Putting the law at the heart of the Paris Agreement

ThisdocumentisanoutputfromaprojectfundedbytheUKDepartmentforBusiness,EnergyandIndustrialStrategy(BEIS)forthebenefitofdevelopingcountries.However,theviewsexpressedandinformationcontainedinitarenotnecessarilythoseoforendorsedbyBEIS,whichcanacceptnoresponsibilityforsuchviewsorinformationorforanyrelianceplacedonthem.

PuttingthelawattheheartoftheParisAgreement

-Summaryreport-TomarkthefifthanniversaryoftheParisAgreement,LRIheldaone-hourwebinareventonThursday10December,from2to3pmGMT.Thepurposeoftheeventwastohearvoicesoftheinternationallegalcommunityonpriorityissuesthatneedtobeaddressed,specificallyinthelead-uptoandduringCOP26intheUKin2021,inorderfortheParisAgreementtosucceed.Thirteenclimatelawyersfromaroundtheglobeweregiven3minuteseachtoraiseoneissuethattheyconsiderapriorityinthefurtherimplementationoftheParisAgreement.Arecordingoftheeventisavailableat:https://www.youtube.com/watch?v=5ayPHNSx8FQThemeetingwaschairedbytheformerUKSupremeCourtJusticeLordCarnwath,AssociateMemberofLandmarkChambers,andfacilitatedbyChristophSchwarte,theExecutiveDirectorofLRI.Allcontributionstothemeetingsummarizedinthefollowingweremadeinapersonalcapacityandcannotbeattributedtonegotiationgroupswithwhomthespeakersareaffiliated:

StrengtheningParisAgreementmechanismsforcompliancewithnationallydeterminedcontributions

Nationallydeterminedcontributions(NDCs)areakeytoolfortheimplementationofthelong-termtemperaturegoalsoftheParisAgreement.Thesystemhasitsshortcomings,however:itisbasedona‘bottom-up’orself-assessmentapproach:whilsteachpartyhasalegalobligationtosubmitandmaintainanNDC,andtoprovidecertaininformationintheirNDC,thedecisiononwhatactionapartywilltaketoreduceitsemissionsandimplementitsNDCisentirelyatthatparty’sdiscretion.ThereisnocomplianceprocesstoassesstheextenttowhichithastranslateditsNDCintoaction.Article15oftheParisAgreement(PA),establishesanimportantmechanismdesignedtofacilitateimplementationandpromotecompliance.However,thecomplianceprocesswillonlyconsiderwhetherapartyhascommunicateditsNDC(andotherinformation)ornot.ThisandotherreportingandreviewmechanismsunderthePAshouldbefurtherdevelopedtocreatepressureonpartiestoimplementtheir

SharabanTahuraZaman,CentreforClimateJustice-Bangladesh,NorthSouthUniversityBangladesh&AdvisertotheLDCGroup

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NDCs.Thefollowingrecommendationscouldbeconsidered:thedraftRulesofProcedureoftheComplianceCommitteeneedtobecarefullydraftedtoallowtheCommitteetoinitiateconsiderationofaParty'snon-actionconcerningNDCimplementationandpromotecomplianceinafacilitativemanner.AccountabilitymeasuresundertheenhancedtransparencyframeworkshouldbefurtherstrengthenedandarobustMRVsystemdevelopedforNDCimplementation.PartiescouldalsodeclarethattheyconsidertheirNDCalegallybindingunilateraldeclarationunderinternationallaw.

