Distr.
GENERAL
20 June 1996
ENGLISH ONLY
SUBSIDIARY BODY FOR SCIENTIFIC AND TECHNOLOGICAL ADVICE
Third session
Geneva, 9 to 16 July 1996
Item 7 of the provisional agenda
Note by the secretariat
CONTENTS
Paragraphs Page
I. INTRODUCTION 1 - 4 3
A. Mandate and scope 1 - 2 3
B. Organization and structure 3 - 4 3
II. WORKSHOP 4
A. Programme 4
B. Introductory remarks 5 - 6 6
C. Presentations 7 7
D. Working groups 8 - 9 7
E. Concluding remarks 10 - 11 8
GE.96-
Paragraphs Page
I. Report of the business and industry
working group . . 9
II. Report of the municipal leaders and local
authorities working group 22
III. Report of the environmental organizations
working group 28
A. Mandate and scope
1. The decision to hold a workshop on non-governmental inputs was taken by the Conference of the Parties at its first session held from 28 March to 7 April 1995 (decision 6/CP.1, annex III). The Conference further decided that the workshop should be held within the framework of the Subsidiary Body for Scientific and Technological Advice (SBSTA). In accordance with the decision, "the workshop, open to all Parties and interested non-governmental participants, should discuss the need for, and possible scope, structure, membership and work plans of,
non-governmental advisory committees and/or a business
consultative mechanism and report recommendations in the light of the
workshop to the Conference of the Parties at its second session."
2. Subsequently, the SBSTA, in one of the conclusions adopted at
its first session, "requested the secretariat to organize a workshop
on non-governmental inputs, as foreseen in the work programme of the
SBSTA, in cooperation with interested Parties and organizations"
(FCCC/SBSTA/1995/3, para. 41). The conclusion went on to say that the
workshop would have to be funded from extrabudgetary resources, that
adequate participation, in particular from developing country
non-governmental organizations (NGOs) have to be promoted and
assisted, and that the conclusions of the workshop would be made
available to the SBSTA for consideration at its second session.
3. To organize the workshop, the secretariat requested the
assistance of the International Academy of the Environment (IAE)
based in Geneva, Switzerland. To help with the preparations for the
workshop, the IAE convened an organizing committee which met on 12
January 1996. The committee comprised two representatives each from
the constituencies of business and industry, municipal leaders and
local authorities, and environmental NGOs. Representatives of two
interested Parties to the Convention attended the meeting as
observers. The members of the organizing committee agreed on
organizational aspects and the structure of the workshop (the
programme of which is contained in section II.A below), and agreed to
assist in the identification both of NGO representatives whose
participation would be funded, and of the speakers, as well as of
those who would serve as co-chairs and rapporteurs of each working
group in the workshop. The workshop was made possible by generous
contributions from the Governments of New Zealand, Switzerland, and
the Netherlands, as well as by the United Nations Industrial
Development Organization.
4. The IAE, with guidance from the UNFCCC secretariat, convened the Workshop on Consultative Mechanisms for Non-Governmental Organization Inputs to the United Nations Framework Convention on Climate Change during the second session of the SBSTA (27 February - 4 March 1996). The workshop was held on Saturday, 2 March 1996, and was co-chaired by the Director of the IAE,
Dr. Bohdan Hawrylyshyn and the Chairman of the SBSTA, Dr. Tibor Faragó. An oral report on the workshop was presented to the SBSTA at its second session by
Dr. Hawrylyshyn. On the basis of a proposal by the Chairman, the
SBSTA decided to postpone discussion of the workshop until its third
session when the formal report would be available in all
languages.
9.00 Plenary
Introduction and opening remarks:
Dr. Bohdan Hawrylyshyn, Director, IAE
Dr. Tibor Faragó, Chairman, Subsidiary Body for Scientific
and Technological Advice (SBSTA)
Presentations on NGO consultative mechanisms
for:
9.30 Business and industry
Guiding principles of a consultative mechanism
Mr. Leonard Bernstein, Global Climate Coalition
Business consultative mechanism
Mr. Hans Buwalda, International Chamber of Commerce
Business and industry participation in technical and economic assessment
Mr. Michael Harris, International Chamber of Commerce
10.00 Municipal leaders and local authorities
The role of local government organizations in consultation with the COP
Ms. Barbara Hall, Mayor of Toronto, Canada
Local governments as strategic partners in addressing climate change
Dr. Ariel Juvenal Ulloa Azocar, Lord Mayor, Concepción,
Chile
The role of local government organizations in technological and scientific consultation
Mr. Christopher Iga, Mayor, Kampala, Uganda
Remarks by the National Association of Regulatory Utility Commissioners
Mr. David W. Johnson, Commissioner of the Association
10.30 Environmental organizations
Value of NGO participation in the Climate Change Convention
Mr. Ravi Sharma, Centre for Science and Environment, India
Building a treaty responsive to emerging science and political will: Mechanisms for flexibility in NGO input
Mr. William Hare, Greenpeace International
Enhancing effective non-governmental organizations participation in the assessment of climate technologies
Ms. Annie Petsonk, Environmental Defense Fund, USA
11.00 Working groups (meeting simultaneously)
Business and industry
Co-Chair: Ms. Bernarditas de Castro-Muller (Philippines)
Co-Chair: Mr. Clement B. Malin (International Chamber of Commerce)
Rapporteur: Mr. Roy Hamme (Edison Electric Institute)
Municipal leaders and local authorities
Co-Chair: Mr. Bert Metz (Netherlands)
Co-Chair: Mayor Barbara Hall (Toronto)
Rapporteur: Councillor John Gormley (Dublin)
Environmental organizations
Co-Chair: Mr. Diego Malpede (Argentina)
Co-Chair: Ms. Louise Comeau (Sierra Club of Canada)
Rapporteur: Ms. Jennifer Morgan (Climate Action Network)
15.00 Working groups (resumed)
16.00 Plenary
Presentations by Co-Chairs of the working groups
16.30 Discussion
Comments on conclusions of working groups
Need for cross-constituency consultations?
17.30 Closing remarks
5. In his opening remarks, Dr. Faragó spoke about the
complexities of implementing the Convention. He stressed that the
purpose of the workshop was to look at how Governments could
collaborate more fruitfully with non-governmental organizations.
Furthermore, the workshop would focus on a mechanism for
consultations, and not on the substance of climate change. Dr.
Faragó also acknowledged that the grouping of the three
constituencies of business and industry, municipal leaders and local
authorities, and environmental organizations as such was artificial,
as those groups were not homogeneous in their membership. For this
reason, it would not be an easy task for the working groups to come
up with a clear position on what they saw as a priority framework for
cooperation.
