《联合国气候变化框架公约》适应谈判历程回顾与展望

减缓和适应是应对气候变化的互补性策略,但在《联合国气候变化框架公约》（简称《公约》）的谈判中,适应在很长一段时期都处于减缓的从属地位。《公约》20多年的适应谈判进程可划为早期缓慢发展、科学和技术讨论、适应与减缓并重、增强适应行动和全面适应行动5个阶段,呈现出由无到有、重要性不断增强的特点。这一特点反映了全球对气候变化影响和适应重要性认识的不断深入及适应气候变化挑战的不断增强。未来适应谈判将聚焦于如何通过《公约》现有机制增强行动及如何增加适应资金以满足发展中国家的适应需求。     

(Re)Framing ocean acidification in the context of the United Nations Framework Convention on Climate Change (UNFCCC) and Paris Agreement

ABSTRACT

Ocean acidification is most frequently framed by the scientific community as a concurrent threat to climate change, rather than an effect of it. This separation of the two phenomena has long been deemed as a way of garnering heightened policy attention for ocean acidification rather than having it bound up in the often contested politics of climate change. This effort, however, appears to have resulted in the inadvertent placing of ocean acidification outside of the mandate of the United Nations Framework Convention on Climate Change (UNFCCC). This has created a significant gap in the global governance of this issue with no multilateral agreement understood as having jurisdiction over the mitigation of rising ocean acidity. For these reasons this paper argues that an alternative framing of ocean acidification as an effect of climate change is warranted. This would include ocean acidification in the core obligations of the Convention, thereby filling the mitigation governance gap and avoiding perverse implementation outcomes. It is contended that interpreting the UNFCCC in this way is more consistent with its objective and purpose than the existing interpretations that place ocean acidification beyond the remit of the Convention.

Key policy insights

• Ocean acidification is best understood as an effect of climate change in the context of the UNFCCC, and therefore is included in its obligations to combat climate change and its adverse effects.

• An obligation to address ocean acidification has implications for the way that the provisions of the Convention, particularly on mitigation, are implemented. Mitigation activities that exacerbate ocean acidification or lead to emission reduction pathways that do not prevent dangerous acidification should be deemed inconsistent with the Convention.

• Protection, conservation and restoration of coastal and marine ecosystems should become a priority area for action within the UNFCCC.

     

Analysing the conflicting requirements of the Framework Convention on Climate Change

The objectives of the Framework Convention on Climate Change imply the conflicting constraints of minimising concentrations and maximising emissions (i.e. minimising emission restrictions). Carbon cycle models are readily used for ‘forward’ calculations of future CO₂ given specified emissions and the ‘inverse’ problem of deducing the emissions required to achieve specified concentration profiles. However these approaches (a) are each geared to only one side of the problem; and (b) each requires the specification of a particular pathway in terms of either emissions or concentrations. These limitations can be avoided by analysing the relations between future emissions and concentrations of CO₂ using a formalism that optimises over all possible future emission profiles, subject to relevant constraints on both emissions and concentrations. We present specific calculations indicating which combinations of upper bounds on concentrations and lower bounds on emissions are mutually inconsistent and which are consistent. We also calculate the (smaller) consistency regions that apply if emission reductions are restricted to less than 0.5% p.a. or less than 1% p.a. In each case, two reference periods (1990-2100 and 1990-2200) are considered.     

Declining Temporal Effectiveness of Carbon Sequestration: Implications for Compliance with the United National Framework Convention on Climate Change

