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Promotio Iustitiae
At the service of Faith that does Justice   


Global yet equitable: combating climate change, enabling development

Johannes Wallacher & Michael Reder

Climate and development policy at an impasse

Climate and development policy have reached an impasse. At the time of writing, the international community's political efforts are not even close to producing adequate responses to these momentous challenges. The United Nations' Climate Change Conference in Copenhagen in December 2009 failed to deliver the crucial breakthrough. Hopes of finalising a global agreement on the worldwide reduction of greenhouse gas emissions at the summit were dashed. Negotiations on how to support developing countries financially in their adaptation to unavoidable climate change were equally inconclusive.

Climate change mitigation is undoubtedly in the interests of people everywhere. But in order to find real solutions, substantial incentives are necessary for governments, communities, and for each of us as individuals. One particular challenge here is to bring together climate change mitigation and development policy. Developing and newly-industrialised countries are particularly reliant on broad-scale economic growth because it is a necessary - though not a sufficient - condition for overcoming poverty and underdevelopment. At first sight, this presents a dilemma. On the one hand, it is vital to avoid dangerous climate change because of what is at stake: the stability of the life-support base for present and future generations. On the other hand, developing countries will be understandably reluctant to participate in emissions avoidance if it places constraints on their options for economic development.

Finding ways out of this apparent dilemma calls for a macro-perspective which systematically maps the broad linkages between the different thematic areas without getting side-tracked by intricate details. For this kind of synergistic macro-perspective, new alliances spanning the scientific and social domains are essential.

This has prompted four ostensibly very dissimilar partners to join forces. From the scientific domain, these include the Potsdam Institute for Climate Impact Research and the Institute for Social and Development Studies in Munich. Their input combines scientific facts about the causes and consequences of climate change with consideration of the economic, development-policy and ethical implications. The commissioning parties and project partners are Misereor - the German Catholic Bishops' Organisation for Development Cooperation, and the Munich Re Foundation. In this project, then, the scientific community, development cooperation practitioners and the insurance industry have worked collaboratively, on the basis of scientific facts, and reached a consensus on common positions and demands. At the same time, all four partners have embarked on a dialogue with those at the heart of this debate - the people directly affected, often the poor, in the countries of the global south.

The risk of dangerous climate change

Today it is undeniable that climate change is caused, for the most part, by humans and that the first impacts are already tangible. A further rise in the mean global temperature is already inevitable, because of the lengthy time-lag between the discharge of emissions and the climate system's response. Climate change will cause shifts in regional climatic conditions and a series of grievous impacts. Emerging trends are already observable. The consequences of a global rise in temperature exceeding 2°C (compared with the pre-industrial level) will in all probability have massive consequences for many people alive today as well as in the future. In poorer regions of the world especially, this could make it impossible to adapt to the changes successfully. Therefore, the target of limiting warming of the climate to no more than 2°C is a persuasive orientation point for future climate policy.

From an ethical perspective, it is important to be mindful that the worldwide distribution of harmful climate impacts is inequitable. Even now, and all the more in future, those who are worst equipped to adapt to the impacts will be hardest hit. This is partly because many of the most susceptible regions are increasingly densely populated. All kinds of factors heighten the vulnerability of poor population groups in developing countries:

  • They are already at greater risk because their life situations (e.g. nutrition and health status) are so much worse than those of wealthier people.
  • They are more likely than average to live in regions where the climate today is already extreme.
  • Their livelihoods are often based on climate-sensitive natural resources and ecosystem services, particularly agriculture, forestry and fisheries.
  • They usually have more trouble accessing information (e.g. severe weather warnings).
  • They have fewer monetary and material assets and no insurance coverage against the hardships of climate change adaptation and the impacts of extreme weather events.
  • They are often insufficiently involved in political processes. This makes it harder for them to access state support before and in the aftermath of natural disasters.

