绿色气候基金在全球气候治理体系中的作用和展望

The role and development of Green Climate Fund in the global climate governance system

作为《联合国气候变化框架公约》(简称公约)和《巴黎协定》资金机制最大运营实体,绿色气候基金(GCF)不仅是发达国家兑现1000亿美元长期资金承诺的重要平台,亦是公约和《巴黎协定》目标达成的关键因素。文中系统总结了GCF在推进气候变化国际合作进程、为发展中国家应对气候变化提供资金支持、推动私营部门参与应对气候变化行动等方面的积极作用。提出在当前多边合作面临挑战的复杂背景下,GCF亦面临美国退群、缺乏有效决策机制、项目质量及秘书处能力有待提高等系列问题。文章认为,一个持续有效运营的GCF是国际社会落实《巴黎协定》实施细则的重要保障,各方应尽快凝聚政治共识,推动GCF在全球气候治理体系中继续发挥积极作用。首先,应通过引入投票权决策机制、完善政策缺口、创新业务模式等措施提升基金治理和运营效率;其次,通过尽快完成正式增资进程、拓宽资金渠道、加强剩余资金管理等方式确保充足及可持续的资金来源;最后,还应通过强化与现有气候基金的协调互补、加大与多边发展银行的合作等途径与各方资金形成合力,推动资金流向低碳和气候韧性发展领域。文章还提出,中国应在有效发挥发达国家和发展中国家桥梁作用的基础上,引导GCF投票权改革以消除政治因素对GCF长远发展的负面影响,同时通过积极争取获得下届董事席位,推进与GCF全方位合作、参与GCF正式增资进程等举措,服务生态文明建设及全球应对气候变化目标。

As the largest operating entity of the financial mechanism of the United Nations Framework Convention on Climate Change and the Paris Agreement, the Green Climate Fund (GCF) is not only an important channel for developed countries to ful fill their long-term financial commitment of $100 billion, but also a key factor in achieving the objectives of the Convention and the Paris Agreement. This paper summarizes the positive role of the GCF in advancing the international cooperation on climate change, providing financial support for developing countries to tackle climate change, and promoting private sector participation in climate change action. Against the backdrop of challenges in the multilateral cooperation, the GCF is also confronted with many immediate and potential dif ficulties such as uncertainty of financial resources, lack of effective decision-making mechanisms, need for improvement of project quality and the capacity of the Secretariat. This paper presents that an effective GCF is vital for the implementation of Paris Agreement. To ensure the sustainable development of the GCF, the paper suggests that all parties should build political consensus and take the following actions. First, improve the governance ef ficiency by introducing voting mechanism in the absence of consensus, filling policy gaps and innovating business model. Secondly, ensure adequate and sustainable financial resources by finalizing formal replenishment process as soon as possible, receiving contributions from alternative sources, managing remaining commitment authority;and finally, enhance the coordination and complementarity with existing climate funds and multilateral development banks to make financial flows consistent with a pathway towards low carbon and climate resilient development. This papers also proposes that China should facilitate the GCF reform process by bridging the differences between developed and developing countries, and at the same time ensure the board membership for the next three years to promote the holistic cooperation with GCF and make contributions in the GCF formal replenishment process to serve the ecological civilization and the global climate action.