Defining success for climate negotiations in Cancun
Photo: UN Climate TalksInternational climate negotiations will continue in Cancun, Mexico, during the first two weeks of December, 2010. These will be the Sixteenth Conference of the Parties (COP 16) of the United Nations Framework Convention on Climate Change (UNFCCC). The key challenge is to continue the process of constructing a sound foundation for meaningful, long-term global action, not necessarily some notion of immediate, highly-visible triumph. Some of the gloom-and-doom predictions we’ve been hearing about these upcoming negotiations are therefore misguided, because they are based upon unreasonable — and fundamentally inappropriate — expectations (despite the fact that expectations have been lowered dramatically since COP 15 in Copenhagen last year).
Keeping our eyes on the prize
Why do I say that the best goal for the Cancun climate talks is to make real progress on a sound foundation for meaningful, long-term global action, not some notion of immediate triumph? This is because of some basic scientific and economic realities.
First, the focus of scientists (and policy makers) should be on stabilizing concentrations at acceptable levels by 2050 and beyond, because it is the accumulated stock of greenhouse gas emissions — not the flow of emissions in any year — that are linked with climate consequences.
Second, the cost-effective path for stabilizing concentrations involves a gradual ramp-up in target severity, to avoid rendering large parts of the capital stock prematurely obsolete.
Third, massive technological change is the key to the needed transition from reliance on carbon-intensive fossil fuels to more climate-friendly energy sources. Long-term price signals (most likely from government policies) will be needed to inspire such technological change.
Fourth and finally, the creation of long-lasting international institutions is central to addressing this global challenge.
For all of these reasons, international climate negotiations will be an ongoing process, not a single task with a clear end-point. Indeed, they may well proceed much as international trade talks have done, that is, with progress over many years, building the institutions (the GATT, the WTO), but moving forward in fits and starts, at times seeming to move backward, but making meaningful progress in the long term.
So, the bottom-line is that a sensible goal for the international negotiations in Cancun is progress on a sound foundation for meaningful long-term action, not some notion of immediate “success.”
Don’t sacrifice valuable long-term achievements for minor short-term gains
It might be relatively easy, but actually quite unfortunate, for countries to achieve what some people might define as “success” in Cancun: a signed international agreement, followed by glowing press releases. I say it would be unfortunate, because such an agreement could only be the Kyoto Protocol on steroids: more stringent targets for the original list of industrialized countries (Annex I) and no meaningful commitments by the key rapidly-growing emerging economies, such as China, India, Brazil, Korea, Mexico, and South Africa.
Such an agreement could — in principle — be signed, but it would not reduce global emissions, and it would not be ratified by the U.S. Senate (just like Kyoto). Hence, there would be no real progress on climate change.
What would constitute real progress in Cancun?
If it’s not reasonable to expect that a comprehensive post-Kyoto policy architecture will be identified and enacted in Cancun, what would constitute real progress?
1. Embracing parallel processes
A significant step forward would be for the UNFCCC to embrace the parallel processes that are carrying out multilateral discussions (and in some cases, negotiations) on climate change policy: the Major Economies Forum or MEF (a multilateral venue for discussions — but not negotiations — outside of the UNFCCC, initiated under a different name by the George W. Bush administration in the United States, and continued under a new name by the Obama administration, for the purpose of bringing together the most important emitting countries for candid and constructive discussion and debate); the G20 (periodic meetings of the finance ministers — and sometimes heads of government — of the twenty largest economies in the world); and various other multilateral and bilateral organizations and discussions.
By the way, the MEF includes Australia, Brazil, Canada, China, the European Union, France, Germany, India, Indonesia, Italy, Japan, Korea, Mexico, Russia, South Africa, the United Kingdom, and the United States. The membership of the G20 is the same as the membership of the MEF, plus Argentina, Saudi Arabia, and Turkey.
