REPORT OF THE FRAMEWORK CONVENTION A NONGOVERNMENTAL .

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CLIMATE316PENNSYLVANIAINSTITUTEAVENUE.S.E . SUITE403WASHINGTON. D.C. URREPORT OF THEINTEIU ATIONAL WORKSHOP ON AFRAMEWORK CONVENTIONAND ASSOClATED PROTOCOLS:A NONGOVERNMENTAL PERSPECTIVECONVENED BY THE CLIMATE INSTITUTEAT TIlEQUALITY CAPITOL HILL HOTEL415 NEW JERSEY AVENUE, N.W.WASHINGTON, D.C. 20001FEBRUARY 2-4, 1990Co-CIWRJVlEN:\Il ISTERHONOURABLE TOM ROPERFOR PLANNING AND ENVIRONMENTSTATE OF VICTORIAAUSTRALIAJOHN C. TOPPING, JR.PRESIDENTCLLVIATEINSTITUTE

CLIMATE INSTITUTE316 PENNSYLI'A.\lA A YENI'E, S.E, SurEWASIlI'iGTON, DC 20003 03202/547-0104BOARD OF DIRECTORSFAX 20215 7-0I11TELEX 21 858 CLI:\1A TE CRDR. STEPHEJ. LEATHERMA . CHAIR.'L '"PAl;I. C. PRITCHARDFebruary 5, 1990FOl "'Dl'[GCHAIRJ.\t\.NJOHNP.BOND\lICH .u:L F. BREWERJOSEPH A. CA."mONTHOMAS GAlE:\l4.RK GOLDBERGnIOM4.S GRt; I8LYWILLIEL. LEFTWICHJAW. xtccuu.ocuPlIILUP NOYCEDR. L,"TINP.,""YRAFE POl\.1ER& rc CEDA.N1EL POWERDR. CHARLES W. PoWERSDR. HIND SADEKDR. STEPHE.'ISCHNEIDERROGER STRELOWSIR CRISPrN TICKELLJOIINC. TOPPI:'iG,JR.Dr. Bert BolinChairmanIntergovernmental Panel on Climate ChangeCase Postale No. 23001211 Geneve 2SWITZERLANDDear Dr. Bolin:I am transmitting to the Intergovernmental Panel on Climate Change (lPCC)the Report of the recent International Workshop on a Framework Convention andAssociated Protocols: A Nongovernmental Perspective.PRESIDE TDR. PIER VELLU"GAThis meeting which was held in Washington, D.C. February 2-4, 1990 drew inexcess of eighty participants from a number of countries. The participantsdeveloped draft language for a climate framework convention and variousprotocols that might follow.To ensure its impartiality, the meeting was funded entirely by the ClimateInstitute and was open to all interested parties. Participants came largely from thenongovernmental sector including the scientific, legal, environmental andindustrial communities. In addition, a number of governmental participants,including some involved in the IPCC process, provided valuable contributions.The products of this Workshop include draft language for:(a) a Framework Convention for the Protection of Climate;(b) annexes to the Convention on:- Research and Monitoring;- Information Exchange; and,- Agriculture;(c) a coastal protocol;(d) a protocol on Resolving Disputes over Shared Water Resources.The report also contains: elements of a protocol for the Conservation ofForests; some detailed recommendations for consideration in moving beyond theConvention to an Emissions Protocol; and some recommendations on economicincentives and mechanisms that could contribute to achieving some importantgoals.

Dr. Bert BolinFebruary 5,1990Page 2These recommendations represent a strong consensus, although not unanimity on all counts,of a diverse cross-section of parties interested in global climate policy. TIle convention andprotocol language transmitted here is offered only as a first cut in full recognition that theongoing analysis of the IPCC and its member governments will provide grounds forstrengthening, broadening and refining the scope of proposed treaty provisions to protect theearth's climate. We hope, however, that the IPCC and its member governments will find thisreport a useful contribution to the vitally important work of the IPCC.CJ-L 0Sincerely, --N('John C. Topping, Jr.PresidentClimate Insti tute9J I" .

