SB Debrief
The 60th Sessions of the UN Climate Change Subsidiary Bodies (SB60) took place in Bonn from 3-13 June 2024.
Photo: UNclimatechange, CC BY-NC-SA 2.0
The 60th session of the Subsidiary Bodies (SBs) took place in Bonn in June 2024. This debrief provides a summary of the key discussions and outcomes from the session across the (negotiation) topics discussed, including the Mitigation Work Programme, Just Transition, Adaptation, Loss and Damage, Climate Finance, Global Stocktake, and Agriculture and Food Security. Additionally, it contextualizes these developments within the big picture and offers a perspective on the upcoming expectations for COP29.
1. Big Picture
The climate negotiations in Bonn in June 2024 (SB60) took place after the big decision at COP28 to transition away from fossil fuels, and before the climate finance-focused COP29 later this year. The Bonn meeting was also the first real opportunity for the incoming COP Presidency of Azerbaijan to show how they intend to use their Presidency.
The negotiations needed to get closer to concrete text for the new climate finance goal, but countries were unwilling to show their cards. Similarly, encouraging signals needed for the new Nationally Determined Contributions (NDCs) were hard to find. In contrast, the negotiations on the Global Goal on Adaptation resulted in unity and pre-conditions for developing much-needed indicators were agreed.
The intersessional meetings in Bonn see a small group of negotiators and observers, with no ministers present. The lack of political pressure might have contributed to the very small overall progress. This year’s meeting also had an unprecedented high number of mandated events, pushing both delegates and the UNFCCC secretariat to the limits of their capacities.
Transparency of the negotiations is also fundamental for both credibility and accountability. At very short notice, the secretariat decided not to offer virtual coverage of the meeting, citing budgetary constraints. Access to meetings, both remote and in-person, is key for meaningful civil society participation.
2. Mitigation
2.1. Mitigation Work Programme
Only limited progress, if any, was made on the Mitigation Work Programme (MWP) at SB60. Divergent opinions remained on issues such as integrating the first Global Stocktake outcome, the direct link between the MWP and NDC preparation, and whether or not to include high-level political messages on mitigation or ambition in the annual report.
Towards the end parties questioned the representative legitimacy and neutrality of the co-facilitators, when trying to produce a draft decision. Eventually an informal note did not constitute a consensus between parties, leaving the agenda item postponed to the next meeting - COP29 in Baku.
On the bright side, progress was made in reviewing MWP implementation, with parties suggesting process improvements for future global dialogues and investment-focused events, including logistics, inclusivity of participation, topic selection, and the possibility of organising regional dialogues. Parties are invited to submit views on elements of a draft decision for consideration and adoption by CMA6 in October, including improvements on the organisation of global dialogues and investment-focused events.
With hopes for a discussion on energy sector transformation and implementation of the COP28 energy package unfulfilled, expectations weigh on COP29 and the future global dialogues and investment-focused events to deliver on the key objective of the MWP “to urgently scale up mitigation ambition and implementation in this critical decade in a manner that complements the global stocktake”.
3. Just Transition
The UAE Just Transition Work Programme (JTWP) at SB60 did not progress much. Negotiations began with the First Global Dialogue on Just Transition. The dialogue lacked inclusivity, interactivity, and immediate impact on negotiations. The JTWP negotiations ended having only a procedural conclusion text and no substantial discussion that could be brought to COP29.
Nevertheless, the agreement that the programme (paragraph 4) and the dialogue (paragraph 6) have to be more inclusive for parties and non-party stakeholders (NPS) is welcome, although, for the programme, inclusion is only through the submission portal. Additionally, developing countries have been encouraged to get more involved in the dialogues.
4. Adaptation
At SB60, parties discussed the working modalities of the UAE–Belém work programme for the Global Goal on Adaptation (GGA) indicators development, which includes the organisation of work, timelines, inputs, outputs, and stakeholder involvement. The UAE–Belém work programme aims to significantly guide the achievement of the GGA targets agreed at COP28 as the UAE Framework for Global Climate Resilience and review overall progress.
