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国际法上的气候变化损失损害问题由来已久。随着发达国家与发展中国家针对气候变化损失损害问题讨论的不断深入，该问题已经从对适应机制和减缓机制的依赖中独立出来，成为国际上应对和解决气候变化问题的独立机制。当前，国际上对于气候变化损失损害的讨论存在三个层面的争议，我国应当结合自身国情和实际诉求选择相应的立场。一方面，应当从国际、国家、地方及个体多维层面出发，构建整体性的气候变化损失损害预防机制，提升我国应对气候变化的适应能力和预防能力，减少潜在损失损害。另一方面，应当积极构建由保险、基金和临时性援助组成的综合性救济机制，以确保有充足的资金用于救济各类气候变化所导致的经济与非经济类损失损害。预防机制与救济机制彼此辅助、互相支持，共同建构起气候变化损失损害处理的中国方案。
Abstract：The issue of climate change losses and damages in international law has a long history.With the continuous deepening of discussions between developed and developing countries on the issue of climate change losses and damages,this issue has become independent from its reliance on adaptation and mitigation mechanisms,and has become an independent mechanism for addressing and resolving climate change issues internationally.At present,there are three levels of controversy in the international discussion on the losses and damages caused by climate change.China should choose the corresponding position based on its own national conditions and actual demands.On the one hand,a comprehensive mechanism for preventing climate change losses and damages should be constructed from multiple dimensions,including international,national,local,and individual levels,to enhance China's adaptability and prevention capabilities in responding to climate change and reduce potential losses and damages.On the other hand,a comprehensive relief mechanism consisting of insurance,funds,and temporary assistance should be actively constructed to ensure sufficient funds are available to alleviate economic and non economic losses and damages caused by various types of climate change.The prevention mechanism and relief mechanism complement and support each other,jointly constructing a Chinese plan for dealing with climate change losses and damages.
①也有观点指出该保险设置的目的并非是建立私营部门保险亦或是责任，而是建立一种赔偿性基金。Joanne Linnerooth-Bayer,et al.,“Insurance-Related Actions and Risk Assessment in the Context of the UNFCCC” ,https://unfccc.int/files/meetings/workshops/other_meetings/application/pdf/background.pdf.
(1)1997年的《京都议定书》中,保险作为一种减少气候变化不利影响的机制而被提及,但当时仍将减缓和适应作为首要任务。
(2)Maxine Burkett,“Loss and Damage”,Climate Law,2014,4(1-2),p.128.
(3)McNamara,Karen E.,“Exploring Loss and Damage at the International Climate Change Talks”,International Journal of Disaster Risk Science,2014,5(3),pp.244-245.
(4)Julie-Anne Richards,Liane Schalatek,“Financing Loss and Damage:A Look at Governance and Implementation Options”,https://us.boell.org/sites/default/files/uploads/2017/05/loss_and_damage_finance_paper_update_16_may_2017.pdf.
(5)M.J.Mace,Roda Verheyen,“Loss,Damage and Responsibility after COP21:All Options Open for the Paris Agreement”,Review of European,Comparative and International Environmental Law,2016,25(2),pp.203-204.
(6)Decision 1/CP.16 para.25.
(7)UNFCCC.Secretariat,“Non-Economic Losses in the Context of the Work Programme on Loss and Damage”,FCCC/TP/2013/2.
(8)Vanhala L.,Hestbaek C.,“Framing Climate Change Loss and Damage in UNFCCC Negotiations”,Global Environmental Politics,2016,16(4),pp.112-121.
(9)Toussaint P.,“Loss and Damage and Climate Litigation:The Case for Greater Interlinkage”,Review of European Comparative & International Environmental Law,2021,30(1),p.18.
(10)J.P.Hoffmaister,D.Stabinsky,“Loss and Damage:Some Key Issues and Considerations for Sids Expert Meeting”,https://unfccc.int/files/adaptation/cancun_adaptation_framework/loss_and_damage/application/pdf/loss_and_damage_bp4_sids.pdf.
(11)Julie-Anne Richards,Liane Schalatek,“Financing Loss and Damage:A Look at Governance and Implementation Options”,https://us.boell.org/sites/default/files/uploads/2017/05/loss_and_damage_finance_paper_update_16_may_2017.pdf.
(12)Decision 2/CP.19,preambular para.4.
(13)M.J.Mace,Roda Verheyen,“Loss,Damage and Responsibility after COP21:All Options Open for the Paris Agreement”,Review of European,Comparative and International Environmental Law,2016,25(2),p.208.
(14)《巴黎协定》实际上并未对该问题一锤定音。例如,2018年COP24通过的《巴黎规则手册》中,便将损失损害条款再次置于适应机制之下。而且,COP27的损失损害基金仍被视为是适应机制的成果。因此,围绕着损失损害的地位问题,至今仍有争议。
(15)Vanhala L.,Hestbaek C.,“Framing Climate Change Loss and Damage in UNFCCC Negotiations”,Global Environmental Politics,2016,16(4),p.125.
(16)Warner,Koko,et al.,“Insurance Solutions in the Context of Climate-Change-Related Loss and Damage:Needs,Gaps and Roles of the UNFCCC in Addressing Loss and Damage”,Climate Change:International Law and Global Governance:Volume II:Policy,Diplomacy and Governance in a Changing Environment,edited by Oliver C.Ruppel,et al.,1st ed.,Nomos,2013,pp.910-913.
(17)参见余耀军:《气候损害的概念研究》,《现代法学》,2022年3期。
(18)这并不意味着我国应彻底放弃对发达国家追究历史责任,目前最大的问题仍在于《巴黎协定》第八条的责任空洞化,但也有观点认为该条并未排除国际法一般规则的适用,关于该条的法律效力也始终存在争议。近年来各国快速发展的气候变化诉讼也在一定程度上推动了减缓行动的发展。Toussaint P.,“Loss and Damage and Climate Litigation:The Case for Greater Interlinkage”,Review of European Comparative & International Environmental Law,2021,30(1),p.19.
