Differentiation of mitigation commitments: the multi-sector convergence approach

Abstract

This paper presents a new sector-based framework—called the multi-sector convergence approach—for negotiating binding national GHG mitigation targets after the first budget period defined by the Kyoto Protocol (2008–2012). The major characteristics of this approach are that: (i) it is based on the distinction of different sectors within the national economy; (ii) it prescribes that, in principle, the amount of per capita emission assignments should ultimately converge to the same level for all countries; (iii) it accounts for differences in national circumstances by offering the opportunity to grant additional emission allowances to countries facing specific circumstances that justify higher emission assignments; and (iv) it offers a framework for negotiating mitigation commitments among parties of the UNFCCC, including a (gradual) participation of developing countries that pass a certain threshold level of per capita emissions. In addition to briefly discussing the underlying principles of promising proposals to differentiate future GHG mitigation commitments, the paper outlines the methodology and major characteristics of the multi-sector convergence (MSC) approach, followed by some numerical illustrations. The paper is concluded by a preliminary assessment of the MSC approach.     

Future mitigation commitments: differentiating among non-Annex I countries

Abstract

In the long term, any definition of adequacy consistent with UNFCCC Article 2 will require increased mitigation efforts from almost all countries. Therefore, an expansion of emission limitation commitments will form a central element of any future architecture of the climate regime. This expansion has two elements: deepening of quantitative commitments for Annex B countries and the adoption of commitments for those countries outside of the current limitation regime. This article seeks to provide a more analytical basis for further differentiation among non-Annex I countries. To be both fair and reflective of national circumstances, it is based on the criteria of responsibility, capability and potential to mitigate. Altogether, non-Annex I countries were differentiated in four groups, each including countries with similar national circumstances: newly industrialized countries (NICs), rapidly industrializing countries (RIDCs), ‘other developing countries’, and least developed countries (LDCs). Based on the same criteria that were used for differentiating among non-Annex I countries, a set of decision rules was developed to assign mitigation and financial transfer commitments to each group of countries (including Annex I countries). Applying these decision rules results in (strict) reduction commitments for Annex I countries, but also implies quantifiable mitigation obligations for NICs and RIDCs, assisted by financial transfers from the North. Other developing countries are obliged to take qualitative commitments, but quantifiable mitigation commitments for these countries and the LDC group would be not justifiable. As national circumstances in countries evolve over time, the composition of the groups will change according to agreed triggers.     

全球长期减排目标与碳排放权分配原则

全球长期减排目标将对世界未来的碳排放形成严重制约,减排义务的分担原则涉及各国的发展空间,事关根本利益。部分发达国家倡导人均排放趋同原则,回避发达国家的历史责任,中国等发展中国家提出人均累积排放趋同原则,强调公平性。按人均累积排放量计算,发达国家自工业革命以来的CO₂排放量已远超出其到2050年前应有的限额,其当前和今后相当长时期的高人均排放都将继续挤占发展中国家的排放空间。因此,发达国家在哥本哈根会议的中近期减排承诺中必须深度减排,以实现全球长期减排目标下的排放轨迹,并为发展中国家留有必要的发展空间。同时必须对发展中国家给予充足的资金和技术支持,作为对其过度挤占发展中国家发展空间的补偿,使发展中国家能够在可持续发展框架下,提高应对气候变化的能力。我国在对外坚持公平原则,努力争取合理的排放空间的同时,对内要加强向低碳经济转型,努力实现保护全球气候和国内可持续发展的双赢。     

National contributions to climate change mitigation from agriculture: allocating a global target

