【作者】 何跃；

【导师】 王建平；

【作者基本信息】 四川大学 ， 法学， 2020， 博士

【摘要】 《联合国气候变化框架公约》第1条将气候变化定义为:“经过相当一段时间的观察,在自然气候变化之外由人类活动直接或间接地改变全球大气组成所导致的气候改变”。工业革命以来,发达国家向大气中排放了大量温室气体,使得温室气体浓度明显增高,导致了全球变暖现象。随着气候变化的科学研究和社会认知不断深入,气候变化问题已经成为影响范围最广、影响程度最深的国际环境问题之一,对于全球经济社会的发展具有明显的制约作用,众多领域面临气候变化威胁而亟待应对。有鉴于此,如何系统性地进行应对气候变化法律制度构建值得深入研究。20世纪90年代以来,国际社会已经通过了一系列国际条约来试图在国际层面采取一致行动应对气候变化,并指导各国开展具体应对行动。众多国家也通过立法、行政、司法等手段来应对气候变化,将应对气候变化的国际义务转化为国内义务。总体上,气候变化的科学研究、应对气候变化国际法律框架的建立、代表国家的应对气候变化立法与司法行动等具体措施,的确起到了一定的积极作用。但不可忽视的是,这些努力对于从根本上解决气候变化问题,还远远不够。因而,如何进一步完善和优化应对气候变化国际法律框架以及国内法律体系,成为了应对气候变化问题的关键所在。目前看来,应对气候变化法律制度体系还没有建立起来,应对气候变化法律制度包括的内容还不明确,导致应对行动缺乏必要的法律支撑和保障。这既是国际社会面临的问题,也是我国目前面临的问题。应对气候变化的法律制度,从类型化角度看主要可以分为两类,一是气候变化减缓法律制度(mitigation),二是气候变化适应制度(adaptation)。气候变化减缓制度,是指从温室气体的排放源(source)入手,减少温室气体的绝对排放量、移除大气中既存的温室气体(sink)、增加温室气体的储存(reservoir)。气候变化减缓制度,是《气候公约》框架建立之初的最为关键和重要的制度,其试图通过构建高效有约束力的减缓法律制度,在短期内控制温室气体排放总量,稳定大气中的温室气体浓度。具体而言,气候变化减缓法律制度构建的主要思路,是通过对产业结构和能源结构进行调整和优化,一方面,从能源的供给侧着手,以可持续发展原则为指导,减少化石能源使用比例的同时,增加非化石能源的使用比例;另一方面,从能源的消费侧着手,坚持节约能源原则,减少能源使用的同时,以发电行业、运输业、建筑业、农林业等主要排放部门为突破口,提高能源的使用效率。减缓制度的实施路径可以分为市场化手段和非市场手段。传统的气候变化减缓制度,主要是利用命令与控制(Command and Control)的非市场化手段进行制度构建,国际应对层面以《京都议定书》中设定的强制量化减排制度为典型代表。为了降低减排成本,优化资源配置,减缓制度引入了市场化手段,同样以《京都议定书》为例,其下建立的碳排放交易机制就是充分运用了市场化手段,允许附件一国家之间进行碳排放交易。《巴黎协定》下新构建的国际间可转让排放成果机制(ITMO),将市场化的减缓机制推广适用于至所有缔约国之间。全新的国家自主贡献减排模式,摒弃了《京都议定书》下的“双轨制”减排模式,标志着由京都时代的“自上而下”应对模式逐渐过渡到后京都时代“自下而上”应对模式。在新机制和新模式下,以中国为代表的发展中国家虽未被赋予强制性的减排义务和责任,但也应该积极顺应气候变化应对国际框架下的减排趋势,体现大国担当。总体而言,本文减缓法律制度部分从类型化的角度,就“减源”、“增汇”两类主要的减缓制度进行详细的阐述与构建,并辅以完善建议。随着气候变化科学研究的深入和推进,气候变化的趋势在短期内难以逆转,因而国际社会日益重视气候变化适应法律制度的构建,以期借助成本效益的经济学分析,来减少和避免气候变化影响所造成的经济社会损失。在2007年《气候公约》第十三次缔约国会议上通过的《巴厘岛路线图》,首次将气候适应提升至与气候减缓同等重要的地位。随后在2015年通过的《巴黎协定》更是通过专门性、体系性的规定,更加重视适应法律制度的地位。具体而言,气候变化适应法律制度构建的主要思路是,在对气候变化适应法律关系的界定与把握的基础上,系统性的分析气候变化风险及其影响,从而针对面临风险和影响的具体领域实现事前预警和公众参与制度、事后气候适应资金制度等的体系性构建。以减缓和适应为视角,中国应对气候变化法律规制主要包括三个层面:一是立法规制层面,二是行政规制层面,三是司法规制层面。我国应对气候变化法律规制的立法路径主要有三种类型,分别是综合性立法路径、部门性整合路径和政策性规制路径。综合比较三种类型的立法路径,笔者认为,在坚持现行的政策性规制的路径,整合环境法、民法部门法资源,不断累积气候变化应对立法、行政和司法面向经验的同时,选择综合性立法路径具有一定的必要性及可行性,在2030年温室气体排放达峰前,应当制定并出台气候变化应对综合性法律,以囊括减缓和适应制度;就行政规制层面而言,现行应对气候变化行政体制机制仍然具有完善的必要,应当充分整合隶属于生态环境部的气候变化司的职能,实现应对气候变化与大气污染、生态保护等职能的协同治理。同时,健全“应对气候变化与节能减排领导小组”的议事协调机制,考虑在制定政策过程中或在综合性立法中,将其升级为常设性机构,提升协调各相关部委以应对气候变化,提升工作效率;就我国的发展实际情况来看,气候变化综合性立法在短期内还难以出台,利用司法面向的积极探索,也不失为一种合理的应对气候变化行动。近年来随着《环境保护法》、《民事诉讼法》、《行政诉讼法》以及相关司法解释的出台,使得环境公益诉讼体系初步建立并完善起来,为气候变化公益诉讼开展提供了实体性和程序性基础。气候变化的公众参与不仅体现在立法制定层面的,更在于司法实践层面的参与,不仅有助于气候变化社会背景信念的建立与完善,保障公民气候变化及环境知情权,也是实现公众参与监督的有效路径。更多还原

【Abstract】 Article 1 of the United Nations Framework Convention on Climate Change defines climate change as: After a considerable period of observation,in addition to natural climate change,climate change caused by human activities directly or indirectly changing the global atmospheric composition.Since the Industrial Revolution,developed countries have emitted large amounts of greenhouse gases into the atmosphere,which has caused a significant increase in greenhouse gas concentrations,leading to global warming.With the continuous deepening of scientific research on climate change and social cognition,the issue of climate change has become one of the most influential international environmental issues.It has an obvious restrictive effect on the development of the global economy and society,and many fields face the threat of climate change is urgently needed.In view of this,how to construct a legal system to deal with climate change is worthy of in-depth study.Since the 1990 s,the international community has adopted a series of international treaties to try to take concerted action to combat climate change at the international level and guide countries to carry out specific response actions.Many countries have also responded to climate change through legislative,administrative,judicial and other means,and transformed their international obligations to respond to climate change into domestic obligations.In general,specific measures such as scientific research on climate change,establishment of an international legal framework for addressing climate change,and climate change legislation