6. Dr. Hawrylyshyn said that the Convention process should not be
limited to policymakers only, and expressed his support for the
active participation of NGO representatives. He added that, while the
sessions of the Conference of the Parties and its subsidiary bodies
were intended to help guide the future of science in the area of
climate change, they should not be limited to the technological
aspects of climate change. On the contrary, meetings of Convention
bodies should also be aimed at improving public awareness. Action in
the area of climate change was not to be taken only at the national
level, but also at the international level, given that climate did
not respect national boundaries.
7. The programme of presentations at the workshop can be found in
section A above. Presentations were made by representatives of each
constituency group represented in the workshop. The business and
industry constituency spoke of the general principles of business
consultative mechanisms, a proposal for a business consultative
mechanism, and business and industry participation in technical and
economic assessment. The presentations by municipal leaders and local
authorities outlined the role of local governments as strategic
partners in dealing with climate change and its effects, local
government observer status, proposals for local governments to
consult with the Conference of the Parties and its subsidiary bodies,
and their participation in technical and economic assessment. The
presentations by the representatives of environmental organizations
focused on the value of the participation of such organizations in
the Convention process, the role played by them in helping to
implement the Convention, and their participation in technical and
economic assessment. Summaries of the presentations made by all three
constituencies can be found in document FCCC/SBSTA/1996/MISC.2. The
complete text of each presentation is available for consultation in
the offices of the Convention secretariat.
8. Following the plenary session, participants met in working
groups along the lines of the three constituencies mentioned above,
in order to discuss relevant concerns and issues of each respective
constituency in relation to consultative mechanisms. These working
groups were each co-chaired by a representative of a Party to the
Convention and an NGO representative from within that particular
constituency. Each working group also had an NGO representative as
Rapporteur. The working groups were charged with executing the
workshop's mandate as given by the Conference of the Parties at its
first session and formulating recommendations pertinent to that
particular group of NGOs. The plenary of the workshop re-convened
later in the day to be apprised of the working group discussions.
9. In accordance with a recommendation made by the organizing
committee of the workshop, the written report of each working group
would be submitted to the secretariat at a later date, for inclusion
in the present report without any changes made to its contents.
Annexes I, II and III to the present note contain, respectively, the
reports of the business and industry working group, the municipal
leaders and local authorities working group, and the environmental
organizations working group.
10. The Co-Chairmen concluded by saying that all recommendations
would be duly examined. Not only was it important that information
should be easily available, but that it should also be used in a
timely fashion. Participants were reminded that the Bureau of the
Conference of the Parties was available for consultations, and that
as an existing mechanism, it should be used. Other existing
mechanisms and procedures could be improved, such as floor access,
statements by NGO spokespersons, and circulation of conference room
papers to NGOs. As an initial step, therefore, existing mechanisms
could be looked at with a view to making them more efficient.
Participants were also told that it would be helpful for NGOs to
discuss how their input could reach delegations before the formal
meetings.
11. Participants were also reminded that the intergovernmental
technical advisory panels did not yet exist under the Convention and
that reference to such panels was still premature and unhelpful.
1. The business and industry session of the workshop on
non-government advisory committees and/or a business consultative
mechanism was held in Geneva on 2 March 1996. The workshop, an
element of SBSTA's workplan, was convened in accordance with decision
6/CP.1 Annex III (FCCC/CP/1995/7/Add.1), and included the following
charge:
"The workshop, open to all Parties and interested non-governmental
participants, should discuss the need for, and possible scope,
structure, membership and work plan of, non-governmental advisory
committees, and/or a business consultative mechanism, and report
recommendations in light of the workshop to the Conference of Parties
at its second session."
2. Three papers representing general consensus views of the
business and industry ("business and industry" is also referred to in
this report as simply "business" and includes the private financial
community) organizations participating in the workshop were prepared
in response to the decision and presented in the morning plenary
session of the workshop. These papers focused solely on business
mechanisms and did not attempt to discuss what mechanisms might be
appropriate for other NGO groups. Taken together, these papers
articulate a broad range of business thoughts and positions on
consultations with the Framework Convention on Climate Change
(FCCC).
3. As a result of the discussions among the business participants
as these papers were being prepared and subsequent discussion with
Parties and others during the break-out session, business NGOs
reached the following conclusions and recommendations:
Conclusions
4. Business input to the FCCC and other international governmental
bodies dealing with climate change is important if progress toward
meeting the objective of the Convention is to be made. Business has a
wealth of experience in most of the areas of competence required to
progress toward meeting the objective of the Convention. It is
particularly important for the FCCC and other inter-governmental
bodies focusing on climate change to receive this input as they enter
the operational phase of their activities.
5. Adequate consideration of business input would be facilitated
by its formal recognition by the COP.
6. Transparency is an essential component of any communication
between the international business community, and the FCCC and its
Parties.
7. The proposed Business Consultative Mechanism (BCM) would
complement, not supplant, national or other international input
mechanisms. International business organizations are active in the
FCCC process because climate change requires a global response.
8. Business input through the BCM would be available to the
Secretariat for distribution to all Parties. National-level input
mechanisms and current international mechanisms do not provide these
opportunities.
9. International business organizations include membership from
both Annex 1 and non-Annex 1 countries. Thus, the BCM, with its
global reach, could be an important element in facilitating increased
dialogue with business organizations in developing countries.
10. That the general principles outlined in Section C.1 below be
accepted by the FCCC as the basis for the establishment of any
business consultative mechanism.
11. Similarly, business participation, based on the key principles
outlined in Section C.3 below, should be an element in any technical
and economic process serving the Convention bodies.
12. The business non-governmental organizations that have been following the development and implementation of the FCCC welcomed the decision by the Conference of Parties (COP) at their first session in Berlin in April 1995 to include a workshop on NGO inputs as part of the workplan of the Subsidiary Body for Scientific and Technical Advice (SBSTA). Later, in August 1995 in Geneva, the SBSTA agreed to the following conclusion:
"SBSTA requested the Secretariat to organize a workshop on NGO
inputs, as foreseen in the work programme of the SBSTA, in
cooperation with interested Parties and organizations. Such a
workshop could possibly be held preceding the next meeting of SBSTA
(February 24-25, 1996). Adequate participation, including that of
NGOs from developing countries, would have to be promoted and
assistance be provided. The conclusions of the workshop will be made
available to the SBSTA for consideration. The workshop will have to
be funded from extra-budgetary sources; the SBSTA, in this context,
noted with appreciation the support offered by two Parties. The views
expressed by Parties will be taken into account in preparing for the
workshop."
