ENVE-VI/002
3rd Commission meeting, 4 May 2015
WORKING DOCUMENT
Commission for the Environment, Climate Change and Energy
THE PARIS PROTOCOL
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Rapporteur: Annabelle Jaeger (FR/PES)
Member of Provence-Alpes-Côte d'Azur Regional Council
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This document will be discussed at the meeting of the Commission for the Environment, Climate
Change and Energy to be held from 11 a.m. to 6 p.m. on 4 May 2015. A user guide is available at
http://toad.cor.europa.eu/CORHelp.aspx.
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Reference document
The Paris Protocol – A blueprint for tackling global climate change beyond 2020
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The Paris Protocol – A blueprint for tackling global climate change beyond 2020
I.
Background
1.
The Commission's proposal
On 25 February 2015, the European Commission (EC) published its vision for global climate action
after 2020. It set out the European Union's position on the agreement to be signed in Paris in
December 2015, at the end of the 21st Conference of the Parties to the United Nations Framework
Convention on Climate Change (COP 21). The overall objective is to limit global warming to
2 degrees and to begin a transition towards more sustainable and resilient societies.
The Communication contains recommendations which aim to establish an agreement that is both able
to combat climate change and be fair to the 195 parties to the UN Framework Convention on Climate
Change (UNFCCC). It is intended to be a legally binding agreement for all states which covers
climate change mitigation, adaptation to its impacts and funding; it should also be dynamic, or in
other words able to keep up with scientific and technological advances and with national
developments.
The programme also includes the EU contribution to the Paris agreement. The contribution was
officially endorsed by the Council of the European Union on 6 March 2015. In it, the EU pledges to
reduce its greenhouse gas emissions "by at least 40%" by 2030 (compared to 1990).
2.
Previous recommendations by the Committee of the Regions (CoR)
In 2013 and 2014 the CoR published two opinions on the European policy framework for climate and
energy from 2020 to 2030. This framework set out the targets for the EU contribution to climate
change mitigation.
The CoR also adopted an opinion on the EU strategy on adaptation to climate change and a resolution
on the international climate conference (COP 19) held in December 2013 in Warsaw, Poland.
In these documents, the CoR recommends:
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that the European Union be more ambitious with regard to its targets for reducing greenhouse gas
emissions, developing renewable energies and energy efficiency. The CoR believes that a
reduction of at least 50% in greenhouse gases in Europe would be beneficial, as would achieving
at least a 40 % share of renewable energy and a 40 % energy efficiency target
A fair approach that would support the poorest or most vulnerable regions, and build the trust
necessary to ensure that negotiations run smoothly.
A new model of global climate governance based on the principles of multi-level governance,
which would allow each level of government to maximise its climate action.
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This new opinion will set out the CoR's views on the EU position for Paris and outline its own
messages for COP 21. It will also define the role that local and regional authorities should play in
2015, in terms of supporting the conclusion of an ambitious agreement and mobilising all stakeholders
prior to the COP, and after the agreement has been signed, as part of a new global climate change
governance system.
II.
Challenges and points for discussion on the Paris Agreement
1.
Paris Agreement ambitions
The CoR could send a message to the EU encouraging it to support a long-term global target (2050),
based on the Intergovernmental Panel on Climate Change (IPCC) scenarios which best guarantee
remaining below the 2°C limit. The aim is to bring fossil fuel emissions down to zero in 2050 through
a combination of renewable energy sources and energy savings. A collective target such as this would
send a strong signal to all countries and stakeholders.
The CoR would also point out here that the EU has set a long-term target of reducing greenhouse gas
emissions by 80 to 95 % by 2050.
2.
European ambition
Although in terms of ambition, the EC's position is not as strong as the CoR had called for in its
opinion on the EU framework on climate and energy for 2030, the CoR could offer strong support to
the EC as, out of the UNFCCC negotiators, the EU is the leader with regard to ambition.
It could do even more in its leadership role. The CoR could therefore:
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support a revision which further increases its commitments;
highlight that many points remain outstanding in the European position (accounting for carbon
sinks in European forests, role of international credits) and must be clarified before the agreement
enters into force;
ask it to be more proactive on the issue of climate financing and adaptation.
Adaptation
The EC's position on including adaptation as a pillar of the agreement, which responds to the demands
of the Southern countries and corresponds to the CoR's position, should be welcomed. The CoR is
also pleased that in the end, the Green Climate Fund has decided to divide its funding equally between
climate change mitigation and adaptation.
The EC could use the Mayors Adapt initiative – launched in 2014 as part of the EU strategy on
adaptation to climate change – as an example to follow in order to improve the adaptation of local
areas.
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4.
The question of financing
The Green Climate Fund and the Global Environment Facility will be the main sources for allocating
the financing. The EC suggests having regular funding replenishment cycles. The CoR could welcome
this alternative.
