Doug Mills/The New York Times
President Obama with Chinese prime minister Wen Jiabao, across from him, the prime minister of India, Manmohan Singh, right, and other world leaders at the Copenhagen climate summit on Friday.
nytimes.com
Published: December 18, 2009
COPENHAGEN — Leaders here concluded a climate change deal on Friday that the Obama administration called “meaningful” but that falls short of even the modest expectations for the summit meeting here.
Doug Mills/The New York Times
President Obama stepped off Air Force One Friday morning in Denmark to address the Copenhagen climate summit.
The agreement addresses many of the issues that leaders came here to settle, but the answers are bound to leave many of the participants unhappy.
Even an Obama administration official conceded, “It is not sufficient to combat the threat of climate change, but it’s an important first step.”
“No country is entirely satisfied with each element,” the administration’s statement said, “but this is a meaningful and historic step forward and a foundation from which to make further progress.”
The statement added, “We thank the emerging economies for their voluntary actions and especially appreciate the work and leadership of the Europeans in this effort.”
But many of those emerging economies are likely to express displeasure. Europeans said the deal does not require enough of the United States, China and other major emitters and could put European industries at a competitive disadvantage because the European Union is already subject to a carbon emissions constraint program.
The accord drops the expected goal of concluding a binding international treaty by the end of 2010, which leaves the implementation of its provisions uncertain. It is likely to undergo many months, perhaps years, of additional negotiation before it emerges in any internationally enforceable form.
“We entered this negotiation at a time when there were significant differences between countries,” the American official said.
“Developed and developing countries have now agreed to listing their national actions and commitments, a finance mechanism, to set a mitigation target of two degrees Celsius and to provide information on the implementation of their actions through national communications, with provisions for international consultations and analysis under clearly defined guidelines,” the official said.
The deal came after a dramatic moment in which Mr. Obama burst into a meeting of the Chinese, Indian and Brazilian leaders, according to senior administration officials. Chinese protocol officers protested, and Mr. Obama said he did not want them negotiating in secret.
The intrusion led to new talks that cemented key terms of the deal, American officials said.
Sergio Serra, Brazil’s senior climate negotiator here, confirmed that Mr. Obama had “joined” a meeting of Brazilian, Indian, Chinese and other officials, although he did not say that Mr. Obama walked in uninvited.
“After several discussions had taken place they were joined by President Barack Obama,” Mr. Serra said. “Several important decisions were taken — not a few due to Brazilian mediation — that we hope will bring a result, if not what we expected, that may be a way of salvaging something and pave the way to another meeting or series of meetings to get the full result of this proceeding.”
The agreement is believed to be based on a document that was being edited by high-ranking officials from some two dozen countries throughout the day.
In that draft, developed nations committed to a long-term target of reducing their greenhouse gas emissions by 80 percent by 2050. No specific midterm target was set. Developing countries, meanwhile, would pursue mitigation efforts of their own, and agreed in general terms to some sort of reporting on those efforts — something the industrialized world had been seeking.
The draft dropped earlier language that said a binding accord should be reached “as soon as possible,” and no later than at the next meeting of the parties, in Mexico City in November 2010. Instead, the draft set no specific deadline, saying only that the agreement should be reviewed and put in place by 2015.
The draft also included a few hard figures about joint emissions cuts of 50 percent by 2050. It included a dozen or so enumerated points asserting general commitment to the idea that “climate change is one of the greatest challenges of our time” and asserted that “deep cuts” in global emissions are required.
It also sought to lay out some framework for verification of emissions commitments by developing countries and to establish a “high-level panel” to assess financial contributions by rich nations to help poor countries adapt to climate change and limit their emissions.
In the draft, many of the specifics remained to be negotiated, however.
In a press conference following the announcement, Mr. Obama thanked other world leaders for their help in reaching the accord — which he nonetheless characterized as being only a start.
“This progress did not come easily,” he said, “and we know that this progress alone is not enough.”
“The developed countries have decided that damage to developing countries is acceptable,” he told reporters, saying that the 2-degree target would “result in massive devastation to Africa and small island states.” He and many other representatives of the most vulnerable countries wanted a target of 1.5 degrees.
“Today’s events, which really are a continuation of the history of the negotiations for the last two years, represent the worst development in climate change negotiations in history,” Mr. Di-Aping said.
Mr. Obama’s announcement came late in a day that began with his 11-minute address to world leaders shortly after noon, and that was filled with brinksmanship and 11th-hour negotiations. Mr. Obama, whose speech included remarks that appeared pointed at China’s resistance to mechanisms for monitoring emissions reductions, met privately with Prime Minister Wen Jiabao afterward. But Mr. Wen did not attend two smaller, impromptu meetings during the day that Mr. Obama and United States officials conducted with the leaders of other world powers, an apparent snub that infuriated administration officials and their European counterparts.
The deal eventually came together after a dramatic moment in which Mr. Obama and Secretary of State Hillary Rodham Clinton burst into a meeting of the Chinese, Indian and Brazilian leaders, according to senior administration officials. Mr. Obama said he did not want them negotiating in secret.
The intrusion led to new talks that cemented central terms of the deal, American officials said.
Sergio Serra, Brazil’s senior climate negotiator here, confirmed that Mr. Obama had joined a meeting of Brazilian, Indian, Chinese and other officials, although he did not say that Mr. Obama walked in uninvited.
“After several discussions had taken place, they were joined by President Barack Obama,” Mr. Serra said. “Several important decisions were taken — not a few due to Brazilian mediation — that we hope will bring a result, if not what we expected, that may be a way of salvaging something and pave the way to another meeting or series of meetings to get the full result of this proceeding.”
Jian Xiaoyan, a press officer with the Chinese government, said there was no one available to comment Friday night.
The agreement apparently grew out of a document that was being edited by high-ranking officials from some two dozen countries throughout the day. But many specifics that were included in earlier versions were excised in the document left on the table when Mr. Obama made his announcement, and many parties considered it at best a work in progress. The agreement contains several enumerated points asserting a general commitment to the idea that “climate change is one of the greatest challenges of our time” and asserts that “deep cuts” in global emissions were required.
In at least one earlier version, the deal included a collective agreement among nations to reduce greenhouse gas emissions by 50 percent by 2050 — with developed nations pledging as a bloc to reduce emissions by 80 percent over the same period. Those numbers were no longer in the version circulated after Mr. Obama’s announcement.
Also dropped from earlier drafts was language calling for a binding accord “as soon as possible,” and no later than at the next meeting of the parties, in Mexico City next November. The deal presented Friday evening said only that the agreement should be reviewed and put in place by 2015.
The document does lay out a framework for verification of emissions commitments by developing countries and for establishing a “high-level panel” to assess financial contributions by rich nations to help poor countries adapt to climate change and limit their emissions.
Many of the specifics remained to be negotiated, however.
Mr. Serra, the Brazilian diplomat, said that the process left many alienated, particularly the smaller countries that have little influence in a major international negotiation. Many involved in the process here suggested this would be the last time that 193 nations would gather in this way to negotiate such a complex accord.
“Certain groups like G-77 are not happy when a few people make decisions,” Mr. Serra said. “It’s not an inclusive exercise. Perhaps it can’t be.”
Reporting was contributed by Elisabeth Rosenthal, Tom Zeller Jr. and Andrew C. Revkin from Copenhagen, and Liz Robbins from New York.