减污降碳协同路径研究:典型国家驱动机制及对中国的启示

Collaborative pathways of pollution reduction and carbon abatement:typical countries’driving mechanisms and their implications for China

中国生态文明建设进入以降碳为重点战略方向、推动减污降碳协同增效、促进经济社会发展全面绿色转型、实现生态环境质量改善由量变到质变的关键时期。但通过何种路径才能实现减污降碳的协同治理,推动达成协同治理的内在驱动力又是什么?发达国家是否已经实现了协同?其经验教训中国是否可以借鉴?基于此,该研究首先采用协同控制效应坐标系法,判断不同国家减污降碳协同治理所处的阶段,绘制典型发达国家减污降碳的历史路径并挖掘其演变规律及不同类型背后的驱动机制。其次,从硫碳减排量变化情况、能源结构、居民受教育程度及产业结构等维度出发,对我国碳污协同治理所处阶段进行识别,分析得出我国当前与德国二十世纪八九十年代的协同状况较为类似,即从碳增硫减进入协同防控的波动阶段。但由于社会制度、减排目标、资源禀赋、经济体量等的差异,应辩证地看待德国能源转型、碳市场建设以及环境立法历程,选择性地借鉴他国经验。针对如何实现减污降碳的协同治理提出建议:①促进能源转型,转变能源结构,从根本上实现减污降碳。②利用碳市场突破减污瓶颈,将市场调节与政府干预相结合,在完善碳市场监管体系的同时,制定具有中国特色的配额分配机制和价格控制措施。③减少碳污“分而治之”,增强有意识协同,以提高碳污同治的效率;制定大气污染治理政策时兼顾气候变化的应对,并将排污权与排放权进行一定程度的整合。④明确环境规制边界与政府职责,保障协同防控措施实施的有效性。

China’s ecological civilization construction has entered a critical period in which carbon abatement is the key strategic direction.The country has promoted the synergy and efficiency of pollution reduction and carbon abatement,the overall green transformation of economic and social development,and the quality of its ecological environment has undergone a transformation from quantitative change to qualitative change.But what are the pathways to achieve the collaborative governance of pollution reduction and carbon abatement,and what is the internal driving force to promote it?Have developed countries achieved the synergy?Can China learn from their experiences?To answer these questions,this study firstly adopts the collaborative governance coordinate system to judge which stage different countries are in the collaborative governance of pollution reduction and carbon abatement,identifies the historical pathways,and explores their evolution laws and the driving mechanisms behind different categories.Secondly,based on the pollution and carbon reduction rates,energy structure,residents’education level,and industrial structure,this study finds that the current collaborative governance situation of China is similar to that of Germany between the 1980s and 1990s,which is entering the fluctuation stage of collaborative governance from the CO2-increase and SO2-reduction stage.However,due to differences in social systems,emission reduction targets,resource endowments,and economic size,we should dialectically view Germany’s energy transition,carbon market construction,and environmental legislation process,and selectively learn from other countries’experiences.Finally,it is suggested that China should achieve the coordinated governance of pollution reduction and carbon abatement through:①promoting energy transformation and changing the energy structure in order to control pollution and carbon fundamentally;②using the carbon market to break through the bottleneck of pollution reduction,combining market regulation with government intervention,improving the carbon market supervision system,and formulating Chinese quota allocation mechanisms and price control measures;③reducing‘the treatment of pollution reduction and carbon abatement separately’and enhancing their synergy to improve the efficiency of carbon and pollution control,and taking into account climate change tackling when formulating air pollution policies and integrating pollution rights and emission rights;and④defining the boundaries of environmental regulations and government responsibilities to ensure the effectiveness of the implementation of collaborative governance measures.