歐盟氣候治理中的責任分享問題－－利益與規範的整合性分析

Burden Sharing Issues on EU Climate Governance: Comprehensive Analysis Based on Both Interest and Norm

國際公共事務治理中的責任分享，主要涉及「動機」與「模式」二個問題：前者探討一國何以決定分享特定責任，所以主要從成本—效益的角度進行分析；後者則是說明國家之間如何分配特定責任，故而涉及公平與正義的規範性討論。歐盟長期在全球氣候治理上扮演著主要推動者的角色，但除了由輪值主席團代表歐盟參與國際談判，亦做為單獨一方與其會員國就簽訂條約事宜進行協商。因此，關於歐盟在全球氣候變遷下應擔負哪些責任，以及如何在會員國之間分配責任等「責任分享」問題，共同形構了當前歐盟氣候治理策略發展的基礎，亦是本文所要探討的核心。基於此，本文首先從「利益」與「規範」的角度辨析責任分享概念；其次回顧歐盟氣候治理策略脈絡及其具體作法；最後則是從「利益」與「規範」進行整合性分析，闡述歐盟氣候治理所面臨的責任分享問題，及其長期實踐下所發展出的因應作法。研究發現，責任分享不單是國家間成本與效益的討價還價，更涉及公平與正義等規範性價值的傳遞。隨著極端氣候事件在頻率和強度上的不斷增加，危機意識將加速責任分享觀念的擴溢，而歐盟長期在該領域的實踐經驗，誠可做為國際社會責任分享上之典範。

Burden-sharing issues derived from governance of international public affairs can be understood in following two questions: One is motive, which explore how a country decides to share specific burden, associated with national interest and needed cost-benefit analysis. The other is model, which how to distribute specific burden among countries, associated with normative discussion of equality and justice. EU has initiated global climate governance and played a pivotal role both policy position and implement. Given EU negotiates both international and domestic level, this article aims to explain burden sharing issues of what burden EU shares and how to distribute burden among EU members. First, we provide documentary review and rethink the concept of burden sharing. Second, it tries to understand evolution of EU climate governance strategy and its measures. Finally, it explains the burden sharing issues of EU by comprehensive analysis based on both interest and norm. This article concludes that, burden sharing issues are not only bargaining between cost and benefit, but also normative value transition about equality and justice. As the rising of frequency and intensity of climate change and extreme climate incidents, crisis consciousness will speed up its spilling over effect of burden sharing idea, and EU experience shall be a worthy pattern for international society.