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1 Center for American Progress | The Paris Climate Agreement

The Paris Climate Agreement

By Gwynne Taraska December 15, 2015

Afer our years o negoiaions, naions succeeded in orging a global, legally bind-

ing agreemen o address climae change when hey convened in Paris or he 21s

Conerence o he Paries o he U.N. Framework Convenion on Climae Change, or

UNFCCC. “I am proud o my generaion, o your generaion, which has been able o

decide o ac or a world ha we will no see,” said French Presiden François Hollande

during he conerence’s closing session. He coninued:

Te 12th of December 2015 will go down in the history of the planet. In Paris, we have

seen a few revolutions over the last few centuries. But today, this is the most beautiful

and peaceful revolution that has just been achieved, a revolution for climate change.1

Several aspecs o he design o he Paris agreemen have posiioned i o become an

effecive ool or limiing global greenhouse gas polluion and improving resilience o

he effecs o climae change.

Firs, he agreemen is designed o draw nearly universal counry acion and parici-

paion. I will apply o all paries o he UNFCCCincluding he major emergingeconomies, such as India and Chinaraher han requiring emissions reducions only

rom developed counries, as was he case in he Kyoo Proocol o 1997.2 In addiion,

he naional climae goals ha counries submi o be associaed wih he agreemen will

have poliical raher han legal orce and will be naionally deermined. “Tis srucure

has brough a lo o counries ino he old,” said odd Sern, U.S. special envoy or

climae change and lead U.S. negoiaor or he Paris agreemen.3

Second, he Paris agreemen will encourage counries o se srong goals and srive o

mee hem. Te agreemen includes he mandae o submi and upgrade naional cli-

mae goalswih ime buil in o allow or ouside scruinyand includes sysems or

reviewing collecive and naional progress. Tese elemens are in he core Paris agree-

men, which will have orce under inernaional law.4

For he Unied Saes, i is noeworhy ha his srucure makes he Paris agreemen

which has neiher legally binding naional emissions reducion arges nor legally bind-

ing naional finance argesan execuive agreemen raher han a reay, as he Cener


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or American Progress explained in a previous repor. Te agreemen is pursuan o he

UNFCCC reay, which received he biparisan consen o he Senae in 1992, and does

no require new legislaion or i o ake effec.5

Tis brie discusses how he Paris agreemen spurs progress on he hree pillars o

climae acionhe reducion o greenhouse gas polluion, he mobilizaion o climae

finance, and adapaion o climae impacsand how i resolves several persisen con-roversies wihin he UNFCCC.

Closing the ambition gap and the e volution of differentiation

In advance o he Paris conerence, more han 180 counriesaccouning or more han

95 percen o global emissionssubmited naional climae goals in an unprecedened

display o global commimen o address climae change.6 Tis se o goals resuled in

a significan decrease in projeced global warming, alhough i was insufficien o limi

warming o 2 degrees Celsius above preindusrial levels, or 3.6 degrees Fahrenhei, whichhas been he U.N.-recognized hreshold or avoiding he wors effecs o climae change.7

In order o embed a ramework or addressing his gap wihin he Paris agreemen,

more han 100 developed and developing counriesincluding he Marshall Islands,

he Unied Saes, he counries o he European Union, Mexico, he Philippines, Brazil,

and he members o he Leas Developed Counries blocormed he so-called High

Ambiion Coaliion during he Paris conerence.8 Tis coaliion encouraged he paries

o he UNFCCC o adop he ollowing ools o spur increased emissions reducions

over ime, all o which are refleced in he final agreemen.9

• Te Paris agreemen obligaes counries o submi naional climae arges every five

years. Each arge is o represen a “progression” beyond he previous arge and he

counry’s “highes possible ambiion.”

• Te agreemen ses a new emperaure arge. Te paries o he agreemen will aim

o limi warming o “well below” 2 degrees Celsius and will srive or a hreshold o

1.5 degrees Celsius above preindusrial levels. Tis emperaure arge is a prioriy

or he mos climae-vulnerable counries, including he Alliance o Small Island

Saes and he Leas Developed Counries, or which he effecs o climae change

are a paricular hrea.

• Te agreemen also ses a long-erm emissions reducion goal. Counries will aim o

peak and rapidly cu greenhouse gas emissions in order o reach ne-zero emissions

beween 2050 and 2100. Tis goal will be “a guiding Norh Sar or phasing ou os-

sil uels,” according o Marshall Islands negoiaor ony deBrum, boh or counries

and or markes.10


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• Te agreemen esablishes global sock-aking sessions every five years o review

collecive progress oward he emperaure and long-erm emissions reducion goals.

