Deepening divisions between developed and developing countries promise to make Cop 30 an arduous summit, writes Rhys Talbot
Progress in technical discussions at the UN climate conference in Bonn, Germany, still leaves much work for the incoming Brazilian presidency ahead of November's Cop 30 summit in Belem if it is to deliver a strong outcome on emission cuts.
After a rocky start in Bonn this month, with a two-day fight over the agenda, negotiators delivered texts across a number of areas relating to emission reductions. The Brazilian Cop takes place 10 years after the Paris agreement, in which states agreed to limit global warming to well below 2°C and preferably 1.5°C, and two years after Cop 28 in Dubai, when they undertook the global stocktake (GST) to measure progress on reaching Paris goals and pledged to phase out fossil fuels.
The annual Bonn talks are intended to allow negotiators to prepare the ground for political decisions to be made at Cop. But this year, even those discussions that have advanced well have tended to produce large texts with many mutually exclusive options in brackets, reflecting incompatible positions that will have to be worked out by policy makers between now and the end of the Belem Cop.
The main arena for considering fossil fuels, a discussion of the meaning of the GST, has left a heavily divided text to Belem. Developed countries have argued for a longer, more extensive process, while some parties — including China, India and Saudi Arabia — have tried to limit the scope, duration and outputs of the sessions. And the texts do not directly address the elephant in the room — countries are this year delivering their nationally determined contribution (NDC) documents laying out their plans to cut emissions.
Those plans are likely to be insufficient to limit global warming to 1.5°C. And the Brazilian presidency will have to grasp the initiative to find a way to ensure advances on the Paris and Dubai goals. The leader's summit to be held immediately before Cop could offer a chance for movement. The release of a keenly awaited synthesis report of NDCs on 24 October could offer a spur to this summit. "People will want a reaction from our leaders" when the report comes out, Cop 30 executive director Ana Toni said.
But Brazil rejects the idea of a cover decision at the end of Belem as a home for discussion of fossil fuels. And the presidency has been reluctant to attack fossil fuels head on. "This is not an item of negotiation, the GST is," Toni said. Brazil must wrangle a fractious conference including major fossil fuel producers such as India, Saudi Arabia and Russia which resist any action on the topic, as well as facing criticism over its own plans to increase oil and gas production.
Climate finance fight
Climate finance permeated the Bonn talks, with developing countries trying to steer various work programmes towards the issue, while developed countries attempted to limit discussion. Developing countries said the finance settlement reached last year at Baku does not meet developed countries' obligations under the Paris agreement, as well as being far short of actual needs.
And in parallel, they expressed their frustration with carbon border adjust mechanism (CBAM)-type arrangements planned for the EU and UK, and projected for Canada. Developed countries see these as essential to protecting their domestic industry and preventing carbon leakage, given their high carbon costs, but developing countries say the costs will fall mostly on them.
These two issues appear likely to crop up again as stumbling blocks at Belem that the presidency will have to tackle with political engagement beforehand. Brazil has promoted Cop 30 as an "implementation" Cop, with no one particular agenda item dominating. This gives the country the arduous task of having to make concrete progress on many items, rather than focus on one headline target.