T ABLE OF CONTENTSFRAMEWORKPreambleArticle I:Article 2:Article 3:Article 4:Article 5:Article 6:Article 7:Article 8:Article 9:Article 10:Article 11:Article 12:Article 13:Article 14:Article 20:CONVENTION FOR THE PROTECTION OF THE CLIMATEPal:e11DEFINITIONS3GENERAL OBLIGATIONS3RESEARCH AND MONITORING6INFORMATION EXCHANGE AND TECHNOLOGY TRANSFER7ASSESSMENT AND CONSIDERATION OF RESPONSES. . . . . . . . . . . 8CONFERENCE OF THE PARTIES8SECRETARIAT.11COMPLIANCE.12AMENDMENT OF THE CONVENTION OR PROTOCOLS12ADOPTION AND AMENDMENT OF ANNEXES, 13SETTLEMENT OF DISPUTES14SIGNATURE16RATIFICATION, ACCEPTANCE OR APPROVAL., 16ACCESSION16RELATIONSHIP BETWEEN THE CONVENTIONAND ITS PROTOCOLS17'ENTRY INTO FORCE17RESERVATIONS18WITHDRAWAL.· 18DISPOSITARY19AUTHENTIC TEXTS20ANNEXESANNEX I: RESEARCH AND MONITORINGI. NEEDSII. EXISTING INSTITUTIONAL ARRANGEMENTSIII. FURTHER ACTION. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .ANNEX II: INFORMATION EXCHANGE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .ANNEX III: AGRICULTUREI. GENERAL STATEMENT OF PROBLEM AND GOALS. . . . . . . . . . . . . . . . . . . . .II. REDUCTION OF GREENHOUSE GAS EMISSIONSA. GoalsB. Research. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .III. INCREASE RESILIENCE OF AGRICULTURE TO CHANGES IN CLIMATE .A. Goals·······B. Research. ·····IV. DISSEMINATION OF INFORMATION AND APPLICATION OF RESEARCH .112247788999I011PROTOCOLSA PROTOCOL '::ONCERNING COOPERATION AND ASSISTANCE INRESPONDING AND ADAPTING TO EFFECTS ON COASTAL COMMUNITIESAND ECOSYSTEMS OF SEA LEVEL RISE AND CLIMATE CHANGE., .Article 1: DEFINITIONS········Article 2: APPLICATIONS········Article 3: GENERAL PROVISIONSArticle 4: MUTUAL ASSISTANCE12233

Article 5:Article 6:Article 7:RESEARCH AND MONITORING4PUBLIC EDUCATION AND PARTICIPATION4SHARED COASTAL RESOURCES AND SETfLEMENTOF DISPUTES5Article 8: ADOPTION AND AMENDMENT OF THE PROTOCOL. . . . . . . . . . . . . . 5Article 9: INSTITUTIONAL ARRANGEMENTS" 5Article 10: EMERGENCY FACILITIES6Article II: REGIONAL SEA PROGRAMS6PROTOCOL ON RESOLVING DISPUTES OVER SHARED WATER RESOURCES. . . .PreambleArticle I: DEFINITIONS.Article 2: RESPONSIBILITY TO NEGOTIATE CONFLICTS OVER RESOURCES .Article 3: FLOODINGANNEX 1: PRINCIPLES OF EQUITABLE ALLOCATION OFSHARED RESOURCES11II2ELEMENTS OF PROTOCOL FOR THE CONSERVATION OF FORESTS1. GENERAL STATEMENT OF PROBLEMS AND GOALS::II. PROPOSED FORESTRY PROTOCOL ELEMENTSI. Commitment To Integrate Forestry Considerations Into GeneralDevelopment Policy2. Commitment to Mitigation of Climate Change Effects throughMaintenance of Existing Forest Area. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3. Commitment to Sustainable Use of Forests. . . . . . . . . . . . . . . . . . . . . . . . . . . . .4. Commitment Regarding Protected Areas, Protection of IndigenousPeoples, and Biodiversity:5. Controls on Activities likely to Prevent Sustainable Use of Forests:6. Commitment to Increase Forest Areas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7. Commitment by Parties to Support Bilateral and Multilateral DevelopmentAid and Debt Relief Proposal and Investments that Promote ForestConservation;. . .8. Commitment by Parties from the Developed World To IncreaseInternational Resource Flows to Parties from the Developing World inOrder To Help Them Meet Their Obligations Under the Protocol9. Commitment by Parties to Trade Policy That Encourages ForestConservation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10. Support and Encouragement of Activities Related to Forest ConservationConducted By International Organizations, National Institutions and byNon-Government Organizations (NGOs)II. Commitment To Support Research Relating to Forest ConservationI12323455566778SUBGROUP REPORTSREPORT OF SUBGROUP B: ELEMENTS OF EMISSIONS CONTROLPROTOCOLS: GASES COVERED, PROCEDURES FOR ESTABLISHINGNATIONAL BASELINES AND VERIFYING COMPLIANCE: '.1. Scope and Coverage. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2. Reductions in Greenhouse Gas Emissions3. Carbon Emissions from Forestry and Agricultural Practices'.4. Clarification' . .5. Emission Trading. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6. Enforcement. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1I13334

