绿色气候基金在全球气候治理体系中的作用和展望
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摘要
作为《联合国气候变化框架公约》(简称公约)和《巴黎协定》资金机制最大运营实体,绿色气候基金(GCF)不仅是发达国家兑现1000亿美元长期资金承诺的重要平台,亦是公约和《巴黎协定》目标达成的关键因素。文中系统总结了GCF在推进气候变化国际合作进程、为发展中国家应对气候变化提供资金支持、推动私营部门参与应对气候变化行动等方面的积极作用。提出在当前多边合作面临挑战的复杂背景下,GCF亦面临美国退群、缺乏有效决策机制、项目质量及秘书处能力有待提高等系列问题。文章认为,一个持续有效运营的GCF是国际社会落实《巴黎协定》实施细则的重要保障,各方应尽快凝聚政治共识,推动GCF在全球气候治理体系中继续发挥积极作用。首先,应通过引入投票权决策机制、完善政策缺口、创新业务模式等措施提升基金治理和运营效率;其次,通过尽快完成正式增资进程、拓宽资金渠道、加强剩余资金管理等方式确保充足及可持续的资金来源;最后,还应通过强化与现有气候基金的协调互补、加大与多边发展银行的合作等途径与各方资金形成合力,推动资金流向低碳和气候韧性发展领域。文章还提出,中国应在有效发挥发达国家和发展中国家桥梁作用的基础上,引导GCF投票权改革以消除政治因素对GCF长远发展的负面影响,同时通过积极争取获得下届董事席位,推进与GCF全方位合作、参与GCF正式增资进程等举措,服务生态文明建设及全球应对气候变化目标。
As the largest operating entity of the financial mechanism of the United Nations Framework Convention on Climate Change and the Paris Agreement, the Green Climate Fund(GCF) is not only an important channel for developed countries to fulfill their long-term financial commitment of $100 billion, but also a key factor in achieving the objectives of the Convention and the Paris Agreement. This paper summarizes the positive role of the GCF in advancing the international cooperation on climate change, providing financial support for developing countries to tackle climate change, and promoting private sector participation in climate change action. Against the backdrop of challenges in the multilateral cooperation, the GCF is also confronted with many immediate and potential difficulties such as uncertainty of financial resources, lack of effective decision-making mechanisms, need for improvement of project quality and the capacity of the Secretariat. This paper presents that an effective GCF is vital for the implementation of Paris Agreement. To ensure the sustainable development of the GCF, the paper suggests that all parties should build political consensus and take the following actions. First,improve the governance efficiency by introducing voting mechanism in the absence of consensus, filling policy gaps and innovating business model. Secondly, ensure adequate and sustainable financial resources by finalizing formal replenishment process as soon as possible, receiving contributions from alternative sources, managing remaining commitment authority; and finally, enhance the coordination and complementarity with existing climate funds and multilateral development banks to make financial flows consistent with a pathway towards low carbon and climate resilient development. This papers also proposes that China should facilitate the GCF reform process by bridging the differences between developed and developing countries, and at the same time ensure the board membership for the next three years to promote the holistic cooperation with GCF and make contributions in the GCF formal replenishment process to serve the ecological civilization and the global climate action.
As the largest operating entity of the financial mechanism of the United Nations Framework Convention on Climate Change and the Paris Agreement, the Green Climate Fund(GCF) is not only an important channel for developed countries to fulfill their long-term financial commitment of $100 billion, but also a key factor in achieving the objectives of the Convention and the Paris Agreement. This paper summarizes the positive role of the GCF in advancing the international cooperation on climate change, providing financial support for developing countries to tackle climate change, and promoting private sector participation in climate change action. Against the backdrop of challenges in the multilateral cooperation, the GCF is also confronted with many immediate and potential difficulties such as uncertainty of financial resources, lack of effective decision-making mechanisms, need for improvement of project quality and the capacity of the Secretariat. This paper presents that an effective GCF is vital for the implementation of Paris Agreement. To ensure the sustainable development of the GCF, the paper suggests that all parties should build political consensus and take the following actions. First,improve the governance efficiency by introducing voting mechanism in the absence of consensus, filling policy gaps and innovating business model. Secondly, ensure adequate and sustainable financial resources by finalizing formal replenishment process as soon as possible, receiving contributions from alternative sources, managing remaining commitment authority; and finally, enhance the coordination and complementarity with existing climate funds and multilateral development banks to make financial flows consistent with a pathway towards low carbon and climate resilient development. This papers also proposes that China should facilitate the GCF reform process by bridging the differences between developed and developing countries, and at the same time ensure the board membership for the next three years to promote the holistic cooperation with GCF and make contributions in the GCF formal replenishment process to serve the ecological civilization and the global climate action.
