世界卫生组织在促进卫生与气候治理协同中的角色与中国的战略选择

WHO’s Role in Promoting Synergies Between Health and Climate Governance and China’s Strategic Paths

全球治理背景下议题联系的凸显对治理逻辑变革提出了要求,国际组织在跨议题领域治理中的角色对于促进不同议题治理议程协同,提升治理成效具有重要意义。由于此类行动通常超越其初始授权,国际组织在新议题领域行动的同时也是观察国际组织自主性扩张的重要研究方向。本文基于议题联系与国际组织自主性的相关理论,构建了以话语、机制和实施三维度为核心的分析框架,并将其运用于世界卫生组织的案例分析中。本文认为气候变化与卫生在问题本身和治理机制两方面体现着议题之间的联系性,此背景下,世卫组织在话语层面塑造了两议题联系,同时,通过机制建设促进两议题协同治理,并积极致力于将气候风险考量纳入卫生项目实施之中。然而由于全球气候治理机制未明确议题联系,气候治理相关配套机制也对卫生议题关注不足,从而在机制层面制约了世卫组织在气候领域的行动。世卫组织对于气候议题的资源投入受限则进一步限制了其在协同治理行动中的角色。伴随着全球疫情后复苏阶段对卫生与气候议题关注度的提升,中国可以通过借助世卫组织在治理协同中的角色,影响气候与卫生交叉议题领域治理规则的制定,提升自身在全球治理中的影响力与全球治理行动的有效性。

The prominence of issue linkages in the context of global governance requires a transformation of governance logic.The role of international organizations(IOs)in overlapped issues governance is of great significance for promoting the coordination of governance agendas of different issues and improving governance effectiveness.Since such actions usually are beyond their initial delegation,they also lead to a profound research direction for observing the autonomy expansion of international organizations.Based on the related theories of issue-linkage and IO autonomy,this paper builds a framework featured with the three-dimensionality of discourse,institution,and implementation as the core,applying it to the case analysis of the World Health Organization(WHO).The research finds that the linkages between climate change and health issue are broadly accepted from the perspectives of both the nature of the two issues and their governance regimes.Confronted with the situation,WHO has successfully shaped and highlighted the issue linkage at the discourse level,and at the same time,promotes governance synergy of the two issues through institution building.Although WHO has made great efforts to incorporate climate risk considerations into the implementation of health projects,routinization of the projects still has a long way to go.The barriers are mainly embodied in two aspects.At the institution level,global climate governance system does not clarify the issue-linkage with health,and fund supporting mechanisms related to climate governance have also laid limited weight on health.Furthermore,the role of WHO in governance synergy actions is confined by resource insufficiency on climate issues.With the increasing concern with health and climate issues during the post-pandemic recovery phase,China can enhance its influence in norm design and effectiveness of its involvement in global governance by means of proactive interacting with WHO.