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  • 學位論文

政府間氣候變遷小組的建構、組織與功能演變:以跨國法制歷程觀點分析

The Making, Becoming and Functioning of IPCC: A Transnational Legal Process Perspective

指導教授 : 張文貞
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摘要


全球對氣候變遷的治理經歷了一系列的規範化歷程。1988年,全球透過聯合國大會決議,授權聯合國環境署(United Nations Environment Programme)與世界氣象組織(World Meteorological Organization)共同建立一個政府間氣候變遷小組(Intergovernmental Panel on Climate Change),邀集大氣科學社群來為全球氣候變遷的治理提供權威性的科學資訊,並使政府代表與科學社群透過大會來共同參與以交換相關意見。IPCC的設立,既代表了全球對於氣候變遷治理與科學資訊的需求,同時也代表大氣科學專業社群、政府代表與其他相關成員有了互動與推動氣候變遷治理的平台。而IPCC不論從其設立、內部組織與功能來看,都具有相當的特殊性。本文因此想問,IPCC的設立歷程究竟為何?它的組織與功能從1988年至今呈現哪些發展?這些演變的特徵為何?哪些驅力帶動了相關的變動?IPCC的相關發展歷程是否為跨國規範秩序帶來啟發?我們又如何透過IPCC來觀察全球氣候變遷治理體系的發展? 在前述問題意識下,本文以IPCC的設立、組成與工作流程,以及其歷來相關的大會決議、相關報告為分析對象,並且借用跨國法制歷程理論作為方法論,整理爬梳IPCC的發展形貌與功能定位。跨國法制歷程理論在本文有三個重要的作用:作為一種法律概念來理解IPCC的形貌與定位發展,作為一個分析架構來剖析IPCC設立、組織發展與功能演進的脈絡原因,以及作為規範性的檢驗框架。透過跨國法制歷程論,我們得以看到IPCC的面貌、定位與功能演進、並得以分析IPCC演變歷程的各種特性與驅力,並以此作為觀察全球氣候變遷治理體系發展的基礎。 本文首先整理IPCC設立前的相關科學發展與組織脈絡。氣候變遷議題的科學發現自19世紀以來歷經半個世紀的發展,期間科學社群面臨了該科學議題的研究困難與爭論,主要包括氣候變遷是否真實存在、氣候變遷是否為人為,以及氣候變遷是否可得評估等。另一方面,相關科學發現也與大氣科學研究的跨國機制與合作有關。19世紀就設立的國際氣象組織(International Meteorological Organization)奠定了跨國科學合作的基礎,並且奠定了WMO的相關組織基礎。隨著聯合國全球環境議題的發展進程的推進,美國、UNEP、WMO與相關科學社群有了共同推動IPCC的平台與動機。 爬梳IPCC的設立背景與設立歷程後,本文第3章爬梳了IPCC自設立以來的組織、人事、組成與工作變動歷程。IPCC自設立之初,不論其內部組織或工作流程都有了規模化與規範化的發展,而其科學評估工作也呈現制度化的發展。IPCC自1988年至今二十餘年來,已經逐漸透過實踐形成一個制度化發展的氣候變遷科學治理機制。 第4章進一步研析IPCC的組織與功能演進。本文發現,IPCC的組織內部經歷了三個階段的發展,分別為奠定組織時期(1988年至1995年)、制度化發展時期(1996年至2007年)與強化專業時期(2008年迄今);至於其組織功能也經歷了三個階段的演變,分別為推動公約時期(1988年至1992年)、推動議定書時期(1993年至1997年),以及回歸科學諮詢時期(1998年迄今)。本文發現,IPCC的組織與功能有著相互影響的關聯。組織的變動受到功能變動的影響,而功能的變動又回過頭來影響內部組織的發展。 第5章歸納了IPCC組織與功能演變的特色。本文發現,IPCC二十餘年來呈現以下三種二元互動的特性,分別為演進於經驗與創新、擺盪於主導與輔助,以及拉扯於科學與政治。影響相關演變歷程的驅力,則同時包括內外部的結構因素,與內外部行動者的推動。這些驅力包括政府代表的政治決策、科學社群的制度採擇、公約議定書體系的建構,以及治理者對資訊的需求。本章最後也透過對前述驅力與特性的分析,提出IPCC對相關理論的回應。本文認為IPCC將為跨國法制歷程論提出更進一步的發展。本文認為,氣候變遷作為跨國法制議題的大尺度、科學不確定等特性,使國際社會出於對科學風險管控的需求來設立IPCC,並接受未必具有規範正當性的IPCC科學報告。本文同時也認為,IPCC在全球氣候變遷治理體系中,扮演了行政機關之於全球行政法,以及跨國憲法法院之於跨國憲政主義下的治理者角色。 本文最後一章提出對IPCC的評價。本文對於打破公私二元藩籬,促進科學社群與政府決策者互動,並納入關懷氣候變遷議題參與者的IPCC抱持正面評價。本文認為,IPCC可能代表的是風險社會下一種新的治理典範,然而這樣的結論仍有賴更多機制的比較與更進一步的分析與觀察才能達成。

