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2021年11月13日,《联合国气候变化框架公约》第二十六次缔约方会议在英国格拉斯哥落下帷幕,会议最终通过了名为“格拉斯哥气候协议”(Glasgow Climate Pact)的决议[1]。此次会议的一大亮点就是正式确立起全球碳中和的国际共识①。然而,会议也出现了一些新的变化,即在强调直接减排二氧化碳的同时,开始更多关注非二氧化碳减排的形式和种类,例如森林、土地和甲烷的减排等[2-3]②;特别是有关碳减排过程中对生物多样性的关注得到了进一步提升。毋庸讳言,这些关注突出表明,在碳中和时代,单一的二氧化碳直接减排路径已远远不能适应国际社会全面应对气候变化的现实诉求,而一个综合性、系统性的碳减排战略需要被赋予更高的价值内涵;同时也意味着碳中和下的气候制度安排亦将进入一个规则协同的新阶段。故此,本文旨在以应对气候变化与生物多样性保护的规则协同为视角,阐释这一领域的发展演变,以及当前其所面临的规则挑战,进而在制度反思的基础上,提出中国在未来所应做出的制度选择。
International Rule Synergy between Climate Change and Biodiversity: Evolution, Challenges and China’s Options
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摘要:应对气候变化和生物多样性保护乃是当前国际社会面临的两大紧迫任务,特别是随着全球对气候变化认识的不断深入,二者的关联性被越来越多地提及。然而,目前在其规则协同方面,它们却凸显出诸多滞后与不足,进而严重影响到应对气候变化和生物多样性保护的行动同步。是故,未来国际社会应在整体系统思维的基础上,充分利用碳中和共识的政治推动力,从法律上确立起相互支持原则,以期实现二者的规则协同。对中国而言,则应在碳达峰、碳中和1+N政策体系下充分考虑生物多样性因素,在肯定基于自然的气候解决办法的同时,亦应积极防范应对气候变化与生物多样性保护之间可能产生的规则冲突。Abstract:At present, addressing climate change and biodiversity conservation are two urgent tasks for the international society; especially with the deepening of the global response to climate change, their relationship becomes closer. However, there are some lags and deficiencies in rule synergy between climate change and biodiversity, which seriously affects climate change and biodiversity conservation actions. Therefore, in the future, in order to realize their rule synergies, the international society should think about system integration, make full use of political force of carbon neutrality consensus, build mutual support principle in international law. For China, biodiversity conservation should be considered under the carbon peak and carbon neutral 1+N policy system. Nature-base climate solutions should be affirmed. Rule conflicts between climate change and biodiversity conversation should be actively prevented.
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Key words:
- carbon neutrality/
- climate change/
- biodiversity
注释:1) 《格拉斯哥气候协议》的第17段明确规定,到21世纪中叶前后实现二氧化碳的净零排放。UNFCCC, Glasgow Climate Pact, FCCC/CP/2021/L.13, 13, November 2021。2) 在《联合国气候变化框架公约》第26次缔约方会议,即气候变化格拉斯哥会议期间,同时召开的格拉斯哥领导人峰会上,141个国家达成了《关于森林和土地利用的格拉斯哥领导人宣言》。而中美亦在会议期间联合发布了《中美关于在21世纪20年代强化气候行动的格拉斯哥联合宣言》,其中第8段指出,两国特别认识到,甲烷排放对于升温的显著影响,认为加大行动控制和减少甲烷排放是21世纪20年代的必要事项。3) 此外,也有学者提出不只是在《生物多样性公约》的序言中,而且在该公约的第5条、第6条、第8条、第10条、第11条、第14条、第22条中都暗含着与气候变化相关联的表述。4) 1994年,在《生物多样性公约》(以下简称《公约》)第一次缔约方会议时,就涉及到与其他公约在未来开展合作的决定。其具体体现在第I/5号决议中的第4段,该段指出“请执行秘书依照本《公约》第24.1(d)条的规定与负责处理本《公约》所涉事项的其他公约的秘书处进行接触,以期在本《公约》与其他公约之间开展适当形式的合作,并就此问题向缔约国会议提出报告”。CBD, Decision I/5 Support to the Secretariat by International Organizations, UNEP/CBD/COP/I/5, 28, February 1995。5) 与《联合国气候变化框架公约》建立合作的表述,最早出现在1995年《生物多样性公约》第二次缔约方会议中,由秘书处撰写的“与涉及生物多样性的其他各项公约合作”的情况说明中。其第11段、第14段、第22段、第32段、第38段和第51段都涉及到气候变化。但需要指出的是,在整个情况说明中只是提出进一步开展二者合作的可能性。CBD Secretariat, Cooperation with Other Biodiversity-Related Conventions, UNEP/CBD/COP/2/inf.2, 26 October 1995。6) 就这一点而言,在20世纪的最后10年,《联合国气候变化框架公约》的历次缔约方会议几乎没有涉及生物多样性问题,而尽管《生物多样性公约》缔约方会议涉及到与《联合国气候变化框架公约》的合作,但仅是从履约角度,而不是直接从气候变化对生物多样性的影响角度,这正如在1996年《生物多样性公约》第三次缔约方会议上,“为与其他生物多样性相关公约合作进行的活动”执行秘书的说明中,指出仅是与《联合国气候变化框架公约》的合作仅是从“程序性事项”上的考虑,而且更重要的是,在二者的合作方面一直没有取得任何实质性进展,包括1998年《生物多样性公约》第四次缔约方会议亦是如此。 