Arights-basedecosystemapproachforajustrecovery

PhasingoutfossilfuelsiscriticaltothesuccessoftheParisAgreement.However,weareseeinganincreasedrelianceon‘nature-basedsolutions’,thatis,usingnaturetooffsetemissionsandachievethelong-termgoals.Thereareseriousconcernsthatnature-basedsolutionslinkedwithachievingnetzerotargetsarebeingusedasasmokescreenbyhighpollutingindustriesandcountries,tomisleadthepublicontheirclimateactions.Thisnature-basedsolutionsagendaisincreasinglybeingdrivenbytheUNFCCC.Nature,andtheroleofforests,wasamajorstumblingblockatCOP25inthecontextofnegotiationsonArticle6.UnresolvedissuesincludedhowtoensurethatemissionreductionsarenotreversedinthefutureandthatnoviolationsofhumanrightsarecausedbytheimplementationofArticle6.YettheproposedArticle6outcometextmakesnoreferencetohumanrights.Thisisnotacceptable.FormanyyearsconcernshavebeenraisedinrelationtohumanrightsviolationsandcarbonprojectsundertheCleanDevelopmentMechanismandREDD+.Incomingyears,wewillbeconfrontedwiththesameissuesrelatedtoArticle6.Therefore,thereneedstobecleartextincludedintheArticle6decisiontomakesurethattherewillbenohumanrightsviolationsintheimplementationofArticle6.

StephenLeonard,President,ClimateJusticeProgramme(CJP)

Longtermplanningvs.shorttermactionTheParisAgreementclearlyarticulatesshort-termactionwithlong-termgoalsinitsArticle2,andhowNDCsmustrelatetolong-termstrategiesthatdeliveronalongtermgoaltowards1.5ºC,enhancedglobalresilienceandtheconsistencyofallfinanceflowswithalowemissionclimateresilientdevelopmentpathway.Equally,the1.5CgoalisnotjusttechnicaljargonbutreflectswhatthebestavailablesciencetellsuswemustdotoimplementtheParisAgreement.Yet,aligningnationalactionwithglobalneedsisthegreatesthurdleinimplementingParis.Ontheonehand,thereisabigpicturedeficit:short-termactionthroughNDCscannotbetothedetrimentoflong-termactionor,toputitanotherway,NDCswillbeworthlessifnotpartofthelong-termstory.Inthiscontext,scienceisclearaboutbothwhatwehavetoaimforlong–termandwhatwehavetodonow–shortterm–tobeabletodeliver.

GianninaSantiagoCabarcas,Coordinator,ParisAgreementandLegalAffairsAdvisor-AssociationofIndependentLatinAmericanandCaribbeanStates(AILAC)SupportUnit

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Aslawyerswemustnotfailtoseetheforestforallthetreesthatareinit,andweneedtospeakaboutthis:thespiritofthelawisasimportantastheletterofthelaw.Andendlessargumentsabouttheuseof‘should’asagainst‘shall’maymissthebigpictureandprovidealegaldetrimenttowardstherealobjectivethatwearetodeliveronwhichisthe1.5ºCtargetandwhatactionshavetobeundertakennowtodeliveronthispurpose.Thereisanambitiondeficitandeachcountrymustrevisetheirshort-termgoalsiftheywanttodeliveronthelongterm2050carbonNeutralitytargetthattheyhaveset,andthatisimperativetothedeliveryinternofthe1.5goal.Weneedtolaythatsolidshort-termfoundation,basedonthe1.5goal,today,withthelong-termgoalsinmind.

BrieflessonsfromtheUSanddomesticconstituenciesasdriversofimplementation

ThesuccessoftheParisAgreementwilldependnotonlyoninternationalcoordination,butalso–andprimarily-ondomesticimplementation.AstheAgreementisbasedonabottomupapproach,domesticconstituencieswillbeadrivingforceforsuccess.UndertheTrumpadministration,therehasbeenavoidinleadershipatthenationallevel;ithas,however,beenfilledbycities,sub-nationalgovernments,largecorporationsandinnovationthathasdriventhepriceoftheenergytransitiondown.Civilsociety,throughlitigationandadvocacy,isalsoplayingitspart.Climatelitigationisrisingascivilsocietygroupsarekeepinggovernmentsandcompaniestotask,forcingassessmentsoftheimpactsofprojectsandpoliciesandforcinggovernmentstocomplywiththeircommitmentsthroughnationallegislationandpolicies.Lawyerscanalsoplayaroleaslitigatorstoforceimplementationatthenationallevel.