Carbon sequestration is increasingly being promoted as a potential response to the risks of unrestrained emissions of CO₂, either in place of or as a complement to reductions in the use of fossil fuels. However, the potential role of carbon sequestration as an (at-least partial) substitute for reductions in fossil fuel use can be properly evaluated only in the context of a long-term acceptable limit (or range of limits) to the increase in atmospheric CO₂ concentration, taking into account the response of the entire carbon cycle to artificial sequestration. Under highly stringent emission-reduction scenarios for non-CO₂ greenhouse gases, 450 ppmv CO₂ is the equivalent, in terms of radiative forcing of climate,to a doubling of the pre-industrial concentration of CO₂. It is argued in this paper that compliance with the United Nations Framework Convention on Climate Change (henceforth, the UNFCCC) implies that atmospheric CO₂ concentration should be limited, or quickly returned to, a concentration somewhere below 450 ppmv. A quasi-one-dimensional coupled climate-carbon cycle model is used to assess the response of the carbon cycle to idealized carbon sequestration scenarios. The impact on atmospheric CO₂ concentration of sequestering a given amount of CO₂ that would otherwise be emitted to the atmosphere, either in deep geological formations or in the deep ocean, rapidly decreases over time. This occurs as a result of a reduction in the rate of absorption of atmospheric CO₂ by the natural carbon sinks (the terrestrial biosphere and oceans) in response to the slower buildup of atmospheric CO₂ resulting from carbon sequestration. For 100 years of continuous carbon sequestration, the sequestration fraction (defined as the reduction in atmospheric CO₂ divided by the cumulative sequestration) decreases to 14% 1000 years after the beginning of sequestration in geological formations with no leakage, and to 6% 1000 years after the beginning of sequestration in the deep oceans. The difference (8% of cumulative sequestration) is due to an eflux from the ocean to the atmosphere of some of the carbon injected into the deep ocean.The coupled climate-carbon cycle model is also used to assess the amount of sequestration needed to limit or return the atmospheric CO₂ concentration to 350–400 ppmv after phasing out all use of fossil fuels by no later than 2100. Under such circumstances, sequestration of 1–2 Gt C/yr by the latter part of this century could limit the peak CO₂ concentration to 420–460 ppmv, depending on how rapidly use of fossilfuels is terminated and the strength of positive climate-carbon cycle feedbacks. To draw down the atmospheric CO₂ concentration requires creating negative emissions through sequestration of CO₂ released as a byproduct of the production of gaseous fuels from biomass primary energy. Even if fossil fuel emissions fall to zero by 2100, it will be difficult to create a large enough negative emission using biomass energy to return atmospheric CO₂ to 350 ppmv within 100 years of its peak. However, building up soil carbon could help in returning CO₂ to 350 ppmv within 100 years of its peak. In any case, a 100-year period of climate corresponding to the equivalent of a doubled-CO₂ concentration would occur before temperatures decreased. Nevertheless, returning the atmospheric CO₂concentration to 350 ppmv would reduce longterm sea level rise due to thermal expansion and might be sufficient to prevent the irreversible total melting of the Greenland ice sheet, collapse of the West Antarctic ice sheet, and abrupt changes in ocean circulation that might otherwise occur given a prolonged doubled-CO₂ climate. Recovery of coral reef ecosystems, if not already driven to extinction, could begin.     

适应问题研究的概念模型及其发展阶段

适应气候变化问题的研究大致可分为四个发展阶段,即气候变化的影响评价、第一代脆弱性评价、第二代脆弱性评价和适应政策评价。从适应气候变化的基本概念和涉及的主要变量出发,分析并综合比较了四个发展阶段的概念模型及其不同特点,反映了人们对适应问题的认识不断深化和发展的规律,试图给未来适应气候变化的研究提供一些启示。     

Efficient Adaptation to Climate Change

Firms and individuals will likelyengage in substantial private adaptation with respectto climate change in such sectors as farming, energy,timber, and recreation because it is in their interestto do so. The shared benefit nature of jointadaptation, however, will cause individuals tounderprovide joint adaptation in such areas as watercontrol, sea walls, and ecological management. Governments need to start thinking about jointadaptation, being careful to design efficientresponses which treat climate change problems as theyarise.     

