非国家行为体参与全球气候治理的网络化发展:模式、动因及影响

The Networking of Non-state Actors in Global Climate Governance: Models,Drivers and Impact

虽然全球气候治理的核心机制仍由主权国家来主导,但非国家行为体在历次气候变化重大会议和事件中扮演了日益重要的角色。在参与全球气候治理过程中,他们逐渐呈现出组织内、组织间和跨组织三种网络化发展模式。特别是由"自上而下"的京都模式向以"自下而上"为主的巴黎模式的转变中,基于公共部门、私营部门和社会组织的包容性跨国伙伴关系网络的发展势头尤为强劲。全球化过程中的权力格局变迁、"双重治理失灵"背景下全球治理日益复杂化的需求、主体间认知提升和功能性互补战略选择以及巴黎模式下的政治机会结构均为这种网络化趋势提供了重要推动力。在后巴黎时代气候治理中,非国家行为体的网络化发展对传统的欧美和发展中国家谈判集团的策略选择也产生了不可小觑的影响:它们日益成为应对特朗普去气候化政策的中坚力量之一,欧盟也通过引领协调型政策来强化同非国家行为体的互动以保持自身的话语权,而以中国为代表的新兴大国更是亟待提升其治理能力,特别是加快新型伙伴关系网络建设。

Although the major institutions of global climate governance are still dominated by nation states,non-state actors have played an increasingly significant role in major climate change conferences and events. During the course their participation,they have gradually developed three networking models: the intra-organizational model,the inter-organizational model,and the trans-organizational model. Especially in the transformation from the "top-down"Kyoto approach to the "bottom-up"Paris approach,the inclusive transnational partnership networks which comprise actors from public sector,private sector and civil society have seen particularly strong growth. There are four important drivers of this trend: the shifting balance of power in the context of globalization,the increasing need for the better governance against the backdrop of "dual governance failure,"the functional strategic complementarity enabled by enhanced inter-subjective cognition,and the political opportunity structure in the Paris model. In post-Paris climate change governance,networks of non-state actors are having a profound impact on the negotiation strategies of the EU,the US and the developing countries: they become one of the indispensible players to deal with Trump's anti-climate change policy; the EU has been enhancing its interactions with non-state actors by using a "leadiating"strategy to maintain its discursive power; and emerging powers such as China need urgently to enhance their governance capability and especially speed up the construction of their partnership networks.