Global Goal on Adaptation - COP29 Negotiation Update

  • From
    CGIAR Climate Impact Platform
  • Published on
    11.11.24

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The 2015 Paris Agreement’s Article 7 set a global goal on adaptation to improve adaptive capacity, resilience, and reduce vulnerability to climate change, supporting sustainable development. To achieve this, the Glasgow-Sharm el-Sheikh work program was launched at COP 26 (2021) to guide efforts under the Subsidiary Bodies (SBSTA and SBI). 

At CMA 4 (COP27), countries began developing a framework to track progress on this adaptation goal. In 2023, discussions focused on setting targets for adaptation and resilience. At CMA 5 (COP28), the UAE Framework for Global Climate Resilience was adopted, providing specific targets. A two-year UAE–Belém work program was also established to develop indicators for measuring progress. SB 60 further guided this effort, requesting technical experts to support the process. 

Relevant documents: 

Related events: 

  • 9 Nov – High-Level Ministerial Dialogue on Adaptation finance 

CGIAR submissions: 

CGIAR, in its latest GGA submission, maps indicators and identifies the need for robust indicators across several areas: achieving resilient food production and supply systems, enhancing sustainable and regenerative practices, and ensuring equitable access to adequate food and nutrition. CGIAR identifies gaps in existing indicators, particularly in resilience, sustainability, and equitable access. These indicators are critical for tracking adaptive capacity, addressing social and environmental factors, and guiding targeted actions to support climate-impacted communities in achieving global food security and resilience. As part of the expert group, CGIAR has one representative for the target on water and sanitation (target 9a) and another expert on the target on food and agriculture (target 9b).  

COP29 Day 2 Updates, November 12, 2024

Session 1 (12/11 1600 – 1800) 

The informal consultation session addressed key issues, with a significant part of the initial discussion involving deliberations on how to strike a balance between discussions on work on indicators for the UAE Framework for Global Climate Resilience, issues outlined in paragraph 38 of the framework, and recent report published by the secretariate on transformational adaptation. Although there were divergent but related views, the final decision was to start with discussion on indicators work, then a consideration of matters in paragraph 38, and potentially discussion of the report on transformative adaptation if time allowed, as directed by the co-facilitator. 

On the topic on GGA indicators, based on the key issues raised by parties, there is convergence on the need for manageable, evidence-based indicators that would ensure clarity and allow for measurable adaptation efforts. Various parties commended the work of experts and recommendation their continued role in further refinement of indicators. There were many points pointing to the need for additional guidance to the experts to ensure that their work is aligned with the expected output at COP 30 which will mark the end of the UAE-Belem work programme. on the necessity of categorizing and refining indicators. Additionally, many called for transparency, including public access to expert reports, more in-person expert meetings, and better coordination. Many parties highlighted the importance of progress by the next session (SB62), suggesting that experts provide periodic updates on indicator refinement and methodologies.  

Divergences surfaced regarding the scope and nature of indicators, with a notable spectrum in what countries envision as an ideal set of GGA indicators. Parties like Turkey and the UK prefer globally universal indicators to allow aggregation of progress. Other groups like AGN and LDC recommended a balance between global and nationally relevant indicators.  One of the ways of achieving this, as suggested by the Arab group, is to work towards a short list of global indicators which would be complemented by a richer menu of optional indicators that can be prioritized based on adaptation context. By contrast, a developed country highlighted that GGA indicators should not be global, cautioning against rigid criteria that may not align with each country’s unique context. Several groups, including the Arab Group, AGN, and LMDC and the LDCs, advocated for clear guidelines on indicators of Means of Implementation (MOI), though some, developed countries, were opposed, arguing MOI indicators fall outside the GGA’s primary scope.  

Eventually, parties did not get to discuss para 38 or the transformational adaptation report.

COP29 Day 3 Updates, November 13, 2024

The second informal consultation on Day 3 saw the parties focus on Paragraph 38 of the Decision 2/CMA.5 of the Global goal on adaptation, and the recently released tchnical paper by the UNFCCC Secretariat on Transformative Adaptation.

Several countries like Australia, Japan, Switzerland and the US requested more to the Secretariat for submission by parties on Paragraph 38, noting that very few countries have made submission on the way forward on this paragraph. All of them also welcomed the technical paper on Transformational Adaptation by the Secretariat and noting that while the concept of transformational adaptation still needs definition and case studies, reiterated that the paper can be used to inform the work program.

The Arab group also welcomed the technical report, and reminded parties about Global Goals on Adaptation discussions are being held within UNFCCC and Paris frameworks where common but differentiated responsibility (CBDR) means that developed countries must meet their obligations and that transformational adaptation needs to come with means of implementation. They urged that there be a standalone agenda item on the GGA. They also proposed launching a Baku Adaptation Road at CMA.6 and that the technical report of transformational adaptation, released less than a week ago by the Secretariat, must be deeply reviewed.