REPORT OF SUBGROUP C: ECONOMIC INCENTIVES TO ACHIEVECONVENTION GOALS1PARTICIPANTSWORKSHOP PARTICIPANTS1

FRAMEWORK CONVENTIONFOR THE PROTECTION OF THE CLIMATEPreambleThe Parties to this Convention,Aware that a steady buildup of concentrations of greenhouse gases in the atmospherethreatens to produce a rapid and significant global warming and that this projected climatechange attributable largely to human activity may cause sea levels to rise, change the patterns forprecipitation and evaporation and affect the intensity and paths of storms,Mindful that these greenhouse-effect-induced changes in climate could: prove highlydisruptive to human civilization and natural ecosystems; threaten coastal areas with inundation,increased risk of storm damage and salt water intrusion into fresh water supplies; endangerecologically important wetlands, destroy natural habitats and further jeopardize biodiversity;disrupt agricultural and forestry production; affect the availability and quality of water; impairhuman health and air quality; create large numbers of environmental refugees; and jeopardize thesurvival of much of the earth's cultural and ecological heritage,Reco&nizing that besides greenhouse-effect-inducedwarming of the earth, global, regionaland local climates may change due to such other anthropogenic causes as increased ultravioletradiation attributable to stratospheric ozone depletion, an enhanced heat island effect due toincreased urbanization, and changes in local or regional rainfall patterns attributable toreductions in vegetative cover and that these changes could exacerbate the disruption attendant toa rapid and large-scale greenhouse warming,Recalling that, while the pace and regional manifestations of this anticipated climate changeremain shrouded in uncertainty, a succession of international meetings has underscored that rapidand large-scale climate change is likely to be harmful to virtually all nations of the world,Acknowledging that the long lead times involved in slowing projected global warming inview of the momentum of the current climate system may make advisable acting to curbgreenhouse emissions well before there exists a fully shared understanding of the likely pace andregional implications of global warming, and that actions to curb greenhouse emissions mayinvolve increased energy efficiency, changes in industrial, transport or agricultural technology,

new patterns of land use and shifts in fuel use and that some of these changes may requiresubstantial capital investment,Recalling that pertinent provisions of the Declaration of the United Nations Conference onthe Human Environment, and in particular principle 21, which provides that "States have, inaccordance with the Charter of the United Nations and the principles of international law, thesovereign right to exploit their own resources pursuant to their own environmental policies, andthe responsibility to ensure that activities within their jurisdiction or control do not cause damageto the environment of other States or of areas beyond the limits of national jurisdiction.",Acknowledging that States are obliged to exploit and utilize their resources in a reasonableand equitable manner to avoid climate change,Recognizing that the emissions which have led to a growth in global concentrations ofgreenhouse gases have come largely from industrialized nations, but projections of populationgrowth, land use and energy consumption indicate that emissions from industrializing countriesmay increase rapidly and that all countries may benefit from curbing ofrapid growth ofconcentrations of greenhouse gases but that countries have differing access to the technology,scientific expertise and capital needed to reduce growth of greenhouse emissions,Aware that some nations, particularly small island nations, those with large populations onvulnerable river deltas, and those with agricultural systems already vulnerable to climaticvariability are especially susceptible to major disruptions from climate change and sea level riseand have limited resources to implement response strategies to minimize adverse effects,Taking into account the heartening actions already occurring under the Vienna Conventionfor the Protection of the Ozone Layer and the Montreal Protocol, the actions of the UnitedNations General Assembly in approving a Resolution entitled "Protection of Global Climate forPresent Future Generations of Mankind" on December 6, 1988, which recognized climate changeas a common concern of mankind, and in reaffirming these commitments in a resolution adoptedin December 1989, and the progress of the Intergovernmental Panel on Climate Change,Determined to protect humanity and the natural environment against adverse effectsresulting from a buildup in global concentrations of greenhouse gases,

HA VE AGREED AS FOLLOWS:Article 1DEFINITIONSFor the purposes of this Convention:1. "Adverse effects" means deleterious effects on human health, sea levels, economicactivity, supply of food, fiber or natural resources, habitation, quality of life, or cultural assets oron managed or natural ecosystems.2. "Climate change" means a detectable shift from expectation based on the historical recordin the trend of climate variables such as: temperature averages and extremes; the character,frequency, rate of fall, and seasonal distribution of precipitation; frequency and intensity ofstorms; wind; cloudiness; and evaporation rates.3. "Greenhouse gases" means compounds such as carbon dioxide (C02) methane (CHJ,nitrous oxide (N20), tropospheric ozone (03)' halons, chlorofluorocarbons (CFCs), and a numberof trace gases, which together with water vapor trap infrared radiation in the atmosphere. Theresulting radiative forcing, it is generally believed, will lead to climate change.4. "Parties" means, unless the text otherwise indicates, Parties to this Convention.5. "Protocols" means protocols to this Convention.6. "Regional economic integration organization" means an organization constituted bysovereign States of a given region which has competence in respect of matters governed by thisConvention or its protocols and has been duly authorized, in accordance with its internalprocedures, to sign, ratify, accept, approve or accede to the instruments concerned.Article 2GENERAL OBLIGATIONSI. The Parties shall take appropriate measures in accordance with the provisions of thisConvention and of those protocols in force to which they are party to limit the buildup of global-3 -

