第六章 氣候變遷、貿易及永續協定
第一節 現行規範與機制之總評
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立 政 治 大 學
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N a tio na
l C h engchi U ni ve rs it y 第六章 氣候變遷、貿易及永續協定
本文於第三、第四、第五章中，逐一介紹並分析了目前國際間論及化石燃料補貼改 革時，經常提及的規範或機制。透過前述研究可發現，該等規範或機制對於化石燃料補 貼措施之削減，雖皆可能產生一定程度的影響，然卻因規範本就非針對化石燃料補貼進 行管制，或是軟性機制缺乏強制執行手段等問題，導致國際社群尚無法透過前述設計，
系統性地淘汰化石燃料補貼。為了找出解決之道，本文將透過第六章，介紹目前國際場 域中，最近期出現，且有望為化石燃料補貼改革做出可觀貢獻的ACCTS，並以為 ACCTS 設計管制模式為緣由，提供本文在經過諸多研究後，認為最適合用於國際化石燃料補貼 管制的規範架構。本章共分為三節，第一節將就前三章所列出之各類規範與機制，做一 回顧與總評，並利用第二節介紹「優惠性貿易協定（preferential trade agreement, PTA）」
於化石燃料補貼改革上之過往規範設計模式與及發展潛力440，第三節則為本文之研究重 點，即為ACCTS 提供管制模式之設計建議。
第一節 現行規範與機制之總評
目前國際間針對化石燃料補貼改革之軟性遵循機制，主要是透過回報機制、同儕審 查機制，以及能力建置機制循循善誘。回報機制與同儕審查機制之主要用意為提升經濟 體之透明度，以識別各經濟體改革藍圖中的基準線，再透過比較與對照，瞭解彼此在能 源與化石燃料改革政策上的差異，並藉此達成同儕學習與之目的441；能力建置機制則是 更精準地按經濟體之需求，提供包括經濟分析、政策評估與設計，甚或是人才訓練在內
440 「優惠性貿易協定（preferential trade agreement）」泛指兩個或兩個以上的國家，互相給予涉及關 稅，或涉及非關稅貿易障礙措施之優惠性待遇的協定。優惠性貿易協定（Preferential Trade Agreement，
PTA）簡介，行政院經貿談判辦公室，2013 年 1 月 7 日，網址：
https://www.ey.gov.tw/otn/280246D814D4C493/5417f91e-e99f-43ce-8c17-758c7ea0a8e8（最後瀏覽日：
2020 年 8 月 21 日）。
441 Gerasimchuk, Wooders, Merrill, Sanchez & Kitson, supra note 161, at 3.
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443 Lili Jiang, An Evaluation of Soft Law as a Method for Regulating Public Procurement from a Trade Perspective 292 (July, 2009) (unpublished Ph.D thesis, University of Nottingham),
http://eprints.nottingham.ac.uk/10700/1/Thesis_Final.pdf.
444 Industrial Subsidies, OFF.U.S.TRADE REP., https://ustr.gov/trade-agreements/wto-multilateral-affairs/wto-issues/industrial-subsidies (last visited Aug. 21, 2020); Christian Harris Slattery, ‘Fossil Fueling the
Apocalypse’: Australian Coal Subsidies and the Agreement on Subsidies and Countervailing Measures, 18(1) WORLD TRADE REV. 109, 109 (2019).
445 Cleo Verkuijl, Harro van Asselt & Peter Wooders, Realising Fossil Fuel Subsidy Reform through Trade Agreements, CLIMATE STRATEGIES &CLIMATE POL’Y BLOG (Oct. 27, 2017),
https://climatestrategies.wordpress.com/2017/10/27/realising-fossil-fuel-subsidy-reform-through-trade-agreements/.
446 Markus Gehring, From Fisheries Subsidies to Energy Reform under International Trade Law (Centre for International Governance Innovation, Paper No. 188, 2018),
https://www.cigionline.org/sites/default/files/documents/Paper%20no.188web.pdf.
447 ICTSD,supra note 238, at 3.
448 Bill Hare, Andrzej Ancygier, Laetitia De Marez & Paola Yanguas Parra, Facilitating Global Transition: The
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Role of Nationally Determined Contributions in Meeting the Long-Term Temperature Goal of the Paris Agreement, NDC PARTNERSHIP, https://ndcpartnership.org/facilitating-global-transition-role-nationally-determined-contributions-meeting-long-term (last visited Aug. 21, 2020); CTR. FOR CLIMATE &ENERGY SOLUTIONS,PARIS CLIMATE AGREEMENT Q&A 2 (2019),
https://www.c2es.org/site/assets/uploads/2017/09/paris-climate-agreement-qa.pdf.