13. During the opening plenary of the 2 March Workshop, three
business NGO presentations were made. Dr. Leonard Bernstein of the
United States detailed a set of ten principles that business viewed
as fundamental to any consultation mechanism with business; Mr. Hans
Buwalda of New Zealand presented an outline of a broad, Business
Consultative Mechanism which would strengthen the FCCC process by
opening an additional avenue of communications and information
exchange between the business community and the FCCC on the full
range of issues facing them; and Mr. Michael Harris of the United
Kingdom discussed the need for business participation in any
technical and economic analysis processes established in support of
the FCCC.
14. Following the opening plenary, business, Parties and others
convened in a "break-out" session and discussed the concepts and
thoughts expressed in these papers. They also considered additional
information offered by Parties and others in business during the
breakout session. As these discussions were limited to business
mechanisms, business did not attempt to reach any conclusions
regarding the proposals, positions, or principles put forward in the
opening plenary by other NGO groups.
15. The FCCC has not reached a conclusion regarding Technical
Assessment Panels as a formal part of the institutions under the
Convention. In order not to pre-empt discussions between Parties to
the Convention, business views on this topic have been restricted to
general principles which might guide technical and economic
assessment processes. These principles have been prepared primarily
in the context of a relatively informal consultative process rather
than that of a formal institution (although more structured and
tightly focused than the proposed BCM). These general principles are
summarized in the body of this report and presented in the paper by
Mr. Harris. Reflecting the statement by the government of New Zealand
at the Workshop, business looks forward to future opportunities to
further develop the details of a technical and economic assessment
process in cooperation with the Parties and the Secretariat.
1. General Principles
16. Dr. Bernstein outlined business activities in preparation for
this workshop and presented 10 principles which would guide a
business consultation process with the organizational bodies
established under the FCCC. The preparations included three ad hoc
business meetings held in Europe and the United States all of which
were open to all interested representatives of business. In addition,
less formal discussions were conducted in conjunction with the
meetings of the Ad-hoc Group on the Berlin Mandate (AGBM) last August
and October - November 1995.
17. The principles below represent the consensus of the business
participants in these meetings and discussions. They state that:
- A business consultative mechanism for the Framework Convention on Climate Change should:
- Provide business with a convenient, direct and effective
additional channel of communication;
- Further enable business to both volunteer information to and
respond to questions from all of the bodies established under the
FCCC in a timely manner;
- Further enable business to provide information to all of the
parties and to the intergovernmental organizations participating in
the FCCC process;
- Further enable business to provide its views on the full range
(policy, socio-economic, technological, etc.) of issues being
addressed under the FCCC;
- Be open to all business NGOs accredited by the FCCC process who
wish to participate;
- Be able to convey the full range of business positions on an
unfiltered basis;
- Not be a process for negotiation of commitments from business,
or for the selection of technology "winners and losers;"
- Be an addition to, not a replacement for, existing or new
business consultation at the national and international level;
- Be treated by the FCCC process in a manner comparable to all
other NGO consultative mechanisms in terms of access and
administrative support, including funding for participants from
developing nations; and
- Be subject to, and consistent with, national and regional anti-trust and competition laws and regulations.
18. Mr. Buwalda presented a proposal for industry to undertake the
establishment of a broadly representative group of business
associations, industry coalitions, and other entities accredited to
the FCCC process to comprise a Business Consultative Mechanism
(BCM).
19. Business considers its participation to be an important factor
in the process of selection, development and implementation of
economically sound policies and programs that may be adopted by
governments. It is business that will meet the growing demands of
consumer goods and services. Business manufactures, transports, and
markets a diverse and full range of products and delivers many of the
services that feed, clothe, house, transport, entertain, and care for
the world's people. It is industry and the private financial
community that marshal most of the financial resources that fund the
world's economic growth. It is business that develops, finances and
manages most of the investments that enhance and protect the
environment. It is business, therefore, that will be called upon to
implement and finance a substantial part of governments' climate
change policies.
20. Some Parties to the FCCC have expressed an interest in
receiving perspective and counsel from business. Business, in turn
has expressed its willingness to expand its participation in the FCCC
process and to assist Parties in their global climate policy
deliberations. Business, in its proposal to establish a Business
Consultative Mechanism, is responding to what it believes to be a
shared commonality of interests. Such a mechanism could provide the
Parties with access to a broad range of business knowledge, skills,
and expertise from business groups with wide geographic and sectoral
representation.
21. The scope of the BCM would have two important components; 1)
communication, consultation and discussion which would include
economics, trade, competitiveness, energy, technology and
environmental impacts; and 2) the interface between the institutional
bodies of the FCCC and the BCM. In this regard, business NGOs can add
value to the deliberations of all bodies. It could also provide an
additional means of communication between business NGOs and other
NGOs accredited to the FCCC.
22. Business proposes to establish a broadly representative group
in which all business NGOs that are accredited to the COP/FCCC would
be invited to participate. It would not be a part of the formal
structure of the FCCC. The framework, activities and internal
processes of the BCM would be determined by the business NGOs
participating in it. Its activities would be subject to and
consistent with applicable national and regional anti-trust and
competition laws and regulations.
23. The "workplan" of the BCM would be determined largely by
issues under consideration in the FCCC process. Business NGOs could,
however, initiate and introduce for discussion with the FCCC
information which, in the view of business, should be considered.
24. Business areas of competence would include, but not be limited to;
- Analysis and assessment modalities;
- Investment flows and perspectives;
- Production and commercialization of products and services;
- Technology research, development, dissemination, and
cooperation, as well as barriers thereto;
- Trade flows and development, and barriers thereto;
- Fiscal incentives and disincentives;
- Technological and operational systems management;
- Voluntary approaches; and
- Joint Implementation and Activities Implemented Jointly.
25. An effective technical and economic assessment process would
facilitate the implementation of the FCCC and its objective over the
longer term by assisting the Parties to identify environmentally
sound and economically viable options for the mitigation and
adaptation to potential global climate change. Business can provide
expertise on issues related to the development, commercialization and
dissemination of technologies and economic information.
26. Mr. Harris presented business views on this matter,
encouraging the Parties to include business participation in any
technical and economic process serving the Convention bodies.
Business participation in any technical and economic assessment
process would be guided by the following:
(a) Participation of business experts selected through an
open-ended and transparent selection process, and drawn from a wide
range of business groups to cover the full spectrum of relevant
technical and economic expertise from both the developed and
developing world.
(b) Recognition of the need for an integrated, long-term and
credible assessment encompassing all sources and sinks of all
greenhouse gases as well as relevant adaptation strategies.
(c) Recognition of the intimate and inextricable relationships
business sectors share with each other, and the need to analyze the
consequences of these linkages when addressing policies and
measures.
(d) A process that produces objective, unbiased, timely, and
peer-reviewed information, which would be available in unfiltered
form to all Convention bodies.
(e) The development of information on options that should be
considered as well as information related to implementation of those
options, including: costs, effects, trade-offs, barriers, technical
requirements, timing factors, capital requirements, market
feasibility, commercial viability, intellectual property rights,
environmental, worker and consumer safety and health considerations,
trade, desirability and other relevant factors.
