From Copenhagen to Paris: Likely to Fail Again?
The plan, going into Copenhagen in late 2009, was to broaden and deepen the Kyoto Protocol. This plan failed. The draft agreement prepared in advance of this conference was very long and filled with brackets, indicating that countries could not agree about very much. Once it became clear that an agreement about limiting emissions could not be negotiated, a short agreement was put together on the spot by a subset of countries.
This agreement set a global goal for limiting temperature change and invited all countries to submit pledges for the contributions they intended to make to this global effort. This agreement was not “legally binding,” and an analysis of the pledges submitted after this conference indicated that they fell far short of the emission limits that would need to be made if the global goal were to be achieved.
The Paris conference will build on the foundation laid so hastily in Copenhagen. The intention is to negotiate a “legally binding” agreement that will include arrangements for measuring, reporting, and verifying emissions. Rather than negotiate emission limits, countries are submitting new “Intended Nationally Determined Contributions.”
An analysis by the United Nations Framework Convention on Climate Change Secretariat shows that these intended contributions, if fulfilled, will still allow global emissions to increase through 2030. The claim is that the pledges being made will reduce emissions relative to “business as usual,” but this is a hard claim to substantiate since “business as usual” isn’t observable. Moreover, it isn’t obvious that countries will fulfill their pledges.
All of the pledges made in Paris will be voluntary. It is hoped that, by a process of “pledge and review,” these pledges can be strengthened—and that countries will feel obligated to fulfill them. However, countries have not always fulfilled their pledges in the past, and it isn’t obvious that this agreement is going to cause countries to behave very differently in the future.
Barrett’S website is www.globalpublicgoods.com. He and Carlo Carraro and Jaime de Melo have written a new e-book, out this month, that you can download: “Towards a Workable and Effective Climate Regime.”
This post is one in a series reflecting on what has changed since the climate talks of 2009 in Copenhagen. Barrett was among those writing for State of the Planet about those talks back in 2009. Here is an excerpt from back then (the full text is here and here):
The three pages of text that emerged after years of preparation and two weeks of intense negotiation in Copenhagen signally fail to address what the document correctly calls “one of the greatest challenges of our time”—global climate change. To many, the Copenhagen Accord will seem a setback; actually, it is a continuation of a long history of failure. The essential problem lies with the strategy of addressing this complex issue by means of a single agreement. Breaking this colossal problem into smaller pieces would allow us to achieve more.
… Climate change is the greatest collective action problem in human history, so we should not be surprised that it has been difficult to address. But our approach has made it harder than necessary. A better way to negotiate would be to break this colossal problem up into smaller pieces, addressing each piece using the best means appropriate.