Anita Talberg, Science, Technology, Environment and Resources
Section
There were high expectations for the climate change conference
in Copenhagen in December 2009 (15th Conference of the
Parties—COP15). However, the participating countries of the
United Nations Framework Convention on Climate Change (UNFCCC) were
not able to reach a legally-binding agreement.
What Australia brought to the COP15 table
Coming into those negotiations, Australia was advocating a
global legally-binding agreement that targeted an atmospheric
stabilisation level of 450 parts per million of
carbon dioxide. Australia sought commitments of comparable effort
from all countries and presented its own version of a framework to
succeed the Kyoto Protocol, known as the National Schedules
proposal. This proposal required all nations to record their own
commitments, whether they be emission reduction targets or specific
mitigation actions, in a central registry. Countries would then be
accountable to that registry. As well as the National Schedules,
Australia went to COP15 hoping for agreement on a market mechanism
to reduce emissions from deforestation and forest degradation
(REDD), especially in countries like Indonesia, where Australia
already has bilateral programs on this. The outcome of COP15 was
the Copenhagen Accord; it fell short of many of the Australian
Government’s expectations.
Copenhagen Accord
The Copenhagen Accord was a decision that the Conference
‘took note of’, without formally accepting. As such it
has no legal implications. The key elements of the Accord are:
- a temperature increase ceiling of two degrees
- emissions reduction targets by developed countries and
‘Nationally Appropriate Mitigation Actions’ from
developing countries, all to be registered with the UNFCCC (see
table)
- promotion of REDD and the enhancement of existing forests
(collectively known as REDD-plus), and
- fast-start mitigation and adaptation finance of
US$30 billion for 2010–12 and longer-term mitigation
funding of US$100 billion by 2020, some of this via a
newly-established Copenhagen Green Climate Fund.
Some Copenhagen Accord country commitments |
Party |
Emissions reduction in 2020 (a) |
Base year |
(a) Almost all commitments are contingent on the
criteria of any global agreement
Source: http://unfccc.int/home/5264.php |
Australia |
-5% up to -15% or -25% |
2000 |
Canada |
-17% |
2005 |
EU |
-20% or -30% |
1990 |
Japan |
-25% |
1990 |
New Zealand |
-10% to -20% |
1990 |
Russian Federation |
-15% to -25% |
1990 |
US |
-17% |
2005 |
What has happened since COP15
A new Executive Secretary of the UNFCCC, Christiana Figueres,
has been appointed and she continues to direct efforts towards
reaching a legally binding treaty. Two more meetings have taken
place since COP15, with a final one planned in October 2010 before
the next high-level meeting in December 2010—COP16. These
meetings have seen little progress on the successor to the Kyoto
Protocol, and that of a broader agreement on climate change.
What to expect from COP16 and COP17
In contrast to those of COP15, expectations for COP16 in
December are modest. United Nations Secretary General Ban Ki-moon
has expressed doubt that a treaty can be finalised at COP16 (to be
held in Cancùn, Mexico). This view is shared by many
countries, which are now focussing more on COP17 in 2011 in South
Africa. It is hoped that the Cancùn meeting will discuss the
core issues of climate change adaptation, capacity building,
finance, REDD-plus, and technology transfer, and that it will also
pave the way for an international treaty at COP17.
Who is at the negotiating table?
There are currently 194 Parties to the UNFCCC. Each Party has an
equal voice, but negotiations tend to take place between Party
groupings, or blocs. These are usually regional but can also be
based on common positions. The major blocs are:
- G77 and China: a diverse group of more than 130 developing
countries
- Africa Group
- Association of Small Island States: 43 countries almost all
included within the G77
- Least Developed Countries: about 50 nations
- European Union (EU)
- Umbrella Group: Australia, New Zealand, Iceland, Russian
Federation, Japan, Norway, Ukraine, Canada and the US
- Environmental Integrity Group: Mexico, Republic of Korea and
Switzerland
- Central Asia, Caucasus and Moldova (CACAM)
- Organisation of the Petroleum Exporting Countries (OPEC)
- Bolivarian Alliance for the Peoples of Our America (ALBA)
- BASIC: Brazil, South Africa, India and China, and
- Cartagena Group/Dialogue for Progressive Action: a diverse
group of 27 countries including Australia.
The major players
Of the developed countries under the UNFCCC, the EU has always
been the strongest campaigner for climate change action. Within its
own jurisdiction, the EU has mandated a 20 per cent
reduction in greenhouse gas emissions by 2020 (on 1990 levels) and
is currently seeking to increase this to 30 per cent. To
achieve this target, the EU has had a functioning emissions trading
scheme (ETS) since 2005. The EU bloc of 27 countries is anxious
that a new international agreement be reached before the end of the
Kyoto Protocol’s first commitment period in 2013, as the
success of its own ETS depends on it.
On the other side of the spectrum, the United States (US) has
always been, and remains, a major obstacle to a new treaty under
the UNFCCC. The US has been unable to pass climate legislation
through its Congress. This has spurred the individual American
states to take on the responsibility, with many cooperating in a
regional ETS. The US Environment Protection Agency is also
investigating ways to reduce greenhouse gas emissions through
regulation. However, until there is support from Congress, the US
cannot agree to international demands. With the likelihood of a
Republican majority after the upcoming Congressional election, the
chance of such support is slim.
Finally, the BASIC group of high-emitting emerging economies,
which only started to form shortly before COP16, have become one of
the strongest negotiating blocs. The BASIC countries are lobbying
hard for a legally-binding follow-up agreement to the Kyoto
Protocol by the end of 2011. They want deep emission reduction
commitments, transparent actions, and fulfilment of finance
promises from developed countries before obligations should be
imposed on developing countries.
Conclusions
The first commitment period of the Kyoto Protocol will end in
December 2012. If a new agreement is not reached soon, there
will be a break between the first and the next international
framework. There may be legal implications associated with this
break, and a danger that significant funds and momentum will be
lost.
Library publications and key documents
United Nations Framework Convention on Climate
Change (UNFCCC) website, http://unfccc.int/2860.php
and International Institute for Sustainable Development (IISD)
Reporting Services website, http://www.iisd.ca/