concentrations of greenhouse gases and to develop and implement strategies to protect humanityand environment from adverse effects of climate change. A major goal of this Convention is tolimit radiative forcing from human activities to 2 watts per square meter by the middle of thenext century.2. To this end the Parties shall, in accordance with the means at their disposal and theircapabilities:(a) Develop, bilaterally and multilaterally, funding mechanisms for the transfer of additionalfinancial, administrative and technological resources from affluent nations to poorer nations toenable them to effect measures that restrain emissions of greenhouse gases and adapt to climatechange while achieving ecologically sustainable economic development;(b) Cooperate to identify measures by which poorer nations can restrain greenhouse gasemissions and adapt to climate change while achieving ecologically sustainable economicdevelopment;(c) Cooperate by means of systematic observations, research and information exchange inorder to better understand and assess the effects of human activities in contributing to changes inglobal concentrations of greenhouse gases; to understand the interactions among the atmosphere,the oceans and the biosphere and their influence on global, regional and local climate; tounderstand the interrelationship between changes in the stratosphere and the climate at or nearthe earth's surface; to detect, measure, and assess changes in global, regional and local climateand such related factors as vegetative cover, sea ice, and cloud cover; and assess the potential forglobal warming to trigger additional releases of greenhouse gases such as those stored in soils,tundra or ocean sediments;(d) Cooperate to develop better models for projecting future global, regional and localclimates under given global concentrations of greenhouse gases, including likely changes inavailability of water resources, weather circulation patterns, storm intensity, and sea level; toassess the likely impacts of these changes on humanity and on natural systems; and to enable thedevelopment of site-specific response strategies;(e) Cooperate to develop means of adapting human activity such as agriculture, forestry,manufacturing, transportation, water resource systems, and human settlement to prepare foranticipated future changes in climate; to ensure that strategies are developed for minimizing-4 -

adverse impacts of climate change to such important ecological and cultural concerns as wildlifehabitats, natural wetlands, ocean beaches, recreational areas and historic sites;(f) Cooperate in developing more drought resistant and heat resistant cultivars of crops andimproved technologies for water conservation and use in order to adapt agriculture to climatechange and in developing and implementing agricultural and land use practices designed to limitemissions of greenhouse gases;(g) Identify the vulnerability of their coasts to given levels of sea level rise and assess thesusceptibility of coastal settlements, recreational beaches, coastal industry, ports and harbors tosea level rise, cooperate in the development of strategies to mitigate the adverse impacts of sealevel rise on humanity and on such ecologically important concerns as wetlands, and cooperatein providing information on coastal mitigation measures to vulnerable nations such as smallisland states and poor nations with populous river deltas;(h) Assess the vulnerability of water resources to changes in climate and its implications forwater availability and quality, irrigation, hydropower, flood control and drainage, and explore thefeasibility of cooperative mechanisms within their own national boundaries or with nearbycountries of mitigating the impacts of drought or flood due to climatic variability or climatechange;(i) Cooperate in limiting emissions of greenhouse gases through the development andintroduction of energy efficient technologies, greater use of technologies which generate lowquantities of greenhouse gases, increased reliance on mass transit, more energy efficient buildingdesign and use of landscaping, and other measures;G) Cooperate in preserving and expanding forests where feasible in view of their importantrole in storing carbon dioxide, providing watershed protection and flood control, and preservingbiodiversity;(k) Seek to incorporate externalities of cost including costs to the environment and theglobal climate into national energy investment and regulatory decisions with an ultimateobjective that choice of energy technologies would be on the basis of least overall cost to society;(1) Cooperate in the development of an indigenous capability in all affected countries ofassessing and responding to likely climate impacts, encouraging the growth through-5 -

governments, international organizations, foundations, universities and other institutions of aworld-wide network of experts knowledgeable in studying climate change and developingresponses to address climate change;(m) Cooperate on an urgent basis in the formulation of agreed measures, procedures andstandards for the implementation of this Convention, including one or more

the Report of the recent International Workshop on a Framework Convention and Associated Protocols: A Nongovernmental Perspective. This meeting which was held in Washington, D.C. February 2-4, 1990 drew in excess of eighty participants from a number of countries. The participants developed draft language for a climate framework convention and .

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