The Conference of the Parties to the United Nations Framework Convention on Climate Change
Past Event
2024-12-09
COP29 Climate Negotiation Outcomes Series (Part III): Stalled Progress on Just Transition and Opportunities for Hong Kong
Proceed to Part II
Just Transition Agenda Stagnates, with No Advances Noted
CarbonCare InnoLab is dedicated to advancing climate justice in Hong Kong and has diligently monitored the global discourse on a just transition. At the 27th United Nations Climate Change Conference (COP27) in 2022, the Just Transition Work Programme (JTWP) was initiated in alignment with the Paris Agreement, which mandates the safeguarding of labour rights amid the energy transition. Nevertheless, as discussions intensified, an expanding chorus of voices argued that a just transition should not only protect labour and employment but also transform the prevailing high-consumption economic model, curtail the pursuit of unchecked economic growth, and thus foster a genuine just transition conducive to sustainable living.
After fostering a positive dialogue characterized by equality and inclusiveness across all sectors, there were elevated expectations for substantial progress in this year's COP29 negotiations on the JTWP. However, the COP29 presidency prioritised finance-related negotiations and failed to catalyse discussions on the JTWP, exacerbating the existing disparities between developed and developing countries concerning the programme's scope. This was further compounded by inefficient procedural dynamics, resulting in a missed opportunity to forge a consensus, thereby decelerating the JTWP's advancement—a development that is deeply regrettable.
The core of the disagreement during the negotiations stemmed from developed countries linking the JTWP to the 1.5°C temperature target, focusing on technological advancement and economic opportunities. In contrast, developing countries emphasised the holistic impact of climate actions on society, particularly on climate-vulnerable communities. With inadequate financing, these countries find it challenging to support the JTWP or ensure that the "Means of Implementation" (MoI) indicators are robust enough to assist climate-vulnerable countries. Oil-producing countries resisted the approach of developed countries, advocating for each country's sovereign right to define its own just transition pathway and opposing the use of climate issues by developed countries to enact protectionist trade measures. The presidency often sidestepped controversial topics to avoid conflict, ultimately failing to achieve a consensus and eroding prior progress. Furthermore, in the second week, the presidency neither orchestrated negotiations nor provided clear guidance, squandering another opportunity to reach a consensus. The discussions are now deferred to next year's sessions in Bonn and the upcoming COP30 in Brazil.
Increasing Focus on Gender Equality in Climate Actions
Gender equality is a critical issue in the context of climate action, yet it has consistently suffered from a lack of consensus and initiative. A decade ago, COP20 in Peru adopted the Lima Work Programme, specifically designed to incorporate principles of gender equality and human rights, alongside providing financial support to eliminate gender disparities in climate-related actions. Therefore, this year's COP29 represented a pivotal opportunity for advancing discussions on gender-related issues. Initially, the presidency excluded women from the organizing committee, and throughout the conference, some conservative countries attempted to remove references to women and human rights. Fortunately, the Lima Work Programme was ultimately extended for an additional ten years, supplemented by a five-year Gender Action Plan (GAP), ensuring that gender considerations remain at the heart of climate negotiations over the next decade, with specific attention to climate mitigation, adaptation, and financing strategies. However, the negotiation process excluded inclusive language addressing vulnerable groups such as LGBTIQ+ and lacked concrete financial commitments, posing potential challenges to achieving the objectives of the GAP.
The primary contention regarding gender issues stems from conservative countries viewing international advocacy for empowering women and LGBTIQ+ as incompatible with their local cultural or political landscapes, perceiving it as an encroachment on their sovereignty by Western countries. As a result, the final language excluded specific references to indigenous women, ethnic minorities, or women from lower socioeconomic classes, retaining only general human rights terminology as a compromise. Nonetheless, continued efforts are essential to protect the rights of a broader spectrum of gender groups. Moreover, financial considerations emerged as a central aspect of the discussions. The final resolution text was notably deficient in enforceable financial commitments, indicating that securing adequate resources for gender-focused climate initiatives remains a critical challenge. Positively, the resolution reaffirmed the vital leadership role of women in achieving long-term climate objectives and emphasized the importance of inclusive policies.