Globally, agriculture and related land use change contributed about 17% of the world’s anthropogenic GHG emissions in 2010 (8.4 GtCO₂e yr^?1), making GHG mitigation in the agriculture sector critical to meeting the Paris Agreement’s 2°C goal. This article proposes a range of country-level targets for mitigation of agricultural emissions by allocating a global target according to five approaches to effort-sharing for climate change mitigation: responsibility, capability, equality, responsibility-capability-need and equal cumulative per capita emissions. Allocating mitigation targets according to responsibility for total historical emissions or capability to mitigate assigned large targets for agricultural emission reductions to North America, Europe and China. Targets based on responsibility for historical agricultural emissions resulted in a relatively even distribution of targets among countries and regions. Meanwhile, targets based on equal future agricultural emissions per capita or equal per capita cumulative emissions assigned very large mitigation targets to countries with large agricultural economies, while allowing some densely populated countries to increase agricultural emissions. There is no single ‘correct’ framework for allocating a global mitigation goal. Instead, using these approaches as a set provides a transparent, scientific basis for countries to inform and help assess the significance of their commitments to reducing emissions from the agriculture sector.

Key policy insights

• Meeting the Paris Agreement 2°C goal will require global mitigation of agricultural non-CO₂ emissions of approximately 1 GtCO₂e yr^?1 by 2030.

• Allocating this 1 GtCO₂e yr^?1 according to various effort-sharing approaches, it is found that countries will need to mitigate agricultural business-as-usual emissions in 2030 by a median of 10%. Targets vary widely with criteria used for allocation.

• The targets calculated here are in line with the ambition of the few countries (primarily in Africa) that included mitigation targets for the agriculture sector in their (Intended) Nationally Determined Contributions.

• For agriculture to contribute to meeting the 2°C or 1.5°C targets, countries will need to be ambitious in pursuing emission reductions. Technology development and transfer will be particularly important.

     

Delivering the two degree global climate change target using a flexible ratchet framework

Global climate negotiations have been characterized by a divide between developed and developing nations – a split which has served as a persistent barrier to international agreement within the United Nations Framework Convention on Climate Change process. Notable progress in bridging this division was achieved at the 21st Conference of the Parties meeting in Paris through the introduction of Intended Nationally Determined Contributions (INDCs). However, the collective ambition of submitted INDCs falls short of a global 2°C target, requiring an effective ratchet mechanism to review and increase national commitments. Inequitable distribution of additional responsibilities risks re-opening historic divisions between parties. This article presents a flexible ratchet framework which shares mitigation commitments on the basis of per capita equity in line with emerging requirements for a 2°C target. The framework has been designed through convergence between developed and developing nations; developed nation targets are based on an agreed standardized percentage reduction wherever emissions are above per capita equity; developing nations are required to peak emissions at or below per capita equity levels by an agreed convergence date. The proposed framework has the flexibility to be integrated with current INDCs and to evolve in line with shifting estimates of climate sensitivity.

Policy relevance

The outcome of the 21st Conference of the Parties (COP21) negotiations in Paris offered mixed results in terms of level of ambition and submitted national commitments. A global agreement to keep average global temperature rise below two degrees was maintained; however, current pledged Intended Nationally Determined Contributions (INDCs) are projected to result in an average warming of close to three degrees. The implementation of a global ratchet mechanism to scale-up national commitments will remain key to closing this ambition gap to reach this two degree target. How this upscaling of responsibility is shared between parties will be a defining discussion point within future negotiations. This study presents a standardized, equity-based framework for how this ratchet mechanism can be implemented – a framework designed to be flexible for evolution in line with better understanding of climate sensitivity, and adaptable for integrations with current INDC proposals.     

Sector-based approach to the post-2012 climate change policy architecture

A sectoral approach to GHG emissions reductions in developing countries is proposed as a key component of the post-2012 climate change mitigation framework. In this approach, the ten highest-emitting developing countries in the electricity and other major industrial sectors pledge to meet voluntary, ‘no-lose’ GHG emissions targets in these sectors. No penalties are incurred for failing to meet a target, but emissions reductions achieved beyond the target level earn emissions reduction credits (ERCs) that can be sold to industrialized nations. Participating developing countries establish initial ‘no-lose’ emissions targets, based upon their national circumstances, from sector-specific energyintensity benchmarks that have been developed by independent experts. Industrialized nations then offer incentives for the developing countries to adopt more stringent emissions targets through a ‘Technology Finance and Assistance Package’, which helps to overcome financial and other barriers to technology transfer and deployment. These sectorspecific energy-intensity benchmarks could also serve as a means for establishing national economy-wide targets in developed countries in the post-2012 regime. Preliminary modelling of a hybrid scenario, in which Annex I countries adopt economy-wide absolute GHG emissions targets and high-emitting developing countries adopt ‘no-lose’ sectoral targets, indicates that such an approach significantly improves the likelihood that atmospheric concentrations of CO₂ can be stabilized at 450 ppmv by the end of the century.     

