Real Climate Action Requires More than Just Two Weeks of Negotiations

The 2024 United Nations Climate Change Conference or Conference of the Parties of the United Nations Framework Convention on Climate Change (UNFCCC), more commonly known as COP29, is being held in Baku, Azerbaijan, from 11 to 22 November 2024.

A Brief History

The history of COP reveals how global climate negotiations have evolved over decades, shaped by milestones that have moved the world closer to addressing climate change challenges.

The journey began in 1992 with the creation of the UNFCCC, an international treaty committing the global community to cooperate on climate action. The first COP took place in 1995 in Berlin, where nearly 5,000 participants agreed on the need for annual meetings to control global warming. Two years later, COP3 in Kyoto produced the Kyoto Protocol, marking the first legally binding commitment by developed countries to reduce greenhouse gas emissions. However, the Protocol sparked controversy, with some nations, including the U.S., signing but not ratifying due to perceived unfairness.

In 2001, COP7 in Marrakech adopted the Marrakech Accords, introducing funds like the Adaptation Fund to support developing countries. The 2009 COP15 in Copenhagen faced setbacks but achieved a consensus on keeping global warming below 2°C, with developed nations pledging $100 billion annually by 2020 for climate support. The turning point came in 2015 at COP21 in Paris, where 196 nations adopted the Paris Agreement, a landmark accord to limit warming to 1.5-2°C. This agreement set the foundation for Nationally Determined Contributions (NDCs), allowing countries to tailor climate plans to their unique circumstances.

COP26 in Glasgow, held in 2021, furthered these efforts with the Glasgow Climate Pact, focusing on coal phase-out, forest conservation, and adaptation finance. COP27 in Sharm El-Sheikh highlighted themes of mitigation, adaptation, and finance, establishing the Loss and Damage Fund to aid vulnerable countries.

COP28 in Dubai in 2023 made history by reaching a global consensus on transitioning away from fossil fuels. This conference also introduced the first Global Stocktake, a vital assessment tool to monitor countries' progress under the Paris Agreement every five years.

Where are we now?

As COP29 convenes, it builds on these precedents, with an urgent focus on turning pledges into action amid rising climate impacts worldwide. This year's conference is directly influenced by both the accomplishments and limitations of past conferences. For instance, while COP21’s Paris Agreement was a landmark commitment to limit global warming, the lack of binding enforcement mechanisms has been a recurring challenge, evident in the difficulties faced at COP26 and COP27. COP29 aims to address this by focusing on mechanisms for accountability and implementation to make sure countries meet their commitments.

Past COPs have also spotlighted financial inequities in climate adaptation and mitigation, especially with COP15 in Copenhagen promising $100 billion annually by 2020. Despite the promise, actual disbursement has fallen short, which has remained a contentious issue in climate negotiations. COP29’s objective to bridge this financial gap could be framed as a critical attempt to fulfill longstanding promises and build trust with developing countries that are on the frontline of climate impacts.

The creation of the Loss and Damage Fund at COP27 was a breakthrough for vulnerable countries, though significant challenges remain in implementing and financing this commitment. COP29, therefore, not only continues the momentum from COP27 but also faces the high stakes of establishing clear guidelines and commitments on how these funds will be accessed and distributed. Linking COP29’s objectives to past milestones shows that this conference is not just another meeting but a critical moment to fulfill and expand on climate promises. The window of opportunity is closing.

While world leaders, climate negotiators, and activists are gathered for these negotiations, it’s worth remembering a crucial truth about these global climate conferences: the real work doesn’t begin and end in those two weeks. While the intense negotiations at COP have symbolic power, the most enduring impact often comes from efforts outside the spotlight — from year-round dialogue and compromise to public involvement in national climate strategies.

This year’s conference builds on a legacy of such efforts. The 2010 Cancun Agreements, reached at COP16, may not have been the most ambitious deal on record, but they achieved notable success by uniting diverse blocs in common cause. Mexico, the host country, was lauded as a climate leader not just for what was agreed upon, but for the diplomatic groundwork laid by Luis Alfonso de Alba, who spent more than a year building trust among nations. This trust-building allowed de Alba to navigate the thorny political landscape, creating an agreement that many nations could rally behind.

The lesson from Cancun is that successful COP outcomes require meticulous groundwork. Each COP is just the culmination of year-round efforts to understand each country's needs and positions. For example, at COP28, a non-binding pledge by 118 countries to triple renewable energy capacity by 2030 morphed into a formal negotiation point, underscoring the influence that even voluntary commitments can have on global decisions.

Inside the Blue and Green Zones

At COP, attendees experience a whirlwind of discussions in the Blue Zone, a space reserved for official negotiations and exclusive to government representatives, negotiators, observers, and media. Here, countries debate critical issues and host hundreds of side events to network and share ideas. Official country pavilions showcase climate action, with talks echoing from every corner, illustrating the complexity of global climate discussions.

In contrast, the Green Zone is a vibrant, inclusive space open to the public. This is where NGOs, businesses, and youth groups bring climate solutions to life through exhibitions, films, and art installations. It’s here that civil society, indigenous groups, and the public engage directly with COP’s agenda, amplifying often-overlooked voices and grassroots solutions.

Yet, with inclusivity comes tension. The presence of over 2,400 fossil fuel lobbyists at COP28 sparked debate, as some viewed their involvement as a necessary evil for emissions-reduction commitments, while others saw it as a threat to climate goals. For example, some argued that the influence of “big polluters” risks suffocating the voices of those fighting for survival. Deciding who belongs at the negotiating table remains an ongoing challenge for COP organizers.

Negotiations

The negotiation process at COP is a structured yet flexible journey toward consensus, involving multiple stages and collaborative groups. For technical issues, negotiations typically begin with the formation of a "contact group" by a subsidiary body, such as the Subsidiary Body for Scientific and Technological Advice (SBSTA), to discuss. If disagreements arise, negotiators move into "informals," less formal sessions that allow for freer dialogue to resolve conflicts. Persistent disagreements may lead to even smaller discussions called "informal informals." Once an agreement is reached, the contact group drafts a decision text, which is reviewed and approved by the subsidiary body and then submitted as a "conclusion in the plenary." The final step is for COP, the supreme body, to adopt the decision, formally integrating it into the conference’s outcomes.

Delegation Sizes and Climate Equity

The size of delegations also plays a significant role in COP outcomes. Wealthier nations often send large delegations that can participate in every session, while smaller, lower-income countries are left stretched thin. This disparity raises questions about fair representation, especially since countries most vulnerable to climate impacts often lack the capacity to influence negotiations fully. To counterbalance this, smaller nations often band together in negotiating blocs like the G77, amplifying their voices collectively.

The Real Work Begins at Home

The agreements forged at COP trickle down to national governments, which then update their NDCs — individual plans for reducing emissions. Achieving these goals often requires new laws and regulatory updates across sectors, from energy to agriculture. It’s this on-the-ground work, adapted to each country’s specific needs, that truly drives climate action forward.

Citizens and civil society members have an essential role in shaping these climate commitments. Many governments hold public consultations to gather input on national climate priorities, and it’s through these forums that individuals can influence climate policy. Whether it’s by advocating for sustainable practices or participating in public consultations, each of us has the ability to shape the future of climate action.

A Call to Action

As COP29 unfolds, let’s remember that climate action is a continuous journey. True progress requires ongoing commitment from governments, businesses, and civil society alike. International agreements set the stage, but it’s the year-round work of understanding, compromise, and collaboration that turns aspirations into reality. The future of our planet hinges not just on two weeks of climate negotiation, but on the actions we all take — in our communities, at public consultations, and in local political processes.