G77 plus China welcomes the decision on inclusion of paragraph 38 and noted the urgent need to make progress across all the 5 sub paragraphs of the paragraph 38, including urging stronger links to the work on the IPPC (38d). They also requested a standalone agenda item on GGA going forward, a call that was reiterated by several other parties including South Africa, Least Developed Countries, African group of negotiations, Alliance of Small Island States (AOSIS), Like Minded Developing Countries (LMDCs), Bhutan and others – who all aligned their position with the G77 plus China and reiterated the need to considers to consider paragraph 38 in its entirety, as well as GGA as a standalone discussion item. Bhutan reminded all parties about the particular vulnerability of mountain countries and need for adaptation while Turkiye mentioned the need to avoid maladaptation.

The points of disagreements were around a) considering all five sub paragraphs of Article 38 (38 a to e) versus considering only a few of the sub-paragraphs b) the need to have more review and consultation on the technical paper on Transformative Adaptation and c) GGA as a standalone item.

As next step, the co-chairs will come up with a draft text for informal discussion based on the positions expressed by various Parties for further discussions.

COP29 Day 4 Updates, November 14, 2024

Negotiations around the updated Informal Summary of the Second Dialogue under the United Arab Emirates just transition work programme continued Thursday morning of the summit. Following a point of order from G77 and China, the co-chairs suspended negotiations to allow more time for the parties to reflect on the updated draft. Deliberations recommenced at 8:00 PM.

A high-level session on catalyzing investment for just transition also took place on Day 4 with parties calling for novel and innovative solutions that ensure support for developing countries facing the dual challenges of mitigating emissions while addressing critical developing needs, balancing economic policies with social opportunities, the facilitation of private sector involvement by governments in just transitions, and collaboration in knowledge and research to understand transition risk better in order to minimize it.

COP29 Day 5 Updates, November 15, 2024

Parties gave input to the draft document as it is still too long. The Secretariat will work on another proposal and Parties will gather in an informal informal meeting.  

COP29 Day 6 Updates, November 16, 2024

GGA negotiations faced significant procedural hurdles during the first week. Discussions on a proposed text stalled, with parties unable to agree on how to review it after extensive debate. Substantively, technical experts worked on narrowing a longlist of global adaptation indicators from 10-12,000 to 5,000, though experts lacked a mandate to finalize a shortlist. They were asked to categorize indicators into yes/no/maybe groups, but final decisions remain with the Parties. While progress was made in streamlining draft text and preparing it for further discussions at CMA 6, key substantive and procedural challenges highlighted the complexity of advancing adaptation efforts.

COP29 Day 9 Updates, November 19, 2024

Despite the relevance of advancing on the Global Goal on Adaptation, the work on indicators within the UAE – Belém work programme and the several question lying on what the scope of the work of the experts should be, Parties are still working on procedural issues, on whether the text should be revised in paragraphs or sections. Parties gathered in informal-informal meetings and new meetings are expected.

COP29 Day 10 Updates, November 20, 2024

There appeared to be convergence in the idea of allowing more time for parties to review the report prepared by the secretariate on transformational adaptation and allowing submissions to capture parties’ views. Divergence was on whether the decision should also outline further steps including how parties engage with the concept moving forward.

Egypt and the Arab Group expressed reluctance to engage extensively in transformational adaptation, advocating for no immediate mandate or new text and instead focusing on other adaptation approaches. They emphasized the need to avoid limiting discussions to one concept, particularly given gaps and challenges in the report from the secretariat. Australia, Canada, and Switzerland supported the idea of taking discussions on transformational adaptation forward. They emphasized the need for clear guidelines, supporting the idea of the decision text to inviting submissions providing views on the report, thus allowing parties adequate time for parties to review the TA report. Australia suggested including a statement requiring TA to be included in NAPs, an idea that was rejected by China based on the argument that there several other instruments relevant to adaptation and not just NAPs, including NDCs, BTRs. Canada highlighted the importance of incorporating Indigenous knowledge into adaptation approaches.

Developing country groups (AGN, LDCs, LMDCs, and Indonesia) raised concerns about the complexity of transformational adaptation, its resource-intensive nature, and the risks of maladaptation. They urged a balanced focus on other adaptation approaches and emphasized the need for financial and technical support for developing countries. The AGN, in particular, linked the discussion to the urgent financial needs of vulnerable nations. AOSIS and the EU advocated for ongoing deliberations on transformational adaptation, with AOSIS rejecting the option of excluding TA from the decision text. The EU emphasized equal importance for both transformational and incremental adaptation. India and Indonesia pointed out gaps in the TA report, particularly regarding implementation in resource-limited contexts, and opposed additional work on defining TA, suggesting a broader focus on practical adaptation needs. EIG and the UK acknowledged the technical nature of the TA report, calling for more time to review and consider it. They supported inviting submissions to guide further discussions. 

Co-Facilitators assured parties that all views expressed during the technical consultation and informal-informal sessions would be captured in reports for reflection and decision-making. Views expressed by parties will be integrated in the next iteration of text to be published at midnight before forwarding to the presidency for further discussions.   

Acknowledgement

These negotiations were tracked, analysed and reported by:Lucy Njuguna, Santosh Nepal, and Aditi Mukherji,

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