The politics of climate change results from different perspectives on how to respond to climate change. Global warming is driven largely by the emissions of greenhouse gases due to human activity, especially the burning of fossil fuels, certain industries like cement and steel production, and land use for agriculture and forestry. Since the Industrial Revolution, fossil fuels have provided the main source of energy for economic and technological development. The centrality of fossil fuels and other carbon-intensive industries has resulted in much resistance to climate policy, despite widespread scientific consensus that such policy is necessary.
Climate change first emerged as a political issue in the 1970s. Efforts to mitigate climate change have been prominent on the international political agenda since the 1990s, and are also increasingly addressed at national and local level. Climate change is a complex global problem. Greenhouse gas (GHG) emissions contribute to global warming across the world, regardless of where the emissions originate. Yet the impact of global warming varies widely depending on how vulnerable a location or economy is to its effects. Global warming is on the whole having negative impact, which is predicted to worsen as heating increases. Ability to benefit from both fossil fuels and renewable energy vary substantially from nation to nation.
Early international climate talks made little progress because countries disagreed on who should reduce emissions, who benefited, and who faced the biggest risks. In the 21st century, there has been increased attention to mechanisms like climate finance in order for vulnerable nations to adapt to climate change. In some nations and local jurisdictions, climate friendly policies have been adopted that go well beyond what was committed to at international level. Yet local reductions in GHG emission that such policies achieve have limited ability to slow global warming unless the overall volume of GHG emission declines across the planet.
Since the 2020s, the feasibility of replacing fossil fuels with renewable energy sources has significantly increased, with some countries now generating almost all their electricity from renewables. Public awareness of the climate change threat has risen, in large part due to social movement led by youth and visibility of the impacts of climate change, such as extreme weather events and flooding caused by sea level rise. Many surveys show a growing proportion of voters support tackling climate change as a high priority, making it easier for politicians to commit to policies that include climate action. The COVID-19 pandemic and economic recession lead to widespread calls for a "green recovery", with some polities like the European Union successfully integrating climate action into policy change. Outright climate change denial had become a much less influential force by 2019, and opposition has pivoted to strategies of encouraging delay or inaction.
Climate policy
Climate policy or climate change policy is policy about climate change. It is often decided by national governments - for example the climate policy of China. It may include policy on reducing greenhouse gas emissions to limit climate change, and also adapting to climate change. National climate policy sometimes conflicts with sub-national or bloc policy, for example the climate change policy of Washington (state) diverges from the climate change policy of the United States, and can conflict with other national policies.
Climate policies may have co-benefits for health policy such as by: reducing air pollution, and increasing walking and cycling; they may also help energy policy by reducing oil imports. Public support for policies depends on: how effective people think they are in reducing emissions, their impact on poor people, their effect on respondents' households, and how well they understand them. Climate-economy modelling may help when deciding policy. Policy, such as target dates for net-zero emissions, may be put into law.
The usage of military termes in climate policy is dangerous and can lead to unintended consequences.
Policy debate Like all policy debates, the political debate on climate change is fundamentally about action. Various distinct arguments underpin the politics of climate change - such as different assessments of the urgency of the threat, and on the feasibility, advantages and disadvantages of various responses. But essentially, these all relate to potential responses to climate change.
The statements that form political arguments can be divided into two types: positive and normative statements. Positive statements can generally be clarified or refuted by careful definition of terms, and scientific evidence. Whereas normative statements about what one "ought" to do often relate at least partly to morality, and are essentially a matter of judgement. Experience has indicated that better progress is often made at debates if participants attempt to disentangle the positive and normative parts of their arguments, reaching agreement on the positive statements first. In the early stages of a debate, the normative positions of participants can be strongly influenced by perceptions of the best interests of whatever constituency they represent. In achieving exceptional progress at the 2015 Paris conference, Christiana Figueres and others noted it was helpful that key participants were able to move beyond a competitive mindset concerning competing interests, to normative statements that reflected a shared abundance based collaborative mindset.Dessler (2020), broadly agrees that this more collaborative approach was key to success at Paris, though warned that one of the main parties which drove the change (China) had by 2018 returned to a less friendly approach, seeking to magnify differences between developed and less developed nations.
