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西班牙的煤炭過渡Coal Transition in SPAIN

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更新時間：2021-09-16
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至少從十八世紀開始，西班牙就有著悠久的煤炭開采傳統(tǒng)。然而，它也是近年來承諾逐步取消并實施補貼的司法管轄區(qū)之一。本案例研究探討了西班牙煤炭轉(zhuǎn)型的主要特征、影響煤炭轉(zhuǎn)型的因素以及推動煤炭轉(zhuǎn)型的政策及其對工人和地區(qū)的不利社會經(jīng)濟影響。分析的依據(jù)是對相關(guān)文件的桌面研究，包括工業(yè)部（MINETUR）和歐盟委員會的官方信函以及工業(yè)協(xié)會（CARBUNIN）和工會（UGT和CCOO）的立場聲明。還查閱了其他機構(gòu)（基金會、非政府組織）關(guān)于國家煤炭的文件。最后，對大眾傳媒中的文章進行了分析。這包含來自不同類型的涉眾的有用聲明。在這個國家，至少在過去20年里，煤炭行業(yè)的生產(chǎn)和就業(yè)都出現(xiàn)了大幅下降。政府接連出臺計劃，旨在減少煤炭產(chǎn)量、提前退休和關(guān)閉煤礦。一方面陷入了礦業(yè)聯(lián)盟的夾縫，另一方面又陷入了歐盟立法和輿論的漩渦，政府不得不批準導(dǎo)致逐步淘汰的嚴厲措施。另一方面，它試圖在逐步淘汰的同時采取措施，試圖減輕對受影響地區(qū)的負面影響，盡管許多利益攸關(guān)方認為，在這方面的效力有限。政府為減少煤炭生產(chǎn)和消費而采取的措施是有效的。由于電力需求下降和可再生能源增加，煤炭需求下降能量滲透。就業(yè)和生產(chǎn)水平大幅下降。一些措施的目的是減輕這些地區(qū)的影響，首先是通過支持生產(chǎn)、提前退休等，然后是在領(lǐng)土上采取行動，即通過提供基礎(chǔ)設(shè)施。然而，還沒有建立一個替代行業(yè)，即吸收失業(yè)工人并避免礦區(qū)經(jīng)濟衰退的發(fā)展模式。這些支持措施只是零星地解決了那些通過收入轉(zhuǎn)移而失業(yè)的人的問題，而不是通過將他們轉(zhuǎn)移到其他活動中。許多礦工不僅擔(dān)心自己的工作，而且擔(dān)心自己孩子的未來，這一問題一直沒有得到解決。似乎過分強調(diào)提供公共基礎(chǔ)設(shè)施，而不是直接鼓勵建立長期經(jīng)濟和社會經(jīng)濟可持續(xù)的替代產(chǎn)業(yè)。這當(dāng)然是今后要避免的錯誤。一個教訓(xùn)是，一旦決定逐步淘汰煤炭，政府應(yīng)設(shè)法以最適當(dāng)?shù)姆绞焦芾碡撁娴纳鐣?jīng)濟和分配影響，例如，通過補償工人和創(chuàng)造替代產(chǎn)業(yè)，為負面影響地區(qū)提供更光明的前景。

Spain has had a long tradition of coal mining at least since the XVIII century. However, it is also one of the jurisdictions committing to phase-out of subsidies and implementing it in recent times. This case study discusses the main features of the coal transition in Spain, the factors influencing this transition as well as the policies which both drove it and accompanied their detrimental socioeconomic effects on the workers and regions. The analysis is based on a desktop research of relevant documents, including official communications from the Ministry of Industry (MINETUR) and the European Commission as well as statements of position from the industry association (CARBUNIN) and labour unions (UGT and CCOO). Documents on national coal from other institutions (Foundations, NGOs) have also been consulted. Finally, an analysis of articles in the mass media has been carried out. This contains useful statements from different types of stakeholders. A strong reduction in production and employment in the coal industry has been experienced at least in the last two decades in this country. Successive plans by the government have aimed at reducing coal production, early retirement of workers and closing mines. Caught in the middle of the mining coalition on the one hand and EU legislation and public opinion on the other, the government has had to approve drastic measures leading to phase out. On the other hand, it has tried to accompany the phase out with measures which have tried to mitigate the negative impact on the affected zones, although effectiveness in this context has been limited according to many stakeholders. The measures adopted by the government to reduce coal production and consumption have been effective. Coal demand has gone down as a result of the combination of lower electricity demand and increasing renewable energy penetration. A drastic reduction in employment and production levels has been experienced. Some measures have aimed at mitigating the impact in the zones, first through support for production, early retirement etc… and then with actions on the territory, i.e., through the provision of infrastructure. However, an alternative industry has not been created, i.e., a development model which absorbs the unemployed workers and avoids the economic downturn in the mining areas. The support measures have rather solved sporadically the problem of those being unemployed through income transfers, but not by relocating them in an alternative activity. Many miners are not only worried about their jobs but about the future of their children and this has not been addressed. There seems to have been an excessive emphasis on the provision of public infrastructure rather than encouraging directly the setting up of alternative industries which are both economically and socioeconomically sustainable in the long term. This is certainly a mistake to be avoided in the future. One lesson is that, once it is decided to phase out coal, governments should try to manage the negative socioeconomic and distributional effects in the most appropriate manner, e.g., both by compensating workers and creating alternative industries which provide a brighter outlook for the negatively affected regions.

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