The previous leadership of the UNFCCC seemed to view the MEF, the G20, and most other non-UNFCCC forums as competition — indeed, as a threat. Fortunately, the UNFCCC’s new leadership under Executive Secretary Christiana Figueres (appointed by U.N. Secretary-General Ban Ki-moon in May of this year) has displayed a considerably more positive and pragmatic attitude toward these parallel processes.
2. Consolidating negotiations tracks
There are now three major, parallel processes operative: first, the UNFCCC’s KP track (negotiating national targets for a possible second commitment period — post-2012 — for the Kyoto Protocol); second, the LCA track (the UNFCCC’s negotiation track for Long-term Cooperative Action, that is, a future international agreement of undefined nature); and third, the Copenhagen Accord, negotiated and noted at COP 15 in Copenhagen, Denmark, in December, 2009. Consolidating these three tracks into two tracks (or better yet, one track) would be another significant step forward.
One way this could happen would be for the LCA negotiations to take as their point of departure the existing Copenhagen Accord, which itself marked an important step forward by blurring for the first time (although not eliminating) the unproductive and utterly obsolete distinction in the Kyoto Protocol between Annex I and non-Annex I countries. (Note that more than 50 non-Annex I countries now have greater per capita income than the poorest of the Annex I countries.)
In particular, the UNFCCC principle of “common but differentiated responsibilities” could be made meaningful through the dual principles that: all countries recognize their historic emissions (read, the
industrialized world); and all countries are responsible for their future emissions (think of those rapidly-growing emerging economies).
This would represent a great leap beyond what has become the “QWERTY keyboard” (that is, unproductive path dependence) of international climate policy: the distinction in the Kyoto Protocol between the small set of Annex I countries with quantitative targets, and the majority of countries in the world with no responsibilities. Various policy architectures could subsequently build on these dual principles and make them operational, beginning to bridge the massive political divide which exists between the industrialized and the developing world.
At the Harvard Project on Climate Agreements — a multi-national initiative with some 35 research projects in Australia, China, Europe, India, Japan, and the United States — we have developed a variety of architectural proposals that could make these dual principles operational. (See, for example: “Global Climate Policy Architecture and Political Feasibility: Specific Formulas and Emission Targets to Attain 460 PPM CO2 Concentrations” [PDF] by Valentina Bosetti and Jeffrey Frankel; and “Three Key Elements of Post-2012 International Climate Policy Architecture” [PDF] by Sheila M. Olmstead and Robert N. Stavins.)
3. Productive steps in narrow, focused agreements, such as REDD+
A third area of success at the Cancun negotiations could be realized by some productive steps with specific, narrow agreements, such as on REDD+ (Reduced Deforestation and Forest Degradation, plus enhancement of forest carbon stocks). Other areas where talks are moving forward, although somewhat more slowly, are finance and technology.
4. Maintaining sensible expectations and developing effective plans
Finally, it is important to go into the Cancun meetings with sensible expectations and thereby effective plans. Again, negotiations in this domain are an ongoing process, not a single task with a clear end-point. The most sensible goal for Cancun is progress on a sound foundation for meaningful long-term action, not some notion of immediate triumph. The key question is not what Cancun accomplishes in the short-term, but whether it helps put the world in a better position 5, 10, and 20 years from now in regard to an effective long-term path of action to address the threat of global climate change.
A number of previous essays I have written and posted at this blog will be of interest to those who wish to follow developments at the Sixteenth Conference of the Parties of the U.N. Framework Convention on Climate Change in Cancun. Here are links, in chronological order:
Three Pillars of a New Climate Pact
Can Countries Cut Carbon Emissions Without Hurting Economic Growth?
Approaching Copenhagen with a Portfolio of Domestic Commitments
Defining Success for Climate Negotiations in Copenhagen
Only Private Sector Can Meet Finance Demands of Developing Countries
Chaos and Uncertainty in Copenhagen?
What Hath Copenhagen Wrought? A Preliminary Assessment of the Copenhagen Accord
Another Copenhagen Outcome: Serious Questions About the Best Institutional Path Forward
Opportunities and Ironies: Climate Policy in Tokyo, Seoul, Brussels, and Washington