论构建中国用能权交易体系的制度衔接之维

用能权是具有公私法双重属性的管制性财产权。用能权交易是我国推进绿色发展的一项制度创新,对实现能耗总量和强度"双控"目标具有重要意义。用能权交易制度旨在从供给侧实现节能降耗目标,与其并行的节能减排市场化机制还包括节能量交易和碳排放权交易。节能量交易与用能权交易的规制对象、规制手段、制度设计目的和约束功能相近,故两者存在制度重复建设问题。用能权交易和碳排放权交易的制度设计目的具有协同性、规制对象有交叉,但两者在用能权指标和碳排放配额初始分配、履约等方面存在制度衔接不畅问题。通过法学和制度经济学分析,对用能权交易、节能量交易和碳排放权交易的制度整合与重构提出了建议。中国应当取消目标节能量交易制度,并以核定用能权交易取代项目节能量交易。用能权交易和碳排放权交易的制度衔接层面,应当打通用能权交易体系和碳排放权交易体系,建立联合履约机制,即允许用能单位或排放单位在满足一定条件的情况下使用用能权指标、核定用能权、碳排放配额或核证减排量履约。用能权指标与碳排放配额在履约方面的衔接机制重点在于一级市场的对接。用能权的初始分配仅仅是为重点用能单位设定节能义务的过程,应当以公平为原则,并且采取免费分配的方式。相对于用能权交易制度,碳排放权交易制度则是为了控制排放单位对碳排放空间这一资源的过度利用。因此,在碳排放配额初始分配环节,政府应当通过有偿分配的方式以实现国家对碳排放空间这一稀缺资源的所有者权益。建立核定用能权和核证减排量的联合履约机制,既允许用能单位购买核证减排量抵消其超额耗能,也允许排放单位购买核定用能权以抵消其超额排放,并对抵消比例设定限制。

China's energy-consuming right trading scheme: from the dimension of institutional linkage

Energy-Consuming Right (ECR) is a regulatory property with characteristics of public and private law.ECR trading scheme is an institutional innovation for China's green development,which is meaningful to realize energy saving target.ECR trading scheme is designed to realize energy-saving goal from supply-side,paralleled market-based schemes including Energy-saving Credits Trading (ESCT) and Carbon Emission Trading (CET).ESCT and ECR trading scheme are repetitively designed because of similar regulatory objective,regulatory instrument and function.Although the institutional goal are cooperative and regulatory objectives are overlapped between ECR trading scheme and CET,ECR trading and CET are not linked very well in terms of allowance allocation and compliance.Analyzing from law and institutional economy,some suggestions are provided for the institutional integration and reconstitution among ECR trading,ESCT and CET.Target-based ESCT should be abolished and project-based ESCT should be replaced by certificated ECR trading system.Joint implementation mechanism should be introduced for integration of ECR trading and CET scheme.Energy-using entities or emission facilities can fulfill obligations with EUR allowances,certified EUR,carbon emission allowances or certified carbon emissions.Primary market is the key point for linkage between EUR allowances and carbon emission allowances.EUR allowances should be allocated free because primary allocation is only a method to set energy-saving obligation for entities.CET scheme is designed to control the excessive usage of carbon space.Carbon emission allowances should be allocated with charge in order to realize ownership rights of carbon space.Joint implement mechanism should be established between certified EUR and certified emission reduction.Energy-consuming entities can buy certified emission reductions to offset excessive energy consumption.Emission facilities can buy certified EURs to offset excessive emissions.There should be a proportional limitation on offsets for joint implement mechanism.