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Connie Hedegaard, former president of the UN Climate Change Conference 2009 in Copenhagen (left chair to Danish Prime Minister Lars Løkke Rasmussen on 16 December)[1]

The 2009 United Nations Climate Change Conference was held at the Bella Center in Copenhagen, Denmark, between 7 December and 18 December. The conference included the 15th Conference of the Parties (COP 15) to the United Nations Framework Convention on Climate Change and the 5th Meeting of the Parties (COP/MOP 5) to the Kyoto Protocol. According to the Bali Road Map, a framework for climate change mitigation beyond 2012 was to be agreed there.[2]

The conference was preceded by the Climate Change: Global Risks, Challenges and Decisions scientific conference, which took place in March 2009 and was also held at the Bella Center. The negotiations began to take a new format when in May 2009 UN Secretary General Ban-Ki Moon attended the World Business Summit on Climate Change in Copenhagen, organised by the Copenhagen Climate Council (COC), where he requested that COC councillors attend New York's Climate Week at the Summit on Climate Change on 22 September and engage with heads of government on the topic of the climate problem.[3]

Connie Hedegaard was president of the conference until December 16, 2009, handing over the chair to Danish Prime Minister Lars Løkke Rasmussen in the final stretch of the conference, during negotiations between heads of state and government.[1] On Friday 18 December, the final day of the conference, international media reported that the climate talks were "in disarray".[4][5][6] Media also reported that in lieu of a summit collapse, solely a "weak political statement" was anticipated at the conclusion of the conference.[7][8]

The Copenhagen Accord was drafted by the US, China, India, Brazil and South Africa on December 18, and judged a "meaningful agreement" by the United States government. It was "recognised", but not "agreed upon", in a debate of all the participating countries the next day, and it was not passed unanimously. The document recognised that climate change is one of the greatest challenges of the present and that actions should be taken to keep any temperature increases to below 2°C. The document is not legally binding and does not contain any legally binding commitments for reducing CO2 emissions.[9] Leaders of industrialised countries, including Barack Obama and Gordon Brown, were pleased with this agreement but many leaders of other countries and non-governmental organisations were opposed to it.

Background and lead-up

Negotiating position of the European Union

On 28 January 2009, the European Commission released a position paper, "Towards a comprehensive climate agreement in Copenhagen."[10] The position paper "addresses three key challenges: targets and actions; financing [of "low-carbon development and adaptation"]; and building an effective global carbon market".[11]

In order to demonstrate good example, the European Union had committed to implementing binding legislation, even without a satisfactory deal in Copenhagen. Last December, the European Union revised its carbon allowances system called the Emissions Trading Scheme (ETS) designed for the post-Kyoto period (after 2013). This new stage of the system aims at further reducing greenhouse gases emitted in Europe in a binding way and at showing the commitments the EU had already done before the Copenhagen meeting. To avoid carbon leakage—relocation of companies in other regions not complying with similar legislation—the EU Commission will foresee that sectors exposed to international competition, should be granted some free allocations of CO2 emissions provided that they are at least at the same level of a benchmark. Other sectors should buy such credits on an international market. Energy intensive industries in Europe have advocated for this benchmark system in order to keep funds in investment capacities for low carbon products rather than for speculations.[12] The European chemical industry claims here the need to be closer to the needs of citizens in a sustainable way. To comply with such commitments for a low-carbon economy, this requires competitiveness and innovations.[13]

The French Minister for Ecology Jean-Louis Borloo pushes the creation of the Global Environment Organisation as France's main institutional contribution, to offer a powerful alternative to the UNEP.

Official pre-Copenhagen negotiation meetings

A draft negotiating text[14][15] for finalisation at Copenhagen has been publicly released. It is being discussed at a series of meetings before Copenhagen.