Actions in response to climate change can be divided into three classes: mitigation – actions to reduce greenhouse gas emissions and to enhance carbon sinks, adaptation – actions to defend against the negative results of global warming, and solar geoengineering – a technology in which sunlight would be reflected back to outer space.
Most 20th century international debate on climate change focused almost entirely on mitigation. It was sometimes considered defeatist to pay much attention to adaptation. Also, compared to mitigation, adaptation is more a local matter, with different parts of the world facing vastly different threats and opportunities from climate change. By the early 21st century, while mitigation still receives most attention in political debates, it is no longer the sole focus. Some degree of adaptation is now widely considered essential, and is discussed internationally at least at high level, though which specific actions to take remain mostly a local matter. A commitment to provide $100 billion per year worth of funding to developing countries was made at the 2009 Copenhagen Summit. At Paris, it was clarified that allocation of the funding should involve a balanced split between adaptation and mitigation, though , not all funding had been provided, and what had been delivered was going mainly to mitigation projects. By 2019, possibilities for geoengineering were also increasingly being discussed, and were expected to become more prominent in future debates.
Political debate on how to mitigate tends to vary depending on the scale of governance concerned. Different considerations apply for international debate, compared with national and municipal level discussion. In the 1990s, when climate change first became prominent on the political agenda, there was optimism that the problem could be successfully tackled. The then recent signing of the 1987 Montreal Protocol to protect the ozone layer had indicated that the world was able to act collectively to address a threat warned about by scientists, even when it was not yet causing significant harm to humans. Yet by the early 2000s GHG emissions had continued to rise, with little sign of agreement to penalise emitters or reward climate friendly behaviour. It had become clear that achieving global agreement for effective action to limit global warming would be much more challenging.In addition to the normal collective action problems, other difficulties have included: 1.) The fact that fossil fuel use has been common across the economy, unlike the relatively few firms that controlled manufacture of products containing the CFCs, which had been damaging the Ozone layer. 2.) Incompatible views from different nations on the level of responsibility that highly developed countries had in assisting less developed controls to control their emissions without inhibiting their economic growth. 3.) Difficulty in getting humans to take significant action to limit a threat that is far away in the future. 4.) The dilemma between the conflicting needs to reach agreements that could be accepted by all, versus the desirability for the agreement to have significant practical effect on human activity. See e.g. Dryzek (2011) Chpt. 3, and Dessler (2020) Chpt. 1, 4 & 5. Some politicians, such as Arnold Schwarzenegger with his slogan "terminate pollution", say that activists should generate optimism by focusing on the health co-benefits of climate action.
The EU's Carbon Border Adjustment Mechanism (CBAM) is among the trade-related measures introduced to address climate concerns. A proposed enhancement—known as "CBAM-plus"—aims to channel CBAM revenues towards decarbonisation initiatives in developing exporting countries. By also recognising non-pricing climate policies, CBAM-plus could promote more comprehensive global mitigation efforts.
Multilateral
Climate change became a fixture on the global political agenda in the early 1990s, with United Nations Climate Change conferences set to run yearly. These annual events are also called Conferences of the Parties (COPs). Major landmark COPs were the 1997 Kyoto Protocol, the 2009 Copenhagen Summit and the 2015 Paris conference. Kyoto was initially considered promising, yet by the early 2000s its results had proved disappointing. Copenhagen saw a major attempt to move beyond Kyoto with a much stronger package of commitments, yet largely failed. Paris was widely considered successful, yet how effective it will be at reducing long term global warming remains to be seen.
At international level, there are three broad approaches to emissions reduction that nations can attempt to negotiate. Firstly, the adoption of emissions reductions targets. Secondly, setting a carbon price. Lastly, creating a largely voluntary set of processes to encourage emission reduction, which include the sharing of information and progress reviews. These approaches are largely complementary, though at various conferences much of the focus has often been on a single approach. Until about 2010, international negotiations focused largely on emissions targets. The success of the Montreal treaty in reducing emissions that damaged the ozone layer suggested that targets could be effective. Yet in the case of greenhouse gas reductions, targets have not in general led to substantial cuts in emissions. Ambitious targets have usually not been met. Attempts to impose severe penalties that would incentivize more determined efforts to meet challenging targets, have always been blocked by at least one or two nations.