全球气候治理新议题“公正转型路径工作方案”谈判进展、挑战和启示

The New Agenda for Global Climate Negotiation“Work Programme on Just Transition Pathways”:Progress,Challenges and Insights

“公正转型”于2010年正式写入《联合国气候变化框架公约》缔约方大会决定,但在气候谈判进程中关注度相对有限。2022年《联合国气候变化框架公约》第27届缔约方大会正式授权建立“公正转型路径工作方案”新议题①,标志着全球气候治理进程对“公正转型”问题的关注达到一个新的高度,也为“公正转型”问题的磋商和开展合作行动提供了更高的平台。“公正转型路径工作方案”议题谈判呈现如下共识与挑战:一是建立“公正转型路径工作方案”新议题是全球通往碳中和进程中对各国转型需求的回应,也将促进全球碳中和目标的实现和全球低碳转型发展进程;二是虽然各方已就授权建立“公正转型路径工作方案”达成一致,但就工作方案的关键要素、工作方式、主要工作领域等问题存在不同理解;三是工作方案在与“应对措施论坛”议题合并、是否开展具体示范或国际合作行动、是否建立独立资金机制等问题上存在分歧。通过整理各方立场、分析新议题谈判趋势和挑战,为我国参与议题谈判和推进“公正转型”问题国际治理进程提供了启示:重视“公正转型”问题,积极参与推动新议题构建,发挥建设性作用,该议题也可以成为我国推进人类命运共同体建设、引领全球环境治理进程的重要抓手;参与“公正转型”国际合作,为我国相关领域实现“公正转型”提供知识经验和必要的国际资源;协同推进“公正转型”与生态文明建设、联合国2030可持续发展目标落实工作,推动实现经济社会高质量转型发展。

The“Just Transition”was officially included in the decision of the Conference of the Parties to the United Nations Framework Convention on Climate Change in 2010,but its attention in the climate negotiation process is relatively limited.The 27th session of the Conference of the Parties to the United Nations Framework Convention on Climate Change in 2022 adopted a new agenda for the“Work Programme on Just Transition Pathways”,marking a new level of attention to the issue of“Just Transition”in the global climate governance process,and providing a higher platform for consultation and action on the issue of“Just Transition”.The agenda negotiations on the“Work Programme on Just Transition Pathways”present the following consensus and challenges:Firstly,establishing a new agenda for the“Work Programme on Just Transition Pathways”is a response to the transition needs of various countries in the global process of carbon neutrality,and will also promote the achievement of the global carbon neutrality goal and the global low-carbon transition development process;Secondly,although all parties have reached an agreement on authorizing the establishment of the“Work Programme on Just Transition Pathways”,there are different understandings on key elements,work methods,and main work areas;Thirdly,there are differences on issues such as agenda consolidation,whether to carry out specific demonstration or international cooperation actions,and whether to establish independent funding mechanisms.By organizing the positions of all parties,analyzing the trends and challenges of agenda negotiations,we have provided inspiration for China’s participation in the agenda negotiations and promoting the international governance process of the“Just Transition”issue:Firstly,we attach importance to the“Just Transition”issue,actively participate in promoting the construction and implementation of new issues,and demonstrate the constructive role.This can also become an important grasp for China to promote the construction of a community with a shared future for mankind and lead the global environmental governance process;Secondly,China’s participation in international cooperation on“Just Transition”provides knowledge,experience,and necessary international resources for China to achieve“Just Transition”in relevant fields;Thirdly,it is to coordinate the promotion of“Just Transition”and the construction of ecological civilization,as well as the implementation of the United Nations 2030 Sustainable Development Goals(SDG).