发展型国家气候法治的结构与挑战

The Structure and Challenges of Climate Rule of Law in a Developmental State

我国的气候治理依赖于一种发展主义路径,其将制定和实施气候政策的权力交给管理工业事务的政府部门,并允许它们通过使用宏观经济措施改变产业和能源结构,以实现气候目标。这在我国的气候治理法律框架中得到了体现。目前关于气候变化的成文法规范分散在包括环境、资源、产业等多项立法中,甚至在民商法中也能找到相关条款。这些规范授予了行政机关大量的管理权限,却很少规制其在未履行相关职责时的责任。就算正在起草阶段的气候变化法最终通过,也无法改变其分散和不完整的格局。行政机关一方面享有从制定规则到决定政策实施方式的权力和裁量空间,另一方面却仅仅通过不具备法律效力的规划来实现气候治理。尽管如此,法院仍然在个案中用这些政策补充了法律漏洞和解释合同,使其规制目的得以实现。行政主导的模式虽然效率较高,但是因为长期忽视气候变化治理的社会影响,我国气候变化治理面对较大的公平性挑战,放大了社会经济结构中现存的不平等。为了应对挑战,有必要在设计和执行气候政策的时候更多关注社会问题,而非局限于环境和产业视角。在现有的制度限制下,比较可行的做法是从信息公开、决策参与和司法救济三个方面落实环境法体系中已有的公众参与制度。

China has adopted a"developmentalist approach"to climate governance.It entrusts the power of making and implementing climate policy to the governmental ministries and departments that administer industrial affairs,and allows them to achieve climate goals by using macroeconomic measures to transform the structure of industries and energies.A mechanism labeled by the dominance of executive power was thus developed in China's 30 years of climate governance.In terms of legislation,pertinent provisions were scattered in numerous laws in the domains of environmental protection,resources management,industrial development,and civil transactions.They grant the executive branch with authority and considerable room of discretion in making and implementing climate policy,while rarely prescribe responsibility in case of inaction or abuse.Nevertheless,the executive branch makes only nonbinding policy,such as action plans and roadmaps that provides the courts not binding source,but policy goal to achieve.This mechanism is now facing severe challenges in terms of equity,for it is so far little sensitive to the social concerns and demands that are produced during energy transitions.A social turn in climate governance is therefore needed.Besides,the institution of public participation must be further concretized.