全球气候治理的经验

文/吴平

冰川、冰盖融化，海平面上升，极端天气加剧，生物多样性减少，近海生态系统崩溃，新发传染病增加……这些灾难性后果正在倒逼人类直面气候治理问题。近年来，国际社会在气候变化治理方面取得了一定成效。气候治理的实践和经验不仅有助于各国取得更多共识，形成更大合力，同时也为我国生态治理提供了可资借鉴的启示。

Melting glaciers and ice sheets, rising sea levels, worsening extreme weather, decreasing biodiversity, deteriorating coastal ecosystems and increasing new infectious diseases, etc.These possible disasters are too serious to arouse attention to global climate governance. In recent years, the international community has achieved certain results in global climate governance, of which the practice and the experience help governments reach more consensus and form greater synergy. Meanwhile, it also provides useful reference to China’s ecological governance.

全球气候逐渐变暖导致冰川融化

全球气候治理的进展

1988年，联合国环境规划署和世界气象组织成立了气候变化政府间会议（IPCC），气候变化的国际合作自此拉开了序幕。1992年《联合国气候框架公约》（以下简称《公约》）通过，这是世界上第一个“全面控制二氧化碳等温室气体排放以应对气候变化”的国际公约，为气候治理的国际合作奠定了法律基础。1997年，149个国家和地区通过的《京都议定书》规定，2008—2012年主要工业发达国家的温室气体排放量要在1990年的基础上平均减少5.2%，这是人类历史上首次以法规的形式限制温室气体排放。

2015年的巴黎会议上，《公约》近200个缔约方一致同意达成新的全球协议，为2020年后全球应对气候变化的行动作出安排。2016年4月22日，在《巴黎协定》开放签署首日，共有175个国家签署了这一协定，并于11月4日正式生效。《巴黎协定》作为不足一年便迅速在全球得到批准并生效的多边协定，

堪称前所未有。至此，1992年《公约》、1997年《京都议定书》以及2015年《巴黎协定》这三个人类历史上应对气候变化里程碑式的国际法律文本共同形成了2020年后全球气候治理的格局。减少温室气体排放、应对气候变化已成为全球共识，包括发展中大国在内的主要国家都在积极地推进实质性减排。

Progress of global climate governance

In 1988, IPCC (Intergovernment Panel on Climate Change),set up by the United Nations Environment Programme and the World Meteorological Organization, was a prologue to international cooperation. In 1992, UNFCCC (United Nations Framework Convention on Climate Change) was adopted. This is the first international convention on overall controlling the emissions of greenhouse gas emissions so as to cope with climate change in the world, and it lays the legal foundation for international cooperation in climate governance. In 1997,Kyoto Protocol passed by 149 countries and regions stipulated that during 2008-2012, major industrialized countries should achieve a 5.2% reduction of greenhouse gas emissions based on those in 1990. It was the first time that greenhouse gas emission had been restricted with the aid of a regulation.

At the Paris Conference in 2015, nearly 200 Parties to UNFCCC agreed to a new global protocol and made arrangements for global climate governance beyond 2020. On April 22, 2016, 175 countries signed the Paris Agreement, which entered into force from 4 November. It is unprecedented for a multilateral agreement to be ratif i ed and implemented in less than one year like Paris Agreement. So far, the three international legal documents—UNFCCC in 1992, Kyoto Protocol in 1997, and Paris Agreement in 2015—were milestones of climate governance, and formed a new pattern. Consensus has been reached on reducing greenhouse gas emissions and governing global climate. Major countries including developing countries are actively promoting emission reduction.

Experience from global climate governance

The biggest feature of climate governance is the diversif i cation of the main body and the potential interests. Compared to the EU, which is proactive out of low abatement costs, the United States, whose economy is held back by energy conservation and emission reduction, has always resisted substantial emission reduction. For the sake of maintaining the oil industry, the oil powers in the Middle East also oppose substantial reductions. However, under the threat of rising sea level, island countries in less developed countries have been strongly demanding strict control of greenhouse gas emissions to ensure national security.

