Barcelona Climate Change Talks Update: December 2009

The climate talks that took place in Barcelona from 2-6 November 2009 confirm that achievement of a legally binding agreement cannot be expected in Copenhagen. REDD (Reducing Emissions from Deforestation and forest Degradation in developing countries) is likely to be one of the most significant outcomes of COP15, but doubts remain on the definition of forests and the prohibition of forest conversion. Language on indigenous peoples' rights has been retained but still needs to be improved.

Parties meeting in Bangkok in September 2009 to discuss possible options for a legally binding agreement to be signed in Copenhagen left the Thai capital with a clear conviction that such an outcome was increasingly unlikely. The stand-off between Annex I countries and the G77 group continued in Barcelona, with the former accused of trying to 'kill' the Kyoto Protocol and asking for a greater commitment to reduction from developing countries (thereby ignoring the principle of common but differentiated responsibilities) and the latter asking for stronger reduction commitments and allocation of substantial financial resources to support mitigation and adaptation. Under these circumstances the only option available to parties was to work on the existing working papers (one for each of the items of the Bali Action Plan) and develop language that could then be fed into a package of decisions that will conclude the work of the AWG-LCA dedicated to the Bali Action Plan.

A key document is likely to be finalised and approved in Copenhagen with references to the shared vision, long-term emissions reduction goal for 2050 and key principles on finance and other key areas that require quick-start action. Some annexes will be attached. REDD is likely to be one of the most significant outcomes, whose definition is still unclear to parties and observers. Indeed, it is possible that the current working paper (or 'non-paper' in UNFCCC language) on REDD might be further consolidated and attached as an annex to the COP decision. Other aspects relating to REDD may be defined in other documents, such as Shared Vision (for the safeguards and principles) and Finance for the financial aspects.

Another possibility is that of a COP decision in support of REDD readiness. This might be justified by the opposition voiced by the US to the 3-phased approach, and might lead parties to opt for a compromise formula, whereas the quick-start action would be limited to phase 1, notably readiness.

In general, the text that was released in Barcelona raised the concern of many environmental NGOs, since, due to the pressure of the EU negotiators, any reference to safeguards to protect natural forests from conversion and keep them intact had been put in brackets and in weaker language. Other pending issues in Copenhagen relate to governance structures and safeguards on conservation of biological diversity, although the safeguards section contains reference to international agreements related to biodiversity. The lack of clear monitoring mechanisms is also an outstanding issue.

As far as indigenous peoples' rights are concerned, the consolidated language will need further refining and reworking. However, the fact that reference to UNDRIP and FPIC is still in the text, albeit in brackets, shows that the issue is considered as key by negotiators, and that the Indigenous Peoples' Caucus has gone far in generating support from a broader coalition of parties and non-governmental organizations. Such capital will prove fundamental in the follow-up to COP15 when the details and specifics of REDD will have to be discussed and finalised, in what AWG-LCA Chair Cutiajar had already announced as a 'Marrakech-like' process on REDD.

FPP has been active in supporting its indigenous peoples partner organisations in Barcelona and will continue this support in Copenhagen, to enable them to work with the Indigenous Peoples' Caucus and a team of indigenous leaders from countries where FPP operates on the ground. The Indigenous Peoples' Caucus has developed a broad advocacy strategy for Copenhagen that goes beyond the exclusive focus on REDD and aims to put indigenous peoples' rights at the centre of any COP15 outcome. In order to do so, a series of outreach and public events have been organised, including the Indigenous Peoples' Day to take place on 12 December 2009.