The CoR could also:
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support allocating all EU Emissions Trading System (EU ETS) income to energy transition and to
the global fight against climate change (at least 50% to the Green Climate Fund);
defend the importance of applying a carbon price in Europe (reforming the EU ETS: while
implementing the stability reserve as soon as possible (2017 at the latest) and effecting a post2020 structural reform.
highlight the need for the European Union to gradually reduce public support and subsidies to the
causes of climate change, i.e. to fossil fuels (whether for exploring new reserves, production or
consumption).
III.
Regions and cities: catalysts for the success of the Paris agreement
1.
Regions and cities working to implement national commitments effectively
The new climate regime promises to put more emphasis on the effective implementation of
commitments made in the Paris Protocol. The EC has emphasised the role of the cities and regions in
this respect. It also advocates that the Protocol acknowledge flagship initiatives which implement and
supplement efforts made by States.
The CoR could welcome this new direction and call to intensify the dialogue with local and regional
authorities.
2.
Covenant of Mayors
It is necessary to make the Covenant of Mayors a permanent fixture, or at least extend it until 2030.
The CoR could support further expansion of the Covenant of Mayors at global level and call on the
EC to provide the means (logistics, coordination, financing and political support) necessary for such
an initiative, which could form part of a new EU climate diplomacy.
3.
Towards taking account of the efforts made by cities and regions in national contributions
The CoR could request that the EC support taking account of the measurable efforts made by the
cities and regions in the national contributions, as part of the new agreement.
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It is also a question of establishing the appropriate conditions –in terms of regulation and financing –
to enable the cities and regions to pursue the best courses of action.
4.
Investment policy directed towards the regions
The CoR can reiterate the need for a voluntary investment policy in sustainable projects in the most
vulnerable areas, particularly in the field of energy and adaptation. The CoR offers its support for
including cities and regions in the process of allocating funding, and for the inclusion of smaller scale
projects under the Junker plan.
The CoR could recommend easy access for the cities and regions to the main global climate funds,
namely the Green Climate Fund, Global Climate Facility and Adaptation Fund.
5.
More inclusive and effective climate governance
The CoR could propose a global climate governance system which formalises the work of cities and
regions, and which is based on the principles of multilevel governance. Several initiatives are
following this approach:
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The precedent set by the UNFCCC and the city of Warsaw during COP 19 (the "Warsaw
dialogues" and the "UNFCCC Cities Day"), which should be made permanent.
The organisation of the World Summit on Climate and Territories in Lyon on 1-2 July, where all
non-state parties may work on the text of the negotiations ahead of the COP 21.
A space dedicated to local governments at the COP 21, and a cities and regions day
The CoR could request the establishment of a structured dialogue during the round of negotiations and
not only during the end-of-year international conferences.
The EC could set an example by establishing a dialogue with the CoR at regular intervals, several
times a year, before and during the conferences organised by the UNFCCC (COP and preparatory
conferences).
6.
CoP decision on a cities and regions climate work programme
The CoR could recommend that the EC support the establishment of a modus operandi between local
and regional authorities and States, following the example of the Convention on Biological Diversity
(CBD), which adopted an “Action Plan for cities and regions”.
A climate action plan for cities and regions, produced by the UNFCCC would be particularly
appropriate. It would be a flexible application of the principle of multi-level governance on an
international scale.
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IV. The commitment of all parties: a requirement for COP21 to succeed.
1.
The commitment of European regions and cities
The IPCC and the United Nations Environment Programme (UNEP) have told us clearly that in order
to contain global warming below 2 °C by the end of the century, all parties must step up their efforts
to reduce emissions. Cities and regions can get further involved in tackling climate change (see the
Compact of Mayors and the Compact of States and Regions). The aim during the World Summit on
Climate and Territories is to commit to meeting individual, measurable targets on reducing
greenhouse gases, developing renewable energies and energy savings.
The regions and cities of Europe are involved in international cooperation efforts which may prove
useful for raising awareness among non-EU countries. These privileged relations between regions and
cities worldwide could be a vehicle for climate diplomacy at all levels.
2.
An economic and societal change that requires the involvement of all stakeholders
As the first level of government, cities and regions are closest to the people and to the whole of civil
society. Several initiatives for joint action are underway:
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The World Summit on Climate and Territories will include stakeholders from civil society and the
business world, as well as from the voluntary sector, in an effort to bring together all non-state
actors.
The Paris Declaration which was launched at the World Summit of Regions in October 2014, has
travelled the world to be signed by additional regional and local representatives and by
businesses, before it is presented in Paris at the COP 21.
The "Agenda of Solutions" is one of the four pillars of the Paris agreement envisaged by the
future French Presidency of COP 21. It intends to step up action among all parties: States,
business, local authorities, NGOs, international organisations, indigenous peoples and civil
society in its broadest sense.
The CoR is cooperating with the European Economic and Social Committee in order to deliver
consistent messages, which demonstrate that the regions and cities are ready to get involved in
COP 21, along with civil society and businesses, in order to face this shared challenge of climate
change.
Brussels, ...
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