449 Delivering Ambition in NDCs from Fossil Fuel Subsidy Reform, Taxation and Swaps: Country Results, UNFCCC, https://unfccc.int/event/delivering-ambition-in-ndcs-from-fossil-fuel-subsidy-reform-taxation-and-swaps-country-results (last visited Aug. 21, 2020); Raising NDC Ambition to Reach Climate Action Goals:
Fossil Fuel Subsidies, Energy Pricing and Swaps, IISD, https://www.iisd.org/event/raising-ndc-ambition-reach-climate-action-goals-fossil-fuel-subsidies-energy-pricing-and-swaps (last visited Aug. 21, 2020); Maeve McLynn, Laurie van der Burg & Shelagh Whitley, Briefing: Pathways in the Paris Agreement for Ending Fossil Fuel Subsidies 2 (Climate Action Network Europe & ODI, Paper, 2016),
http://www.caneurope.org/docman/fossil-fuel-subsidies-1/3011-briefing-on-fossil-fuel-subsidies-and-the-paris-agreement/file.
450 Laura Merrill, Melissa Harris, Liesbeth Casier & Andrea M. Bassi, Fossil-Fuel Subsidies and Climate Change 6 (Nordic Council of Miniters, Working Paper No. 2015:905, 2015),
https://www.greengrowthknowledge.org/sites/default/files/downloads/resource/Fossil-
Fuel_Subsidies_and_Climate_Change-Options_for_policy_makers_within_their_Intended_Nationally_Determined_Contributions_Nordic_Council_of _Ministers.pdf.
451 Judit Fabian, Preferential Trade Agreements vs. Multilateralism: In the New Trump-World, Does Canada Face an Impossible Choice? (The School of Public Policy & Canadian Global Affairs Institute, Policy Paper, 2020),
https://d3n8a8pro7vhmx.cloudfront.net/cdfai/pages/4388/attachments/original/1584400517/Preferential_Trade_
Agreements_vs._Multilateralism.pdf?1584400517; Jeffrey Wilson, Multilateral, Regional, Bilateral: Which Agreement Is Best?, THE CONVERSATION (Nov. 15, 2013), https://theconversation.com/multilateral-regional-bilateral-which-agreement-is-best-19664.
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定》（Comprehensive and Progressive Agreement for Trans-Pacific Partnership, CPTPP） 「環 境（Environment）」章節中之內容，然而相對於漁業補貼在該協定下，具有一套明確規 範的做法，對於化石燃料議題之處理，CPTPP 卻僅是宣示性地指出在促進該章節執行 的合作框架下，納入與替代、再生或清潔能源相關內容之可能452。有鑑於條文中並未明 確提及化石燃料補貼之淘汰或改革453，對於該等目的之達成，效果自屬十分有限。除了 CPTPP 以外，《跨大西洋貿易及投資夥伴協定》（Transatlantic Trade and Investment Partnership, TTIP）亦曾被建議應納入化石燃料補貼改革之相關規範，惟 TTIP 之談判因 無法獲致共識，已於2016 年宣告失敗454。近年來，為符合聯盟貿易政策的特定目標，歐盟十分積極地於雙邊貿易協定中納入 永續發展章節，以在促進貿易自由化的同時，確保其措施符合高度環境友善標準，其中 唯一針對化石燃料補貼作出明確規範者為《歐盟—新加坡自由貿易協定》（Free Trade Agreement between the European Union and the Republic of Singapore, 以下簡稱歐星
452 Comprehensive and Progressive Agreement for Trans-Pacific Partnership arts. 20.12, 20.15.2, 20.16, Mar. 8, 2018,
https://www.mfat.govt.nz/en/trade/free-trade-agreements/free-trade-agreements-in-force/cptpp/comprehensive-and-progressive-agreement-for-trans-pacific-partnership-text-and-resources/;
Gehring, supra note 446, at 1, 6.
453 有論者表示，在《跨太平洋夥伴協定》（Trans-Pacific Partnership）的談判中，紐西蘭雖致力將淘汰 化石燃料補貼的相關條文（惟該條文屬於軟性義務）納入協定文本，惟因遭到東南亞國家的極力反對，
導致該等條文最終被刪除，亦未重新出現在CPTPP 的架構中。RIVE, supra note 42, at 153.
454 Negotiations and Agreements of The Transatlantic Trade and Investment Partnership (TTIP), EUR.
COMM’N, https://ec.europa.eu/trade/policy/in-focus/ttip/ (last updated Apr. 15, 2019); see Harrison Institute for Public Law, Using the Transatlantic Trade and Investment Partnership to Limit Fossil Fuel Subsidies (Greens Group, Discussion Paper, 2014), https://www.law.georgetown.edu/wp-content/uploads/2017/09/Fossil-Fuel-Subsidies-TTIP-Discussion-Paper-9-January-2014.pdf; Constanze Adolf, Jacqueline Cottrell, Amani Joas &
Claudia Schulz, TTIP and Fossil Fuel Subsidies: Using International Policy Processes as Entry Points for Reform in the EU and the USA (Green Budget Europe, Paper, 2014),
https://us.boell.org/sites/default/files/hbs_ttip_fossil_fuel_subsidies.pdf; CLIENTEARTH &TRANSPORT &
ENVIRONMENT,SUSTAINABLE DEVELOPMENT AND ENVIRONMENT IN TTIP (2015),
https://www.transportenvironment.org/sites/te/files/publications/2015_10_Environment_in_TTIP_equal_consid eration_report_FINAL_new_logo.pdf.