CBD Executive Secretary, Activities Undertaken in Relation to Cooperation with Other Biodiversity-Related Conventions, UNEP/CBD/COP/3/29, 22 September 1996. See also CBD, Decision IV/15. The Relationship of the Convention on Biological Diversity with the Commission on Sustainable Development and Biodiversity-Related Conventions, Other International Agreements, Institutions and Processes of Relevance, UNEP/CBD/COP/4/27, 15 June 1998: 130。7) 通过的这四项决议分别涉及到与珊瑚退色相关的气候影响、与森林生物多样性相关的气候影响、与气候变化相关鼓励措施以及与《联合国气候变化框架公约》开展机构合作。CBD, Decision V/3 Progress Report on the Implementation of the Programme of Work on Marine and Coastal Biological Diversity (Implementation of Decision IV/5), UNEP/CBD/COP/5/23, 22 June 2000:74-79. CBD, Decision V/4 Progress Report on the Implementation of the Programme of Work for Forest Biological Diversity, UNEP/CBD/COP/5/23, 22, June 2000:81-84. CBD, Decision V/15 Incentive Measures, UNEP/CBD/COP/5/23, 22 June 2000:137-138. CBD, Decision V/21 Cooperation with Other Bodies, UNEP/CBD/COP/5/23, 22 June 2000:160-161。8) Subsidiary Body on Scientific, Technical and Technological Advice, Biological Diversity and Climate Change, Including Cooperation with the United Nations Framework Convention on Climate Change, UNEP/CBD/SBSTTA/6/11, 21 December 2000:2-21。9) CBD, Report of the Sixth Meeting of the Subsidiary Body on Scientific, Technical and Technological Advice, UNEP/CBD/COP/6/3, 27 March 2001:83-86。10) Secretariat of the Convention on Biological Diversity, Interlinkages between Biological Diversity and Climate Change: Advice on the Integration of Biodiversity Considerations into the Implementation of the United Nations Framework Convention on Climate Change and Its Kyoto Protocol, Montreal: SCBD, 2003:1-13。11) 特别是2008年《生物多样性公约》第九次缔约方会议通过的第16号决议中,明确将气候变化议题纳入到今后每一次缔约方会议的工作方案中。CBD, Proposals for the Integration of Climate-Change Activities within the Programmes of Work of the Convention, Decision IX/16. Biodiversity and Climate Change, in Report of the Conference of the Parties to the Convention on Biological Diversity on the Work of Its Ninth Meeting, UNEP/CBD/COP/9/29, 9 October 2008:149。12) 这一工作综述很大程度上是建立在科学、技术和工艺咨询附属机构下设立的第二特设专家技术小组的报告上。Secretariat of the Convention on Biological Diversity, Connecting Biodiversity and Climate Change Mitigation and Adaptation: Report of the Second Ad Hoc Technical Expert Group on Biodiversity and Climate Change, Montreal: CBD, 2009。13) 有关地球工程,在《生物多样性公约》第十次缔约方会议的决议中已出现。而与其不同的是,第11次缔约方会议就地球工程是一项单独的决议。CBD, Report of the Eleventh Meeting of the Conference of the Parties to the Convention on Biological Diversity, UNEP/CBD/COP/11/35, 5 December 2012:212-224.14) 值得注意的是,在《生物多样性公约》第九次缔约方会议上,海洋化肥减排技术已被提及。而第12次缔约方会议则更明确地阐述了其相关性。CBD, Report of the Twelfth Meeting of the Conference of the Parties to the Convention on Biological Diversity, UNEP/CBD/COP/12/29, 17 October 2014:109-110. 有关海洋化肥减排技术的危险性和法律应对亦可参见德国学者文章。Harald Ginzky, “Ocean Fertilization as Climate Change Mitigation Measure-Consideration under International Law,” Journal for European Environmental & Planning Law, Vol. 7, No. 1, 2010:57-78。15) Subsidiary Body for Scientific and Technological Advice, Report on the Subsidiary Body for Scientific and Technological Advice on the Second Part of Its Thirteenth Session, The Hague, 13-18 November 2000, FCCC/SBSTA/2000/14, 20 December 2000:11-12。