Comparing developing countries under potential carbon allocation schemes

To stabilise atmospheric greenhouse gas concentrations, all countries will eventually need to be included in the effort to limit climate change. This article explores what potential future greenhouse gas allocation schemes might mean for key developing countries. The need for development is widely acknowledged, but growth in non-Annex I country emissions means that such development may need to take a different path to business as usual. The national interests of developing countries in negotiating potential future commitments are shaped by basic characteristics, notably emissions (both annual and historical cumulative), economic growth and population. These factors in turn shape the acceptability of allocations based on ability to pay, emissions intensity, or emissions per capita.Results for six major developing countries (China, India, Brazil, South Africa, Argentina and Nigeria) show that the implications for developing countries differ widely. For example, ability to pay does not favour Argentina; a reduction based on emissions intensity is not appropriate for Brazil; and per capita allocations would be problematic for South Africa. It is difficult to conceive of a single allocation scheme that would be appropriate for all developing countries. This points to the need for differentiation between developing countries in terms of any potential future commitments.     

Comparing developing countries under potential carbon allocation schemes

Abstract

To stabilise atmospheric greenhouse gas concentrations, all countries will eventually need to be included in the effort to limit climate change. This article explores what potential future greenhouse gas allocation schemes might mean for key developing countries. The need for development is widely acknowledged, but growth in non-Annex I country emissions means that such development may need to take a different path to business as usual. The national interests of developing countries in negotiating potential future commitments are shaped by basic characteristics, notably emissions (both annual and historical cumulative), economic growth and population. These factors in turn shape the acceptability of allocations based on ability to pay, emissions intensity, or emissions per capita.

Results for six major developing countries (China, India, Brazil, South Africa, Argentina and Nigeria) show that the implications for developing countries differ widely. For example, ability to pay does not favour Argentina; a reduction based on emissions intensity is not appropriate for Brazil; and per capita allocations would be problematic for South Africa. It is difficult to conceive of a single allocation scheme that would be appropriate for all developing countries. This points to the need for differentiation between developing countries in terms of any potential future commitments.     

Greenhouse gas emissions from global cities under SSP/RCP scenarios, 1990 to 2100

Projections of greenhouse gas (GHG) emissions are critical to enable a better understanding and anticipation of future climate change under different socio-economic conditions and mitigation strategies. The climate projections and scenarios assessed by the Intergovernmental Panel on Climate Change, following the Shared Socioeconomic Pathway (SSP)-Representative Concentration Pathway (RCP) framework, have provided a rich understanding of the constraints and opportunities for policy action. However, the current emissions scenarios lack an explicit treatment of urban emissions within the global context. Given the pace and scale of urbanization, with global urban populations expected to increase from about 4.4 billion today to about 7 billion by 2050, there is an urgent need to fill this knowledge gap. Here, we estimate the share of global GHG emissions driven by urban areas from 1990 to 2100 based on the SSP-RCP framework. The urban consumption-based GHG emissions are presented in five regional aggregates and based on a combination of the urban population share, 2015 urban per capita CO₂eq carbon footprint, SSP-based national CO₂eq emissions, and recent analysis of urban per capita CO₂eq trends. We find that urban areas account for the majority of global GHG emissions in 2015 (61.8%). Moreover, the urban share of global GHG emissions progressively increases into the future, exceeding 80% in some scenarios by the end of the century. The combined urban areas in Asia and Developing Pacific, and Developed Countries account for 65.0% to 73.3% of cumulative urban consumption-based emissions between 2020 and 2100 across the scenarios. Given these dominant roles, we describe the implications for potential urban mitigation in each of the scenario narratives in order to meet the goal of climate neutrality within this century.     