並列摘要


The governance of climate change is a transnational legal process as proposed by international legal scholars such as Harold Koh and Jiuun-rong Yeh. In 1998, international society established Intergovernmental Panel on Climate Change (IPCC) to improve the understanding and consensus of climate change governance in a global scale. IPCC, established by United Nations Environment Programme and World Meteorological Organization under the auspice of United Nations General Assembly, incorporates both individual scientists and government representatives into the institution, in order to shape the global scientific consensus of climate change governance. In the past decades, IPCC has served as one promoter of United Nations Framework Convention on Climate Change and Kyoto Protocol by delivery of several global authoritative scientific assessment reports. Besides the promotion of global climate change convention systems, IPCC has also expanded its membership, strengthened its internal regulation in the past twenty years. From this perspective, the institution of IPCC should be served as a dynamic legal process. Moreover, IPCC is heterogeneous to other international regimes in the aspect of its membership, internal regulation and organizational function. Therefore, to observe and analysis the legal process of IPCC becomes crucial. The thesis is a research based on the abovementioned prerequisites. In order to better sketch the general picture of global climate change governance, this research aimed to answer the following questions: What is the process of IPCC’s making, becoming and functioning? What characteristics does the legal process of IPCC show? What forces have driven the organizational and functional development IPCC? What legal theoretical meaning does the legal process of IPCC hint? And finally, where and how do we locate IPCC within the system of global climate change governance? To answer the questions, the thesis was composed of the following parts. Part 1 mapped the research by discussing the existing literature, the to-be-answered questions and relevant theoretical approaches. Part 2 sketched the historical context of the development of climate change science and international atmospheric research regimes as the background knowledge, in order to describe the origin of IPCC in 1988. Subsequently, Part 3 focused on the organizational process of IPCC by observing its membership, institutional body and working procedure. Later in Part 4, the author categorized IPCC’s organizational and functional development into four historical phases. The author proposed that IPCC’s organizational and functional developments are interactive and mutually corresponding to each other. Part 5 addressed the characteristics of IPCC’s legal process, together with the analysis of the driving forces to IPCC’s making, becoming and functioning. The author proposed that, while climate change served as a scientifically sensitive global issue area, both the political structure and the scientific professionals had served as the driving force to the development of IPCC. Moreover, as the global consensus to govern climate change incrementally grew, demands on the scientific information for climate change governance had also become other driving forces. The paper concluded in Part 6. The author concluded that notwithstanding the legal process of IPCC well echoed Harold Koh’s transnational legal process theory, the example of IPCC had underpinned another possible answer to the question which international legalists have always tried to answer: why nations make international law and obey. The making, becoming and functioning of IPCC had showed that scientific uncertainty to govern climate change served as a more satisfactory answer to why nations develop and obey the norms. Given IPCC served as part of global climate change governing system, IPCC is and ought to be considered a feasible governing model in dealing with climate change, just as administrative branches and courts do in dealing with other issue areas in the transnational legal context.

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被引用紀錄


陳子珺(2016)。反核子擴散條約之規範機制:以跨國規範化歷程為分析途徑〔碩士論文,國立臺灣大學〕。華藝線上圖書館。https://doi.org/10.6342%2fNTU201603090

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