碳达峰碳中和法律制度构建的逻辑进路——以《气候变化应对法》为切入点

The Logical Approach to the Construction of the Legal System of Carbon Peaking and Carbon Neutrality——Taking the Climate Change Response Law as a starting point

实现碳达峰碳中和是党中央作出的重大决策部署,不仅对外展现了我国在推动构建人类命运共同体中的大国担当,还对内明确了我国应对气候变化工作的新要求。作为一场广泛而深刻的经济社会系统性变革,它要求我们构建“双碳”法律制度,保障“双碳”目标在法治轨道上顺利实现。我国近几年来在推动建设完善“双碳”规范体系方面已经取得显著成效,绿色发展相关理念和减污降碳具体措施等制度内容融入多部法律法规,并制定出台了大量关于碳减排的政策文件,各地也积极响应国家号召,相关地方立法成果较为丰富。在此实践背景下,我国应对气候变化法律体系初步形成,“双碳”目标有序推进。然而,在对当前应对气候变化的法律体系进一步梳理与反思后可以发现,这一法律体系虽然看似详实,但它实际上是由众多分散且独立的单行法堆砌而成,难言系统完整和体系协调。在中央立法层面,以实现“双碳”目标为主要内容的专项法律法规仍然匮乏。在地方立法层面,各地在立法工作过程中由于缺少上位法的引领与统筹,难免出现立法空白和立法冲突等制度困境。基于对世界上其他国家在实现“双碳”目标过程中有益经验的考量和对相关理论与现实需求的分析,《气候变化应对法》在“双碳”法律制度中应当具有基础地位和统率作用。面对当前相关的中央立法针对性缺乏、地方立法碎片化明显等制度困境,只有先通过制定出台《气候变化应对法》,发挥其对整个制度体系进行总纲性统摄的作用,再将碳排放权交易、绿色债券、宣传教育等有助于实现“双碳”目标的必要制度嵌入其中,最后将“双碳”法律体系衔接协调。如是,才能有效促进我国经济社会可持续发展,推动生态文明系统化建设,从而构建生态时代下人与自然和谐共生的新型关系,最终实现中华民族永续发展的伟大目标。

To achieve carbon peaking and carbon neutrality(two-carbon)is a major decision made by the CPC Central Committee.It not only shows China's great responsibility in promoting the building of a community with a shared future for mankind,but also defines the new requirements of China's response to climate change.As an extensive and a profound economic and social systemic reform,it requires us to build a“two-carbon”legal system to ensure the smooth realization of the“two-carbon”goal on the track of rule of law.In recent years,China has made remarkable achievements in promoting the construction and improvement of the“two-carbon”standard system.The concepts related to green development and specific measures to reduce pollution and carbon dioxide have been integrated into many laws and regulations,and a large number of policy documents on carbon dioxide emission reduction have been formulated and issued.Various localities have also actively responded to the call of the state,and the relevant local legislation has achieved rich results.In this context,China's legal system to deal with climate change has been formed,and the“two-carbon”goal has been advanced in an orderly way.However,after further combing and reflecting on the current legal system to deal with climate change,we find out,although this legal system seems detailed,it is actually made up of numerous scattered and independent individual laws,and it is difficult to say that the system is complete and coordinated.At the central legislative level,there is still a lack of special laws and regulations to achieve the“two-carbon”goal as the main content.At the level of local legislation,due to the lack of guidance and coordination of superior law in the process of legislative work,it is inevitable that there will be legislative blank and legislative conflicts and other institutional difficulties.Based on the consideration of the beneficial experience of other countries in the process of realizing the“two-carbon”goal and the analysis of relevant theoretical and practical demand,the Climate Change Response Law should play a fundamental and dominant role in the“two-carbon”legal system.In the face of current institutional dilemmas such as lack of pertinency of central legislation and obvious fragmentation of local legislation,the only way to give full play to the overall controlling role of the entire institutional system is to formulate and issue the Climate Change Response Law,and then embed the necessary systems such as carbon emission trading,green bonds,publicity and education,which are conducive to the realization of the“two-carbon”goal.And finally,the“two-carbon”legal system will be connected and coordinated.Only in this way can we effectively promote the sustainable development of China's economy and society,promote the systematic construction of ecological civilization,so as to build a new type of relationship of harmonious coexistence between man and nature in the ecological era,and finally achieve the great goal of sustainable development of the Chinese nation.