Tese sessions are o inorm counries as hey prepare heir updaed climae goals.

• Te agreemen creaes a legally binding accounabiliy ramework, which is criical

or he credibiliy o he agreemen, in order o aciliae undersanding o counries’

progress oward meeing heir naional climae goals.

Troughou he conerence, he conroversial opic o differeniaion coursed hrough

every corner o he negoiaions. Differeniaion reers o he process o seting expeca-

ions and obligaions or counries given ha each has is own level o responsibiliy or

climae change and is own level o developmen and capaciy.

When he UNFCCC was esablished in 1992, i creaed wo caegories o counries

according o heir level o developmen a he ime.11 Tese caegories have since been

used as a means o assigning obligaions. Only developed counries, or example, were

required o reduce emissions under he Kyoo Proocol.12

For he Paris agreemen, however, many developed counries, including he Unied

Saes, as well as paries in he High Ambiion Coaliion, suppored he concep o

differeniaion bu rejeced biurcaionhe idea ha counries should be spli ino

wo 20-year-old caegories. “We sand by our obligaions under he convenion, bu

he world has changed since 1992,” said Peer Woolcot or Ausralia. “As developed

counries, we will coninue o lead, bu we mus see all paries ac consisen wih heir

naional capaciies.”13 Ban Ki-moon, secreary-general o he Unied Naions, suppored

his modern ake on differeniaion several imes during he conerence.

Te bloc o Like-Minded Developing Counries, however, which includes China and

India, sough o embed a developed-developing divide in each subjec o he agreemen,

including he miigaion o greenhouse gas emissions, he accounabiliy ramework,

and finance. In he words o Prakash Javadekar, he environmen miniser o India, “We

canno ignore hisorical responsibiliy and pu vicims a he same level as polluers.”14

Gurdial Singh Nijar, speaking on behal o he Like-Minded Developing Counries,

echoed his senimen, saing ha he per-capia income in boh India and China is low.

“o hen no proceed on a pahway o progresso indusrializaionmeans ha he

per-capia income has o be reduced even urher,” he said. “We canno accep sarvaion

as a price or he success o his agreemen.”15

Te final Paris agreemen does no reflec biurcaion bu a subler version o differen-

iaion. Developed counries are expeced o ake he lead in emissions reducions, he

mobilizaion o climae finance, and oher aspecs o he agreemen, bu all counries are

expeced o address climae change according o heir abiliies. Tis is ofen represened

in he agreemen as he principle o “common bu differeniaed responsibiliies and

respecive capabiliies, in he ligh o differen naional circumsances.”16


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Finance with an eye to resilience and the most vulnerable

I will ake a undamenal shif in finance flows o direc he global economy oward clean

energy and climae resilience. Te effor o build resilience o he effecs o climae change

in he mos vulnerable regions has been paricularly underunded: Only 16 percen o

global finance flows wen oward climae adapaion in 2014, according o a repor rom

he Organisaion or Economic Co-operaion and Developmen, or OECD.17

In he monhs leading up o he Paris conerence, counries have shown heir commimen

o inernaional climae finance by pledging o he Green Climae Fund, or GCF, and oher

channels o climae assisance. Te GCF has now reached more han $10 billion in pledges

rom boh developed counries, such as he Unied Saes, Japan, and France, and devel-

oping counries, such as Vienam, Mexico, and Indonesia.18 China pledged more han $3

billion or is Souh-Souh Cooperaion Fund on Climae Change in Sepember.19

A number o iniiaives announced during he Paris conerence provided momenum

or boh clean energy and resilience finance. Eleven counries, including he UniedSaes, Canada, and Germany, pledged $258 million o he Leas Developed Counries

Fund, adminisered by he Global Environmen Faciliy.20 Presiden Barack Obama

announced a pledge o $30 million oward climae risk insurance iniiaives.21 Secreary

o Sae John Kerry announced ha he Unied Saes would double is gran-based

adapaion finance by 2020.22 weny counries, including he Unied Saes, India,

Mexico, and Brazil, announced ha hey would double heir budges or clean energy

research and developmen by 2020.23

For he Paris agreemen, developing counries held ha developed counries should

increase climae finance rom a floor o $100 billion yearly, which was he arge previ-ously esablished or 2020 in he Copenhagen Accord o 2009.24 Developed counries,

however, were hesian o commi o an open-ended increase and sressed ha “all paries

in a posiion o do so” should provide inernaional climae finance, noing ha many

developing counriesincluding China, Mexico, Peru, and ohersare in ac already

doing so.25 I is also noeworhy ha several counries classified by he UNFCCC as

developingsuch as Qaar and Saudi Arabiahave he financial capaciy o conribue.

