Climate change is an increasingly serious threat to lives and livelihoods in every part of the world. It is also a crisis for economic development, which has historically been synonymous with high-carbon growth. By now the earth’s atmosphere is filled, almost to its sustainable limit, primarily by the past emissions from today’s developed countries. It is essential, therefore, to make the transition to a new, low-carbon style of economic growth.
The efficient solution is to find the least-cost opportunities to reduce emissions, regardless of location. Responsibility for funding these reductions is a separate question; developed countries might be expected to pay a large share of total global costs, due to current ability to pay and to historical responsibility for creating the problem. What new institutions and mechanisms are needed to finance the least-cost global solution to the climate crisis?
According to recent UNFCCC estimates, two-thirds of the world’s greenhouse gas emission reduction potential through 2030 is located in developing countries. More than half of the opportunities to reduce carbon emissions in developing countries are in forestry, including reduction of emissions from deforestation and forest degradation (REDD). Separate funding and new institutions to address REDD measures could be a part of a new climate agreement.
More broadly, emission reduction in developing countries will require substantial investment in energy, transport, and other sectors; hundreds of billions of dollars per year will be needed to realize the full potential of emission reduction. One of the easiest ways to obtain financing for these investments may be the sale of offsets to developed countries – roughly speaking, expanding the opportunity created by the Clean Development Mechanism (CDM). The value of such opportunities depends both on the scope of a future trading system, and on the initial distribution of carbon allowances.
Adaptation to the unavoidable damages from climate change is an additional financial burden on developing countries, and cannot be addressed through carbon markets. Adaptation measures, however, may have more direct synergy with development plans, since they often involve improvements in infrastructure, public health, and disaster preparedness. Estimates of global adaptation needs are very uncertain, but may be in the tens of billions of US dollars annually.
Existing financial flows and institutions fall far short of what is needed. Climate funding available under the UNFCCC and the Kyoto Protocol is less than $10 billion per year, most of it provided through CDM; this funding has been heavily concentrated to date in China and a few other large emerging economies. Additional funding is provided by the World Bank’s Climate Investment Funds, which are likely to provide $1.5 billion per year for four years; and by 1 Senior Economist, Stockholm Environment Institute-US Center, e-mail Frank.Ackerman@sei-us.org. 2 bilateral aid from Japan, Norway, Germany, and others; the annual total of all multilateral and bilateral climate funding is less than $15 billion. This is too small, by more than an order of magnitude, to meet the needs for climate investments in developing countries.
Existing climate funding mechanisms and investment flows are not only dangerously small, thereby risking failure to address the problem before it is too late to solve it. They are also, in part, channeled through institutions such as the World Bank that stand outside the existing multilateral UNFCCC process; past World Bank aid has involved strict conditionality, requiring tight fiscal discipline and structural reforms in exchange for funding. Donor preferences frequently distort bilateral and some multilateral aid efforts; funding for climate investments could be weighted down by the reappearance of similar obstacles. Streamlined and improved institutional arrangements, such as a much-simplified replacement for CDM, will be needed to address the climate problem in a timely manner. Some observers have suggested the need for a new World Environment Organization (or World Environment and Development Organization) to manage international cooperation on climate and related issues.
Finally, it is worth remembering that success in international environmental cooperation is a real possibility, as shown by the example of the Montreal Protocol for reduction of ozone-depleting substances (ODSs). A number of lessons can be learned from the success of the Montreal Protocol: it paid nearly all the net costs of compliance for developing countries; its governance structure put developed and developing countries on an equal footing, requiring agreement from both groups for all decisions; it successfully addressed concerns about trade distortions; and it set a threshold for per capita emissions, above which developing countries “graduated” into responsibility for meeting the developed-country standards. With this cooperative structure in place, the parties to the Montreal Protocol moved rapidly toward reduction of ODSs, finding that costs were lower and benefits were higher than had been anticipated in advance. Could the same turn out to be true for the reduction of greenhouse gases?