摘要
能源结构低碳化转型作为“双碳”目标推进的重要战略,需要一系列制度措施来促进“清洁用能”和“能源供给”兼备的能源结构格局之形成。市场机制是能源结构低碳化转型的主要驱动,而能源市场准入制度是发挥市场机制秩序稳定与风险防范作用的重要约束和规制工具。因此,能源结构低碳化转型须构建完善的能源市场准入制度予以落实。传统能源市场准入制度对低碳治理的规制存在局限,革新的能源市场准入制度应当体现出维护能源市场秩序与气候公共利益实现的双重价值追求,功能定位在“预防—控制”的二元结构。“预防—控制”的功能定位呼唤能源市场准入制度明确更为科学的立法导向,该制度的规范建构须分别在“碳源”阶段与“碳流”阶段实施不同的功能分配、资源整合与立法策略:前者聚焦于调适能源开发利用中传统化石能源、清洁能源与可再生能源的比例,促进能源结构的低碳升级;后者注重能源产业的资质准入与行为监督,在保障能源合理供给的基础上强化低碳治理。由此切入,能源市场准入制度的革新应当按照统一性与差异性相结合的原则,从能源供给与低碳控制两个层面归纳所涉制度要素并对之定性,进一步完善准入标准、许可事务、准入审批与后续监管等要素的规范形态,充实规范内容与程序结构,提升制度能力。具言之,一是以协调能源供给与低碳控制为原则,注重不同能源准入情景下需要何种强度的资格准入、规模准入、项目审查等标准的实践性指向,形成具备稳定性与定量性的准入标准;二是以“能源供给的必要性”和“碳风险程度”为划分标准,根据不同能源开采企业与加工转换企业的特性来识别差异化的运营需求与行为要求,进而厘定各类能源产业的许可条件设定与事务分配;三是以准入审批与后续监管并重的结构化联结为理念,构建以“准入事务与标准的履行能力”为中心的专项审查模式与以“能源供给与低碳控制的义务履行实效”为中心的后续监管模式,强化被准入主体的能源服务供给与低碳义务的履行。
As an important strategy to promote the goal of“double carbon”,the low-carbon transformation of energy structure needs a series of institutional measures to promote the formation of an energy structure pattern with both“clean energy use”and“energy supply”.Market mechanism is the main driving force of low-carbon transformation of energy structure,and energy market access system is an important constraint and regulation tool to play the role of market mechanism in order stability and risk prevention.Therefore,the low-carbon transformation of energy structure must be implemented by building a perfect energy market access system.The traditional energy market access system has limitations on low-carbon governance.The innovative energy market access system should reflect the dual value pursuit of maintaining energy market order and realizing climate public interests,and its function is positioned in the dual structure of“prevention-control”.The functional orientation of“prevention-control”calls for a clear and more scientific legislative orientation of the energy market access system.The normative construction of this system must implement different functional allocation,resource integration and legislative strategies in the“carbon source”stage and“carbon flow”stage respectively:the former focuses on adjusting the proportion of traditional fossil energy,clean energy and renewable energy in energy development and utilization,and promotes the low-carbon upgrading of energy structure;the latter pays attention to the qualification access and behavior supervision of the energy industry,and strengthens low-carbon governance on the basis of ensuring the reasonable supply of energy.From this point of view,the innovation of energy market access system should be based on the principle of unity and difference,and the system elements involved should be summarized and characterized from two aspects of energy supply and low-carbon control,so as to further improve the normative forms of access standards,licensing matters,access approval and follow-up supervision,enrich the normative content and procedural structure,and enhance the institutional capacity.In a word,first,based on the principle of coordinating energy supply and low-carbon control,pay attention to the practical orientation of standards such as qualification access,scale access and project review in different energy access scenarios,and form stable and quantitative access standards;second,based on the criteria of“the necessity of energy supply”and“the degree of carbon risk”,the differentiated operational requirements and behavioral requirements are identified according to the characteristics of different energy mining enterprises and processing and conversion enterprises,and then the licensing conditions and transaction allocation of various energy industries are determined;third,based on the concept of structural connection with equal emphasis on access approval and follow-up supervision,we will build a special review mode centered on“the ability to perform access affairs and standards”and a follow-up supervision mode centered on“the effectiveness of fulfilling obligations of energy supply and low-carbon control”to strengthen the supply of energy services and the fulfillment of low-carbon obligations of the admitted subjects.
作者
张忠民
张琪
ZHANG Zhongmin;ZHANG Qi(School of Law,Zhongnan University of Economics and Law,Wuhan 430073,P.R.China;Ecological Civilization Institute,Zhongnan University of Economics and Law,Wuhan 430073,P.R.China)
出处
《重庆大学学报（社会科学版）》
CSSCI
北大核心
2024年第4期198-211,共14页
Journal of Chongqing University(Social Science Edition)
基金
教育部人文社会科学重点研究基地重大项目“新时代生态文明机制创新与重点流域、区域、海域生态环境治理研究”(22JJD820013)
中央高校基本科研业务费项目“生态文明交叉学科科研创新团队建设”(2722023AL003)。
关键词
能源法
“双碳”目标
市场准入
能源结构
行政许可
energy law
“dual carbon”target
market access
energy structure
administrative license