(f) Information that would be analytical and descriptive rather
than prescriptive.
27. Mechanisms for obtaining input from business should be
flexible and include longer-term perspectives as longer-term
strategies are likely to prove more sustainable than 'quick fixes'. A
credible process that includes timely and appropriate business input
should encompass a broad approach covering all greenhouse gases and
sinks, relevant adaptation strategies, and all elements of business,
including their customers, consumers and technologies. Such a process
could effectively engage the knowledge and cooperation of industry
worldwide to assist the Parties as they strive to meet the objectives
of the Convention in a flexible, cost effective manner.
28. The Co-Chairpersons of the business and industry session of
the workshop, Mr. Clement Malin and Ms. Bernarditas de Castro-Muller
of the Philippines, opened the session. Ms. Castro-Muller stressed
business' special role in addressing the issue. She noted that
industry is a both source of greenhouse gas emissions and will
therefore be affected by any government actions, and also a developer
and potential beneficiary of new technologies. She encouraged
business to share pertinent information and increase its contribution
to the climate change effort and pointed out the need for business
involvement in technology transfer to non-Annex I Parties.
29. Mr. Malin welcomed the business participants and emphasized
the wide diversity and the importance of that diversity within
industry. He then invited the presenters of the business papers
introduced at the Plenary forward and opened the floor to questions
and comments on those papers from Parties and others present. Most of
the questions and comments focused on four areas: the need to open a
formal channel for communications, membership, transparency and scope
of activities.
(a) Need
(i) Business Consultative Mechanism
30. Business believes that comprehensive, timely business input
will be critical to the successful implementation of the
Convention.
31. As one business NGO pointed out, the international business
community has several existing avenues for effectively communicating
its views and information to the FCCC process. Nevertheless, a
formally recognized BCM supplementing the existing avenues for
business input could serve to foster additional input.
32. One area of particular interest to several of the business
NGOs was the possible use of the communications channels afforded by
the BCM to facilitate the resolution of some of the barriers to
technology transfer. Such barriers include the concerns of industry
in regard to the need to establish respect for intellectual property
rights and of obtaining fair returns on investment, as well as the
concerns of developing countries that the technologies should be
appropriate to local conditions and should respect local social and
cultural traditions.
33. International business organizations are active in the FCCC
process because climate change is a global issue requiring a global
response. In this respect, the BCM would complement, not supplant,
national or other international input mechanisms. Business input
through the BCM would be available to all Parties. Conversely,
Parties would be able to solicit information from the entire BCM
membership. National-level input mechanisms and current international
mechanisms do not provide these opportunities.
(ii) Technical and Economic Assessment
34. Business participants recognized the need for and value of
business participation in any future technical and economic
assessment process established in support of the FCCC. Business
expertise can help in crafting credible and workable options under
the Convention and business commitment to undertake actions will be
required in the future if implementation of the Convention is to
succeed.
35. While many details regarding the structure, scope, rules of
procedure, etc. necessary to implement this assessment mechanism will
have to be worked out, it is nonetheless important for business to be
included the process. Business NGO participation is essential to
ensuring the Parties have the information needed to make the most
informed decisions possible in furthering the goals of the
Convention. A mechanism to provide such input would necessarily be
more formally structured and narrower in scope than broad ranging,
informal BCM mechanism described above.
36. Technology assessment has already been initiated by IPCC's Working Groups II and III, by the OECD Expert Group of Annex I Parties, and by some individual Parties. The Secretariat has begun the collation of a 'technology inventory' . Unfortunately, there has been little business consultation and thus, input , in any of these processes. As a result, these activities have given the false impression that the range of viable technologies applicable to a "no-regrets" approach is much broader and more widely applicable than is actually the case. This risks lowering the credibility of the results in the eyes of the very business community which will carry a large share of the responsibility for the practical implementation of any necessary actions. While there has been limited, usually indirect ad hoc participation in the process by a few individuals from business, there has been little attempt as yet to draw on the wealth of expertise and resources potentially available from business world-wide, including from both developed and developing countries. A more structured process for business industry participation could, in business' view, facilitate both technical and economic assessment and the subsequent dissemination and practical application of agreed upon activities.
(b) Membership
37. As stated in the plenary presentation on a BCM, membership
would be open to all business organizations accredited by the FCCC to
the FCCC process. Accreditation is considered a strong indication of
interest and commitment to the process and to informed participation.
The number of accredited business organizations is continuing to
increase and several are actively encouraging and recruiting greater
participation by business interests from non-Annex 1 countries. It
was also noted that many of the currently accredited organizations
are international, with membership from both Annex 1 and non-Annex 1
countries and, as such, can represent many of the concerns of both.
Membership criteria for a technical and economic assessment mechanism
would be based on individual expertise and would not be dependent
upon accreditation to the FCCC process.
(c) Transparency
38. Transparency is very strongly implied in the principles
presented in the plenary session. The BCM would be fully transparent
regarding the identities of its member organizations. Further, all
communications through the BCM would be transparent because all
information submitted from member business organizations would be
transmitted in its unaltered, unfiltered state with the source of all
such information clearly identified. Further, the operations of any
technical and assessment mechanism would also be fully transparent
including expert selection and all information transmitted to the
Parties by this group would be fully attributed.
(d) Scope of Activities
39. As conceived, the BCM would be structured and administered by
its members and function to facilitate communications between
business and the FCCC process. It would not be empowered to filter,
condense and summarize, or alter the information transmitted in
either direction. Further, achievement of a consensus view on behalf
of industry would not be a requirement of its mandate. Diversity of
opinion should not be considered undesirable, but rather informative,
to the process.
Commitments on Behalf of Business
40. As the FCCC is a treaty negotiated between Parties as
sovereign states, NGOs cannot and should not, be negotiating Parties.
While business believes that its views and expertise are important,
they can only be provided through Parties or through the institutions
of the FCCC. By the same token, it is the Parties that enter into
commitments on behalf of their (national) constituencies. Such
commitments do, of course, impinge heavily on business as key
stakeholders.
41. Any commitments accepted by Parties under the Convention will,
after ratification by a Party, require implementation by that Party
through national or in some cases (such as the European Union),
regional legislation/regulation. Because of the national (or
regional) nature of implementation of the Convention, business
commitments can only be made at the national (or regional) level. For
business to attempt to do otherwise would risk conflict with other
legally binding constraints such as those operating under
international trade law (e.g. provisions under the World Trade
Organization) or under national or regional competition (anti-trust)
laws.