Te final Paris agreemen aims o scale up finance or developing counries, boh by

increasing he level o unding and also by encouraging an expanded donor base. I

affirms exising financial obligaions o developed counriessuch as he Copenhagen

commimen, which is explicily susained hrough 2025 in he decision ex ha accom-

panies he Paris agreemenand direcs developed counries o ensure ha heir conin-

ued effors represen a “progression” beyond previous effors. Te decision ex also saes

ha a new collecive goal, beyond $100 billion yearly, will be esablished by 2025. 26


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Te agreemen also encourages developing counries o conribueor o coninue

conribuingvolunarily o he global effor. Imporanly, i also underlines he need

o elevae adapaion finance and arge climae finance oward he mos vulnerable,

such as he Leas Developed Counries and he Small Island Developing Saes, a group

o low-lying coasal naions ha are sruggling o develop and are represened by he

Alliance o Small Island Saes.27

Adapting to climate change and addressing climate-induced damage

Te agreemen recognizes ha effors o improve resilience o he effecs o climae

change mus accompany effors o reduce greenhouse gas emissions in he overarching

projec o addressing climae change. I also recognizes he needs o he mos vulnerable

and encourages he developmen o naional adapaion plans.28

A paricular conroversy during he conerence was he opic o how o address he

economic and noneconomic harm caused by exreme weaher evens and slow-onseevens, such as sea-level rise and deserificaion. Tis opic is known as “ loss and dam-

age” in he UNFCCC.

All counries o he UNFCCC suppor addressing loss and damage, including hrough

he mobilizaion o finance, and esablished a mechanism o address he opic during he

Warsaw summi o 2013.29 In Paris, however, counries were divided on where and how

he new agreemen should rea loss and damage.

Te Alliance o Small Island Saes and he Leas Developed Counries, which are paricu-

larly vulnerable o he effecs o climae change, called or loss and damage o be addressedin a separae aricle in he agreemen in order o acknowledge ha he climae-induced

harms hey ace may overwhelm effors o adap. Te Unied Saes, however, preerred

o address loss and damage wihin he chaper on adapaion, perhaps concerned ha a

separae aricle would sugges ha urher provisions o climae finance would be required

beyond curren effors geared oward emissions reducions and adapaion.30

Te Unied Saes also held ha he agreemen should explicily sae ha i does no

involve he conceps o compensaion or liabiliy. Alhough loss and damage is a opic

ha is no necessarily equivalen o compensaion and liabiliyas he Cener or

American Progress argued in a previous paperhe opics are ofen misakenly con-

flaed, and pas UNFCCC discussions on loss and damage have included proposals or

compensaion by groups such as he G-77, a major bloc o developing counries.31

Te final agreemen does give loss and damage is own aricle. Liabiliy and compensa-

ion are also explicily excluded in he decision ex ha accompanies he agreemen.32


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Conclusion

Te Paris agreemen marks a hisoric urning poin in he global effor o address climae

change. I is no, o course, a panacea. Enhanced acion rom all levels o governmen,

as well as individuals and he privae secor, will be necessary in order o shif he

global economy oward clean energy and climae resilience. In he closing session o

he Paris conerence, Souh Arica Miniser o Waer and Environmenal Affairs EdnaMolewa capured he senimen o all paries o he agreemen when she quoed Nelson

Mandela. “I dare no linger,” she said, “or my long walk is no ye ended.” 33

Gwynne araska is a Senior Policy Advisor at the Center for American Progress, where she

works on international climate policy.

Te author wishes to thank the Center’s Art and Editorial team for its work on this brief.


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Endnotes

1 UNFCCC, “Conference of the Parties (COP), 11th meeting,Paris, France, 12 December 2015,” available at http://unfccc6.meta-fusion.com/cop21/events/2015-12-12-17-26-con-ference-of-the-parties-cop-11th-meeting (last accessedDecember 2015).

2 UNFCCC, “Adoption of the Paris Agreement” (2015), avail-able at http://unfccc.int/resource/docs/2015/cop21/eng/

l09r01.pdf .

3 UNFCCC, “United States of America: Paris Climate ChangeConference – November 2015, Press briefing, Paris, France,7 December 2015,” available at http://unfccc6.meta-fusion.com/cop21/events/2015-12-07-16-35-united-states-of-america (last accessed December 2015).