 The risk of dangerous emissions reduction

Considered in historical terms, growing affluence has always been very closely linked with high CO2 emissions. Since the onset of industrialisation, the relationship between prosperity and the burning of fossil fuels has been embedded in our collective historical memory. Without fossil energy sources (and colossal emissions of greenhouse gases), forget prosperity! Quite rightly, especially newly-industrialised countries fear that a drastic climate policy would constrain their scope for economic growth. Therefore, it is unjustifiable to demand that developing countries lower their CO2 emissions and forego economic growth, while this remains a precondition for the fight against poverty. All the more so since these countries have barely polluted the atmosphere in the past - unlike the industrialised countries - and the per-capita emissions of the industrialised countries are still considerably higher than in all developing and newly-industrialising countries, including China and India.

At the other extreme, catch-up development, where all the developing and newly-industrialised countries emulate the energy-hungry, emissions-intensive economic model of the global north, is no solution because it would unleash unrestrained climate change with unpredictable consequences for humans and nature. Thus, all countries must step up their energy efficiency and switch to low-carbon energy generation as quickly as possible.

 Ten political messages

1) Global cooperation is necessary and possible

In view of the manifold linkages between global poverty and the impacts of climate change, an integrated vision is indispensable. On this basis, a new era of global cooperation needs to begin. This will necessitate binding regulations and fair and transparent processes, in which all stakeholders must be appropriately involved. Countries and their governments are called upon to take a lead here because they bear the political responsibility for such processes. Civil society and the private sector can support these efforts. Linking climate and development policy raises the chances of global cooperation, because it addresses the newly-industrialising and developing countries' concern about economic development.

 2) Reducing the vulnerability of developing countries

The Millennium Development Goals of the United Nations refer to key global challenges like poverty reduction, food security, health and education. But even now, there is a danger that the targeted goals will not be achieved. This heightens the vulnerability of people in developing countries to the impacts of climate change. Only detailed studies give enough of a basis to really understand this vulnerability and reduce it. Impacts of climate change will have influence on the vulnerability of poor people, particularly with regard to water supply, food security and the threat to coastal regions. What clearly emerges is that poor population groups in developing countries are subject to multiple disadvantages. For a synergistic climate and development policy, such studies are indispensable in order to facilitate the integrated vision that is called for and to carry out targeted adaptation measures.

 3) Human rights and justice as an ethical orientation

Climate change is not just a technical problem. It can only be dealt with if key aspects of equitability are taken into consideration. Therefore, it is essential to have an equitable policy framework which permits developing and newly-industrialising countries to play an active part in climate change mitigation without relinquishing their rightful entitlements to broad-based development. The industrialised countries have a special responsibility in this regard; not so much because they have caused disproportionately more greenhouse gas emissions in the past, but because they have the financial, economic and technical capacities and the necessary political influence that are so vital in order to solve these problems.

Human rights provide a meaningful starting point for ethical considerations. In global politics, these are already a key ethical yardstick for the resolution of global challenges. Taking human rights as a starting point, three dimensions of justice can be identified: the satisfaction of basic needs and the aspiration towards equal opportunities and fair processes. These three interrelated demands provide orientation points for political action towards the necessary global cooperation and towards the implementation of climate change mitigation and adaptation measures at national level.

 4) Climate change mitigation and development are feasible - a Global Deal with five pillars

The financial and technical challenges of climate change mitigation, adaptation and development can be overcome collectively. However, this requires the international community to demonstrate the requisite political will and to coordinate its various measures. Any such Global Deal for climate and development must consist of five pillars:

  • (i) Capping, allocation and trading of CO2 emissions allowances
  • (ii) Sustainable use of forests
  • (iii) Promotion and transfer of climate-smart technologies
  • (iv) International support for adaptation
  • (v) Strengthening of development policy

The fundamental prerequisite for these measures is cooperation in a spirit of partnership between industrialised, newly-industrialising and developing countries. With this in mind, all parties should enter into joint obligations, regarding the recognition of human rights, for example, or the negotiation of and adherence to joint targets.

 5) Pillar I: Capping, allocation and trading of CO2 emissions allowances

The discharge of emissions into the atmosphere must no longer be permitted free of charge, but must be priced on an international basis. First, a limit must be placed on the total volume of greenhouse gases that may still be emitted. Trading in these restricted emissions allowances then provides a possible means of reducing emissions, accurately and efficiently, to the necessary targets. In addition, it opens up the options for a global redistribution of income, which could also have positive effects on the situation of poor sections of the population in developing countries. The allocation scheme should be structured such that, within a relatively short time-frame, it achieves an equitable per-capita distribution of emissions allowances.