42. On the other hand, business operates in many Annex I and
non-Annex I countries in an intensely competitive environment that
rewards the elimination of costly, inefficient operations wherever
viable alternatives are available. To be successful, a business
enterprise can not be satisfied with a 'business as usual' or 'status
quo' attitude. It must do better to survive in a marketplace that is
controlled by the independent actions of others -- other business
sectors, governments, labor and customers. Increasingly, and
appropriately in today's world, the operations, decisions and
commitments of business have to take into account not only laws and
regulations, but also responsibilities to customers, employees and
shareholders, as well as responsibilities to the communities - local
and global - within which it operates. This is sometimes referred to
as a part of our 'license to operate'. These constraints place heavy
commitments upon business if it is to survive. It is through all of
these mechanisms that business enters into and fulfills its many
commitments.
43. After discussion related to the plenary session papers was exhausted, Mr. Malin opened the floor to discussion of additional topics of interest to the participants.
44. An additional and detailed proposal (attached) for
establishing, structuring, and administering a technical and economic
assessment process was articulated on behalf of two NGOs as one
possible approach to business participation in such a process.
45. It was noted that as the SBSTA had not established a TAP
mechanism, detailed NGO initiatives in this area were premature until
the FCCC determined how it would pursue this issue. They also raised
concerns regarding several of the elements contained within the
proposal. One NGO questioned the appropriateness of pursuing such a
process (attachment). It was generally acknowledged, however, that
the proposal did have constructive elements and that development of a
sound technical and economic process is becoming more important as
the FCCC moves into the operational phase of its mandate.
46. A business NGO made the point that the Parties would decide
what is environmentally necessary based on a credible scientific
assessment process and that they also should determine what is
achievable based on a credible technical and economic assessment
process. Such a technical and economic assessment process is lacking.
He then offered that such a process should be one which:
- identifies a scientifically-based, long term, comprehensive
goal;
- includes an effective technical and economic assessment
mechanism that includes a significant role for business expertise and
participation;
- recognizes the long lead times necessary for technological
innovation and dissemination;
- includes commitments, possibly differentiated, for developed
and developing countries;
- preserves maximum national flexibility in achieving the
commitment
- avoids establishment of industry specific regulatory regimes:
and
- provides a concrete mechanism for monitoring to ensure that all nations participate fairly and on an equal basis.
47. The break-out group then noted that industry did not address
how the FCCC side of the BCM should be structured. It also noted that
it could be useful to the process to make the mechanism available to
all FCCC and Inter-Governmental Organization bodies participating in
the FCCC process.
48. Ms. Castro-Muller, session Co-Chairperson, in her concluding
remarks, noted that many business NGOs were indeed committed to
working toward implementation of the Convention, and encouraged the
business community to continue to communicate with the Parties. She
stated that she was particularly interested in the very positive
response to questions regarding technology transfer and how a BCM
could facilitate this aspect of the FCCC's work program. Ms.
Castro-Muller also stressed the importance of transparency in working
with the FCCC process and strongly encouraged the recruiting of new
NGOs from non-Annex I countries.
49. Mr. Malin, Session Co-Chairperson, then summarized his impression of the discussion and thanked the participants, thus closing the business NGO break-out session.
Rapporteur: Councillor John Gormley (Dublin)
1. This report summarizes the deliberations held at the Working
Group on Municipalities and Local Authorities, which took place 11:00
- 14:00 on March 2, 1996 at the Palais des Nations. The Working Group
was co-chaired by Ms. Barbara Hall, Mayor, City of Toronto, Canada,
and Mr. Bert Metz, Head of The Netherlands' Climate Unit.
2. Municipalities represented by their officials in the Working
Group included Dublin, Ireland; Dusseldorf and Bonn, Germany;
Toronto, Canada; Concepcion, Chile; Kampala, Uganda, Jerusalem,
Israel; the Organisation of Islamic Capitals and Cities (OICC);
Kamakura, Japan; and Saitama Prefecture, Japan. Senior staff of the
International Council for Local Environmental Initiatives (ICLEI)
Cities for Climate Protection campaign were also in attendance, as
well as other interested participants from the Workshop, including
representatives of the National Association of Regulatory Utility
Commissioners (US), environmental and business NGOs, as well as
delegates from the second session of the Subsidiary Body for
Scientific and Technological Advice (SBSTA).
3. Local governments are making a valuable contribution to the
implementation of the Framework Convention on Climate Change (FCCC)
by assisting their national governments in reducing urban greenhouse
gas emissions and adapting local populations to climate change. As an
example of local commitment to addressing climate change and its
effects, over 130 cities, whose jurisdictions account for about 5% of
total global carbon dioxide emissions (CO2), have joined ICLEI's
Cities for Climate Protection and have pledged to reduce their
emissions.
4. There is an increasing body of experience, insight, and
technical knowledge in local governments, which needs to be shared in
the Convention process. One example is the variety of financing
mechanisms that local governments have developed to facilitate the
retrofit of their own buildings and facilities with energy efficiency
measures. The fuller participation of local governments in the
Convention process will strengthen the ability of the Parties to meet
their commitments, as well as enable a wider dissemination of
innovation and practical solutions originating at the local
level.
5. Guiding principles for an appropriate mechanism for local
government consultation with the COP include present United Nations
arrangements for consultation with non-governmental organizations,
which date back to Resolution 1296 adopted by the Economic and Social
Council (ECOSOC) in 1968. The criteria for such arrangements are
based on:
(a) the need for the UN and its agencies to secure advice from
organizations that have special competence in the subjects for which
consultative arrangements are made, and;
(b) the need to enable organizations that represent important
elements of public opinion in a large number of countries to express
their views.
6. The ECOSOC guidelines establish two categories of consultation
for NGOs: "Category I or "general consultative status" and Category
II or "special consultative status". To qualify, according to the
ECOSOC guidelines organizations should have recognized international
standing, be international in their organizational structure, and
possess the authority to speak for their members. Furthermore, such
organizations should be able to express the views of major sections
of the population in many countries of the world.
7. A recent guideline approved by the UN General Assembly, Rule
62, is particularly relevant to local governments and may have
further applicability to the COP. Rule 62 was established to guide
local government participation in the Second UN Conference on Human
Settlements (Habitat II). The Rule establishes a distinct "local
government organization" or "LGO" status for the purpose of
participation, without the right to vote, in the deliberations of the
Habitat Conference.
