2015年-CEPS欧洲政策研究中心_Adaptation_as_a_Strategic_Issue_in_the_Climate_Negotiations_41页_315kb

ECP Report #3: Adaptation as a Strategic Issue in Climate Negotiations

Overview

This report, authored by Sivan Kartha and others, discusses the importance of adaptation in the context of global climate negotiations and highlights the need for a more integrated and strategic approach to address climate change impacts in developing countries. It was prepared by the European Climate Platform (ECP), a joint initiative of CLIPORE and CEPS, and presented at COP12/MOP2 in Nairobi in 2006.

Core Content

1. Introduction

• Objective: To examine how international collaboration can address climate change adaptation in developing countries.
• Relevance for EU policymakers: Industrialized countries, including the EU, have a legal and moral responsibility to support adaptation in developing countries. This is not only a matter of justice but also of self-interest due to global interdependencies.
• Importance of adaptation: Climate change impacts are already occurring and will worsen. Developing countries, especially the poorest, are most vulnerable, and their development prospects could be severely compromised without effective adaptation.

2. Adaptation Concepts

• Definition of adaptation: Adaptation includes both the implementation of responses to climate impacts and the enhancement of adaptive capacity.
• Key characteristics:
  • Local focus: Adaptation is primarily a place-based activity.
  • Resilience: It involves building resilience in economic, social, political, and environmental systems.
  • Comprehensive approach: It should not be limited to specific sectors or technologies but should be integrated with broader development strategies.

3. Current Status of Adaptation Efforts

• Historical focus: The UNFCCC initially focused on mitigation, with adaptation considered less urgent.
• Recent developments: Adaptation is now being addressed in international negotiations, particularly under the four main strands of "long-term cooperative action": sustainable development, technology, adaptation, and market opportunities.
• Funding mechanisms: Adaptation is supported through the GEF, SCCF, LDCF, and Adaptation Fund. However, these funds are not yet sufficient or well-structured.
• Challenges:
  • Fragmentation: Adaptation efforts are underdeveloped and fragmented.
  • Voluntary contributions: Funding is mostly voluntary and not tied to specific obligations or indicators.
  • Uncertainty: The Adaptation Fund depends on the scale and market value of CERs.

4. Institutional Frameworks for Adaptation

• Need for a legal instrument: While a binding legal framework for adaptation is not yet clear, existing mechanisms may be adapted to support it.
• Key considerations:
  • Responsibility: Industrialized countries have a responsibility to support adaptation.
  • Absorptive capacity: Developing countries must have the capacity to absorb and use adaptation resources effectively.
  • Integration: Adaptation must be integrated with development policies, especially through ODA and other development mechanisms.

Main Recommendations

I. Key Messages

1. Adequate adaptation requires significant financial support from industrialized countries.
2. Adaptation must be integrated with development efforts.
3. Distinguishing adaptation from development is problematic and should be avoided.
4. Financing and implementation should be discussed separately.
5. Informal dialogues should be established to build trust and understanding.

II. Five Suggestions for the Way Forward

1. Evolutionary regime:

   • Establish a sequential and evolutionary regime for adaptation.
   • Begin with preparatory actions, such as earmarking funds for risk reduction and disaster management.
   • Develop mechanisms to exchange best practices and build capacity.

2. Investments in human development:

   • Support sustainable livelihoods and human development goals.
   • Use existing development aid knowledge, institutions, and approaches for adaptation.
   • Improve governance and ensure equitable growth for vulnerable communities.

3. Distinguishing adaptation from development:

   • Avoid separating adaptation from development, as the two are intrinsically linked.
   • Do not attempt to quantify "incremental costs" of adaptation over "baseline costs" of development.

4. Financing and implementation:

   • Consider discussing financing and implementation separately.
   • Financing involves burden sharing, while implementation focuses on how resources are used.
   • Ensure that financial commitments are adequate and that absorptive capacity is developed.

5. Informal dialogues:

   • Create more informal dialogues between developed and developing countries.
   • Establish permanent climate delegations to facilitate interaction between formal negotiations.
   • Convene a 'Climate Change Adaptation Forum' to allow stakeholders to exchange information in a less contentious environment.

Key Information

• Adaptation is a critical but underdeveloped aspect of climate negotiations.
• Financial support from industrialized countries is essential but insufficient.
• Adaptation must be mainstreamed into development policies and ODA systems.
• Local knowledge and participation are crucial for effective adaptation.
• Existing funds are not yet adequate and require better coordination and focus.

Box 1: Estimates of Adaptation Needs

• GEF support: In six countries, the GEF provided over $1-2 billion in support for climate-sensitive sectors between 1998 and 2002.
• World Bank estimate: Annual adaptation costs in developing countries could range between $10 billion and $40 billion.
• UNFCCC funding: Less than $0.4 billion has been committed through UNFCCC channels over the past decade.
• ODA and investment flows: Annual global ODA is around $100 billion, with foreign direct investment and domestic investment at $160 billion and $1,500 billion respectively.

Conclusion

The report emphasizes the need for a more strategic, integrated, and cooperative approach to climate change adaptation. It calls for increased financial support, better institutional frameworks, and the mainstreaming of adaptation into development policies. The challenge is significant, but the potential benefits for both developed and developing countries make it a priority for future climate negotiations.