COP28: An Overview of Progress and Setbacks at the Most Important Climate Conference in 2023

Written By Eashtha Dediwela, Danielle Hadley Grave, Rahma Kiriwe, Jean Emmanuel Ezrou, Anna Mary Jose,  Elizabeth Akantorana and Leena Joshi || Guest Bloggers
Edited by Derrick Otim and Alice Finno || CAC Volunteers

Credit: Care About Climate 

As the dust settles on the 28th Conference of the Parties (COP28) to the United Nations Framework Convention on Climate Change (UNFCCC), the world is left to reflect on the outcomes of yet another critical climate summit. Hosted in Expo City, Dubai, UAE, from November 29th to December 13th, 2023, the conference faced considerable criticism and backlash from climate activists and civil society groups prior to its commencement. Their concerns centered around the choice of a city reliant on petroleum as a leader in fossil fuel phase-out efforts, as well as the appointment of Sultan al-Jaber, the head of the state-owned oil giant Abu Dhabi National Oil Company (ADNOC), one of the world’s largest oil companies, to lead the COP28 climate talks.

Despite the controversies, the conference proceeded. Yet, upon its conclusion, many observers departed feeling dissatisfied with the outcomes, particularly regarding the language on fossil fuels used in the final GST text . Conversely, some policymakers hailed it as “The beginning of the end of the fossil era” and “a historic COP”. In this blog we dive into some of the outcomes and the highs and lows of the conference.

COP28 was a chance for all its member countries to discuss the shift away from fossil fuels - the “beginning of the end of the fossil fuel era,” where the identification of alternatives to fossil fuels – a key contributor of greenhouse gasses and thus climate change – was a priority. In this regard, COP28 brought a realm of new international pledges, the creation of a fund to aid vulnerable nations in paying for climate-related damage (the loss and damage fund), and the publication of an assessment that monitors global progress in climate change mitigation. 

By Eashtha Dediwela

COP28 : the Highs and the Lows

COP28 presented some highs as global leaders and grassroots activists came together to observe our global progress in climate change management and mitigation efforts. Of course, with these highs come the challenges in actualizing these goals, and the grave realities of inequalities only further exacerbated by the climate crisis and current efforts at climate diplomacy.

Indeed, the 28th edition of the UN Climate Change Conference resulted in the adoption of the historic “Loss and Damage Fund”, which is a step in the right direction for climate justice, as the fund aims to support vulnerable nations facing the worst impacts of the climate crisis. These nations are also those that contributed the least in terms of greenhouse gas emissions and are the most vulnerable to the negative impacts of the crisis. 

While this development signals a positive step toward climate justice, as of now the pledged fund is worth less than 0.2% of the requisite amount. The historic contributors, including nations such as the UK, US, and large emitters such as China, have pledged a disproportionately and disappointingly low amount to the fund. The US is responsible for 20% of global emissions since the 19th century, and yet it has contributed only $17.5 million.

Furthermore, the loss and damage fund sounds great on paper, but holding historical contributors accountable has proved difficult in the past: in 2009, developed countries pledged $100 billion annually to developing nations to support climate adaptation and mitigation efforts, and this target has not been met. The fund is also to be temporarily managed by the World Bank, which typically provides loans with conditionality rather than grants. Hence, there is reason to be critical of developments such as the loss and damage fund, and global leaders and historical contributors must be held to their word.

Another concern during this year’s COP28 was that its President, Sultan Al-Jaber, is also the head of ADNOC, the UAE oil giant, and has been accused of denying climate science, although he has denied these claims. Even more critically, perhaps, was the stark reality that 2456 fossil fuel lobbyists were present, while only 316 official Indigenous representatives were included in the deliberations. Similarly, women are consistently underrepresented in COPs, and this year, only 15 of the 133 world leaders were women. It is clear that the most vulnerable communities and nations are underrepresented in the most significant climate diplomacy conference globally, significantly impacting the outcomes.

Indeed, the conference was extended by a day as participants struggled to agree on the terminology used in the final text output –  finally agreeing on using « transitioning away » from fossil fuels rather than a more measurable term, such as « phasing out ». It is clear that the immediate phase-out of fossil fuels is necessary for life on earth, and particularly the lives of the most vulnerable and marginalized communities.

One final highlight ofCOP28 was seeing the consistent protests for a ceasefire in Gaza, particularly by indigenous activists, during the 14-day conference. While these protests were not included in the conference's more formal spaces, they were allowed to take place, voicing the important link between climate justice and justice for Palestine. 

By Danielle Hadley Grave

Credit: Care About Climate

Final Negotiations and GST final text: the disappointments amidst 'success'

Amidst the flurry of negotiations and the anticipation surrounding the Global Stocktake (GST) final text, there are both moments of celebration and disappointment.

