COP-18 Doha

This post was co-authored with Wendi Bevins, an intern with WRI’s Climate and Energy Program.

If you asked five different people what they think “equity” means, you’d probably get five different answers. Their personal experiences and opinions would be overlaid on their cultural perspectives. A philosopher might bring up Aristotle’s teachings on justice; an economist would likely talk about maximizing utility and efficiency. A Buddhist and a Muslim might frame their answers from different perspectives that are difficult to compare, just as the viewpoints would likely vary between people raised under different forms of government.

So it’s no surprise that when climate negotiators from nearly 200 countries come together at the end of each year, they can’t agree on what exactly ‘equity’ means as applied to addressing climate change. To further complicate matters, the UN Framework Convention on Climate Change (UNFCCC) ties equity to “common but differentiated responsibilities and respective capabilities (CBDR-RC).”

There are many legitimate views of what equity means in the context of the UNFCCC, reflecting sharp contrasts on how to share both the burdens and opportunities of the global transition to low-carbon development. Some countries emphasize “responsibilities,” usually explained as the historical responsibilities developed countries have because of the greenhouse gases they emitted in the process of growing economically. Other countries focus on “capabilities,” the capacity countries have now to deal with climate change, such as their financial and technological resources to reduce domestic emissions or support adaptation research and activities. Several options for “differentiation” have been suggested over the years, including historical responsibility, levels of economic development, and vulnerabilities and needs. The current approach to equity has become a tug-of-war between countries that are reluctant to make greater climate change action commitments without assurances that others will also act.

History of Equity in the UNFCCC: Capability vs. Culpability

In the UNFCCC international climate negotiations, “ambition” refers to countries’ collective will to cut greenhouse gas (GHG) emissions enough to keep global average temperature increase below 2°C. While most countries have made international pledges to limit GHG emissions, these pledges are not “ambitious” enough to add up to the GHG cuts needed to meet the 2°C temperature goal. That’s why many groups are calling on parties in Doha to step up their commitments. Equally important, though, is ensuring that countries are effective in implementing domestic policies that meet – or exceed – the international commitments they have made already.

What Makes for an Effective Domestic Climate Policy?

The “implementation deficit” – a difference between the expected and actual amount of emissions reductions of an enacted policy—stems from a lack of complete implementation of a climate policy. This kind of “deficit” is well documented in a number of policy sectors, with significant implications for the countries’ abilities to meet GHG-reduction targets. Conversely, when climate policies are effectively implemented, they demonstrate that mitigation actions can work, in turn encouraging other countries to adopt similar policies and actions.

The effectiveness of any policy depends on several key factors, including:

As we move into the second week of the UN climate talks, the desert sand is swirling around the conference center in Doha, Qatar. Countries spent the first week tying up some loose ends on several issues, but there are still many details to be worked out before the sand settles and Parties head home. It’s hard to tell whether this meeting will turn into a full sandstorm or clear up.

The uncertainty here in Doha contrasts greatly with the increasingly clear (and grim) climate picture that we’re seeing around the world. Yet another report was just published finding that global carbon emissions are at an all-time high. This publication comes on the heels of the recent UN Environment Programme report showing that the gap in emissions is growing even wider. And, recent World Bank analysis reinforced the potential catastrophic impacts of moving beyond 2 degrees Celsius of global temperature rise. The warnings are clear, but it’s hard to tell if negotiators are ready to respond with the urgency that’s needed.

The Current State of COP 18

Indeed, it is fair to say that most of the critical issues on the table at COP 18 are not yet resolved. All the questions around the Kyoto Protocol and a second commitment period are still open. Issues surrounding finance – including medium-term pledge levels, the long-term work plan, and how to track countries’ climate finance commitments – have yet to be worked out. Roundtables on the Durban Platform resulted in a good exchange of views, but it’s still unclear whether there will be a firm work plan for 2013 or whether it will remain vague. The most vulnerable countries are understandably asking for more action now – even before a new 2020 agreement kicks in – but most countries haven’t put forth specific proposals.

While it’s not surprising that so many topics are stuck after the first week, the lack of action puts additional focus on the role of Ministers. Many are already in Doha, and they have their work cut out for them if they want to make progress in the remaining week of the conference.

This post was co-authored with Kate DeAngelis, an intern with WRI’s Climate and Energy Program.

Ambition is a word often used in the context of United Nations Framework Convention on Climate Change (UNFCCC) negotiations. While most people think of ambition as a strong desire to achieve something, the word has a more specific meaning when it comes to international climate action.

What Does Ambition Mean and Why Is it Important?

The UNFCCC’s ultimate goal is to stabilize greenhouse gas concentrations in the atmosphere at a “level that would prevent dangerous, anthropogenic interference with the climate system.” Scientists have found that in order to avoid devastating consequences such as mass desertification, glacier loss, extreme weather, and sea level rise, the international community must limit global warming to 2°C above pre-industrial levels. In the climate negotiations, “ambition” refers to countries’ collective will—through both domestic action and international initiatives—to cut global greenhouse gas emissions enough to meet the 2°C goal. Ambition further represents the actual steps countries are taking to meet that temperature goal.

Collective ambition is deemed to be lacking when the aggregate policies and actions of all countries are deemed insufficient to meet the 2°C goal. Countries are also judged on their own individual ambition levels, which are assessed based on their commitments to reduce greenhouse gases. In recent years, effective implementation of policies has emerged as an additional method for evaluating whether individual countries are sufficiently ambitious or not.