and judicial actions on behalf of countries have indeed played a positive role.But it cannot be ignored that these efforts are far from enough to save climate change fundamentally.Therefore,how to further improve and optimize the international legal framework for addressing climate change and the domestic legal system has become the key to addressing climate change issues.At present,it seems that the legal system to deal with climate change has not been established,and the content of the legal system to deal with climate change is not yet clear,resulting in the lack of necessary legal support and guarantees for response actions.This is not only a problem facing the international community,but also a problem currently facing China.From a typological point of view,the legal system to deal with climate change can be divided into two categories,one is the climate change mitigation legal system,and the other is the climate change adaptation legal system.The climate change mitigation system refers to starting with the source of greenhouse gases,reducing the absolute emissions of greenhouse gases,increasing the reservoir of greenhouse gases,and removing greenhouse gases to achieve carbon sequestration.The climate change mitigation system is the most critical and important system at the beginning of the establishment of the framework of the Convention.It attempts to control the total amount of greenhouse gas emissions in the short term and stabilize the greenhouse gases in the atmosphere by constructing an efficient and binding legal system for mitigation.Specifically,the main idea of building a climate change mitigation legal system is to adjust and optimize the industrial structure and energy structure.On the one hand,in the energy supply side,adhering to the principle of sustainable development,while reducing the proportion of fossil energy use,increase the proportion of non-fossil energy use;on the other hand,in the energy consumption side,adhering to the principle of energy conservation and reduce energy use,while making breakthroughs in key emission sectors such as power generation,transportation,construction,agriculture and forestry,improve energy efficiency.It is important to note that currently,engineering carbon sink technologies such as Carbon Capture and Storage(CCS)are not mature enough,so they have not concentrated on large-scale promotion and utilization,but with the rapid development of science and technology,the future development and utilization of engineering carbon sinks is worth looking forward to.The implementation path of the mitigation system can be divided into market and non-market means.The traditional climate change mitigation system mainly use Command and Control to build the system.The international response level is represented by the quantitative emission reduction system set in the Kyoto Protocol.In order to reduce the cost of emission reduction,optimize the allocation of resources,market-oriented means were introduced.Taking the Kyoto Protocol as an example,the carbon emission trading mechanism established under it is to fully utilize market-based means,allowing Annex I countries conduct GHG Emissions Trading.The newly established International Transferable Mitigation Outcome(ITMO)under the Paris Agreement extends the market-based mitigation mechanism to all parties of the Paris Agreement.The new independent emission reduction contribution model,abandoning the dual-track emission reduction model under the Kyoto Protocol,marking the gradual transition from the top-down model of the Kyoto Era to the bottom-up model of the Post-Kyoto Era mode.Under the new mechanism and new model,although developing countries represented by China have not been given compulsory emission reduction obligations and responsibilities,they should also actively adapt to climate change and respond to the trend of emission reductions under the international framework,reflecting the responsibility of major powers.In general,the mitigation legal system part of this article elaborate and construct the three major mitigation systems of