The COP28 negotiations were a testament to the complexities and challenges of global climate governance. With the clock ticking on the imperative to curb greenhouse gas emissions and limit global warming to 1.5°C above pre-industrial levels, expectations were high for meaningful progress towards achieving the goals set out in the Paris Agreement

However, as negotiators grappled with the intricacies of the GST final text, it became evident that reaching consensus on key issues remained elusive. One of the primary areas of contention was the level of ambition in emissions reduction targets. While some countries pushed for more aggressive targets in line with scientific recommendations, others cited economic constraints and domestic priorities as barriers to committing to more ambitious goals.

The disappointment was palpable as the final text of the GST fell short of delivering the ambitious outcomes needed to address the climate crisis effectively. Despite calls for bold action, the text lacked clear commitments and timelines for ramping up emissions reductions, leaving many observers frustrated by the lack of progress.

Another point of contention was the issue of climate finance. Developing countries, particularly those most vulnerable to the impacts of climate change, emphasized the urgent need for increased financial support from developed nations to aid in adaptation and mitigation efforts. However, disagreements over the allocation and disbursement of funds hindered meaningful progress on this front, further underscoring the challenges of addressing the climate finance gap.

In the aftermath of COP28, the disappointments must not overshadow the successes and progress achieved. Despite the challenges and shortcomings of the final negotiations and GST final text, COP28 served as a platform for dialogue, collaboration, and awareness-raising on the urgent need for climate action.

Moving forward, it is imperative that the momentum generated at COP28 is sustained and translated into concrete actions at both the national and international levels. This requires renewed commitment from all stakeholders, including governments, businesses, civil society organizations, and individuals, to accelerate efforts to reduce emissions, enhance climate resilience, and mobilize the necessary resources to support vulnerable communities.

While COP28 may not have yielded the groundbreaking outcomes many had hoped for, it serves as a reminder of the ongoing struggle to address the existential threat of climate change. As the world collectively grapples with the challenges ahead, the lessons learned from COP28 must inform and inspire bolder and more decisive action in the fight against climate change. The road ahead may be fraught with obstacles, but the urgency of the climate crisis demands nothing less than our unwavering commitment and resolve.

By Rahma Kiriwe

Credit: Care About Climate

Progress on Loss and Damage, Adaptation and Mitigation

COP28 highlighted three key pillars in the global battle against climate change: loss and damage, adaptation, and mitigation. Loss and damage discussions saw progress with countries working on financial mechanisms to support regions already struggling with the effects of climate change. Compensation and liability, however, remained a contentious issue, reflecting the continued challenge of holding historic emitters to account for damage. 

Progress on Adaptation

Adaptation discussions focused on inclusive strategies, emphasizing the value of local expertise and traditional methods. Financial commitment for adaptation projects increased, with a focus on transparency in fund use. 
The text of the Global Goal on Adaptation (GGA) was not improved with regards to finance and concrete goals, which means a significant step back on adaptation.
Despite the great advancement of the Loss and Damage fund, representatives such as Special Envoy to Prime Minister of Bangladesh for Climate Change expressed that this improvement could not mean a decrease in finance for adaptation as well as for mitigation.
Despite the great advance on the Loss and Damage fund, representatives such as Special Envoy to Prime Minister of Bangladesh for Climate Change expressed that this improvement could not mean a decrease in finance for adaptation as well as for mitigation
The GGA would be especially important for developing countries, least developed countries and small island developing states, that urged that the text could reflect Article 7 of Paris Agreement purposes, considering local and regional effects and the particular vulnerability faced for each State.

Progress on Mitigation

Mitigation efforts focused on ambitious emission reductions and a transition to renewable energy, even though worries about the lack of progress towards the Paris Agreement targets persist. 

According to the final text, parties, observers and other non-party stakeholders are encouraged to submit by 1st Feb '24 suggested topics to be discussed at the global dialogues in the next year and to share opportunities and challenges, including incentives and national policy approaches for action.

One of the highlights is the request addressed to the UNFCCC secretariat to organize investment-focused events for mitigation at global and regional spaces, such as the regional climate weeks, that will count with the presence of potential financiers, such as multilateral development banks, financial institutions and relevant multilateral climate funds, including the Green Climate Fund. Countries and other stakeholders can build up and submit events to these spaces.

The necessity of participation of experts from developing countries in the events is noted, with the suggestion to expand virtual participation opportunities. This decision is important to provide a participative discussion.