Assessing the ambition of post-2020 climate targets: a comprehensive framework

One of the most fundamental questions surrounding the new Paris Agreement is whether countries’ proposals to reduce GHG emissions after 2020 are equally ambitious, considering differences in circumstances between countries. We review a variety of approaches to assess the ambition of the GHG emission reduction proposals by countries. The approaches are applied illustratively to the mitigation part of the post-2020 climate proposals (nationally determined contributions, or NDCs) by China, the EU, and the US. The analysis reveals several clear trends, even though the results differ per individual assessment approach. We recommend that such a comprehensive ambition assessment framework, employing a large variety of approaches, is used in the future to capture a wide spectrum of perspectives on ambition.

POLICY RELEVANCE

Assessing the ambition of the national climate proposals is particularly important as the Paris Agreement asks for regular reviews of national contributions, keeping in mind that countries raise their ambition over time. Such an assessment will be an important part of the regular global stocktake that will take place every five years, starting with a ‘light’ version in 2018. However, comprehensive methods to assess the proposals are lacking. This article provides such a comprehensive assessment framework.     

Greenhouse gas emission mitigation plan for the State of Israel: strategies,incentives and reporting

In the context of the negotiations under the United Nations Framework Convention on Climate Change and its accompanying Kyoto Protocol, participating nations have recognized the need for formulating Nationally Appropriate Mitigation Actions (NAMAs). These NAMAs allow countries to take into account their national circumstances and to construct measures to mitigate GHG emissions across economic sectors. Israel has declared to the UN that it would strive to reduce its GHG emissions by 20% in the year 2020 relative to a ‘business as usual' scenario. With its growing population and an expanding economy, the national GHG mitigation plan was developed to draw a course for steering the Israeli economy into a low-carbon future while accommodating continued economic growth. The article describes relevant policy measures, designed to aid in the implementation of the plan and compares them with measures being undertaken by different countries. Emphasis is placed on analysing the progress to date, opportunities and barriers to attaining the ultimate GHG emissions reduction goals. The objective of this article is to contribute to the knowledge base of effective approaches for GHG emissions reduction. We emphasize the integrated approach of planning and implementation that could be especially useful for developing countries or countries with economies in transition, as well as for developed countries. Yet, in the article we argue that NAMAs’ success hinges on structured tracking of progress according to emerging global consensus standards such as the GHG Protocol Mitigation Goals Standard.

Policy relevance:

The study is consistent with the NAMA concept, enabling a country to adopt a ‘climate action plan’ that contributes to its sustainable development, while enabled by technology and being fiscally sound.

The analysis shows that although NAMAs have been framed in terms of projects, policies, and goals, current methodologies allow only the calculation of emission reductions that can be attributed to distinct projects. Currently, no international guidance exists for quantifying emissions reduction from policy-based NAMAs, making it difficult to track and validate progress. This gap could be addressed by an assessment framework that we have tested, as part of a World Resources Institute pilot study for an emerging voluntary global standard.     

Creating incentives for avoiding further deforestation: the nested approach

Since 2005, Parties to the UNFCCC have been negotiating policy options for incentivizing reductions of (greenhouse gas) emissions from deforestation and degradation (REDD) in a future climate regime. Proposals on how to operationalize REDD range from market-based to pure fund-based approaches. Most of the current proposals suggest accounting for REDD at the national level. Accounting for emission reductions and implementing policy reform for curbing deforestation will take time and imply high levels of technical and institutional capacity. Therefore it is essential that developing countries receive sufficient support to implement national REDD programmes. To save time and ensure prompt action in reducing deforestation, a REDD approach is proposed that integrates project-level and subnational REDD schemes into national-level accounting. This ‘nested approach’ can achieve meaningful reductions in GHG emissions from improved forest governance and management, while allowing for an immediate and broad participation by developing countries, civil society and the private sector.     