On the positive side, the draft conclusions established clear criteria for mapping indicators for the GGA targets. These criteria take into account ease of interpretation, applicability in different contexts, and clarity of methodologies, integrating the best available science with traditional and Indigenous knowledge. Importantly, these indicators are designed to assess global progress on adaptation rather than to compare countries. On roles, the draft decision stipulates a wide engagement of party and non-party stakeholders with all relevant constituted bodies. The role of the Adaptation Committee has also been clearly defined, with a mandate to contribute, along with other stakeholders, to the compilation and mapping of areas potentially not covered by existing indicators.
However, there are some drawbacks. The draft conclusions emphasise a potential role for technical experts in mapping and developing new indicators, with additional associated modalities. Yet, they do not specify whether this role will be filled by creating an ad-hoc expert group or utilising already existing bodies, with the decision postponed until COP29. Additionally, while the draft conclusions acknowledge the importance of means of implementation (MoIs) in the work programme, they do not go beyond mere recognition. This limits the opportunity for substantial discussion on how MoIs can be integrated into the process of developing indicators.
However, the draft conclusions are strong enough to allow parties to start their workshops on mapping indicators before COP29. This was an important achievement of SB60.
5. Loss and Damage
At SB60, the third and final Glasgow Dialogue on Loss and Damage (L&D) took place. Discussions focused on coordination and coherence of the UNFCCC L&D bodies, the Fund for Responding to Loss and Damage (FrLD), the Santiago Network (SNLD), the Warsaw International Mechanisms Executive Committee (WIM ExCom)) work as well as L&D finance issues.
The crucial role of intertwined work in the new L&D landscape was emphasised, as well as with additional funding arrangements and actors outside UNFCCC. It highlighted the progress made in terms of the FLD, funding arrangements, and SNLD since COP28, while pointing to the huge finance and technical support needs of vulnerable countries. An important step in the run-up to COP29 will be the high-level dialogue between those bodies and actors co-convened by the FLD.
The Glasgow Dialogue on Loss and Damage provided an inclusive platform, but inputs were often based on prepared statements rather than fostering genuine dialogue. A formal mandate to incorporate outcomes of the dialogue into formal negotiations is missing. Its end leaves a L&D-gap in the UNFCCC agenda that urgently needs to be filled.
Towards COP29, the FrLD board meetings will provide room to bring up issues like meaningful observer participation and a human-rights-based approach of the FLD, both raised during the Glasgow Dialogue.
The Terms of Reference for the 2024 WIM review at COP29 has also been discussed. It will cover the WIM's long-term vision, structure, output utility, and collaboration with other L&D bodies. The SB60s concluded in draft conclusions, and a call for submissions has been issued.
6. Climate Finance
Just before SB60, the OECD announced that the USD 100 billion climate finance commitment was reached in 2022. The SB sessions commenced with a brief 10th Technical Expert Dialogue on the New Collective Quantified Goal (NCQG), which focused on qualitative elements, transparency, and the structure of the new goal. This was followed by the second Ad Hoc Work Programme meeting, which culminated in a 35-page draft input document containing several options under several sections of what the NCQG could potentially include. In the second week, the Sharm El Sheikh Dialogue on Article 2.1(c) concentrated on adaptation finance and alignment with the Sustainable Development Goals (SDGs). Climate finance remains the most critical topic this year, with a focus on agreeing on a new Climate Finance Objective in Baku. Climate finance is a key blocker in many other negotiation tracks as well.
Due to a lack of substantive progress, the discussions on the NCQG have stalled, as drafts have faced extensive criticism for being unreadable, duplicative, and in need of streamlining; while parties still debate the interpretation of the mandates and their implications. Key issues of contention are far from coming to an agreement and include the Quantum, contributors, subgoals, and attacks on UNFCCC principles. With regard to the Quantum, differing views on financial commitments are visible, with some developing countries proposing specific amounts, usually close to the USD 1 trillion mark, while countries of the Global North have not put any proposals forward, and some insist on a starting point of USD 100 billion. Another highly contested topic is the contributor base, in which many are pushing for an expansion while others argue that expanding the base is outside the mandate. On the subgoals, opinion remained divided, particularly on whether to include Loss and Damage (L&D) and how to reflect adaptation. Additionally, dangerous attacks on the principle of Common but Differentiated Responsibilities (CBDR) and equity principles were made, further deepening the rift in the negotiations.