Loss and Damage

The operationalisation of the Loss & Damage Fund was one of the signature achievements of COP28. Announced to considerable surprise on the opening day, the fund - designed to compensate developing countries for the impact of climate disasters - quickly accrued $425.7 million worth of contributions.
By the end of the conference, this sum had risen to $770.6 million - although $115.3 million of that total will be used to implement the fund, rather than to further developing countries’ needs. Whilst the Loss & Damage Fund’s establishment was a clear mark of progress, the finance mobilised thus far represents a mere 0.2% of what is required each year and due to a less than ambitious outcome of the GST, this number is only likely to grow.
In addition, countries still need to clarify whether their pledges to the Fund are grants, not loans, and new and additional to adaptation finance and other climate and development finance, and that they intend to live up to their promises to at least double adaptation finance.
The involvement of developing countries in the Loss & Damage Fund became a topic for discussion as COP28 progressed. One positive is that a majority of the Fund’s 26 board members will be from developing countries, ensuring that their role is substantive. However, a more controversial matter was that the fund was established under the umbrellas of the World Bank, which some developing countries feel is too reticent to mobilise funds when required.
Meanwhile, debate also ensued surrounding the matter of the Fund’s donor base - an initial $100 million commitment from COP28 hosts the UAE led some parties, such as the US, to suggest that developing countries could pay into the fund as well. This could obfuscate the responsibilities of developed countries to lead the way on the mobilisation of finance under the Paris Agreement.
The Santiago Network on Loss and Damage saw significant progress at COP28 in the selection of hosts UNOPS and UNDRR, which means it is now fully operationalised. The mandate of the Santiago Network is to catalyze technical assistance to developing countries, and it is expected its work will start imminently. Still to be decided is the headquarters for the secretariat and the Advisory Board, and securing additional financial commitments from countries.
The Santiago Network plays a significant part in enabling developing countries to understand the effects of loss and damage on their communities through the provision of technical assistance. The Network could also provide assistance to developing countries when requesting finance from the Loss and Damage Fund
COP28 showed global engagement, but it also highlighted the challenges of translating pledges into action and navigating geopolitical complexity. As nations work together, future conferences will need to deepen commitments, drive innovation, and find a more equitable path to a climate resilient future.

By Derrick Otim and Jean Emmanuel Ezrou

Credit : Care About Climate

Updates on ACE, Finance, and Just transition

Action for Climate Empowerment

Action for Climate Empowerment (ACE) is a term adopted by the UN Framework Convention on Climate Change to denote work under Article 6 of the Convention and Article 12 of the Paris Agreement. ACE's primary objective is to enable all segments of the population to participate in climate action. This is facilitated through its six elements: education, public awareness, training, public participation, access to information, and international cooperation on climate-related issues.

During COP28, the Subsidiary Body for Implementation (SBI) focused on evaluating progress in ACE implementation through a detailed report. This report provided insights from various nations and stakeholders on the integration of ACE objectives into their Nationally Determined Contributions (NDCs).

On December 2nd, a preliminary negotiation draft concerning ACE was presented. However, discussions were postponed to the Bonn climate conference next summer. The European Union and Canada expressed their disappointment over the hiatus, with the EU particularly noting its regret over the "static positions" of some nations that led to a stalemate, preventing any substantive conclusions regarding ACE at COP28.

Finance

In the context of COP28, developing countries have reiterated the necessity for substantial financial support to meet ambitious goals. A cohort of developed nations, comprising the US, Western Europe, Japan, and other countries from the "global north," are mandated by the UN to provide climate finance to assist the developing world in their climate change efforts, mainly in the form of development aid.

These developed nations had the obligation to supply at least $100 billion annually in climate finance to developing countries from 2020 to 2025. However, their failure to meet this target has contributed to a general lack of trust within this critical part of the UN climate system.

Looking forward, discussions are ongoing to establish a post-2025 climate finance framework, known as the new collective quantified goal (NCQG), which is slated to be a central issue at the upcoming COP29 in Baku, Azerbaijan. In preparation, countries have engaged in dialogues with experts and ministers to lay the groundwork for this decision. Developing countries, which expect to be the main beneficiaries of this new target, want to move faster on deciding its details. Developed countries, on the other hand, have been happy to delay discussions on anything substantial until they are forced to do so.

Proposals for generating climate finance include levies on high-emission sectors and reforms in multilateral development banks (MDBs) to unlock additional funding. These proposals were highlighted in the UAE-led Leaders’ Declaration on a Global Climate Finance Framework, endorsed by 13 national governments on the third day of COP28. This declaration is part of a concerted effort to consolidate diverse initiatives from recent months aimed at financial reform. Notable among these are Barbados' Bridgetown Initiative, the commitments from the financial summit earlier in the year, and the Nairobi Declaration from the first African Climate Summit.