MichaelBurger,ExecutiveDirector,SabinCentreforClimateChangeLaw,ColumbiaUniversity

TrustbuildingdialogueandclimatechangeresponsibilityClimatechangeisalreadyaffectingourpeople.Lossanddamage,thatis,climateimpactsthatcannotbeavoidedthroughmitigationoradaptationactions,isalreadyhappening.COVID19hascompoundedthesituation.Peopleaskthemselves:“whatdidwedotodeservethis?”Thisisthefundamentalinjustice,thatpeoplewhosuffermostfromclimatechangehavedonelittleornothingtocauseit.TheNorthhasbeenplunderingMotherEarthwithoutregardforconsequences.Yet,therehasneverbeenanapologyorrecognitionfromtheNorthorcompaniesforthedamagethishascaused.Thereis,therefore,anopportunityfortheUK,asCOP26president,toprovidegloballeadershipandbringadialogue,forpeopletocomeandacknowledgepastinjustices.Tomoveforwardwemustlookatthepast;nottocondemn,buttohelpbuildthetrustneededtoforgethewayforward.

AugustineNjamnshi,ChairPoliticalandTechnicalAffairsCommittee,PanAfricanClimateJusticeAlliance(PACJA)

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Indoingthis,theUKdoesnothavetoaccommodatetheUS.TheUSwillre-jointheParisAgreement,butthisshouldnotdominateCOP26.TheUKcanshowtrueleadership,standaloneandchartadifferentpath,basedontrustandempathy,thatwillbringbacktheconfidencelostinthenegotiationsoverthepastyears.

EstablishmentofanindependentExpertsGrouponequityinNDCsWhendiscussingthelevelofambitionofNDCs,wemustnotforgetthatwhatliesatthecoreoftheimplementationofParisisequityandtheprincipleofcommonbutdifferentiatedresponsibilities.Thus,althoughitisuptocountriestodeterminethelevelofambitionoftheirNDCs,theymuststillbeinlinewiththoseprinciples.Buthowdoweknow,whengovernmentsaresettingtargets,thattheyareinlinewiththeseprinciples?Ifinadequatetargetsaresetandwehavetowaitforanother5yearsforthesetoberaised,itwillbetoolate.Socivilsocietymustputpressureongovernmentsbeforetargetsareset.Weneedanindependentgroupofexpertsthatlooksatallthedifferentinterpretationsofthoseprinciplesandsetbenchmarksforemissionreductiontargetsagainstwhichwecanassessgovernmentaction.OnlythencanwehaveatruebottomupprocesssettingNDCsthatarealignedtotheParistemperaturetargetof1.5Caswellaswithprinciplessuchasequityandcommonbutdifferentiatedresponsibilities.

DennisvanBerkel,LegalCounsel,UrgendaFoundation&Co-DirectorClimateLitigationNetwork

FuturegenerationsandzeroemissionsFuturegenerationswillplayanimportantroleinachievingzeroemissions.BothwillbehighlightedaskeydriverstoimplementtheParisagreementatCOP26.Thetwoaredeeplyrelatedsimplybecauseyoungpeoplewilllivelongerandthereforefeelstronglythethreatthatclimatechangeposesontheirfuture.Youngpeoplehavetakentothestreetsdemandingclimatejustice.Theseactionsareinlinewiththeprincipleofintergenerationalequity,whichismentionedasanobjectiveoftheConvention:toprotecttheclimatesystemforthebenefitofpresentandfuturegenerationsonthebasisofequity.TheprinciplealsofeaturesintheParisAgreementbutiscurrentlylimitedasamoralratherthanlegallyeffectivenorm.Ithassofarbeenprotectedbyadultswhohavevotingrightsunderdemocraticsystemstorepresentchildren’srights.However,thedirectactionsbytheyouthshowthatthiscurrentsystemandthenormneedreconsiderationintheoryandinpractice.TheseyouthmovementshaveledtotheglobalwaveofFridaysForFutureanddrivenclimatelitigationactions.DuringtheUNclimatesummitofSeptember2019,morethan4millionchildrenparticipatedinaglobalclimatemarchand16children,includingGretaThunberg,

HitomiKimura,AssociateProfessor,OtsumaWomen’sUniversity

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submittedalegalcomplainttodenouncethelackofgovernmentactionontheclimatecrisistotheUNCommitteeontheRightsoftheChild.Theseyouthactionshavealsoplayedanimportantroleinacceleratingcountries’decisionstoupgradetheirlong-termemissionreductionsstrategiestoachievecarbonneutralityby2050.