The Increasingly Crucial Role of Hong Kong and Global Cities
International climate negotiations have traditionally been the domain of national governments, yet recent COP meetings have increasingly seen the presence of local and city governments. As the front line of climate action implementation, the voices and responses of cities are becoming more crucial. As a developed city, Hong Kong should seize the opportunity to serve as a model in climate action initiatives, including significantly enhancing local renewable energy development, improving urban energy efficiency, committing to climate adaptation actions, and developing as a centre for climate finance to strengthen exchanges and cooperation between cities on climate actions.
Although COP29's outcomes regarding financing, global stocktake, and climate mitigation negotiations were disappointing, the gradual inclusion of cities into the COP agenda represents another progressive step, facilitating improved cooperation between central and local governments on climate actions and bringing opportunities to cities. For instance, this year's mitigation work programme's dialogues focused on urban buildings. Moreover, COP announced two new initiatives related to cities: the Declaration on Multi-sectoral Actions Pathways for Resilient and Healthy Cities (MAP) and the Baku Continuity Coalition on Urban Climate Action. The former will serve as a strategic guide to enhance urban resilience and health and will be a topic of discussion in climate policy at COP30. The latter is a collaboration with UN-Habitat to ensure that urban climate actions are prioritised in future COP agendas. These frameworks provide cities with tools to advance the climate agenda, secure necessary financing, and implement innovative climate policies. Additionally, COP29 emphasised the importance of synchronising central and local climate actions and promoted climate financing for cities.
However, the disappointing outcomes of COP29 also pose significant challenges for cities with ambitious climate goals, compelling them to individually raise their targets to enhance national ambitions in their Nationally Determined Contributions (NDCs). Although this year's COP29 introduced the "Baku Adaptation Road Map," it lacked sufficient integration of locally-led adaptation measures, posing challenges for local climate financing and prioritisation in climate decision-making, such as combating urban heat island effects and addressing social inequities in climate adaptation actions. Without tailored mechanisms, especially for cities in developing countries, urban climate actions may falter due to insufficient funding.
Therefore, as a financial hub in Asia, Hong Kong should capitalise on the opportunity to demonstrate the potential for climate action to the world. In addition to the measures mentioned above, through initiatives like the MAP declaration at COP29, Hong Kong can strengthen the link between climate and health locally, invest resources in community-based climate adaptation measures, provide climate financing for local and developing country cities, and position itself as a leader in combating climate change, enhancing climate resilience, and promoting sustainable development. These are the contributions that Hong Kong can make to the Paris Agreement.
Looking Ahead to the 2025 Bonn Meeting and the COP30 Climate Negotiations in Brazil
COP29 highlighted the ongoing challenges in critical areas such as climate finance, mitigation, adaptation, and just transition, also underscoring the fragility of the United Nations' multilateral climate negotiations. As global attention gradually shifts to COP30, countries must continue striving to ensure that the Paris Agreement remains an effective foundation for advancing global climate action.
Scheduled to be held in Belém, Brazil, COP30 will be a pivotal moment for the global climate agenda. Dubbed the "Nature COP," it will integrate biodiversity and climate action, exploring the role of nature-based solutions in addressing the climate crisis. To ensure the success of COP30, stakeholders must bridge the institutional gaps between biodiversity and climate governance, ensuring that issues are comprehensively integrated rather than continuing in isolation.
As countries are required to submit their next round of Nationally Determined Contributions (NDCs) by February 2025, COP30 marks a crucial time to align global climate commitments with the Paris Agreement's 1.5°C goal, necessitating achievements in multiple areas. First, by ensuring the new collective quantified climate finance goals (NCQG) reflect the real needs of climate action, addressing the inequities in climate finance. Second, by transforming the global stocktake outcomes on phasing out fossil fuels and just transition into concrete actions. Third, by integrating climate justice into the core of climate governance, ensuring that marginalised communities, including women, indigenous peoples, and small island states, have equitable rights and needs in addressing climate change. COP30 presents an excellent opportunity to address the barriers hindering climate justice and inclusion, redefining the climate agenda.
CarbonCare InnoLab will host a seminar titled "Decoding COP29: Financing a Just Transition for Hong Kong" on December 11, featuring several guest speakers to delve into the relationship between COP29 and Hong Kong. Click here to register [registration link]. (End)