Linking Adaptation and Mitigation in Climate Change Policy

How people privately and collectively adapt to climate risk can affect the costs and benefits of public mitigation policy (e.g., Kyoto); an obvious point often neglected in actual policy making. Herein we use the economic theory of endogenous risk to address this optimal mix of mitigation and adaptation strategies, and examine how increased variability in climate change threats affects this mix. We stress that a better understanding of the cross-links between mitigation and adaptation would potentially make it possible to provide more risk reduction with less wealth. Policies that are formulated without considering the cross-links can unintentionally undermine the effectiveness of public sector policies and programs because of unaddressed conflicts between the strategies. We also discuss the cross-disciplinary lessons to be learned from this literature, and identify important research questions to spur discussion in the next round of inquiry.     

Adaptation and the Guardrail Approach to Tolerable Climate Change

Windows delineating tolerable or "acceptable" conditions associated with climate change can be defined in terms of a variety of parameters; a preliminary window offered by the Scientific Advisory Council on Global Change of the Federal Government of Germany sets limits on temperature change and the rate of temperature change. Investment in adaptation can alter the size and shape of these windows, and different emissions trajectories are associated with different limiting points on their boundaries. As a result, the value of adaptation depends upon both the underlying structure of the tolerable window and the basecase emissions trajectory. Given uncertainty about both, the best near-term policy should be cast in a sequential decision-making framework. Seen in this light, improved adaptive potential can either reduce the cost of sustaining tolerable climate change or increase the opportunity cost of holding to more restrictive boundaries.     

Climate Change and Floodplain Management in the United States

Federal agencies use flood frequency estimates to delineate flood risk, manage the National Flood Insurance Program, and ensure that Federal programs are economically efficient. The assumption behind traditional flood risk analysis is that climate is stationary, but anthropogenic climate change and better knowledge of interdecadal climate variability challenge the validity of the assumption. This paper reviews several alternative statistical models for flood risk estimation that do not assume climate stationarity. Some models require subjective judgement or presuppose an understanding of the causes of the underlying non-stationarity, which is problematic given our current knowledge of the interaction of climate and floods. Although currently out of favor, hydrometeorological models have been used for engineering design as alternatives to statistical models and could be adapted to different climate conditions. Floodplain managers should recognize the potentially greater uncertainty in flood risk estimation due to climate change and variability and try to incorporate the uncertainties into floodplain management decision-making and regulation.     

适应气候变化研究中的常见术语辨析

适应气候变化在国际公约谈判及国内适应实践中成为重要的关注内容,明晰适应相关的术语含义具有科学参考价值和实践指导意义。本文通过比较适应相关术语认为,适应是行为方式或对策措施的界定,可不需量化数据支持;适应能力需有明确评价指标体系,并最终产生量化性评价结果;适应性更偏重于能力属性,其基本结论是有或无、强或弱的判断,在适应性有量化结论支持或明确强弱确定时则等同于适应能力。脆弱性评价中,暴露度体现主体对象与气候变化相关的基本处境概况,敏感性表明气候变化对主体对象的影响,适应能力则是经济资本、自然资源、技术水平、社会保障四大要素的综合评价,各要素涵盖的具体指标需要酌情依据适应主体属性予以判别和遴选。适应气候变化与灾害风险管理在主体范畴、驱动因子、行动目的上有所区别,但两者共同关注提高对气候变化/气候灾害风险的抵御、承受、恢复能力,以降低不利影响,实现可持续发展为共同目标。     

Migration as an Adaptation to Climate Change

This article presents a conceptual model to investigate population migration as a possible adaptive response to risks associated with climate change. The model reflects established theories of human migration behaviour, and is based upon the concepts of vulnerability, exposure to risk and adaptive capacity, as developed in the climate change research community. The application of the model is illustrated using the case of 1930s migration patterns in rural Eastern Oklahoma, which took place during a period of repeated crop failures due to drought and flooding.     