8. Local governments can potentially contribute to and further
strengthen the Convention process in five ways:
(a) Local governments can play an important role in international
emission inventories and tracking. By reporting to national
governments their own greenhouse gas reductions (resulting from
implementation of their Local Action Plans), local governments can
enhance the Convention process by strengthening the Parties' progress
reports to the Conference of the Parties (COP). Further refinement of
the international reporting protocol to recognize local governments
as appropriate reporting "units" would further encourage them to
participate in the reporting process. Such a protocol could also
address methodological problems such as "double-counting" of
emissions reductions that typically occur when multiple reporting
"units" in the same political jurisdiction report their emissions
reductions to their national government;
(b) Local governments can report practical examples or case
studieswhich illustrate the successful implementation of policies and
measures that reduce urban greenhouse gas emissions and adapt the
urban environment to climate change;
(c) Local governments can facilitate the scientific assessment of
the effects of climate change on the urban environment, where nearly
half the world's population will live by the year 2000, which is a
sector that has been overlooked in previous studies of climate
change. Since such effects, including air pollution, health problems,
water and food supply problems, are often the key environmental
problems faced by local officials, greater insight into the
relationship between climate change and local environmental problems
will help encourage integrated solutions that more effectively
address both local and global problems;
(d) Local governments can facilitate an understanding of how best
to transfer technologies and know-how between the developed and
developing nations, especially in such sectors as water supply, waste
treatment, and urban transportation management, where local
governments exercise relevant powers;
(e) Local governments can play an important role is creating
broader public awareness of climate change and the Convention
process. Because they typically operate public elementary and
secondary school systems, local governments can especially reach
school-age children with educational programs. Since many hundreds of
local governments are engaged in an effort to implement Local Agenda
21, educational climate-change initiatives can potentially be
integrated into local sustainable development activities
worldwide.
9. Local governments believe that rather than set up a special
consultation mechanism for NGOs and LGOs, all "input mechanisms" that
presently exist or that are being actively considered, such as the
Technical Advisory Panels, should be open and maximized for
participation by all accredited organizations under present UN and
FCCC guidelines, rules of procedure, and custom. Furthermore, were
the SBSTA to actively consider setting up a new mechanism, then the
principle of parity should be carefully observed to ensure that
environmental and business NGOs and LGOs enjoy equal access to
Convention processes.
10. Local governments believe the most effective consultation
mechanism in the Convention process for their sector would be
recognition of their status as an "inter-governmental organization"
(IGO) or LGO. Hence, LGO participants propose that the International
Union of Local Authorities (IULA) and its environmental wing, ICLEI,
be permitted to participate in the deliberations of all public
meetings of the COP and its subsidiary bodies, without the right to
vote, pursuant to UN and FCCC rules.
11. IULA and ICLEI are the appropriate organizations to express
the views of local governments in FCCC processes, for the following
reasons:
(a) IULA is a Category I organization under the ECOSOC guidelines
and thus already enjoys observer status with UNICEF, FAO, and other
UN agencies that permits IULA representatives to participate, without
the right to vote, in the public meetings of such agencies;
(b) IULA and ICLEI are "inter-governmental organizations."
Together they represent local governments and their national
associations in many countries and all regions of the world. Because
they are democratically governed by their members, they can express
views on behalf of local governments and urban people living
throughout the world;
(c) ICLEI, as IULA's designated environmental arm, possesses
special competence in terms of expertise and knowledge relevant to
the COP and its subsidiary bodies;
(d) ICLEI has represented local governments in a number of recent
UN processes and commissions, including the 1992 Earth Summit and the
UN Commission on Sustainable Development.
12. Local governments suggest that a comprehensive database of
local actions, measures, and emissions reductions, easily accessible
to the SBSTA and its Technical Panels over the Internet, would
facilitate communication and exchange of information between the
local government sector and the Convention process.
13. Local governments are sub-national governments that are
closest to people and their communities, and they are typically
defined legally, institutionally, and financially by legislation
promulgated by their national governments. Local governments in many
countries have organized national associations that represent their
views and positions before their national governments.
14. ICLEI's members are local governments that are duly elected by
local people and presently number over 210 in 50 different countries.
Together, they constitute an international council that meet on a
biennial basis to set strategic directions for the organization and
to elect a governing Executive Committee. All regions of the world
are represented equally on the Executive Committee.
15. IULA's members are national associations of local governments,
and its present membership includes 100 such associations in every
region of the world. IULA's governing council also meets on a
biennial basis, and it holds six appointed seats on ICLEI's board
representing each region of the world.
16. IULA and ICLEI are prepared to immediately provide any further
information to the COP Secretariat to assist in its assessment of the
appropriateness of observer status in the Convention process.
17. ICLEI will submit a brief technical proposal to the UNFCCC
Secretariat that outlines a potential process that seeks to better
encourage local government reporting of emissions reductions,
policies, and measures in a way that would strengthen national
communications under the Convention process.
18. IULA and ICLEI are prepared to submit other scientific and
technical proposals to the SBSTA upon invitation by the Secretariat,
for joint or coordinated activity that would enhance understanding of
the contribution that local governments can make to reducing
greenhouse gas emissions and adapting the urban environment to
climate change. Such proposals would be based in part on a future
worldwide database of municipal policies, measures, and emissions
reductions that is currently in the planning stages at ICLEI. Initial
ideas for such joint activity to emerge from the Working Group
included advancing understanding of:
(a) the potential effects of climate change on the urban
environment and on people living in urban areas;
(b) the relationship between land use, urban sprawl, and local
energy use, as well as the range of municipal policy measures that
can facilitate more rational urban growth that minimizes energy
use;
(c) the range of municipal policies and measures that can reduce
the waste stream and methane emissions associated with the land
filling of organic waste, which accounts for a major proportion of
methane emissions in many Annex 1 Parties;
(d) innovative financing mechanisms being utilized by local
governments to facilitate the retrofit of their buildings and
facilities with energy efficiency measures;
(e) the transfer of technologies appropriate in the municipal
sector from cities in the developed world to cities in the developing
world.
19. Upon request from the SBSTA, ICLEI would be pleased to support
the Secretariat in preparing a progress report on activities in the
local government sector with respect to climate-abatement activities
for presentation at a workshop held in conjunction with a future
SBSTA meeting.
Working Group
Rapporteur: Ms. Jennifer Morgan (Climate Action
Network)
A. Furthering the objective of the United Nations Framework Convention on Climate Change - The role of environmental NGOs
1. It is clear that the discussion of the need for, and possible scope, structure, membership and work plans of NGO advisory committees and/or consultative mechanisms, should be founded on one overriding principle - Does the creation of such a mechanism further the ultimate objective of the Framework Convention on Climate Change? That is, does it, or those NGO participants in such a mechanism work for the "stabilization of greenhouse gas concentrations in the atmosphere at a level that would prevent dangerous anthropogenic interference with the climate system?"
2. Indeed, the further development of consultative mechanisms or processes for NGO input and involvement in the Climate Convention must be guided by the basic test of whether or not they will accelerate the prevention of dangerous interference with the climate system. In other words, mechanisms for NGO involvement in the convention process should be judged by whether or not they assist in building the agreements needed to reduce global greenhouse gas emissions.