Source Reduction,Reservoir Increase and Sink Removal,supplemented by suggestions for improvement.With the deepening and advancement of scientific research on climate change,the trend of climate change is difficult to reverse in the short term.Therefore,the international community has increasingly attached importance to the construction of a climate change adaptation legal system with a view to reducing and avoiding the impact of climate change with the help of cost-effective economic analysis The resulting economic and social losses.The Bali Roadmap adopted at the COP13 to the Convention in 2007,for the first time,promoted climate adaptation to the same importance as climate mitigation.Later,in the Paris Agreement,special and systematic regulations were adopted,and more attention was paid to adaptation legal system.Specifically,the main idea for the construction of a climate change adaptation legal system is to systematically analyze climate change risks and their impacts on the basis of the definition and grasp of the legal relationship of climate change adaptation laws,so as to target specific areas facing risks and impacts achieve the systematic construction of early warning,public participation system,and climate adaptation funding system after the event.In general,the legal framework of the climate change adaptation system constructed by the climate change adaptation system in this paper mainly includes climate risk assessment system,climate warning system,climate adaptation funding system and public participation system.From the perspective of mitigation and adaptation,China’s legal regulation of climate change includes three levels: one is the legislative level,the other is the administrative level,and the third is the judicial level.There are three main types of legislative paths for China’s response to climate change laws and regulations:comprehensive legislative paths,sectoral integration paths,and policy regulatory paths.Comprehensively comparing the three types of legislative paths,the author believes that while adhering to the current policy regulation path and accumulating climate change response to the legislative and judicial aspects,it is necessary and feasible to choose a comprehensive legislative path.Before the peak of greenhouse gas emissions in 2030,a comprehensive law on climate change response should be formulated and promulgated.As far as the level of administrative regulation is concerned,the current administrative mechanism for responding to climate change still needs to be perfected.It should fully integrate the functions of the Climate Change Department under the Ministry of Ecology and Environment to achieve coordinated governance of climate change,atmospheric pollution,and ecological protection..At the same time,improve the discussion and coordination mechanism of the Leading Group on Response to Climate Change and Energy Conservation and Emission Reduction,consider upgrading it to a permanent body in the process of formulating policies or in comprehensive legislation,and enhance coordination of relevant ministries and commissions to respond to climate change.From the perspective of China’s actual development,comprehensive legislation on climate change is difficult to promulgate in the short term.Taking advantage of judicialoriented proactive exploration is also a reasonable response to climate change.In recent years,with the promulgation of Environmental Protection Law,Civil Procedure Law,Administrative Procedure Law and related judicial interpretations,the environmental public interest litigation system has been initially established and improved,providing substantive and procedural basis.Public participation in climate change is not only reflected in the level of legislative formulation,but also in the level of judicial practice.It not only contributes to the establishment and improvement of the belief in the social background of climate change,guarantees citizens’ right to know about climate change and the environment,but also an effective way to realize public participation in supervision.更多还原