Taking the Local Road to Copenhagen

ICLEI USA’s Primer on the Role of Local Governments in an International Climate Agreement

As the international community moves toward a new climate agreement, it is crucial to recognize, include and support the role of local governments. Localities are the historic and modern day leaders in climate action. Twenty years ago at the local level, the City of Toronto adopted the first ever greenhouse gas reduction target for any government worldwide. Since that time, localities have served as the innovators crafting solutions resulting in clean energy jobs, sustainable economic development and meaningful reductions in greenhouse gas emissions.

While policies have long been implemented at the local level, international talks have been moving toward an effective global agreement that will attract the participation of the major emitters of greenhouse gas (GHG) emissions. This primer offers a general overview of international agreements and negotiations with a specific focus outlining ICLEI’s engagement on behalf of localities.

Background

The UN Framework Convention on Climate Change (UNFCCC), is made up of 192 nations, or groups of nations, referred to in international jargon as “Parties.”  The UNFCCC was agreed to at the 1992 “Earth Summit” in Rio de Janeiro establishing an international treaty aimed at considering how to address global warming and encouraging industrialized countries to stabilize greenhouse gas (GHG) emissions. 

The Kyoto Protocol, an addition to the UNFCCC treaty, was negotiated in 1997 and ratified by the international community in 2005. The Kyoto Protocol, following the principle of “common but differentiated responsibilities,” divides duties for lowering emissions between developed and developing nations.  The core of the Protocol is its binding emissions targets for developed countries, which vary by nation based on emissions.  Limits below 1990 levels for the key industrial powers include: 7 percent for the United States, 8 percent for the European Union, and 6 percent for Japan. Developing nations are not required to meet such targets under the Protocol. The United States has never ratified the Kyoto Protocol, with politicians often citing economic concerns over the lack of binding GHG reduction targets for developing nations.

The UNFCCC Parties are divided into three main groupings:

• Annex I Parties: All industrialized countries that have agreed to lower GHG emissions
• Annex II Parties: A subgroup of Annex I countries - developed countries that finance developing nations for emissions reduction activities
• Non-Annex I Parties: Mainly made up of developing nations

The Protocol establishes a cap and trade system for Annex I nations, capping GHG emissions at a certain level and allowing for the trading of emissions permits or credits. Kyoto also includes flexible mechanisms to allow Annex I nations to purchase emissions reductions. The three flexible mechanisms include:

i) Joint Implementation allowing for Annex I nations to earn emissions reduction credit from another Annex I nation;

ii) The Clean Development Mechanism, an international offset credit program which allows an Annex I party to implement emissions reductions in developing nations;

iii) Emissions trading where countries that are below their emissions targets can sell their emission credits to nations that are above their emissions targets

The Kyoto Protocol ends in 2012, and members of the UNFCCC are currently negotiating terms that would outline successor agreement to address climate change.  Periodically the Parties convene at a “Conference of the Parties” (COP). The Kyoto Protocol was agreed upon at the third Conference of the Parties, or “COP3.”  The COP is the highest body of the UNFCCC which meets to discuss developments under the UNFCCC.  The UNFCCC conference in 2007 in Bali, Indonesia (COP13) resulted in “The Bali Roadmap,” designed to move nations towards agreement on the post-2012 treaty to be decided at COP15. COP14 was held last December in Poznan, Poland. Representatives from 189 nations are expected to attend COP15, scheduled for December 7 - 18 of this year in Copenhagen, Denmark.  The goal of COP15 is to agree upon the next version of the Kyoto Protocol – the post-2012 treaty.

The Local Government Role in International Climate Action Negotiations 

The language comprising both the Kyoto Protocol and the UNFCCC currently does not recognize the vital role of cities, local and regional governments as relevant actors in the struggle to combat climate change. Local governments, when empowered and resourced, can achieve meaningful reductions in GHGs and should be key players in the implementation of any national or international climate strategy. 