Next steps are as follows: The NCQG Chairs requested parties to send their submissions and offered to hold bilateral meetings during the summer. The Presidency invited the Head of Delegations and Finance negotiators to a Special Meeting on the NCQG at the end of July in Baku. The next Technical Expert Dialogue (TED 11) and the third Ad Hoc Work Programme meeting are expected to take place in September. Moreover, climate finance and the NCQG will continue to play an important role in the World Bank (WB) and the International Monetary Fund (IMF) annual meetings, the UN General assembly, and G20 meetings.
7. Other Negotiation Items
7.1. Global Stocktake
The first Global Stocktake (GST) concluded at COP28 in Dubai, most notably calling on all parties to “transition away” from fossil fuels. At SB60, there was hope to carry over this momentous decision, reflect on its implications, and discuss how the GST's sectoral outcomes could be broken down and translated into national policies and implementation packages.
Two new formats, both mandated in Dubai under CMA5, the Annual GST Dialogue, and the UAE Dialogue, serve as the last few spaces remaining for discussions on ambition and accelerated action, especially leading up to 2030.
Expectations clashed regarding the scope of the dialogues. Although bold action in all sectors is needed to keep 1.5° within reach, some countries insisted the dialogue should only focus on climate finance. The lack of progress here reflects how countries opposed the inclusion of GST outcomes in the MWP conclusion text. This was an unfortunate result as this opportunity was set up by the GST decision (paragraph 186), though not strongly enough to translate into a mandate.
To derive real value from the GST ambition-raising mechanism, it is now essential to translate its outcomes into the next round of ambitious NDCs, due in February 2025, and to do so coherently across all sectors and customised for each individual.
7.2. Agriculture and Food Security
After 18 months of negotiations, parties have agreed on a roadmap for the Sharm el-Sheikh Joint Work on Agriculture and Food Security (SSJWA) leading up to COP31. This roadmap includes annual reporting and an online portal, as well as workshops on implementing and assessing climate action in food systems.
Despite years of numerous negotiation sessions, side events, COP Presidencies’ special initiatives, workshops, and declarations on food and agriculture at COPs, progress in reducing the third of global emissions stemming from food systems has been limited. To address this and build climate-resilient food systems worldwide, at COP29 in Baku, the international community must ensure substantial funding for food systems’ transformation and prioritise funding that is accessible to small producers in the Global South. It is essential to integrate a food systems approach into UNFCCC climate policy by, for example, including measures to ensure resilient, healthy, and equitable food systems in the EU’s NDCs.
8. Outlook for COP29
In the months to come, several crucial developments need to take place within – and outside – the UN climate negotiations to set the stage for a successful and ambitious outcome at COP29 in Baku. Key diplomatic groundwork, technical progress, and coalition-building will be essential during this period to bridge gaps, resolve contentious issues, and raise global climate ambition.
These are the most important steps:
1. Getting past the deadlock of the NCQG negotiations. Agreeing on a new goal for climate finance is at the core of the negotiations in 2024, and also by what COP29 will be judged. There are several areas that need convergence, or at least clarity, including the size (Quantum, how many trillions?), the providers (expanding the contributor base, which countries?), the recipients (the ones most in need, which countries?), and the process of the goal itself (shall it be regularly be reviewed and adapted?).
2. Setting the standard for 1.5-aligned NDCs. Having early movers speaking out on how their new NDCs are (being) developed in line with the findings of the Global Stocktake, and at the very least having commitments to no new exploration licences for coal, oil, and gas, is crucial for both trust in the process and real-world impact on greenhouse gas emissions.
CitationLydén, P. et al., 2024, SB Debrief |
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