Accounting for impacts due to climate change in GHG mitigation burden sharing

This study focusing on the climate equity debate in the context of GHG mitigation explores design of a framework that is based on the ‘common but differentiated responsibilities’ principle of the United Nations Framework Convention on Climate Change (UNFCCC). Besides incorporating the widely recognized differences among countries such as current and historic GHG emissions and capabilities, the framework also accounts for their relative vulnerabilities to climate change. The study argues that since climate change impacts are akin to global public bad, compensation, especially for the poorer nations who are also the worst victims of the climate change impacts, could be conceived in the form of greater share in the GHG emission rights. This, it is argued, would provide the much needed space to grow for the poorer countries and facilitate enhancement of their adaptive capacity to face climate and other threats. It is also argued that the framework results accord with one of the welfare principles, the Weak Equity Axiom (WEA) (Sen, A. K. (1973). On economic inequality. Delhi: Oxford University Press), and yield an equitable distribution of burden.

Policy relevance

The present study attempts to inform the equity debate in the international climate negotiations. The multi-criteria framework of the study suggests a means to incorporate various national attributes which could result in an equitable sharing of the GHG mitigation burden among countries. The study results highlight that impacts due to climate change could provide an important and equitable basis for burden sharing in the present and in future. The study also highlights the significance of scientific literature on climate change impact assessments in informing the future policy dialogue in the climate negotiations.     

Global Triptych: a bottom-up approach for the differentiation of commitments under the Climate Convention

Abstract

In the coming years the international debate on commitments for the second commitment period under the Kyoto Protocol will intensify. In this study, the Global Triptych approach is put forward as an input for international decision-making concerning the differentiation of commitments by 2020. It is a sector- and technology-oriented approach, and we calculated quantitative emission limitation objectives and global emissions starting from bottomup information on long-term reduction opportunities. Central to the calculations were long-term sustainability targets for the year 2050, formulated for (1) energy efficiency in the energy-intensive industry, (2) greenhouse gas intensity of electricity production, and (3) per capita emissions in the domestic sectors. Calculated emission limitation objectives for 13 world regions ranged from about ?30% to more than +200%. The ranking of world regions in the differentiation turned out to be independent of the levels chosen for the long-term sustainability targets. The objectives seem sufficient to maintain the long-term possibility of stabilizing atmospheric greenhouse gas concentrations at about 550 ppm CO₂-eq, but will require severe emission reductions. These may be relaxed to a certain degree if stabilization at 650 ppm CO₂-eq is aimed for. We conclude that the bottom-up character of the approach made it possible to examine important basic principles of the Climate Convention, including equity, the needs and circumstances of developing countries, cost-effectiveness and sustainable development.     

Post-Kyoto greenhouse gas inventories: production versus consumption

For the long-term stabilization of greenhouse gas (GHG) concentrations it is important that post-Kyoto policy has broad participation to ensure environmental integrity. Many post-Kyoto frameworks have been debated, but surprisingly approaches that focus on consumption have received little attention in the climate change literature despite broader interest in other areas. In this article we extend the argument for constructing GHG inventories using a country’s consumption rather than production. First, we argue that constructing GHG inventories using a country’s economic activity instead of geographic territory solves allocation issues for international activities such as international transportation and carbon capture and storage. Second, we argue that consumption-based GHG inventories have many advantages over production-based inventories. The main advantages are to address carbon leakage, reduce the importance of emission commitments for developing countries, increase options for mitigation, encourage environmental comparative advantage, address competitiveness concerns, and naturally encourage technology diffusion.     

Water Quality Co-Effects of Greenhouse Gas Mitigation in U.S. Agriculture

This study develops first-order estimates of water quality co-effects of terrestrial greenhouse gas (GHG) emission offset strategies in U.S. agriculture by linking a national level agricultural sector model (ASMGHG) to a national level water quality model (NWPCAM). The simulated policy scenario considers GHG mitigation incentive payments of $25 and $50 per tonne, carbon equivalent to landowners for reducing emissions or enhancing the sequestration of GHG through agricultural and land-use practices. ASMGHG projects that these GHG price incentives could induce widespread conversion of agricultural to forested lands, along with alteration of tillage practices, crop mix on land remaining in agriculture, and livestock management. This study focuses on changes in cropland use and management. The results indicate that through agricultural cropland about 60 to 70 million tonnes of carbon equivalent (MMTCE) emissions can be mitigated annually in the U.S. These responses also lead to a 2% increase in aggregate national water quality, with substantial variation across regions. Such GHG mitigation activities are found to reduce annual nitrogen loadings into the Gulf of Mexico by up to one half of the reduction goals established by the national Watershed Nutrient Task Force for addressing the hypoxia problem.     

