碳市场语境下公众参与碳排放环境风险规制研究

Public participation in environmental risk regulation of carbon emission in the context of carbon market

为预防人类活动带来的碳排放环境风险,国家先后启动了试点地区与国家层面的碳市场建设,旨在在“双碳”目标的指引下,通过碳市场的自发调节化解风险。作为公共风险,公众参与规制行为有其必要。通过公众参与碳排放环境风险规制的立法梳理,发现公众参与的规定缺乏系统性且实践性不足,逻辑根源在于技术治理的专家倾向与民主诉求的冲突,以及“命令-控制型”规制体系与多元善治之间的悖谬;制度肇因是立法的体例分散、位阶低下与内容模糊。第三代行政程序具有开放性、多阶性、协商性,能够契合现代环境风险规制的需求。鉴于此,在第三代行政程序的理念指引下,碳排放环境风险规制的公众参与制度建构应在多阶动态、全程参与、平等协商的价值追求下,对风险评估、风险决策、实施监督进行重新设计与安排,形成公众参与的良性机制。

In order to prevent environmental risks of carbon emissions caused by human activities,China has successively launched pilot regional and national carbon market construction,aiming at resolving risks through spontaneous regulation of carbon market under the guidance of“dual carbon”target.As a public risk,it is necessary for the public to participate in regulation.Through the legislation of public participation in the regulation of carbon emission environmental risk,it is found that the provisions of public participation are lack of systematicness and lack of practicality.The logical root is the conflict between the expert tendency of technological governance and the demand for democracy,and the paradox between the“command-and-control”regulation system and the pluralistic good governance.The system is caused by the scattered style of legislation,low rank and vague content.The third generation of administrative procedures are open,multi-step and consultative,which can meet the needs of modern environmental risk regulation.In view of this,under the guidance of the concept of the third generation of administrative procedures,the construction of public participation system of carbon emission environmental risk regulation should be redesigned and arranged for risk assessment,risk decision-making and implementation supervision under the value pursuit of multi-stage dynamic,full participation and equal consultation,so as to form a benign mechanism of public participation.