Climate talks: Turning misunderstanding to agreement
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UN climate change negotiations in Copenhagen last year yielded no consensus among governments on a global deal to reduce carbon emissions or a responsible commitment to help developing countries adjust to climate change.
This year countries have stepped up the pace of their negotiations. The United Nations climate intersessional meeting on climate change is being held in early October in Tianjin, China -- the last meeting before COP16 begins in Cancun, Mexico in late November. The Tianjin meeting has generated interest from both critics and stakeholders because of China's position in the overall negotiations. How will this first climate change negotiation in China impact international negotiations, and will it enhance China's own response to climate change?
In order to reach a positive outcome at COP16 in Cancun, negotiators agreed to increase the number of their meetings from two to five before the Mexico event. China took the cue and volunteered to host the Tianjin meeting, showcasing its determination to actively promote the climate negotiations.
Rich countries have remained vague about their commitment to substantial emissions reduction targets, however, and to providing developing countries with appropriate financial assistance to combat climate change. In order to lower public expectations, over the past six months, rich countries have been spreading the news that there is a low possibility of reaching an agreement at COP 16.
Under these circumstances, the voluntary carbon intensity reduction target committed by China should be appreciated. Many European and US commentators have criticized China, a major emitter of greenhouse gases, for failing to adopt appropriate measures to reduce its emissions. Yet as far back as early 2007, the Chinese government set forth its broad direction on emissions reduction and adaptation in a document titled, "China's National Climate Change Programme".
The government also announced a series of regulations, including the Energy Conservation Law, Renewable Energy Law and Recycling Economy Promotion Act, among others. At the Copenhagen Summit, China announced its voluntary commitment to reduce carbon emissions per unit of gross domestic product by 40 to 45 per cent by 2020, against 2005 levels.
The National Development and Reform Commission recently designated eight cities in five provinces as pilot cities for economic restructuring based on low-carbon development.
The State Council of China has handpicked seven emerging industries and provided them with financial incentives to target energy savings, alternative fuel use and environmental protection.
In fact, China is under serious threat from the impacts of climate change. In 2009, Oxfam's "Climate Change and Poverty" report pointed out that climate change could exacerbate poverty and undermine China's three decades of effort to reduce poverty. The country still has 150 million people living below the poverty line. Poverty-stricken areas are associated with ecologically fragile environments; over 90 per cent of the poor population lives in fragile regions. Extreme weather events have become more frequent. From the 1998 Yangtze flooding to the 2010 drought in the southwest, a series of extreme weather events have brought increasing challenges to the country's development. Poverty alleviation in line with adaptation to climate change is the common challenge of China and other developing countries.
Countries facing similar situations include Brazil, India and South Africa. They are undergoing rapid economic development and there is a surging demand for energy. However, domestic poverty is serious and climate change has brought negative social impact. Striking a balance between development and environmental protection is critical. In view of this, these countries – Brazil, South Africa, India and China – formed the BASIC Group last year to help reach a pro-poor global deal at the UN talks that would address the needs of developing countries.
Although the Copenhagen Summit did not produce a legally binding agreement, 2009 was still an important year for the climate change movement. Thanks to the joint efforts of civil society groups, public awareness of the climate crisis has been raised. Many domestic NGOs on China's mainland have shown increasing concern over climate change, and have begun working to assist poor areas in responding to climate change. These organizations are prepared to take advantage of the Tianjin meeting to explain the domestic situation to representatives from other countries, and to demand that rich countries take greater responsibility to alleviate the global climate crisis.
According to Oxfam's estimation, developed countries should commit to providing at least US$150 billion per year to help developing countries combat climate change; this figure should be raised to US$200 billion in 2020. So far, developed countries have committed to providing only US$30 billion (2010-2012) as a climate change adaptation fund for developing countries, to increase to US$100 billion per year in 2020. Developed countries must keep their promise of short-term funding and make it available to the poor countries as soon as possible, so they can take immediate adaptation measures.
China, as a victim of climate change like many other developing countries, is urging rich countries to commit to substantial emissions reductions instead of using China or other developing countries as an excuse to avoid doing so. Hopefully the Tianjin meeting will help enhance rich countries' understanding of the severe development challenges faced by developing countries.
Oxfam hopes that by the time of COP 16, or possibly even at Tianjin, a new agreement on a climate change timetable will emerge to rekindle hopes of a globally responsible response to the climate change that affects us all.
The author is the Economic Justice Campaign Manager, Oxfam Hong Kong
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