4 UNFCCC, “Adoption of the Paris Agreement.”

5 Gwynne Taraska and Ben Bovarnick, “The Authority for U.S.Participation in the Paris Agreement” (Washington: Centerfor American Progress, 2015).

6 UNFCCC, “INDCs as communicated by Parties,” available athttp://www4.unfccc.int/submissions/indc/Submission%20Pages/submissions.aspx (last accessed December 2015).

7 Climate Action Tracker, “Effect of current pledges and poli-cies on global temperature,” available at http://climateac-

tiontracker.org/global.html (last accessed December 2015).See also Climate Interactive, “Climate Scoreboard,” availableat https://www.climateinteractive.org/tools/scoreboard/ (last accessed December 2015).

8 Joel Kirkland and Jean Chemnick, “Paris talks: Brazil breaksfrom longtime group, joins ‘ambition’ coalition,” E&E Publish-ing, December 11, 2015, available at http://www.eenews.net/stories/1060029407.


10 UNFCCC, “Comité de Paris, 4th meeting, Paris, France, 9December 2015,” available at http://unfccc6.meta-fusion.com/cop21/events/2015-12-09-20-00-comite-de-paris-4th-meeting (last accessed December 2015).

11 UNFCCC, “Parties & Observers,” available at http://unfccc.int/parties_and_observers/items/2704.php (last accessedDecember 2015).

12 UNFCCC, “Kyoto Protocol,” available at http://unfccc.int/kyoto_protocol/items/2830.php (last accessed December2015).

13 UNFCCC, “Conference of the Parties (COP), 5th meeting,Paris, France, 5 December 2015,” available at http://unfccc6.meta-fusion.com/cop21/events/2015-12-05-18-00-con-ference-of-the-parties-cop-5th-meeting (last accessedDecember 2015).

14 UNFCCC, “Comité de Paris, 4th meetin g.”

15 UNFCCC, “Conference of the Parties (COP), 5th meeting.”


17 OECD, “Climate Finance in 2013-14 and the USD 100 billiongoal” (2015), available at http://www.oecd.org/environ-ment/cc/OECD-CPI-Climate-Finance-Report.pdf .

18 Green Climate Fund, “Pledge Tracker,” available at http://www.greenclimate.fund/contributions/pledge-tracker (lastaccessed December 2015).

19 The White House, “U.S.-China Joint Presidential Statementon Climate Change,” Press release, September 25, 2015,available at https://www.whitehouse.gov/the-press-office/2015/09/25/us-china-joint-presidential-statement-climate-change.

20 Global Environment Facility, “$248 USD million pledged toGEF climate fund for most vulnerable countries,” Press re-lease, November 30, 2015, available at https://www.thegef.org/gef/node/11532.

21 Megan Rowling, “Obama unveils $30 mln for climate riskinsurance to p rotect poor,” Reuters, December 1, 2015,available at http://www.reuters.com/article/climatechange-summit-insurance-idUSL8N13Q3S320151201.

22 U.S. Department of State, “United States Announces It WillDouble Grant-Based, Public Climate Finance for Adaptation,”Press release, December 9, 2015, available at http://www.state.gov/r/pa/prs/ps/2015/12/250495.htm.

23 UNFCCC, “20 Major Economies to Double Clean Energy R&D,”November 30, 2015, available at http://newsroom.unfccc.int/clean-energy/mission-innovation-clean-energy/.

24 Gwynne Taraska, “An Inside Look At The U.N. Climate Negoti-ations In Bonn,” ClimateProgress, October 26, 2015, avail ableat http://thinkprogress.org/climate/2015/10/26/3716028/bonn-un-session-wrap-up/ (last accessed December 2015).

25 Ibid.; See also Green Climate Fund, “Pledge Tracker.”


27 Ibid.

28 Ibid.

29 UNFCCC, “Warsaw International Mechanism for Loss andDamage associated with Climate Change Impacts,” available

at http://unfccc.int/adaptation/workstreams/loss_and_damage/items/8134.php (last accessed December 2015).

30 Gwynne Taraska, “The Meaning of Loss and Damage in theInternational Climate Negotiations” (Washington: Centerfor American Progress, 2015), available at https://cdn.ameri-canprogress.org/wp-content/uploads/2015/09/29134813/LossAndDamagefinal.pdf.

31 Ibid.


33 UNFCCC, “Conference of the Parties (COP), 11th meeting.”

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the paris climate agreement

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