B. Principles
3. Whatever additional mechanisms may develop, certain principles need to be followed. First, mechanisms for inputs must be open and available to all stakeholders, including local governments, and the environmental and business communities.
4. Second, to ensure equitable participation in any process, it is also essential that adequate funding be provided to facilitate the sustained participation of NGO representatives from developing countries.
5. Thirdly, the diversity of NGOs needs to be acknowledged. We have different interests and expertise and attempting to narrowly channel input will be counter-productive. We are fundamentally grassroots based groups and like to see political will developed from the "bottom-up".
C. The Role of Environmental NGOs
6. Environmental NGOs are the organizations which globally build public confidence in the treaty. They are the ones informing citizens directly on the meaning and the importance of the treaty, building the public support crucial to achieve the political will critical to achieve the aim of the treaty.
7. In addition, the NGOs play a pathbreaking role by practically demonstrating the technical and economical viability of projects in reducing GHGs. Furthermore, the environmental NGO's natural mandate matches the Convention's final goal. Some examples of environmental NGO successes in supporting the Convention are:
(a) Building public awareness and channeling funds leading to
common concern;
(b) Analyzing issues and highlighting possible solutions;
(c) Monitoring and evaluation of policies (ECO, country reports,
energy efficiency, green rating);
(d) Encouraging debate in the developing countries by spreading
awareness about stakes and by assisting them with information and
advice;
(e) Undertaking firefighting operations by opposing projects which increase GHG emissions;
8. Another example where both environmental NGOs and business NGOs have been playing a constructive role is in technology assessment. For example, one business group took the positive step of proposing a technology assessment process that supports the objective of the Convention.
9. The success of any mechanism for assessing climate technologies is the effectiveness of that process in furthering the objective of the FCCC as stated in Article 2 of the Convention. NGOs can help infuse confidence in the technology assessment process; the process can then in turn build further confidence in societal capabilities for adopting the steps necessary to meet science-based greenhouse gas emissions reduction objectives. Successful technology assessment engages problem solvers from around the world in evaluating the technical feasibility of greenhouse gas emissions reductions. Successful assessment addresses sustainable, innovative technologies and practices that are effective in helping confront the serious threat of climate change.
10. Also, diffusion of ideas and technologies from both the developing and industrialized world is critical. For example, cities from Beijing to Budapest to Bombay, Santiago to Nairobi, Rome and Los Angeles can all obtain cleaner air for their residents by increasing the proportion of green fleets of vehicles, and expertise is developing in those cities in the technologies needed to accomplish this goal. In this process it is vital to identify sustainable technologies that have worked in specific situations and can be brought forward effectively in broader contexts. The development of alternatives to CFCs and CFC-based technologies provides a useful example.
11. Since many ideas and much expertise and experience in particular climate-sustainable technologies exist outside of government, non-governmental participation can enhance the effectiveness of technology assessment, helping ensure that technology assessment serves the objectives of the Convention. It is vital that governments draw on this expertise in assessing technologies for greenhouse gas emissions reductions.
12. The input of environmental NGOs is particularly important since it is generally not subject to the real or potential conflicts of interest that purveyors of particular technologies possess. NGOs are thus able to offer fresh perspectives and creative approaches that, for various reasons structural to particular markets and regulatory regimes, are not adequately reflected in the private, for-profit sector. The experience and expertise of local communities and local authorities is also critical. Local communities bear the brunt of environmentally and economically adverse effects of economic activity, including greenhouse-gas-producing activity. Local communities are also the locus of decision-making about much of this activity. And technology approaches to addressing particular issues (e.g., reducing greenhouse gas emissions) that earn the respect and liking of local communities stand a much better chance of being implemented, while technology approaches that fail to win local support will not succeed.
13. The Convention needs flexible mechanisms such as its technology assessment process to support the Treaty, in line with Agenda 21, which clearly demands NGO input and access. These mechanism should be based on the "bottom-up" view that most environmental NGOs bring to the process, and not on a "top-down" input mechanism determined by a few for a few. We strongly believe that such a mechanism should reflect the diversity of NGO views, in support of delegations' divergent needs and capacities.
D. Specific Recommendations of Environmental NGOs
14. Environmental NGOs do not believe there is currently a need for additional input or consultative mechanisms. There is, however, a need for the enhancement and deepening of current mechanisms such as access, technology assessment and others to assist the Convention process in reaching its ultimate objective. We therefore especially question the establishment of a separate business consultative mechanism. It is unclear, even after the NGO workshop, what a business consultative mechanism would accomplish, what its goals are and whether it is striving to achieve the objective of the Convention. An emerging business voice in both furthering the objective and playing a constructive role is now evident and should not be diverted by a separate mechanism for input. In fact, all business constituencies should be asking what business can do for the Convention, rather than what the Convention can do for
business.
15. There are a number of different ways in which NGO involvement in the Convention needs to be enhanced. Some of those are outlined below.
1. Access and intervention
16. NGOs should be given much freer license to intervene from the floor. A practice has evolved whereby NGOs are allocated a single, brief opportunity to address the plenary session. Much more constructive dialogue is possible if NGOs are given greater leeway to intervene whenever called upon by the Chair under individual agenda items. This is the practice within, for example, the Commission on Sustainable Development, the Montreal Protocol and IPCC Plenaries. In these places, a more free-form dialogue facilitates the expression of the variety of perspectives and technical expertise within the NGO community, in a way that is simply not possible within the confines of a single five minute intervention at the end of a long week.
17. Practice during the INC era was somewhat less rigid than it currently is in the AGBM. The deliberations of the First Session of the Ad Hoc Group on Article 13 allowed for much freer inputs from the non-governmental community, and, we believe, AG13 clearly benefited from that practice. The recent change in SBSTA is an important first step to build upon. Moving forward from the Rio process means expanding the formal and informal roles of NGOs, yet the Convention is heading in the opposite direction. This practice should change. Other crucial elements of access and equity include - How does the Convention bring in small businesses which benefit from the implementation of the Climate Convention and that have so much to contribute? How does the Convention ensure that Southern views, from all constituencies, are included?
2. Formal inputs to agenda items
18. In the negotiating bodies of the Convention it should be standard practice for the Secretariat to solicit views of NGOs on specific agenda items. These inputs could be compiled in a separate section of Miscellaneous documents, perhaps following the submissions from governments. AG13, for example, circulated a questionnaire to governments, IGOs and NGOs alike to elicit their views on the multilateral consultative process. All of the responses will be compiled and circulated. There is no reason why this practice cannot be replicated and expanded in other Convention bodies, particularly, but not limited to, the AGBM. NGOs have relevant expertise and experience in a variety of related fora, and have proven to be an important source of creative thinking in the negotiating process. At this juncture, the AGBM should undertake to facilitate creativity from all quarters.