At the international level, climate governance rules have been risen with UNFCCC, developed with Kyoto Protocol,and flourished with Paris Agreement. Their entry into force marks the institutionalization and standardization of climate governance rules. International organizations, including the Group of Twenty (G20), BRIC, and the Climate and Clean Air Coalition (CCAC) have reached a consensus and strengthened cooperation. With UNFCCC in orientation and multilateral, bilateral, regional, and local mechanisms in bloom, climate governance is crowned with success. At the national level, more and more governments bring measures and mechanisms into their own legal and policy systems.The Global Climate Legislation Research Report, released in June 2015, shows that 75 countries and the EU enacted legislation or policy frameworks to mitigate climate change. Systematic governance rules have become the powerful guarantee for maximizing the interests of all countries.

Improve climate governance with carbon trading system. In 1997, with the establishment of Kyoto Protocol, carbon emission rights became an international commodity and could be channeled and marketed through the market. The system defines the property rights of the atmosphere. In order to ensure that benef i ciaries are responsible, it controls the total amounts of omissions on the market, set permits for global emissions and allocate them in the world in accordance with certain standards. This mechanism on the one hand adds the costs of excessive emissions to encourage energysaving emission reduction, and it on the other hand adjusts the emission quotas among countries flexibly, so that more developed countries with much emissions bear more funds for governance. It is a typical manifestation for effectively promoting the reduction of global emission.

Promote climate governance with emissions reduction model of INDC (Intended Nationally Determined Contributions).The Warsaw Conference in 2013 requested Parties to initiate their post-2020 determined contributions. The Paris Agreement explicitly calls for the establishment of national independent contribution mechanism, that is, countries can propose their own independent contribution targets according to their own national conditions, and adjust measures and methods to deal with climate change. Different from the top-down emission reduction model advocated in Kyoto Protocol, the model of INDC determines the responsibilities from bottom up. In addition, the developed countries should continue to take the lead in reducing emissions and strengthen the financial support, technical support and talents, thus helping developing countries adopt to climate change and avoiding some developed countries from shirking responsibilities.

全球气候治理的经验

气候治理最大的特点在于主体多元化及背后的利益多元化。比如相比因减排成本较低而积极主动的欧盟而言，囿于节能减排对经济发展有所阻碍的美国历来抵触实质性减排。中东的石油大国出于维护石油产业的考虑，也反对实质性减排。而在海平面上升的威胁之下，欠发达国家中的岛国却一直强烈要求严格控制温室气体排放以确保国家安全。

在国际层面，气候治理规则因《公约》而起，随《京都议定书》而兴，至《巴黎协定》而盛，它们的生效标志着气候治理规则的制度化和规范化。包括二十国集团（G20）、金砖五国、气候与清洁空气联盟（CCAC）在内的国际组织纷纷达成共识并加强合作，气候治理领域已逐步形成了以《公约》为主，其他小多边、双边、区域、地方等机制百花齐放的局面。在国家层面，越来越多的国家将应对行动和机制纳入自身法律和政策体系当中。2015年6月发布的《全球气候法规研究报告》显示，75个国家和欧盟已制定立法或政策框架来减缓气候变化。体系化的治理规则已成为各国共同实现利益最大化的有力保障。

国家自主贡献（INDC）减排模式灵活推进气候治理。2013年的华沙大会要求各缔约方启动2020年后的自主贡献预案。《巴黎协定》则明确要求建立国家自主贡献机制，即各国可以根据自身国情来提出各自的自主贡献目标，调整应对气候变化的措施和方法。与《京都协定书》“自上而下”的强制减排模式不同，国家自主贡献模式是“自下而上”地确定各国减排责任。除此之外，发达国家仍需继续带头减排，并加强对发展中国家的资金、技术和能力建设支持，帮助后者适应气候变化，从而避免某些发达国家利用自主贡献而逃避减排责任的情形。

碳排放交易制度有效助力气候治理。1997年，随着《京都议定书》的订立，碳排放权正式成为国际商品并可通过市场进行流动与配置。该制度对大气进行了产权界定，通过控制市场上可排放的总量，为全球排放设定许可并依照一定标准在世界各国进行分配，确保“获益者担责”。这一机制一方面为超量排放设立成本，鼓励节能减排，另一方面灵活调整各国之间的排放配额，让碳排放较多的发达国家承担更多的治理经费，是市场机制有效推动全球减排的典型体现。