“双碳”目标下我国碳交易制度的法治演进、现实困境与完善路径

Legal Evolution, Practical Predicaments and Optimisation Approaches for China’s Carbon Trading System in Pursuit of the “Dual Carbon” Goals

摘要: 在“双碳”目标持续推进以及《中华人民共和国生态环境法典》(后文简称《生态环境法典》)正式施行的情形下，梳理我国碳交易制度的法治发展脉络，化解当前市场运行中的体制弊端和法律难题，建立符合高质量发展要求与全球气候治理规则的现代化碳交易法律体系，已成为环境法学研究的紧迫课题。本文从我国碳交易制度法治发展的内在逻辑切入，运用规范分析、比较研究以及实证研究的方法，系统梳理碳排放权法律属性的学术争议，明确主张碳排放权兼具公法管制属性与私法财产属性的“双重属性”定位，并在此基础上提出完善路径。研究表明，我国碳交易制度面临顶层立法位阶不足、碳排放权法律属性模糊、数据监管法治体系不完善、跨境规则衔接空白等结构性困境。我国迫切需要制定“碳排放权交易法”，明确碳排放权的“可交易环境用益物权”定性，建立覆盖MRV全流程的数据质量监管法律体系，搭建跨境碳规则相互认可的法治框架，以全面提升碳交易的法治保障水平。

Abstract: Against the backdrop of steady progress toward the “Dual Carbon” Goals and the official implementation of the Ecological and Environmental Code of the People’s Republic of China (hereinafter referred to as the Ecological and Environmental Code), sorting out the legal development context of China’s carbon trading system and resolving institutional drawbacks and legal dilemmas in market operation, as well as establishing a modern legal system for carbon trading consistent with high-quality development requirements and global climate governance rules, has become an urgent research subject in environmental law. Starting from the internal logic of the legal development of China’s carbon trading system, this paper adopts normative analysis, comparative research and empirical research methods to systematically review academic disputes over the legal nature of carbon emission allowances. It clearly advocates the dual attribute positioning that carbon emission allowances possess both public law regulatory attributes and private law property attributes. On this basis, this paper puts forward improvement approaches. The study shows that China’s carbon trading system is confronted with structural predicaments including insufficient hierarchical status of top-level legislation, ambiguous legal nature of carbon emission allowances, an imperfect legal system for data supervision, and gaps in cross-border rule coordination. It is urgent for China to enact the Carbon Emission Allowance Trading Law, define carbon emission allowances as tradable usufructuary rights to the environment, establish a legal system governing data quality covering the whole MRV process, and build a legal framework for mutual recognition of cross-border carbon rules, so as to comprehensively upgrade the legal safeguards for carbon trading.