To advocate for local involvement in an international climate treaty, a two-year process, “The Local Governments Climate Roadmap,” was convened by ICLEI-Local Governments for Sustainability along with other leading local government organizations worldwide designed to mirror The Bali Roadmap. The Local Governments Climate Roadmap includes ICLEI, United Cities and Local Governments, the C40 Climate Leadership Group, the World Mayors Council on Climate Change and Metropolis. This effort was organized to advocate for the inclusion of local governments in a post-2012 climate agreement. Through this process, localities have been able to advocate for a strong international agreement that empowers and recognizes the important role of local governments. Five constituencies of observer organizations are recognized in UNFCCC negotiations, one of them is “Local Governments and Municipal Authorities” (LGMA). As a member of this observer organization, ICLEI has advocated on behalf of local governments during the various meetings and negotiations leading up to COP15. 

ICLEI, through “The Local Governments Climate Roadmap” process, is requesting that the national governments:

• Support strong local climate practices
• Provide enabling regulations and conditions
• Empower cities – provide capacities and resources
• Recognize local action in national climate strategies; and
• Strengthen local action through easier access to funding

ICLEI’s advocacy work at the UNFCCC includes engagement with national government representatives.  The Local Governments Side Event at the Bonn Climate Change Talks in April of 2009 centered around the Local Governments Climate Roadmap and the draft text for a COP decision on Cities, Local Authorities and Climate Change aimed at seeking a strong partnership with national governments on the next global agreement on climate change.

Who’s Who in the UNFCCC

Main Negotiating Groups of the Parties:

• The Umbrella Group (UG): Includes the United States, Australia, Canada, New Zealand, Iceland, Japan, Norway, the Russian Federation and Ukraine
• The European Union (EU): 27 members The G-77 and China – A loose coalition of developing nations comprised of over 130 countries
• The African Group (AG)
• The Centroamerican Group
• The Alliance of Small Island States (AOSIS): An alliance of 43 low lying and small island nations – many members are also members of the G-77
• The Coalition of Rainforest Nations (CRN): Developing nations with rainforests
• The Least Developed Countries (LDC): The 49 nations defined as least developed nations by the UN
• The Environmental Integrity Group (EIG): Mexico, the Republic of Korea and Switzerland
• Central Asia, Caucasus, Albania and Moldova (CACAM): These nations are not included in Annex I, but do not consider themselves to be developing nations and are not members of the G-77

Ad Hoc Working Groups:

• Ad Hoc Working Group on Further Commitments for Annex I Parties under the Kyoto Protocol (AWG-KP): This working group was formed to discuss future commitments for industrialized nations under the Kyoto Protocol
• Ad Hoc Working Group on Long-term Cooperative Action under the Convention (AWG-LCA): This working group was formed at COP13 and is working on creating the post 2012 outcome

Non-Governmental Organizations:

Observer Constituencies:

While there are over 600 different admitted observer organizations to UNFCCC negotiations, the observer constituencies are groups that facilitate the exchange of information between the secretariat and the admitted observer organizations.  The five constituencies are:

• Business and Industry Non-Governmental Organizations (BINGO)
• Environmental Non-Governmental Organizations (ENGO)
• Local Governments and Municipal Authorities (LGMA): ICLEI is a member of this constituency
• Indigenous Peoples Organizations (IOP)
• Research and Independent Non-Governmental Organizations (RINGO)

Key Acronyms

AWG-KP – Ad Hoc Working Group on Further Commitments for Annex I Parties under the Kyoto Protocol
AWG-LCA – Ad Hoc Working Group on Long-term Cooperative Action under the Convention
BINGO – Business and Industry Non-Governmental Organizations
CACAM – Central Asia, Caucasus, Albania and Moldova
COP – Conference of the Parties
ENGO – Environmental Non-Governmental Organizations
GHG – Greenhouse Gas
IOP – Indigenous Peoples Organizations
LGMA – Local Governments and Municipal Authorities
RINGO – Research and Independent Non-Governmental Organizations
AG - The African Group
AOSIS - The Alliance of Small Island States
CRN – The Coalition of Rainforest Nations
EIG – The Environmental Integrity Group
EU – The European Union
LDC – The Least Developed Countries
UG – The Umbrella Group
UNFCCC – The UN Framework Convention on Climate Change