引文
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[18]联合国.联合国宪章[R/OL].1945[2018-11-01].http://www.un.org/zh/sections/un-charter/chapter-iv/index.html.United Nations.Charter of the united nations[R/OL].1945[2018-11-01].http://www.un.org/zh/sections/un-charter/chapter-iv/index.html(in Chinese)
[19]Chiara T,Jessica B,Rodney B,et al.The role of the climate investment funds in meeting investment needs[R/OL].Climate Policy Initiative.2016[2018-10-06].http://www.indiaenvironmentportal.org.in/files/file/The-role-of-the-Climate-Investment-Funds-in-meeting-investmentneeds.pdf
[20]World Bank.Green Climate Fund[R/OL].2018[2018-10-06].http://fiftrustee.worldbank.org/Pages/gcf.aspx
[2]Megan R.Climate fund snags threaten opportunity to fight warming[N/OL].Thomson Reuters Foundation.2018[2018-09-10].http://news.trust.org/item/20180827010003-n2ig4
[3]Megan R.Green Climate Fund needs political push to solve woes:UNclimate chief[N/OL].Thomson Reuters Foundation.2018[2018-09-10].http://news.trust.org/item/20180802163738-hqgvx
[4]李宗录,方军.绿色气候基金运作实体创建模式选择研究[J].甘肃社会科学,2011(1):85-89.Li Z L,Fang J.The study on the selection of the operational mode for the Green Climate Fund[J].Gansu Social Sciences,2011(1):85-89(in Chinese)
[5]崔连标,朱磊,范英.基于碳减排贡献原则的绿色气候基金分配研究[J].中国人口·资源与环境,2014,24(1):28-34.Cui L B,Zhu L,Fan Y.The study on the Green Climate Fund allocation based on the principle of carbon reduction contribution[J].China Population,Resources and Environment,2014,24(1):28-34(in Chinese)
[6]沈绿野,杨璞.浅析绿色气候基金长期资金的来源模式[J].经济研究导刊,2017(6):61-63.Shen L Y,Yang P.Analysis on long-term financial source of Green Climate Fund[J].Economic Research Guide,2017(6):61-63,87(in Chinese)
[7]李宗录.绿色气候基金融资的正当性标准与创新性来源[J].法学评论,2014(3):130-137.Li Z L.Legitimate standards and innovative sources of financing for the Green Climate Fund[J].Law Review,2014(3):130-137(in Chinese)
[8]崔连标,宋马林,朱磊,等.全球绿色气候基金融资责任分摊机制研究:一种兼顾责任与能力的视角[J].财经研究,2015,41(3):65-76.Cui L B,Song M L,Zhu L,et al.Financing burden sharing of the Green Climate Fund:a perspective of the combination of historical responsibility and economic ability[J].Journal of Finance and Economics,2015,41(3):65-76(in Chinese)
[9]Paul G.The Durban Platform for enhanced action:prospects for delivering distributive justice through the operation of the Green Climate Fund[J].Ethics Policy&Environment,2012,15(3):293-297
[10]van Kerkhoff L,Ahmad I H,Jamie P,et al.Design the Green Climate Fund:how to spend$100 billion sensibly[J].Environment Science&Policy for Sustainable Development,2011,53(3):18-31
[11]UNFCCC.Report of the conference of the parties on its sixteenth session,held in Cancun from 29 November to 10 December 2010,addendum part two:action taken by the conference of the parties at its sixteenth session,FCCC/CP/2010/7/Add.1[R].UNFCCC Secretariat,2011
[12]Green Climate Fund(GCF).Green Climate Fund approves first 8investments[N/OL].GCF Secretariat.2015[2018-09-10].https://www.greenclimate.fund/-/green-climate-fund-approves-first-8-investmen-1
[13]Green Climate Fund(GCF).Portfolio dashboard[R/OL].GCFSecretariat.2018[2018-11-01].https://www.greenclimate.fund/whatwe-do/portfolio-dashboard
[14]Australia,UK and other developed countries.Climate finance roadmap to US$100 billion[R/OL].2016[2018-11-01].https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/562317/Roadmap_for_UK_website.pdf
[15]Green Climate Fund(GCF).Status of the initial resource mobilization process,GCF/B.21/Inf.05[R].GCF Secretariat,2018
[16]Green Climate Fund(GCF).Decisions of the board:sixth meeting of the board,19-21 February 2014,GCF/B.06/18[R].GCF Secretariat,2014
[17]Green Climate Fund(GCF).Status of the GCF portfolio:approved projects and fulfillment of conditions,GCF/B.21/Inf.07[R].GCFSecretariat,2018
[18]联合国.联合国宪章[R/OL].1945[2018-11-01].http://www.un.org/zh/sections/un-charter/chapter-iv/index.html.United Nations.Charter of the united nations[R/OL].1945[2018-11-01].http://www.un.org/zh/sections/un-charter/chapter-iv/index.html(in Chinese)
[19]Chiara T,Jessica B,Rodney B,et al.The role of the climate investment funds in meeting investment needs[R/OL].Climate Policy Initiative.2016[2018-10-06].http://www.indiaenvironmentportal.org.in/files/file/The-role-of-the-Climate-Investment-Funds-in-meeting-investmentneeds.pdf
[20]World Bank.Green Climate Fund[R/OL].2018[2018-10-06].http://fiftrustee.worldbank.org/Pages/gcf.aspx
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