3. NGO Involvement in the Technology Assessment Process -
Principles to be followed
19. There has been a great deal of discussion in SBSTA regarding technology assessment. Most participants in the NGO workshop stated that whatever specific approach is developed for undertaking climate technology assessment, the following principles are essential. The principles were in fact, highlighted in both the environment and business presentations and should be implemented wherever technology assessment occurs.
(a) Program of the work
20. The technology assessment work program should undertake a
two-fold approach: (1) the initial program should focus on short-term
technology assessment priorities in specific substantive areas, aimed
at answering geographically specific questions about the technologies
to achieve scientifically-driven reduction objectives, and focusing
on technologies that may be more generally replicable; and (2) if
this endeavor proves its worth, a second phase should take a
long-term view with regard to the establishment of other technology
assessment priorities as short-term questions are answered.
(b) Content of the work
21. In both the short- and long-term work, the process should emphasize the assessment of specific innovative technologies and processes for reducing greenhouse gas emissions. A necessary element of that assessment will be methodologies for evaluating the effectiveness of the technologies and processes in reducing emissions. A subsequent component could be the assessment of adaptation technologies and processes; similarly, a necessary element would be methodologies for evaluating the effectiveness of those adaptation technologies and processes.
(c) Duration
22. The results of the initial assessment work should be examined in two years, and the effectiveness of the process reviewed at that time. The process may be renewed if it is serving the objective of the Convention and national development priorities.
(d) Principles of Effective Technology Assessment
23. CAN NGOs have identified the following principles that we believe underlie effective technology assessment. These are: participation of experts based on actual technical expertise and experience; independence of the experts ( experts do not present directed votes or positions instructed by governments, industry, NGOs or other entities); disclosure of conflicts of interest; developing country expertise and experience; expertise on alternatives, including operational/process alternatives; equal footing (experts, whether drawn from government, business or environment NGOs, local authorities or the academic community, participate equally in the assessment process); performance-based evaluation (technologies to be assessed in terms of their performance in reducing greenhouse gas emissions); review by peers (work of the technology assessment process to be reviewed mutually by the experts involved and by other experts of comparable expertise, rather than by governments or organizations); unfiltered work product (reports to be published and distributed directly to the Parties).
24. Experience shows that where these principles are followed, they can be effective in providing a level playing field that encourages the development and diffusion of sustainable technologies and processes to achieve science-based environmental goals.
25. Failure to premise the process of technology assessment on these principles risks politicization of the technology process and consequent "picking winners and losers" on the basis of political concerns. The ultimate net losers will be the world's climate, as international decision-making turns to ineffective technologies, and also developing countries and local authorities, stuck with technological boondoggles rather than competitive, effective technologies for reducing emissions of climate-changing greenhouse gases.
4. Information dissemination
26. NGOs can help implement the commitments in the convention to
public education on the threat of climate change and the possible
solutions. The operation of information programs such as the
Information Unit on Climate Change could be significantly enhanced by
opening up its operation to NGOs. We would also support the
Secretariat itself in organizing events at the national level
publicizing the Convention. With the support of the Canadian
government, a Canadian NGO recently undertook a highly successful
cross country tour to raise awareness about climate change and the
Convention. We would like to replicate these activities, and help
governments fulfill their commitments under Article 6 of the
Convention.
27. Providing a mechanism for NGOs to evaluate and attach our views to the reviews of national communications. We would like, for example, to evaluate whether or not our governments are indeed achieving the reductions they are saying they will achieve, and we would like to support additional means to "close the gap" if our governments are falling short. We do this already informally though our CAN national communication reviews. What we are asking for now is the opportunity for a formal mechanism through which these reviews could be communicated to the Convention, with parties having the opportunity to respond. This type of procedure is done successfully in other international fora. In regards to non-Annex I communications, non-Annex I NGOs should be included in the development of in-country capacity building in the formulation of national communications.
6. NGOs on National Delegations
28. As stated above, NGOs bring expertise, analytical skills and a bottom-up view to these negotiations. It is unfortunate, therefore, that only a few Parties take advantage of this knowledge by placing NGOs on their own delegations. NGOs could be especially helpful to Parties that are only able to send one representative to the negotiations. NGOs should be given the opportunity to be included on delegations.
7. Demonstration projects
29. Enable NGOs to implement demonstration projects at the
national level that reduce greenhouse gas emissions. We believe that
environmental NGOs have the expertise, and more importantly, a sole
interest in reducing GHG emissions, not in promoting particular
political or economic interests. The Climate Change Convention and
the GEF Council could expand the program for NGO funds now limited to
$50,000 to an open system in which NGOs, national institutions, etc.
could apply for funds.
30. Finally, ensuring that the Convention and its future protocol or protocols are effective involves building in flexibility and dynamism. If these elements are not built in the system will stagnate and not be able to respond to new science. Without the capacity for dynamism NGO input mechanisms will be virtually irrelevant.
31. There are a number of ways such flexibility can be developed. The German proposal for annexes to the protocol which would contain lists of policies and measures is modeled on this approach, and represents the first emergence of creative thinking in the AGBM.
32. A key example is the adjustment procedure of the Montreal Protocol. The Meeting of the Parties can, by a specially qualified majority vote, advance the phase out schedule for ozone depleting substances that are already subject to control under the Protocol. The protocol being negotiated by the AGBM should develop its own ratchet mechanism to adjust the reduction targets and timetables, to set sector or gas specific targets, etc. The protocol by its very nature should be legally binding.
E. Conclusion
33. These are only a few suggestions of how NGO involvement in the Convention can be enhanced. Greater flexibility might be introduced into the Climate Change Convention. Information and creativity from the NGO community will be an essential component of successful negotiation of the next stage of the convention as well as the monitoring and verification of its commitments.
34. However, NGO information and ideas will be useless if they fall on deaf ears. In this context the first big test of the Convention's institutions will be how effectively they respond to the latest findings contained in the IPCC Second Assessment Report.
35. The Report' s conclusion that there is a discernible human influence on global climate is a clear basis for strong action. The SAR has identified impacts which would clearly constitute dangerous anthropogenic interference with the climate system. The AGBM must acknowledge these findings and respond with a renewed sense of urgency and purpose in its deliberations.
36. The second test will be the outcome of the AGBM process in 1997 - will the AGBM develop the kind of flexible protocol, containing legally binding targets and timetables for emissions reductions, that will set us on a path towards meeting the ultimate objective of the Convention?
37. There is a strong reinforcing mechanism in this process. In
order for NGOs to play the critical role they do, they must be able
to base their activity on a legitimate, evolving Convention that is
moving toward its objective. Enhancing NGO involvement can and should
help achieve these objectives and thereby reinforce the Convention
itself.