Bonn – second negotiating meeting

Delegates from 183 countries met in Bonn from 1 to 12 June 2009. The purpose was to discuss key negotiating texts. These will serve as the basis for the international climate change agreement at Copenhagen. At the conclusion the Ad Hoc Working Group under the Kyoto Protocol (AWG-KP) negotiating group was still far away from the emission reduction range that has been set out by science to avoid the worst ravages of climate change: a minus 25% to minus 40% reduction below 1990 levels by 2020. The AWG-KP still needs to decide on the aggregate emission reduction target for industrialised countries, along with individual targets for each country. Progress was made in gaining clarification of the issues of concern to parties and including these concerns in the updated draft of the negotiating text.[16]

Seventh session

Bangkok

The first part of the seventh session of the AWG-LCA was held in Bangkok, Thailand, from Monday, 28 September at the United Nations Conference Centre (UNCC) of the United Nations Economic and Social Commission for Asia and the Pacific (UNESCAP), Bangkok, Thailand.[17]

Barcelona

The resumed session was held in Barcelona, Spain, from 2 to 6 November 2009. Thereafter, the AWG-LCA will meet to conclude its work at its eighth session, concurrently with the fifteenth session of the Conference of the Parties which opened in Copenhagen on 7 December 2009.

Listing of proposed actions

Proposed changes in absolute emissions
Area 1990→2020 Reference base
Japan −25%
EU −20 to −30%
Russia −20 to −25%
South Africa −18%
New Zealand −10 to −20%
Australia −4 to −24% CO2-e w/- LULUCF
Canada −3%
United States −1.3%
Brazil +5 to −1.8%

During the conference some countries stated what actions they were proposing to take if a binding agreement was achieved. In the end, no such agreement was reached and the actions will instead be debated in 2010. Listing by country or political union. Sections in alphabetic order, table according to higher objectives.

Australia

Australia To cut carbon dioxide emissions by 25% below 2000 levels by 2020 if the world agrees to an ambitious global deal to stabilise levels of CO2e to 450 ppm or lower. [18]

To cut carbon dioxide emissions by 15% below 2000 levels by 2020 if there is an agreement where major developing economies commit to substantially restrain emissions and advanced economies take on commitments comparable to Australia.[18]

To cut carbon dioxide emissions by 5% below 2000 levels by 2020 unconditionally.[18]

It is clearly stated in proceedings from the Australian Senate[19] and policy statements from the government[20][21] that the Australian emission reductions include land use, land-use change and forestry (LULUCF) with the form of inclusion remaining undecided and whilst acknowledging that they are subject to the forming of accounting guidelines from this Copenhagen conference. In contention is the Australian Government's preference for the removal of non-human induced LULUCF emissions – and perhaps their abatement – from the account, such as from lightning induced bushfires and the subsequent natural carbon sequestering regrowth.[22]

Using Kyoto accounting guidelines, these proposals are equivalent to an emissions cut of 24%,[19][20] 14%,[19][20] and 4%[19][20] below 1990 levels by 2020 respectively. Raw use of UNFCCC CO2e data including LULUCF as currently defined by the UNFCCC for the years 2000 (404.392 Tg CO2e[23][24][25][26][27]) and 1990 (453.794 Tg CO2e[23][24][25][26][27]) leads to apparent emissions cuts of 33% (303.294 Tg CO2e), 25% (343.733 Tg CO2e) and 15% (384.172 Tg CO2e) respectively.

Brazil

Brazil To cut emissions by 38–42% below projected 2020 levels by that same year.[28]

This is equivalent to an emissions cut of between 5% above and 1.8% below 1990 levels by 2020.[29]

Canada

Canada To cut carbon emissions by 20% below 2006 levels by 2020. This is equivalent to 3% below 1990 levels by 2020. [30]

The three most populous provinces disagree with the federal government goal and announced more ambitious targets on their jurisdictions. Ontario, Quebec and British Columbia announced respectively 15%, 20% and 14% reduction target below their 1990 levels while Alberta is expecting a 58% increase in emissions.[31]

China

China To cut CO2 emissions per unit of GDP by 40–45% below 2005 levels by 2020.[32]

European Union

Europe To cut greenhouse gas emissions by 30% below 1990 levels by 2020 if an international agreement is reached committing other developed countries and the more advanced developing nations to comparable emission reductions.