A key focus of the declaration was to enhance the effectiveness of MDBs, a topic that has gained traction internationally. The final agreement from the global stocktake at COP28 echoed this sentiment by urging MDBs and other financial institutions to escalate their investments in climate action.

Just Transition

What should a “just” transition” look like? A "just" transition is a multifaceted concept that requires a comprehensive set of values to address the needs and concerns of workers, communities, and nations affected by the shift towards a low-carbon economy. Its essence truly lies in the balance between universal environmental objectives and the diverse economic and social realities across different regions.

To advance this concept into actionable strategies, the Just Transition Work Programme (JTWP) was established. This programme, part of the Sharm el-Sheikh implementation plan, seeks to deepen global comprehension of just transition pathways. The JTWP held its first high-level ministerial round table at COP28 to facilitate countries’ just transition to a low-emissions and climate-resilient future through actions that also contribute to reducing inequalities, both within and between countries. 

However, the JTWP faces the significant hurdle of bridging the linguistic and conceptual divides that have emerged, particularly between developed and developing nations. While developed countries broadly view Just Transition as a labor transition, developing countries argue that it should be multilateral. This language change occurred during the closed-door consultations under the presidency. The exclusion of key parties both during this process and going forward was flagged as a concern by many throughout COP28.

After intense negotiations and 12 drafts, the JTWP achieved a consensus. The conclusive document was made public in the early hours of 13 December and was ratified in the closing plenary. This final version, largely unchanged from the draft dated 10 December, notably included human rights in its preamble, an inclusion that had been previously debated, as reported by observers to Carbon Brief.

By Anna Mary Jose

The Youth Angle : was COP inclusive?

Although young people continue to encounter difficulties in obtaining accreditation and gaining access to the negotiation rooms, there has been a notable rise in the number of youth participants at the UNFCCC conferences. However, the question arises as to whether their participation is meaningful and whether they are actively engaged in decision-making processes.

The distinct impacts of climate change on children and youth underscore the critical importance of their meaningful participation and representation in climate policy negotiations. Research shows that a child born in 2020 will face twice the risk of experiencing wildfires, 2.6 times the risk of drought, 2.8 times the risk of river floods and 6.8 times the risk of heatwaves compared to a person born in 1960 if emissions were to follow the original Paris Agreement pledges.

COP27 introduced the first ever Children and Youth Pavilion, offering a venue for young individuals to convene and organize events centered on addressing climate change through a youth-oriented perspective. COP28 hosted the second edition of the Children and Youth Pavilion. On December 8, we saw the flagship of the Youth, Children, Skills and Education Day which hosted the first ever Youth Stocktake, bringing together thousands of youths across the globe in their commitment to climate action. Education and future skills were a key focal point throughout the day where 38 countries agreed to sign the UNESCO Greening Education Partnership Declaration, committing to incorporate climate education into their Nationally Determined Contributions (NDCs) and National Adaptation Plans (NAPs).

“It was a global call and every individual who met the criteria for attending was invited for the cause. Many youths across the globe participated in this conference. I am a Ugandan youth but was invited despite the fact that I didn't manage to attend. However, I always followed the event through online platforms, and I was greatly inspired seeing young people actively involved in the discussions with one of the youth, H.E Shamma Al Mazrui, being the first ever Youth Climate Champion to attain a ministerial role. She was given a responsibility of engaging youth globally in the lead-up to, and during, COP28 UAE. This was a great milestone that gave courage to the youths to participate in climate action and also an act that recognised youths’ participation in events.” 

By Elizabeth Akantorana 

Credit: Care About Climate

Way Forward to COP29

Looking ahead to COP29, a dynamic strategy is essential for impactful progress in the global fight against climate change. Firstly, the inclusion of women as negotiators is pivotal, not just for achieving gender equality, but also for infusing negotiations with diverse perspectives and innovative solutions. Including women in decision-making processes is integral to shaping effective and inclusive climate policies. Simultaneously, youth inclusion remains a linchpin for success. COP29 must actively engage and empower the younger generation, leveraging their enthusiasm and creativity to drive urgent and impactful climate action. We can inject a sense of urgency and fresh ideas into the global climate agenda by providing platforms for youth voices. 

A resolute commitment to phasing out fossil fuels is paramount. Transitioning to sustainable energy sources is a non-negotiable step towards mitigating climate change and achieving a carbon-neutral future. COP29 should prioritize concrete actions and policies to expedite this transition, creating a greener and more resilient global energy landscape. Equitable finance mechanisms, ensuring fair resource allocation for adaptation and mitigation efforts in developing nations and a just transition that protects vulnerable communities during the shift to a low-carbon economy are integral components of the way forward. COP29 can build on past achievements by adopting these principles, creating a more inclusive, resilient, and sustainable global response to the climate crisis.

By Leena Joshi