Climatechangeasahumanrightsissueunderinternationalanddomesticlaw

TheParisAgreementdoesnotcontainprovisionsrelatingtohumanrightsinitsoperativepartbutitspreamblemakesclearthatpartiesshouldrespectandpromotehumanrightswhentakingactiontoaddressclimatechange.Thehumanrightsorganshavewidelytakenuptheissueandthereistodayanacknowledgementthatclimatechangeisahumanrightsissue.TheobligationsofstatesinthiscontextwererecentlyhighlightedinajointstatementbyfiveUNHumanRightsTreatyBodies:“Failuretotakemeasurestopreventforeseeablehumanrightsharmcausedbyclimatechange,ortoregulateactivitiescontributingtosuchharm,couldconstituteaviolationofStates’humanrightsobligations”.Attheinternationallevel,thesebodiesarelookingattheobligationsofstatesinthecontextofbothcontentiousandnon-contentiousprocedures.However,internationallawisalwaysthelastresort.Theroleofthelegalcommunity,therefore,istomakesurethereareadequatedomesticlegalsystemsinplaceincountriestoensuretheseobligationsarerespected.

MonicaFeria-Tinta,Barrister,TwentyEssexChambers

OperationalizingArt.2.1c)PAandredirectingfinancialflowsFinanceiskeytoincentivisingandunlockingallotherstrategicareasfortheimplementationoftheParisAgreement.ItisalsokeytothecreationofasustainableandequitablepostCOVIDworld.Oneofthecurrentlearningsabouttheclimatecrisisisthatweneedtounderstandandbetteractonsystemicriskwarnings.So,intermsofprioritiesforCOP26,financeandsystemicriskmustbekeptfrontandcentre.Arguably,theParisAgreementitselfmandatesthisinitsArticle2.1c),whichcallsformakingfinanceflowsconsistentwithapathwaytowardslowGHGemissionsandclimate-resilientdevelopment.Thisprovisionisacalltoactiontoensurethatallfinance,includingmainstreamfinance,isflowinginthesamedirection,namelytowardsgreen,sustainableandresilientdevelopment.Thisrequiresdevelopingamainstreamfinancesystemwhereeveryfinancialdecision–publicorprivate–musttakeintoaccounttheclimateandapathwaytonetzerointhecontextofsustainabledevelopment.

MeganBowmanDirector,ClimateLawandGovernanceCentre,TheDicksonPoonSchoolofLaw,King’sCollegeLondon

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ThusalldecisionmakersneedtotreatArticle2.1c)astheirNorthStarandbringittolife.TheUKhasauniqueopportunitytosetthetoneonthisatCOP26.

ThecentralroleofscienceintheUNFCCCregimeAsalawyerspeakingaboutthescience,therearethreekeymessagestoconvey:Thefirstisthatsciencecancapturetheimaginationandspurglobalactiononclimate.Toillustratethis,onemightlookattheoutcomeofthe2013-2015reviewofthelong-termtemperaturegoal,undertakenundertheUNFCCC.Itconcludedthatthe2°Cgoalshouldbeseenasadefencelineandthateffortsmustbemadetopushbelowthatdefenceline.ThisformedthebasisforthetemperaturegoalinArticle2oftheParisAgreementandforthedecisiontoinvitetheIPCCtoprovideaspecialreportontheimpactsof1.5°Cwarming.Therewasaspectacularfightaroundthe1.5°CIPCCreportin2015thatcapturedtheimaginationofthegeneralpublicandhelpedincentivizeyouthactivism.Thesecondmessageisthatthesciencecontinuestoevolveandthatwemustpaycloseattentiontothis,includingthesecondreviewofthelong-termtemperaturegoalthatisbeginningtoday.Thethirdmessageisthatlawyersarepartofthescience-policyinterface,thatis,thearchitectureresponsiblefortranslatingscienceintopolicymessagesthatarecapableofspurringclimateactiondomestically.

