摘要
论文通过分析碳排放权交易计划政策过程中的国际、国内和地方政府互动,提出了政府间规范秩序(Trans-governmental Normative Orders,TNO)理论和共识治理模型。TNO理论揭示了全球治理背景下中国政策过程的新特征,即将政策目标背后的价值理念和规范作为共识目标,将复合治理机制作为共识机制,将多重规范性秩序作为共识体系。基于对地方和全国两级碳市场试点计划的详细考察,论文总结了共识治理模型三个层面的演进与发展:(1)共识目标从国内改革攻坚演进为统筹全球治理和本国治理秩序;(2)在共识机制层面发展出动员-赋权、试验-反馈、推广-扩散等多类型的政策创新机制;(3)在共识体系层面,以制度建设规范来兼容政策方案多样性、以国家治理规范来调适政策目标多元性、以社会治理规范来消纳政策风险不确定性,最终推动形成国际国内间、央地政府间以及政府与市场间的规范性秩序体系。
After analyzing the practice of central-local relations of eight local pilots and one national pilot for a carbon emissions trading scheme and then comparing different academic theories of central-local relations,this paper proposes a new Chinese policy process theory within a consensus policy-making model.Based on an empirical examination of global governance and central-local relations under the strategic policy goal of carbon neutrality and carbon peaking,this paper investigates the evolution of the consensus policy-making model of China s policy process at three levels.(1)The consensus on the policy goal evolves from a focus on domestic reforms to an integrated order of global and domestic governance,reflected from the impacts of central government on the consensus at local levels.(2)The consensus policy-making mechanism,once the basis for policy coordination and other mechanisms,has become policy innovation-oriented in a model of“mobilization/empowerment-pilot innovation/feedback-diffusion”,which is reflected in the impacts of local consensus on national consensus.(3)The consensus variables system is compatible with the diversity of policy solutions because of the normalization of institutional construction,the adaptation of the plurality to policy goals through normalizing national governance,and the absorption of policy risks by normalizing social governance.This has been done for the general purpose of forming a normative order between central and local governments and between government and markets,and then realizing multiple optimal solutions for China s policy process.Finally,this paper suggestsoptions forthe next phase of the domestic carbon trading pilot and the convergence of China s carbon trading scheme with the global carbon market.
作者
陈玲
孙晋
Ling Chen;Jin Sun
出处
《公共行政评论》
北大核心
2023年第1期144-160,199,200,共19页
Journal of Public Administration
基金
国家社会科学基金重大项目“健全充分发挥中央和地方两个积极性体制优势的实现机制研究”(20ZDA042)
清华大学文科建设“双高”计划项目“中国特色公共政策基本理论”(2021TSG08101)。