Options for differentiation of future commitments in climate policy: how to realise timely participation to meet stringent climate goals?

This paper aims at exploring options for differentiation of future commitments in global greenhouse gas emissions control, linked to climate targets. This is done on the basis of the EU target of a maximum global temperature increase of 2°C compared to pre-industrial levels. The Framework to Assess International Regimes for the differentiation of commitments (FAIR) is used to explore the implications of two possible climate regimes: (1) increasing participation (i.e. a gradual increase in the number of parties involved and their level of commitment according to participation and differentiation rules) and (2) ‘contraction and convergence’ (C&C) with universal participation and a convergence of per capita emission permits. It is found that in a regime of increasing participation, stabilising the CO₂ concentration at 450 ppmv by 2100 requires participation of major developing countries before 2050 in global emission control, irrespective of the participation and differentiation rules chosen. In the case of stringent climate targets, a convergence regime seems to provide more incentives for a timely participation of developing countries, and opportunities for an effective and efficient regime for controlling global emissions than increasing participation.     

Options for differentiation of future commitments in climate policy: how to realise timely participation to meet stringent climate goals?

Abstract

This paper aims at exploring options for differentiation of future commitments in global greenhouse gas emissions control, linked to climate targets. This is done on the basis of theEUtarget of a maximum global temperature increase of 2°C compared to pre-industrial levels. The Framework to Assess International Regimes for the differentiation of commitments (FAIR) is used to explore the implications of two possible climate regimes: (1) increasing participation (i.e. a gradual increase in the number of parties involved and their level of commitment according to participation and differentiation rules) and (2) ‘contraction and convergence’ (C&C) with universal participation and a convergence of per capita emission permits. It is found that in a regime of increasing participation, stabilising the CO₂ concentration at 450 ppmv by 2100 requires participation of major developing countries before 2050 in global emission control, irrespective of the participation and differentiation rules chosen. In the case of stringent climate targets, a convergence regime seems to provide more incentives for a timely participation of developing countries, and opportunities for an effective and efficient regime for controlling global emissions than increasing participation.     

Climate mitigation finance across developing countries: what are the major determinants?

This empirical study assesses the relationship between the characteristics of developing countries and the amount of official climate mitigation finance inflow. A two-part model and robustness checks were used to analyse 1998–2010 Rio Marker data on 180 developing countries. The results show that developing countries with higher CO₂ intensity, larger carbon sinks, lower per capita gross domestic product (GDP) and good governance tend to be selected as recipients of climate mitigation finance, and receive more of it. CO₂ emission is not used as a determinant of mitigation finance until the actual financial disbursement. Poverty aid tends to be allocated to countries with low CO₂ emissions, possibly to avoid diverting aid from poorer developing countries. However, such a diversion is unavoidable if the share of mitigation finance in climate finance and in overall official development assistance (ODA) continues to escalate. This study calls for an equitable allocation of total ODA mitigation and adaptation finance in addition to the 0.7% ODA/gross national income target, and for transparent criteria and the verification of reporting on the allocation of mitigation finance.     

2003—2009年中国污水处理部门温室气体排放研究

基于《中国环境统计年报》等的统计数据,采用IPCC提供的方法估算了2003—2009年我国源自污水处理部门的温室气体排放量,并对污水处理部门人均温室气体排放量进行分析。结果表明,2003—2009年污水处理部门温室气体排放呈增加趋势,源自生活污水的N2O排放是主要排放源,生活污水CH4排放增速最快;工业行业中造纸业废水的CH4排放是主要排放源;人均温室气体排放量呈现递增趋势。