time supervision is only accounting for about 10%. Generally speaking, as a complex and long-term system engineering, the construction of MESS will inevitably encounter contradictions in politics, culture, and economy. China should deepen the construction of marine ecological civilization and form a governance concept based on ecosystems. Overall, this paper helps to understand the internal connection between MESS and policy comprehensively and provides a new perspective for improving China\'s marine governance capacity.
摘要：
构建海洋生态安全庇护所(MESS)已成为我国应对海洋生态威胁的主要策略。由于中国的海洋政策缺乏一个强有力的框架文件，政策体系能否有效支持MESS的建设是需要考虑的。然而,MESS的建设措施与相关政策之间的联系尚不明确。因此,本文的目的是阐明MESS的概念及其与政策的联系，采用政策内容分析法分析MESS相关政策体系的演化过程。然后对MESS相关政策体系的立法缺陷和实施障碍进行了总结和讨论。结果表明，从1981年到2021年，MESS相关政策体系不断完善。然而,政策体系对MESS建设的支撑和保障能力仍有待提高。（1）由于缺乏基本法和特别法，治理主体之间和政策之间的协调缺乏立法保障。(2)MESS的建设延续了海洋环境协同治理的区域间和部门间的行政壁垒。建立有效的协同治理模式,完善治理结构和机制至关重要。(3)政府主导型治理模式面临机制失灵问题。指挥控制仪器占82%以上,公众和企业参与海洋治理缺乏强有力的政策保障。（4）必须提高政策系统对新出现威胁的适应性。海洋政策很少涉及气候变化和新污染物等新出现的威胁。同时,实时监管机制薄弱。实时监管仅占10%左右。一般来说,作为一项复杂而长期的系统工程，MESS的建设不可避免地会遇到政治上的矛盾，文化,和经济。中国应深化海洋生态文明建设，形成基于生态系统的治理理念。总的来说,本文有助于全面理解MESS与政策的内在联系,为提高我国海洋治理能力提供新的视角。
