by Taryn Fransen, Smita Nakhooda and Takeshi Kuramochi - November 11, 2013
In order to understand where the climate finance agenda is likely to go, it is first necessary to grasp where it stands today. To that end, Overseas Development Institute, WRI, and IGES – in partnership with the Open Climate Network – have conducted the first in-depth examination of Fast Start Finance (FSF), the period from 2010-2012 in which developed nations pledged to deliver US$ 30 billion in climate finance. As of September 2013, countries reported providing $35 billion in public FSF from 2010 through 2012, exceeding their pledge. Just five countries – Germany, Japan, Norway, the United Kingdom and the United States— provided US$ 27 billion of this finance.
A new report from the U.N. Environment Programme (UNEP) shows that the world is still not taking enough action to avoid dangerous levels of climate change. Assuming countries deliver on the pledges they have made to reduce their respective emissions, the Emissions Gap Report finds that global GHG emissions in 2020 will still be 18 to 27 percent above where they need to be if warming is likely to be limited to 2 degrees Celsius above pre-industrial levels. This gap puts the world in a dangerous position of experiencing increased sea level rise, forest fires, and other serious impacts--unless we take action now.
Australia is a major nation to watch when it comes to curbing climate change. The country made an international commitment to reduce its GHG emissions by 5 to 25 percent from 2000 levels by 2020. How Australia achieves these reductions can provide lessons on how other countries around the world can pursue their own climate change mitigation plans.
WRI’s Open Climate Network and Australia’s The Climate Institute (TCI)recently analyzed Australia’s climate change plan, which includes a mix of policies to reduce emissions (check out the working paper here). We found that three initiatives stand out in terms of their potential to significantly reduce GHG emissions: a carbon pricing mechanism, a Renewable Energy Target (RET), and the Carbon Farming Initiative (CFI).
Sven Harmeling, Takeshi Kuramochi, and Steffen Kalbekken also contributed to this post.
How are we going to deliver climate finance at a sufficient scale to help developing countries mitigate and adapt to climate change? Parties to the UNFCCC--including those at this month’s intersessional in Bonn--are struggling to agree on the answer to this question. The UNFCCC established a Standing Committee on Climate Finance to take stock of global progress towards this goal, while a work program on Long-Term Finance will continue this year.
As these various groups debate the future of climate finance, it’s important to look back at progress and trends thus far. The fast-start finance (FSF) period offers important insights into how different developed countries are approaching the challenge of delivering international climate finance. These lessons can inform future efforts.
Major Insights from the Fast-Start Finance Period
Developed countries report that they delivered more than $33 billion in FSF between 2010 and 2012, exceeding the pledges they made at COP 15 in Copenhagen in 2009. But how much of this finance is new and additional? How has it been allocated, and what is it supporting?
Back in 2009, developed countries pledged to provide $30 billion in climate finance by the end of 2012 in order to help developing countries implement low-carbon, climate-resilient development initiatives. This funding period—which took place from 2010 to 2012—is known as the “fast-start finance” period.
Our analysis reveals two sides to the U.S. contribution of roughly $7.5 billion in fast-start finance: On one hand, it represents a significant effort to increase international climate finance relative to previous years, in spite of the global financial crisis. On the other, it is not clear that the entirety of the contribution aligns with internationally agreed principles, which stipulate that the finance be “new and additional” and “balanced” between adaptation and mitigation. In any case, the United States, along with other developed countries, is now faced with the challenge of scaling up climate finance to developing countries to reach a collective $100 billion per year by 2020.
In the UNFCCC international climate negotiations, “ambition” refers to countries’ collective will to cut greenhouse gas (GHG) emissions enough to keep global average temperature increase below 2°C. While most countries have made international pledges to limit GHG emissions, these pledges are not “ambitious” enough to add up to the GHG cuts needed to meet the 2°C temperature goal. That’s why many groups are calling on parties in Doha to step up their commitments. Equally important, though, is ensuring that countries are effective in implementing domestic policies that meet – or exceed – the international commitments they have made already.