To cut greenhouse gas emissions by 20% below 1990 levels by 2020 unconditionally.[33]

India

India To cut emissions intensity by 20–25% below 2005 levels by 2020.[34]

Japan

Japan To cut greenhouse gas emissions by 25% below 1990 levels by 2020.[35]

New Zealand

New Zealand To reduce emissions between 10% to 20% below 1990 levels by 2020 if a global agreement is secured that limits carbon dioxide equivalent (CO2-e) to 450 ppm and temperature increases to 2°C, effective rules on forestry, and New Zealand having access to international carbon markets.[36]

Russia

Russia To reduce emissions between 20% to 25% below 1990 levels by 2020 if a global agreement is reached committing other countries to comparable emission reductions.[37]

Singapore

Singapore To reduce emissions by 16% by 2020, based on business-as-usual levels.

South Africa

South Africa To cut emissions by 34% below current levels by 2020.[38] This is equivalent to an absolute emissions cut of 18% below 1990 levels by 2020.[39]

United States of America

United States To cut greenhouse gas emissions by 17% below 2005 levels by 2020, 42% by 2030 and 83% by 2050.[40][41] This is equivalent to 1.3% below 1990 levels by 2020, 31% by 2030 and 80% by 2050.[29]

Technology measures

UNEP

At the fifth Magdeburg Environmental Forum held from 3 to 4 July 2008, in Magdeburg, Germany, United Nations Environment Programme called for the establishment of infrastructure for electric vehicles. At this international conference, 250 high-ranking representatives from industry, science, politics and non-government organizations discussed solutions for future road transportation under the motto of "Sustainable Mobility– United Nations Climate Change Conference 2009|the Post-2012 CO2 Agenda".[42]

Technology Action Programs

Technology Action Programs (TAPs) have been proposed as a means for organizing future technology efforts under the UNFCCC. By creating programs for a set of adaptation and mitigation technologies, the UNFCCC would send clear signals to the private and finance sector, governments, research institutions as well as citizens of the world looking for solutions to the climate problem. Potential focus areas for TAPs include early warning systems, expansion of salinity-tolerant crops, electric vehicles, wind and solar energy, efficient energy grid systems, and other technologies.[43]

Technology roadmaps will address barriers to technology transfer, cooperative actions on technologies and key economic sectors, and support implementation of Nationally Appropriate Mitigation Actions (NAMAs)[44] and National Adaptation Programmes of Action (NAPAs).[45]

Side Event on Technology Transfer

The United Nations Industrial Development Organisation (UNIDO) and the Department of Economic and Social Affairs (UNDESA) have been assigned the task of co-convening a process to support UN system-wide coherence and international cooperation on climate change-related technology development and transfer. This COP15 Side Event will feature statements and input from the heads of UNDESA, UNDP, GEF, WIPO, UNIDO, UNEP, IRENA as well as the UN Foundation. Relevant topics such as the following will be among the many issues discussed: [46]

The Danish government and key industrial organizations have entered a public-private partnership to promote Danish cleantech solutions. The partnership, Climate Consortium Denmark, is an integrated part of the official portfolio of activities before, during and after the COP15.[51]

There is also a European Conference for the Promotion of Local Actions to Combat Climate Change.[52][53] The entire morning session on 25 September was devoted to the Covenant of Mayors.[54]

The Local Government Climate Lounge will be an advocacy and meeting space located directly in the COP 15 building, at the heart of the negotiations.[55]

The Conference

Activism

Some small protests occurred during the first week of the conference.[56] A much larger march was held in Copenhagen on December 12 calling for a global agreement on climate. Between 40,000 and 100,000 people attended.[57] 968 protesters were detained at the event, including 19 who were arrested for carrying pocket knives and wearing masks during the demonstration. Of these all but 13 were released without charge. One police officer was injured by a rock and a protester was injured by fireworks.[56] Some protestors were kettled by police and detained for several hours without access to food, water or toilets,[58] before being arrested and taken to a holding facility on coaches.[59] Protestors were said to be angry at the use of what they considered "heavy-handed" police tactics.[57] The police said the measures were necessary to deal with organisations such as Never Trust A COP which stated on its website that it would "consciously attack the structures supporting the COP15". Per Larsen, the chief coordinating officer for the Copenhagen police force told the New York Times that it was "surely the biggest police action we have ever had in Danish history."[60]

An alternative conference, Klimaforum, was attended by 50,000 people during the conference.[61]

