间断均衡理论下中国《能源法》的立法僵局及破局

The Legislative Gridlock of Chinese Energy Law:A Punctuated Equilibrium Theory Perspective

《能源法》在能源转型中扮演着关键角色,但中国《能源法》历经三次立法草案和四次立法议程启动,至今仍未通过立法。《能源法》为何会陷入立法僵局?从法律外部视角探析该问题,利用间断均衡理论剖析中国《能源法》的动态立法过程,发现随着立法者对《能源法》的认识变化,中国《能源法》的立法围绕平衡能源安全、能源低碳和能源正义的三难困境出现了三次立法僵局。焦点事件的冲击为《能源法》启动提供了结构机会,但立法分歧和立法主体的注意力转移导致《能源法》议程陷入僵局。而迫切的立法需求与决策层的关注使《能源法》立法议程得以重新启动。因此,在间断均衡理论的启示下,中国《能源法》的制定应进行以下探索:第一,在立法理念的确定上,应综合国内外能源局势与能源立法背景,抓住能源立法契机,加速以能源安全为重心的《能源法》立法;第二,涉及立法模式的选择,应明确《能源法》为基本法的立法定位,协调其与能源单行法的冲突与衔接,凝聚共识减少立法阻力,集中注意力加速立法;第三,有关立法制度的设计,应逐层分类满足化解能源三难困境,满足立法需求,既完成决策高层制定的顶层设计的法律化,又满足公众期待,从而有效化解《能源法》立法僵局。

The Energy Law plays an important role in energy transition of China.Yet China’s Energy Law has undergone three legislative drafts and four legislative agenda initiations without being passed into law.Why has the Energy Law been in legislative gridlock?This paper explores this issue from an external legal perspective,utilizing the theory of punctuated equilibrium to analyze the dynamic legislative process of China’s Energy Law.It finds that with legislators’understanding of the Energy Law evolving,the legislative process encountered three gridlocks centered around balancing the trilemma of energy security,low-carbon energy,and energy justice.While focal events provided structural opportunities to initiate the Energy Law,legislative disagreements and shifts in legislative attention led to gridlocks in the agenda.Nevertheless,urgent legislative needs and attention from decision-makers have allowed the legislative agenda to restart.Under the guidance of the punctuated equilibrium theory,the following explorations should be undertaken for the formulation of China’s Energy Law.First,in terms of determining legislative concepts,it is essential to integrate domestic and international energy situations and the background of energy legislation,seize opportunities for energy legislation,and accelerate the legislation of the Energy Law with a focus on energy security.Second,regarding the choice of legislative model,it should be clarified that the Energy Law serves as a fundamental law,coordinating its conflicts and connections with specific energy laws,building consensus to reduce legislative resistance,and focusing attention on expediting legislation.Third,concerning the design of legislative institutions,it should sequentially and categorically address the trilemma of energy issues,meeting legislative needs,achieving the legalization of top-level designs set by decision-makers,and fulfilling public expectations to effectively resolve the legislative gridlock of the Energy Law.