What Makes for an Effective Domestic Climate Policy?
The “implementation deficit” – a difference between the expected and actual amount of emissions reductions of an enacted policy—stems from a lack of complete implementation of a climate policy. This kind of “deficit” is well documented in a number of policy sectors, with significant implications for the countries’ abilities to meet GHG-reduction targets. Conversely, when climate policies are effectively implemented, they demonstrate that mitigation actions can work, in turn encouraging other countries to adopt similar policies and actions.
This piece was co-authored with Smita Nakhooda of the Overseas Development Institute, with inputs from Noriko Shimizu (IGES) and Sven Harmeling (Germanwatch).
Developed countries self-report that they have delivered more than $33 billion in fast-start climate finance between 2010 and 2012, exceeding the pledges they made at COP 15 in Copenhagen in 2009. But how much of this finance is new and additional? Developing countries and other observers have raised questions about the nature of this support, as well as where and how it is spent. Independent scrutiny of country contributions can shed light on the extent to which fast-start finance (FSF) has truly served as a mechanism to scale-up climate finance. Our organizations have analyzed the FSF contributions of the United Kingdom, United States, and Japan, and analysis of Germany’s effort is forthcoming.
Our analysis revealed four key insights into the FSF experience:
1) Developed Countries Have Ramped Up Climate Support
The FSF period has been a difficult one: Developed countries pledged their climate finance support at the advent of unprecedented economic difficulty brought on by the 2008 financial crisis. Nonetheless, developed countries have sustained support for climate change adaptation and mitigation in developing countries, despite fiscal austerity measures that have substantially cut back public spending. Indeed, all of the countries we reviewed appear to have significantly increased their international climate spending since 2010.
In many cases, data limitations impede a direct or accurate comparison of fast-start spending to related expenditures before 2010. But the UK appears to have increased its climate finance four-fold relative to environment-related spending before the FSF period. Germany has nearly doubled climate-related finance. Japan previously mobilized $2 billion per year in climate finance through the Cool Earth Partnership; under FSF, it reports average spending of more than $5 billion per year. Finally, through its Global Climate Change Initiative, the United States has increased core climate funding from $316 million in FY09 to an average of $886 million per year in FY10 to FY12.
The global renewable energy industry has experienced dramatic growth in recent years. Renewable energy capacity (excluding hydropower) has more than doubled since 2005. In 2011, new clean energy investments reached a record $257 billion (a six-fold increase from 2004), and approximately half of the world’s new electric capacity came from renewable sources. These gains came despite the tumultuous backdrop of a global financial crisis and a rapidly changing clean energy technology industry - one that’s experiencing increased global competition, rapidly falling industry prices, and oversupply in the solar photovoltaic (PV) and wind sectors.
However, the benefits of the clean energy industry have not been shared evenly around the world. WRI’s new working paper, Delivering on the Clean Energy Economy, shows that countries have varied widely in their success of growing renewable energy industries that achieve both global competitiveness and domestic benefits. The main reason for this variation lies in the types of national policies the countries have in place.
According to our new research, countries who have been successful with their clean energy development have:
Taken a Comprehensive Approach: Policies are integrated at the national level
Sustained Policy in a Predictable Manner: Policies have an established lifetime of at least three-to-four years to enhance industry certainty
Implemented Targeted Policies: Policies address the needs of different technologies and target the needs of the entire value chain
How can policymakers deliver low-carbon development, particularly clean energy, at affordable costs? What strategies have countries used to attain the economic benefits of building a clean energy industry while keeping the burden to consumers low —and who is succeeding, and why? These are just a few of the questions that policymakers grapple with when tackling the challenges associated with transitioning to a green economy, one of the key themes of the Rio+20 conference. They’re also questions that WRI seeks to answer through our upcoming, cross-country analysis of clean energy industry development.
How much fast-start climate finance is actually flowing, and where is it being spent?[^1] This question has come up repeatedly alongside the United Nations Framework Convention on Climate Change (UNFCCC) climate talks in Bonn this week.