RueannaHaynes,SeniorLegalAdvisorandTeamLeadAllianceofSmallIslandStates(AOSIS)Support,ClimateAnalytics

OperationalizingtheadaptationgoalThepresentationfocussedonthelegalquestionsaroundtheimplementationofadaptation.Weknowthat,evenifambitiousmitigationactionsareachieved,theadverseimpactsofclimatechangewillbefeltduetoexistingGHGemissions.ThustheimplementationofthePAcannotbeachievedwithoutambitiousadaptationaction.Thequestion,therefore,ishowtoframelegalquestionstoimplementadaptationbetter.TheUNFCCC,initsArticles2and4,setoutclearobligationsonadaptation.TheParisAgreementfurtherprovidesclearguidance:thelong-termtemperaturegoalinArticle2islinkedtoadaptation;Article3recognisesthatadaptationcanbepartofNDCs;andArticle7establishesaglobalgoalonadaptation.Therefore,thequestionsforCOP26couldbeframedasfollows:howcanweoperationalizetheglobalgoalforadaptationrecognisingthatthereisworktakingplaceundertheAdaptationCommittee?Howcanthatbe

SelamAbebe,LegalAdviser,AfricanGroupofNegotiators(AGN)&LeverhulmeTrustDoctoralScholarinClimateJustice,UniversityofReading

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linkedtomethodologiesofneeds?Doweneedtoquantifythatgoalasatemperaturegoalanddoweneedaworkstreamand/orpoliticalspaceundertheCMAtoadvancethatwork?

Standingupforhumanrightsandrightsofvulnerablecommunitiesandtakingdirectaction

Thepresentationofferedsomeideasastowherelawyerscanmostcontribute.2030isthenew2050.TheglobalNorthmustadvancethatgoal,contributingitsfairshareforhistoricalandwealthreasonsandhave2030asthenearerdateforphasingoutGHGemissions.Restorationofnaturestartswithregistrationandreparation.Wearewitnessingmultiplecrisesthatarebornoutofcenturiesofcolonialism,inequalityandinjustice.Around40to65%oftheworldlandisheldcollectivelybyindigenouspeoplesandlocalcommunities,yetlessthan10%ofthatlandislegallyregistered.Weneedtostandupaslawyersforhumanrightsandforthosewhoshouldhaveownershipofthatland.CommunityisthenewCOP.SomanyofushavespentweeksafterweeksatCOPs.Wehaveneglectedourownbackyardandmustmakefreshbondstohelpcreateafairer,kinderandgreenersociety.Sometimes,non-violentdirectactionoutsidethelawisthestrongestactionweaslawyerscantake.ExamplesincludeMandelaandGandhi:theyachievedthemassivechangestheydidbychoosingtobreakthelawandtakingnon-violentdirectaction.

FarhanaYaminFounderTrack0&AssociateFellowatChathamHouse

Lossanddamage,risktransferandmigrationSomekeyissuesaffectingdevelopingcountriesthatweneedtofocusoninclude:Lossanddamageandhowthatconnectswithvulnerablecommunitiesandvulnerableeco-systems,includingfoodsystems.Vulnerablecommunities,suchasfarmingcommunities,womenandchildren,areattheforefrontofclimateimpacts.Risktransferandfinanceplayakeyroleinensuringthatvulnerabilitiesareaddressed,andensuringthatsocioeconomicdisadvantagesarenotexacerbated.Humanmobility,andtherelatedissuesofmigrationanddisplacement,alsoconnectswithclimateimpactsandlossanddamage.Itmayresultfromgapsinrisktransferandriskmanagementandwilloftenaffectthemostvulnerablecommunities.Itisimportant,therefore,thatweconnectthedotsandaddresstheseissuesinaholisticmanner.