For this aspect in particular, there is a need for effectual global institutions with transparent and democratic decision-making structures. Also necessary are appropriate policy frameworks in both the industrialised and the developing countries. To ensure that the additional money can really promote climate-smart and broad-scale development processes, there must be full disclosure of the funding streams both on the income and expenditure side. Civil society involvement and inspection have an important role to play.

 6) Pillar II: Sustainable use of forests

The deforestation of tropical forests contributes about a 20% share of total global emissions. Forests have an important climate protection function because they act as CO2 sinks. At the same time, they are a life-sustaining resource base, not only for people but for a great diversity of different plants and animals. Because forests are important in a number of respects, they must be used sustainably and conserved. The industrialised nations should support newly-industrialising and developing countries in this effort, technically and financially, so that further deforestation and overexploitation of forests can be prevented. Particular attention must be paid to the needs of the local population, especially indigenous groups.

 7) Pillar III: Promotion and transfer of climate-smart technologies

The reduction of global emissions calls for new, climate-smart technologies. Only wide-ranging options in this field permit an ambitious level of climate change mitigation. Energy efficiency, renewable energies and the use of biomass have a key role to play. But new technologies such as underground carbon sequestration (carbon capture and storage, CCS) may also make an important contribution. The risks of such new technologies must, however, be evaluated, minimised and weighed up in an open public debate. The costs of emissions in the scope of the proposed emissions trading will not, by themselves, create sufficient incentives to effect the necessary technological step-change. Rather, it is necessary to promote appropriate technologies directly worldwide and drive forward the international transfer of such technologies.

 8) Pillar IV: International support for adaptation

Even if emissions are reduced immediately, adverse impacts on the climate are no longer avoidable. Poorer people and countries, who are more exposed to the risks, must be supported in adapting to these negative consequences of climate change. To do so, a variety of measures are needed, from information on regional impacts of climate change, to vulnerability analyses and ultimately financial assistance.

An indispensable tool for this purpose is a sufficiently well-endowed, international adaptation fund - in addition to official development assistance. The scale of payments into such a fund should be determined predominantly by each country's economic capacity. Adaptation financing is necessary in areas of particular climate sensitivity or relevance to poverty reduction. Principal among these are water supply, agriculture, coastal protection and disaster mitigation.

 9) Pillar V: Strengthening of development policy

Climate change mitigation and adaptation must not lead us to lose sight of the aims of development policy. Its primary aim remains to promote autonomous development and to strengthen capacity for action. This requires far-reaching reforms, both in the developing countries themselves and in international structures, which cannot be achieved without global cooperation. The prerequisite for this is a globally binding regulatory framework which promotes and supports the economic, political and social processes in the countries concerned. Furthermore, the international community is under an obligation to honour its financial commitments.

 10) Broad mobilisation and networking of actors for transformation

The realisation of the Global Deal is reliant on political leadership. Only then can a new era of international cooperation be heralded. The Global Deal can serve as a route map for creating the necessary institutional preconditions and for sharing out the unavoidable burdens as fairly and equitably as possible. To ensure that this happens, a broad alliance of forces in society will be called upon to drive forward the necessary transformation, from churches and non-governmental organisations to the scientific community and innovative businesses. At local, national and global level, alliances should be forged which question habitual attitudes and which, through their personal behaviour and civil society engagement, signal a willingness to support the necessary reforms.

This integrated vision of a Global Deal may well be characterised as utopian, but at least it is a concrete utopia. Unlike an abstract utopia, this vision emphasises that such a utopia is literally within our reach, and hence realistic. Even though it cannot be realised overnight or down to the very last detail, given the monumental challenges ahead it is the only viable option. If every opportunity were taken to plot a consistent course in the right direction, that in itself would be an impressive start. Nothing less is called for than "slow, strong drilling through hard boards, with a combination of passion and a sense of judgment" as Max Weber put it, some 90 years ago. Reneging on this task would be tantamount to conceding defeat.

 



 
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