The latest summit to stop climate change, held in Doha, Qatar, over the past two weeks has been roundly slammed. Little was agreed to curb greenhouse gas emissions and the latest modelling, carried out by the Climate Action Tracker consortium shows global averages temperatures are still set to rise by at least 3 °C above pre-industrial levels.
There was one breakthrough: developing countries won a promise from developed ones that they would compensate them for losses and damage caused by climate change. The deal offers the promise of large amounts of climate aid. But first, science will have to catch up with politics.
All countries will suffer from climate change. There will be consequences even if humanity slashed its emissions and stopped temperatures rising more than 2 °C above pre-industrial levels, the stated goal of the UN negotiations. In actual fact, with emissions rising faster than ever, a 3 or 4 °C rise is likely this century.
The consequences will be manifold. Deserts will spread and lethal heatwaves become more frequent. Changes in rainfall will bring droughts, floods and storms, while rising seas will swamp low-lying areas, obliterating valuable territory. Food production will fall.
Before Doha kicked off, the charities ActionAid, CARE International and WWF released a report arguing that rich countries should compensate poor countries for such damages. Tackling the Limits to Adaptation points out that climate change will cost countries dearly, both economically and in less tangible ways such as the loss of indigenous cultures.
Two-pronged approach
So far, climate negotiations have taken a two-pronged approach to the problem. On the one hand, they have sought to create incentives or imperatives to cut emissions. On the other, they have established a pot of money for poor countries to pay for measures that will help them fend off the unavoidable consequences of climate change – such as sea walls and irrigation systems.
That, according to some, leaves a third element missing. Helping those who suffer the consequences of climate change is a moral obligation and must be part of any treaty on climate change, says Niklas Höhne of renewable energy consultancy Ecofys. The idea of climate compensation has been around since the early 1990s, when the United Nations Framework Convention on Climate Change was negotiated.
In Doha, a coalition including China, the Alliance of Small Island States and the G77 group of developing countries pushed for it to revived.
They proposed a scheme that would decide when countries had suffered climate harms, and compensate them. It would be a form of insurance, and the greatest international aid scheme ever. The idea gained momentum after Typhoon Bopha struck the Philippines last week, and that country's negotiator Naderev "Yeb" Saño broke down in tears during a speech. And, although developed nations had little incentive to agree, the conference concluded with a promise to set something up next year.
Compensation poses a fundamental challenge to climate science, which still struggles to work out if trends and events are caused by greenhouse gases or would have happened anyway. "We can't say that an individual event was caused by climate change," says Nigel Arnell of the University of Reading, UK. "What we can do is say that the chance of it happening was greater."
Systematic tests
Some climatologists are now running systematic tests to decide whether extreme weather events are caused by climate change. They run climate models with and without humanity's emissions. If the odds of a particular event are different, it suggests it was at least partially driven by emissions. By this measure, the 2003 European heatwave and 2011 Texas drought were both made more likely by human emissions.
But this science is in its infancy. We can confidently attribute large-scale trends and temperature changes, says Kevin Trenberth of the National Center for Atmospheric Research in Boulder, Colorado. But changes in rainfall, and short-term events like hurricanes, are harder because we do not really understand them. Trenberth speculates that superstorm Sandy would not have flooded the New York subways
without climate change, but says it's not possible to prove.
Arnell says that might prove unworkable. Gradual changes – such as rising sea levels, melting glaciers and ocean acidification – are easy to attribute to climate change but their consequences difficult to cost; sudden events are easy to cost but difficult to attribute.
There may be another possibility. Rather than examining individual events, climate models could predict the extra climate-related costs each country would experience, allowing regular payouts. "That would be a way round it," says Arnell. Delegates at next year's conference will have to consider these questions.
Positive step
Harjeet Singh of ActionAid in New Delhi, India, calls the Doha deal "a positive step forward". But it is only an agreement in principle: no money was committed, and even a promise to do so in the future was left out of the final text. Edward Davey, the UK's secretary of state for energy and climate change, said it was "far too early" to talk about committing money. "We aren't saying there should be compensation," he said.
Singh says the developed world would save money by cutting emissions now, rather than letting temperatures rise and then paying compensation. Small island states were keen to get an agreement on loss and damage because emissions cuts are going so slowly, making dangerous climate change almost certain. The Doha agreement is a first step towards dealing with the consequences of that failure.
On 'other business'
Aside from agreeing to make compensation available for loss and damage, the Doha summit achieved little. Nearly two decades ago, the world's governments set out to agree a binding deal to cut greenhouse gas emissions. Doha included some baby steps towards a deal in 2015, but that is not guaranteed and in any case will come too late to stop dangerous climate change. Only Lebanon and the Dominican Republic made new emissions pledges.
The talks were bogged down in rows over financing. In a deal that was separate to the adaptation fund, developed countries had promised in 2009 to deliver $100 billion a year by 2020 to help poor nations prepare for climate change. Between 2009 and 2012 they allocated $10 billion a year. In Doha they refused to say how they would scale that up, simply promising to "continue" – leaving developing countries unsure if or when they would get more.
The Kyoto protocol was renewed until 2020, but its global effect is likely to be limited. Its value is partly symbolic, to show that binding agreements can be reached, and as one of many small and medium-scale projects to cut emissions.
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