“十二五”以来中国应对气候变化政策和行动评述  

A review of China’s climate policies and actions since the launch of the 12th Five Year Plan

作　　者：朱松丽[1] 朱磊[2] 赵小凡[3] 王文涛[4] 张文秀 ZHU Song-li;ZHU Lei;ZHAO Xiao-fan;WANG Wen-tao;ZHANG Wen-xiu(Energy Research Institute,National Development and Reform Commission,Beijing 100038,China;School of Economics and Management,Beihang University,Beijing 100191,China;School of Public Policy and Management,Tsinghua University,Beijing 100084,China;The Administrative Center for China’s Agenda 21,Beijing 100038,China)

机构地区：[1]国家发展和改革委员会能源研究所,北京100038 [2]北京航空航天大学经济管理学院,北京100191 [3]清华大学公共管理学院,北京100084 [4]中国21世纪议程管理中心,北京100038

出　　处：《中国人口·资源与环境》2020年第4期1-8,共8页China Population,Resources and Environment

基　　金：科学技术部《第四次气候变化国家评估报告》编制工作专项。

摘　　要：基于广泛系统的文献梳理和总结,凝练了“十二五”以来中国应对气候变化政策和行动的现状、特点及成效,并提出针对性建议。主要结论包括:从外部环境看,国际形势对中国应对气候变化事业的推动作用呈现递减态势,之前“以外促内”的国内气候治理特点逐步转化为“内生动力为主”和“内外协调”;从政策制定和执行模式看,“集思广益”“上书模式”持续,“上下互动”“智库支持”的政策学习特点更加明显;从政策体系上看,已经形成相对成熟的符合中国国情的完整体系,推动气候治理能力显著提高;从政策总体特点看,呈现规划主导并引领、行政手段先行市场机制跟进、由点到面有序扩展、环境与气候协同治理、中央和地方互动博弈形成动态平衡、短期内政策成本较高等特点。“十二五”至今,中国应对气候变化政策行动效果明显,提前实现了2020年应对气候变化目标,并在污染治理、经济发展等方面产生广泛协同效应。“十三五”中期以来,中国应对气候变化组织管理机构进行了重大调整,从中央到地方气候政策和行动进入调整阶段。同时,更加强调气候政策和环境政策的协同。展望未来,中国应对气候变化政策和行动应该尽快走出调整期,充分利用新体制的优势,以碳总量控制目标为抓手,坚定推动以全国碳排放权交易为中心、多措互补的政策体系,注重适应行动以应对不断放大的气候风险,继续提高公众对应对气候变化政策的认知度、接受度和参与度,并不断加强技术研发和储备。Based on an intensive literature review,this paper examines the status and features of China’s climate policies and actions since the launch of the 12th Five Year Plan(FYP),as well as the effectiveness of these policies.The major conclusions are:from the perspective of international environment,the positive push from international situation to China’s response to climate change has shown a decreasing trend;as a result,the feature of China’s climate governance shifts from‘external promotion’to‘internal promotion’or‘internal-external harmony’.From the perspective of policy formulation and implementation,the pattern of synectics and internal discussion continue,and the policy learning process is highlighted by the active interaction between the central and local governments,as well as the support of think-tanks.From the perspective of policy system,a relative holistic system that fits into the national circumstance has been established,significantly promoting the climate governance ability.The general features of China’s climate policies include:planning taking a leading role,administrative means going first followed by the implementation of market mechanisms,pilot demonstration before overall expansion,coordinated management of environment and climate,and the dynamic balance between central and local governments.Since the launch of 12th FYP,China’s climate policies and actions have had significant effects.It has achieved the 2020 climate change target in advance,and has a wide range of synergies in pollution control,economic development and other aspects.However,since the middle stage of the 13th FYP,China has made major institutional adjustments in terms of climate change,resulting in adjustments of climate policies and actions in China.Meanwhile,importance has been attached to synergies of climate policies and environment policies,because of the weakening of climate policies to some extent.Looking into the future,China’s climate policies and actions should step out of the adjustment stage

关 键 词：气候变化 政策梳理 行动成效 治理特点 机构演变 

分 类 号：D6[政治法律—政治学] C93[政治法律—中外政治制度]