论“双碳”目标下用能权的法律属性

Legal Attributes of Energy-Consuming Right Under the Goals of Carbon Peaking and Carbon Neutralization

强化能源消费强度和总量双控是促进碳达峰碳中和的重要举措和路径,而用能权交易制度的有效建立和运行是实现双控目标的关键。用能权是国家在能源消费总量控制背景下,由国家初始分配和市场交易取得的以能源消费量为核心内容的权利。然而,现有法规和政策文件对于用能权这种新兴权利缺乏明确的界定,学界对用能权法律属性也存在较大争论,致使各地方对用能权交易制度的设计千差万别,用能权交易实践中形成的权利义务关系凌乱复杂,影响了用能权交易制度的健康发展和功效发挥。基于用能权的公共性、公法性、有限财产性的本质和特性,用能权应是一种特许权。从制度价值的层面审视,将用能权界定为特许权对用能权交易制度的稳定推行、技术创新动力的持续生成、能源结构的优化转型以及相关配套制度完善的指引都具有重要价值。

Strengthening the dual control of energy consumption intensity and total volume is an important way to promote carbon peaking and carbon neutralization,while the effective establishment and operation of an energy-consuming right exchange system is the key to achieving the dual control goal.The right to consume energy,in the context of total energy consumption control,is initially a right allocated by the state and traded in the market with energy consumption as the core.However,existing regulations and policy documents lack a clear definition of this emerging right,and there are different opinions in the academic community on the legal attributes of the right to consume energy,which results in a wide variety of designs for the energy-consuming right exchange system in different places and complex and disorderly relations between rights and obligations in this practice,affecting the healthy development and efficacy of the energy-consuming right exchange system.In view of the nature and characteristics of an energy-consuming right,which are public,public law and limited property,the right to energy-consuming should be a concession.From the perspective of institutional value,the definition of energy-consuming right as concessions is of great significance for the stable implementation of the energy-consuming right exchange system,the continuous generation of the driving force of technological innovation,the optimal transformation of the energy structure and the improvement of the relevant supporting system.