The Yes Men made a false statement purporting to be from the Canadian environment minister Jim Prentice, which pledged to cut carbon emissions by 40% below 1990 levels by 2020. The statement was followed by another faked statement from the Ugandan delegation, praising the original pledge and The Yes Men also released a spoof press conference on a fake form of the official website. The statement was written about by the Wall Street Journal before being revealed as a hoax. Jim Prentice described the hoax as "undesirable".[62]

International activism

An estimated 20,000 people took part in a march held in London, one week before the conference started. They called on British leaders to force developed nations to cut their emissions by 40% by 2020 and to provide $150 billion a year by 2020 to assist the the world's poorest countries in adapting to climate change.[63]

As many as 50,000 people took part in a number of marches in Australia, during the conference, calling for world leaders to create a strong and binding agreement.[64] The largest march took place in Melbourne.[65]

The Danish Text

A leaked document known as "The Danish Text" has started an argument between developed and developing nations. The document was subtitled as "The Copenhagen Agreement" and proposes measures to keep average global temperature rises to two degrees Celsius above pre-industrial levels. Developing countries have reacted to the document by saying that the developed countries had worked behind closed doors and made an agreement according to their wish without the consent of the developing nations. Lumumba Stanislaus Di-Aping, chairman of the G77, has said, "It's an incredibly imbalanced text intended to subvert, absolutely and completely, two years of negotiations. It does not recognize the proposals and the voice of developing countries".[66] A confidential analysis of the text by developing countries shows deep unease over details of the text.[67]

Indigenous rights

Indigenous rights organization Survival International has raised concerns that some measures to mitigate the problem of climate change affect the survival of tribal people as much as climate change.[68][69][70][71] The United Nations Permanent Forum on Indigenous Issues has expressed similar concerns. Stephen Corry, director of Survival International, explains that "projects that victimise the people and harm the environment cannot be promoted or marketed as green projects". Survival International calls attention to the fact that these people, who least contribute to the problem of climate change, are already the most affected by it; and that we must seek solutions that involve indigenous people.[72] Andrew E. Miller, human rights campaigner at Amazon Watch, said, "Many indigenous peoples, understandably, are skeptical that the latest silver bullet is really in their interest. In fact, serious concerns have arisen that implementation of REDD [Reducing Emissions from Deforestation and Forest Degradation] could counteract fundamental indigenous rights, in the same way that countless conservation schemes have limited local subsistence activities and led to displacement around the world."[73]

Negotiating problems

On December 16, there was speculation that the summit in Copenhagen was in jeopardy. "We have made no progress" said a source close to the talks. "What people don't realise is that we are now not really ready for the leaders. These talks are now 18 hours late."[74]

The Guardian reported that negotiators were openly talking of the best possible outcome being a "weak political agreement that would leave no clear way forward to tackle rising greenhouse gas emissions". This would mean that negotiations would continue into 2010 increasing the damage done by emissions.[74]

On December 18, the head of the United Nations Environmental Program told the BBC that "as of this morning is a summit in crisis" and that only the arrival of heads of state could bring the summit to a successful conclusion. Head of climate change for WWF in Britain, said that the proposals made so far, especially those from industrialised countries "all far short of what the world needs".[75]

Leaders and ministers from about 30 countries have outlined a climate accord early in the morning of December 18, hours before some 130 world leaders were to gather in a summit.[76]

Outcome

On December 18 after a day of frantic negotiations between heads of state, it was announced that a "meaningful agreement" had been reached between the United States, China, India, South Africa, and Brazil.[77] The use of "meaningful" was viewed as being political spin by an editorial in The Guardian.[78] An unnamed US government official was reported as stating that the deal was a "historic step forward" but was not enough to prevent dangerous climate change in the future. However, the BBC's environment correspondent stated: "While the White House was announcing the agreement, many other – perhaps most other – delegations had not even seen it. A comment from a UK official suggested the text was not yet final and the Bolivian delegation has already complained about the way it was reached – 'anti-democratic, anti-transparent and unacceptable'. With no firm target for limiting the global temperature rise, no commitment to a legal treaty and no target year for peaking emissions, countries most vulnerable to climate impacts have not got the deal they wanted."[79]