16) Subsidiary Body for Scientific and Technological Advice, Report of the Subsidiary Body for Scientific and Technological Advice on Its Fourteenth Session Bonn, 24-27 July 2001, FCCC/SBSTA/2001/2, 18 September 2001:10-12。17) UNFCCC, Report of the Conference of the Parties on Its Seventh Session, held at Marrakesh from 29 October to 10 November 2001 Addendum Part Two: Action Taken by the Conference of the Parties, Volume I, FCCC/CP/2001/13/Add.1, 21 January 2002:56。18) Habiba Gitay, Avelino Suarez, Robert T. Watson & David Jon Dokken eds. Climate Change and Biodiversity, Geneva: IPCC, 2002:2-3。19) UNFCCC,Report of the Conference of the Parties on Its Eighth Session, held at New Delhi from 23 October to 1 November 2002, Addendum Part Two: Action Taken by the Conference of the Parties at Its Eighth Session, FCCC/CP/2002/7/Add.1, 28 March 2003:32。20) 气候变化条约体系是由1992年《联合国气候变化框架公约》、1997年《京都议定书》和2015年《巴黎协定》三项国际条约构成。而生物多样性条约体系则是由1992年《生物多样性公约》、2000年《卡塔赫纳生物安全议定书》、2010年《卡塔赫纳生物安全议定书关于赔偿责任与补救的名古屋—吉隆坡议定书》以及2010年《生物多样性公约关于获取遗传资源和公正和公平分享其利用所产生惠益的名古屋议定书》四项国际条约构成。21) 但即便是这样一个仅是写在序言中的表述,对于国际环境法学者而言,都是令人鼓舞的。英国国际环境法学者莫格拉详述了在《生物多样性公约关于获取遗传资源和公正公平分享其利用所产生惠益的名古屋议定书》纳入气候变化议题的历史意义。22) 例如,在利用清洁发展机制(CDM)方面,根据第九次缔约方会议通过的《第一个承诺期清洁发展机制之下的造林和再造林项目活动的模式和程序》,是否考虑生物多样性的影响是参与项目缔约方自行决定的事项。UNFCCC, Modalities and Procedures for Afforestation and Reforestation Project Activities under the Clean Development Mechanism in the First Commitment Period of the Kyoto Protocol, Decision19/CP.9, in Report of the Conference of the Parties on Its Ninth Sesson, held at Milan from 1 to 12 December 2003, Addendum, Part Two: Action Taken by the Conference of the Parties at Its Ninth Session, FCCC/CP/2003//6/Add.2, 30 March 2004:13-31。23) CBD, Report of the Conference of the Parties to the Convention on Biological Diversity on Its Fourteenth Meeting, CBD/COP/14/4, 20 March 2019:30-49。24) CBD, Kunming Declaration: “Ecological Civilization: Building a Shared Future for All Life on Earth”, Conference of the Parties to the Convention on Biological Diversity Fifteenth Meeting (Part I), Kunming, China, 11-15 October 2021, CBD/COP/15/5/Add.1, 13 October 2021:3-5。25) CBD, Modalities for Enhanced Cooperation with Relevant Biodiversity-Related Bodies, UNEP/CBD/COP/3/35, 21 September 1996:5-17。26) 大多数多边环境协定是将国际合作列入序言中的,而《生物多样性公约》以正文形式列出,一定程度上表明该公约对国际合作的重要依赖。27) 《联合国气候变化框架公约》的公约目标是“将大气中温室气体的浓度稳定在防止气候系统受到危险的人为干扰的水平上”;而《生物多样性公约》的目标则是“从事保护生物多样性、持久使用其组成部分以及公平合理分享由利用遗传资源而产生的惠益;实现手段包括遗传资源的适当取得及有关技术的适当转让,但需顾及对这些资源和技术的一切权利,以及提供适当资金”。《联合国气候变化框架公约》第2条和《生物多样性公约》第1条。28) Secretariat of the Convention on Biological Diversity, Global Biodiversity Outlook 5, Montreal: CBD, 2020:172。29) 《京都议定书》第3.3条、第3.4条和第3.7条的规定。30) 森林砍伐会造成温室气体排放总量在原有基础上增加五分之一。31) UNFCCC, 11/CP.7 Land Use, Land-Use Change and Forestry, FCCC/CP/2001/13/Add.1, 21 January 2002: 54。32) 有关《生物多样性公约》提出的生态系统路径(Ecosystem Approach)的具体阐释体现在2000年其第五次缔约方会议的第六项决议中。CBD, Ecosystem Approach, Decision V/6, Report of the Fifth Meeting of the Conference of the Parties to the Convention on Biological Diversity, UNEP/CBD/COP/5/23, 22 June 2000:103-109。33) 例如,斯德哥尔摩环境研究所(SEI)的研究员范·阿瑟尔特(Harro van Asselt)就曾警告说,在《生物多样性公约》和《联合国气候变化框架公约》两个秘书处之间建立的联合联络组(Joint Liaison Group, JLG)就存在着超越缔约方授权而开展行动的制度风险。 -
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