VosithaWijenayakeExecutiveDirectorSLYCANTrust&AttorneyatLaw

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Aslawyers,wemustensurethatlawsandpoliciesonclimateareevidencebased,includingbeingbasedonassessmentsofgroundlevelrisksandvulnerabilities.Anintegratedapproachisneeded;lookingatthenational,butalsothesub-nationallevel,andlookingnotonlyatprocessesundertheParisAgreement,suchasNDCsandNationalAdaptationPlans(NAPs),butalsoatotherongoingprocesses,suchastheSDGs.

Followingthepresentations,contributorsandotherclimatelawyerswhoparticipatedinthemeeting,discussedanumberofissues.PromptedbyaquestionfromLindaSiegele(environmentallawyerandadvisertotheCookIslands)regardingCOPdecision1/CP.21,para.51,whichstatesthatArticle8oftheParisAgreementonlossanddamagedoesnotinvolveorprovideabasisforanyliabilityorcompensation,theseincludedtheareaofclimatelitigationandotherlegalapproachestoholdgovernments,fossilfuelcompaniesandotheractorsaccountablefortheadverseeffectsofclimatechange.MonicaFeria-TintadrewattentiontoacaseintheGermancivilcourtsagainsttheutilitycompanyRWEbroughtbyGermanwatchonbehalfofaPeruvianfarmer.FarhanaYaminhighlightedtheconceptofecocideandthepotentialofusingcriminallawintheclimatechangecontext.Inherviewcriminalliabilitymayflowfromtheoutcomesofsomeofthecivilsuitsthatareorhavetakenplacerecently.TheClimateChangeLitigationGuidebyAction4Justice(designedtoassistcommunities,CSOsandlawyerstoassesstheviabilityofandtakelegalactiontocombatclimatechange)wasmentionedbyRichardLord(barrister,BrickCourtChambers)andisavailableathttps://action4justice.org/legal_areas/climate-change/.SelamAbebeemphasisedtherelevanceofpublicinternationallaw–thelawbetweenstates–inthiscontextandthatsomepartiesmadedeclarationswhenjoiningtheParisAgreementtotheeffectthatacceptanceoftheAgreementdoesnotconstitutearenunciationofanyrightsunderinternationallawconcerningStateresponsibilityfortheadverseeffectsofclimatechange.AugustineNjamnshireiteratedhiscallfortheneedtoacknowledgepastinjusticeandtotaketheprovisionsoftheParisAgreement,onforexamplefinance,asmeaningfulguidanceinmovingforward.OlgaHancock(EnvironmentallawyerandanalystattheChurchCommissionersforEngland)enquiredaboutpossiblelegalmechanismstoaddressperceivedrisksofinvestmentinclimatesolutionsinemergingmarkets.MeganBowmanagreedthatbecauseadaptationrelatedinvestmentdoesnotcarryimmediatefinancialrewardsitisoftenperceivedashighrisk.Insuranceandguaranteescan,however,bridgethegapbetweenwhatlooksnotfeasibleandwhatwouldwork.Butmoregovernmentactionisneededandlawyersneedtoeducatethemselvesaboutthepotentialleversandpolicydiscussionsatgovernmentlevel.Inhisclosingremarks,LordCarnwathnotedthattheUK,astheincomingCOPpresidency,hadanopportunitytotaketheleadindevelopingastronglegalframework,promotingambitionandensuringthatdevelopedcountriesliveuptotheirfinancialcommitments.HeexpressedthehopethatinacountryliketheUKwithaframeworkforparticipationandacommitmenttotheruleoflawitwillnotbenecessarytotakenon-violentdirectactionoutsidethelaw,andthatyoungpeopleandfuturegenerationswillwatchwithoptimismwhilewearelivinguptoallthethingsthatwehavecommittedtodoingnow.