Early on Saturday 19 December, delegates approved a motion to "take note of the Copenhagen Accord[80] of December 18, 2009". However it was reported that it was not yet clear whether the motion was unanimous, or what its legal implications are. The UN Secretary General Ban Ki-moon welcomed the US-backed climate deal as an "essential beginning". It was unclear whether all 192 countries in attendance would also adopt the deal. The so-called Copenhagen Accord recognises the scientific case for keeping temperature rises below 2°C, but does not contain commitments for reduced emissions that would be necessary to achieve that aim. One part of the agreement pledges US$ 30 billion to the developing world over the next three years, rising to US$ 100 billion per year by 2020, to help poor countries adapt to climate change. Earlier proposals, that would have aimed to limit temperature rises to 1.5°C and cut CO2 emissions by 80% by 2050 were dropped. An agreement was also reached that would set up a deal to reduce deforestation in return for cash from developed countries.[81] The agreement made was non-binding but U.S. President Obama said that countries could show the world their achievements. He said that if they had waited for a binding agreement, no progress would have been made.[82]

Reactions

Governments

Barack Obama said that the agreement would need to be built on in the future and that "We've come a long way but we have much further to go."[83] Gordon Brown said "We have made a start" but that the agreement needed to become legally binding quickly.[83] EU Commission President Jose Manuel Barroso said "I will not hide my disappointment regarding the non-binding nature of the agreement here."[77] French President Nicholas Sarkozy commented "The text we have is not perfect" however "If we had no deal, that would mean that two countries as important as India and China would be freed from any type of contract."[77] The head of China's delegation said that "The meeting has had a positive result, everyone should be happy."[83] Wen Jiabao, China's prime minister said that the weak agreement was because of distrust between nations: "To meet the climate change challenge, the international community must strengthen confidence, build consensus, make vigorous efforts and enhance co-operation."[84] Brazil's climate change ambassador called the agreement "disappointing". The head of the G77 group of countries said that the draft text asked African countries to sign a "suicide pact" and that it would "maintain the economic dominance of a few countries". The values the solution was based on were "the very same values in our opinion that funnelled six million people in Europe into furnaces". Representatives of the Maldives, Venezuela, and Tuvalu were unhappy with the outcome.[83] Bolivian president, Evo Morales said that, "The meeting has failed. It's unfortunate for the planet. The fault is with the lack of political will by a small group of countries led by the US."[84]

John Ashe, the chair of the talks that led to the Kyoto protocol, was also disappointed with the agreement made, stating: "Given where we started and the expectations for this conference, anything less than a legally binding and agreed outcome falls far short of the mark[84]

Non-governmental organisations

John Sauven, executive director of Greenpeace UK stated that "The city of Copenhagen is a crime scene tonight ... It is now evident that beating global warming will require a radically different model of politics than the one on display here in Copenhagen." According to him "there are too few politicians in this world capable of looking beyond the horizon of their own narrow self-interest". Nnimmo Bassey, of Friends of the Earth international called the conference "an abject failure".[83] Lydia Baker of Save the Children said that world leaders had "effectively signed a death warrant for many of the world's poorest children. Up to 250,000 children from poor communities could die before the next major meeting in Mexico at the end of next year."[81] Tim Jones, climate policy officer from the World Development Movement said that leaders had "refused to lead and instead sought to bribe and bully developing nations to sign up to the equivalent of a death warrant."[84]

See also

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  78. ^ "Copenhagen climate conference: The grim meaning of 'meaningful'". The Guardian. 19 December 2009. Retrieved 19 December 2009.
  79. ^ BBC News: Climate change agreement reached in Copenhagen
  80. ^ UNFCCC: Text of Copenhagen Accord
  81. ^ a b Vidal, John (19 December 2009). "Low targets, goals dropped: Copenhagen ends in failure". The Guardian. Retrieved 19 December 2009. {{cite news}}: Unknown parameter |coauthors= ignored (|author= suggested) (help)
  82. ^ Henry, Ed (December 18, 2009). "Obama announces climate change deal with China, other nations". CNN. Retrieved 19 December 2009.
  83. ^ a b c d e "Copenhagen deal reaction in quotes". BBC News. 19 December 2009. Retrieved 19 December 2009.
  84. ^ a b c d Vidal, John (19 December 2009). "Rich and poor countries blame each other for failure of Copenhagen deal". The Guardian. Retrieved 19 December 2009.
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