气候变化影响和适应认知的演进及对气候政策的影响

通过分析IPCC第二工作组的5次评估报告对气候变化影响、适应的主要结论和方法的演进、原因以及对国际适应谈判和国家适应政策的影响,指出由于文献的迅速增加,影响评估方法和适应技术手段的不断成熟,以及思维的转变和意识的逐渐增强,IPCC进一步确认了气候变化已经并将继续对自然生态系统和人类社会产生广泛而深刻的影响;未来社会经济发展路径、适应和减缓行动以及风险治理将影响气候变化带来的风险。IPCC报告极大地推动了国际和各国适应气候变化科学研究和政策实践的进程。尽管中国各级各部门已逐渐将适应融入到相关政策中,但仍然存在认识、能力、体制机制等问题,需要进一步推进国家和各地的适应工作。     

气候变化对重庆农业的影响及对策研究

本文分析了重庆市气候特点及其对重庆农业的影响;并在全球气候变暖的大气候背景下,分析了重庆气候的变化趋势,并就气候变化对重庆农业可能造成的影响进行了初步的探讨;提出了重庆农业应对气候变化的适应性战略和技术措施。     

气候变化对重庆农业的影响及对策研究

本文分析了重庆市气候特点及其对重庆农业的影响;并在全球气候变暖的大气候背景下,分析了重庆气候的变化趋势,并就气候变化对重庆农业可能造成的影响进行了初步的探讨;提出了重庆农业应对气候变化的适应性战略和技术措施。     

Climate Change and Agricultural Soils: Impacts and Adaptation

This article reviews the current state of knowledge on the response of soils to climate change, and the implications such changes have for agriculture. The article is based on the material reported in the IPCC second assessment report (Watson et al., 1996) and updated with more recent information, where appropriate. The review highlights the importance of understanding the dynamics of soil processes when addressing climate change impacts on agriculture. Rapid soil responses to climate change (e.g. soil water, organic carbon and erodibility) have been widely investigated and reported in the literature. However, it is important that longer-term processes (e.g. pedogenesis) are not ignored by the research community because these have potentially important implications for long-term agricultural land use and are often irreversible. The use of good land management practices, as currently understood, provides the best strategy for adaptation to the impact of climate change on soils. However, it appears likely that farmers will need to carefully reconsider their management options, and land use change is likely to result from different crop selections that are more appropriate to the changing conditions. Perhaps the greatest impact of climate change on soils will arise from climate-induced changes in land use and management.     

气候变化2007:气候变化影响、适应和脆弱性——IPCC第2工作组第4次评估报告主要结论介绍

阐述了政府间气候变化专门委员会(IPCC)第2工作组第四次评估中与决策相关的重要发现。本次评估体现了当前关于气候变化对自然、管理和人类系统的影响、这些系统的适应能力及脆弱性方面的科学认识。该评估基于此前IPCC的评估,并吸收了第3次评估以来的新认识。评估报告认为:从所有大陆和多数海洋得到的观测证据表明,许多自然系统正在受到区域气候变化,特别是温度升高的影响;人为增暖可能已对许多自然和生物系统产生可辨别的影响;气候变化对自然和人类环境所造成的其他影响清晰可辨。当前关于未来气候变化影响的认识,可以更详细地评估未来气候对各类系统和部门,以及对世界各大区域的影响,也可以对全球升温的影响进行估算,预估极端天气气候所带来的影响。必须采取更广泛的适应措施以应对气候变化所造成的影响,可持续发展能够降低对气候变化的脆弱性,兼顾适应和减缓的措施,能够减低气候变化相关风险。     

气候变化影响与适应研究中的若干问题

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国际气候变化适应战略与态势分析

在对国际气候变化适应行动进行回顾和展望的基础上,介绍了以《联合国气候变化框架公约》为主的国际气候变化适应政策的发展轨迹和趋势,分析了欧盟主要国家、澳大利亚、美国、加拿大、日本、俄罗斯和印度等国所采取的气候变化适应战略,总结出国际气候变化适应行动选择主要集中在极端气候事件与自然灾害、安全的淡水供应、基础设施建设、粮食安全,以及应对气候变化的协调机制等方面。