(19)Alexis Durand,et al.,“Financing Options for Loss and Damage:A Review and Roadmap”,https://unfccc.int/files/adaptation/groups_committees/loss_and_damage_executive_committee/application/pdf/browncdl-icccadfinancinglossanddamagepaperdraft.pdf.
(20)https://public.wmo.int/en/earlywarningsforall.
(21)④WMO,“The UN Global Early Warning Initiative for the Implementation of Climate Adaptation,Executive Action Plan 2023-2027”.
(22)参见丁一汇:《构建全球气候变化早期预警和防御系统》,《可持续发展经济导刊》,2020年第Z1期。
(23)Masroora Haque,et al.,“Towards Establishing a National Mechanism to Address Losses and Damages:A Case Study from Bangladesh”,Reinhard Mechler,et al.,Loss and Damage from Climate Change:Concepts,Methods and Policy Options,Springer,2019,pp.451-474.
(24)③Raymond J.Burby,et al.,“Creating Hazard Resilient Communities Through Land-Use Planning”,Natural Hazards Review,2000,1(2),pp.99-105,pp.99-105.
(25)Atreya,Ajita,et al.,“Adoption of Flood Preparedness Actions:A Household Level Study in Rural Communities in Tabasco,Mexico”,International Journal of Disaster Risk Reduction,2017,(24),pp.428-438.
(26)GIZ GmbH,KfW Development Bank,“Climate Risk Insurance for Strengthening Climate Resilience of Poor People in Vulnerable Countries”,https://www.giz.de/de/downloads/giz-2016-en-climate_risk.pdf.
(27)⑥Koko Warner,et al.,“Adaptation to Climate Change:Linking Disaster Risk Reduction and Insurance”,https://unfccc.int/resource/docs/2009/smsn/ngo/163.pdf.
(28)一些学者尝试设计能惠及低收入农民或牧民的保险产品。例如,针对玻利维亚四省制定的指数保险计划、蒙古的牲畜保险计划等,均是以指数为基础的小额保险,有助于降低保险成本。Koko Warner,et al.,“Adaptation to Climate Change:Linking Disaster Risk Reduction and Insurance”,https://unfccc.int/resource/docs/2009/smsn/ngo/163.pdf.但此类设计难以普及也无法解决保费日渐增加的趋势。
(29)参见刘蔚:《中国农业保险费补贴机制研究——基于主体及行为》,成都:西南财经大学出版社,2017年版,第90-91页。
(30)参见张跃华:《农业保险:理论、实证与经验——基于农户微观数据的分析》,北京:中国农业出版社,2017年版,第71-74页。
(31)特别是由于第1/CP.21号决定第51段导致《巴黎协定》关于损失损害的第八条不能成为任何责任或是赔偿的依据。同时,发达国家虽然表示可提供部分资金,但始终不希望将“损失损害”变成具有强制力的法律责任,更愿意使其变成一种自愿性的君子协定。
(32)例如,加拿大魁北克省的水电公司曾获得157亿美元的气候债券融资,但该水电项目却被指责侵害了当地的环境与原住民,而且目前在透明度和认证率等方面尚有不足。Alexis Durand,et al.,“Financing options for loss and damage:A review and roadmap”,https://unfccc.int/files/adaptation/groups_committees/loss_and_damage_executive_committee/application/pdf/browncdl-icccadfinancinglossanddamagepaperdraft.pdf.
(33)Masroora Haque,et al.,“Towards Establishing a National Mechanism to Address Losses and Damages:A Case Study from Bangladesh”,Reinhard Mechler,et al.,Loss and Damage from Climate Change:Concepts,Methods and Policy Options,Springer,2019,p.461.
(34)参见中华人民共和国财政部网站,http://www.mof.gov.cn/zhuantihuigu/cczqzyzfglbf/zxzyzf_7788/jzzj/index.htm,2023年6月13日。
(35)《全国首个灾害预警专项基金在川成立助力提升灾害预警能力》,中国日报网,https://baijiahao.baidu.com/s?id=1735303321137509314&wfr=spider&for=pc,2023年6月13日。
(36)Barnett,et al.,“Regime Change for Humanitarian Aid”,Foreign Affairs,2015,94(4),p.134.
(37)例如,联合国人道主义事务协调厅(OCHA)协调人道主义援助和救济事宜,快速且紧急应对超过国家政府能力的灾害;还有,联合国中央应急资金(CERF)提供快速应急援助,用以支持应对灾害与紧急事态。
(38)《白皮书:2004年以来中国累计提供国际人道主义援助300余次》,中华人民共和国中央人民政府网站,http://www.gov.cn/xinwen/2018-12/12/content_5347964.htm,2023年6月13日。
(39)参见《专访:中国在人道援助领域发挥着积极影响力——访红十字国际委员会总干事马尔迪尼》,新华网,https://baijiahao.baidu.com/s?id=1756813121412028484&wfr=spider&for=pc,2023年6月13日。
(40)参见李小瑞:《中国对外人道主义援助的特点和问题》,《现代国际关系》,2012年2期。
基本信息:
DOI：10.15981/j.cnki.dongyueluncong.2024.02.019
中图分类号:D996.9
引用信息:
[1]王灿发,张天杨.气候变化损失损害处理的中国方案探讨[J].东岳论丛,2024,45(02):167-176+192.DOI:10.15981/j.cnki.dongyueluncong.2024.02.019.
基金信息:
国家社会科学基金重点项目“陆海统筹生态环境治理法律制度研究”(项目编号：21AZD062)