中美应对气候变化的政策过程比较

Comparison of Climate Change Policy Processes between China and USA

中国应对气候变化的政策过程具有明显的自上而下特征,美国应对气候变化的政策过程则呈现出自下而上的特点。中美之所以形成两种截然不同的气候变化政策过程,主要原因在于两国政治制度和经济基础的不同。中国集中式民主使中央政府具有绝对的政治权威,中央政府的决策能够迅速地传递到各级政府并得以实施。作为一个代议制国家,美国中央政府的决策受各种利益集团的影响较大,立法过程更为复杂和漫长。在以经济增长为基础的政治锦标赛下,中国的地方政府更关心经济增长;美国的经济已经高度发达,民众对气候变化的关心程度更高,同时,美国的地方政府在环境立法上拥有更多的自主权,这导致美国的地方政府纷纷出台各自的应对气候变化政策。美国的应对气候变化政策过程过于缓慢,但自下而上的政策形成体系使地方政府提出的减排目标更适合于自身情况,有助于实现较低的减排成本;中国应对气候变化的政策过程具有高效性,但自上而下的政策形成体系忽视了地区差别,对各地方政府造成了较大的减排压力,从而不得不付出更高的减排成本。

China＇s policy processes of mitigating climate changes are top-down in nature,while US＇s policy processes are bottom-up.The difference in political system and economic base in China and the United States is the underlying reason that causes the difference in climate change policy processes.China＇s centralized democracy ensures the central government to possess absolute authority and be able to fast transmit central government＇s decisions to governments at various levels.However,the United States adopts a representative government system,and hence,US central government＇s decisions are largely influenced by assorted interest groups,with a complex and lengthy legislation process.In addition,because China＇s political competition is based on economic development,local governors care most about economic development.By contrast,since the United States has highly developed its economy,the general public is concerned more about climate change issues.Furthermore,state governments in the United States have independent authority in enacting environmental legislation,which leads to the introduction of individual local laws by local governments.Although US policy processes are lengthy,the bottom-up policy system enables local governments to align their emission reduction targets to their capabilities.Consequently,the cost of reducing emissions is relatively low in the United States.By contrast,although China＇s climate change policies are highly effective,the top-down system neglects variances at sub-national levels.Therefore,local governments in China face high pressure of reducing emissions and have to pay a high cost to achieve.