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History of a non-issue The United Nations Framework Convention on Climate Change (UNFCCC), 1992 The text of the convention is deliberately vague on adaptation. Article 2 (objective) states clearly that the attempt will be to ‘stabilise’ greenhouse gas emissions in such a way as ‘to allow ecosystems to adapt naturally to climate change’ (emphasis added). In other words, that adaptation measures needn’t be taken. Article 4 (commitments) briefly mentions adaptation. Countries will inform on measures to facilitate adaptation to climate change; develop integrated plans to manage coastal zones, water resources and agriculture, and to protect areas affected by drought, desertification and floods, particularly in Africa. It also identifies a few vulnerable groups like small island countries, countries with low-lying coastal areas, arid and semi-arid areas, forested areas, areas liable to forest decay, areas prone to natural disasters, areas liable to drought and desertification, and areas with fragile ecosystems. Countries highly dependent on fossil fuel production are also included. The convention calls on industrialised countries to help in adaptation costs in developing countries, especially those vulnerable to adverse effects. CoP-1, 1995Low-lying and small island developing countries call for action but industrialised countries are reluctant to take on specific obligations because of the cost. The Berlin conference subsequently adopts a three-stage approach to deal with adaptation. In stage one, particularly vulnerable areas and appropriate policy options will be identified. Measures to prepare for adaptation will be taken in stage two, and in stage three, measures to actually facilitate adaptation, including insurance, will be carried out. CoP-2, 1996 The ministerial session stresses the adverse social and economic impacts of climate change, particularly the impact on the agricultural sector. Small island states and African countries highlight their particular vulnerability and lack of technical and financial resources for prevention and adaptation. They call on the Global Environment Facility (GEF) to play an enabling role. Developing countries ask to define funding requirements from GEF to implement the convention, including adaptation costs to adverse effects of climate change. CoP-3, 1997 Article 3.14 of the Kyoto Protocol requires industrialised countries to meet their commitments in a way that minimises adverse social, environmental and economic impacts on developing countries. Article 10 (b) elaborates on providing information on adaptation technologies and methods. CoP-4, 1998The Buenos Aires Plan of Action instructs GEF to fund adaptation measures in particularly vulnerable areas. Nothing comes out of this instruction for the next 3 years. CoP-5, 1999 The conference manages to de-link the issue of funds for adaptation for small island states from compensation to oil producing states. CoP-6, 2000 Industrialised countries want all financial assistance for adaptation to be channelled through GEF. The CoP-6 president Jan Pronk’s proposes an adaptation fund under GEF, financed from a 2 per cent cut of proceeds from CDM. A levy is to be applied on joint implementation and emissions trading only if resources in 2005 are less than US $1 billion. It also has a convention fund as a new window to GEF. CoP-6 bis, 2001 and CoP-7, 2001 A special climate change fund and a separate fund for adaptation programmes in least developed countries is established under UNFCCC. The special climate change fund is not exclusively for adaptation. The decision states that these funds should be new and additional to those already being provided by GEF and through bilateral and multilateral sources. Under the protocol, an adaptation fund is set up. A 2 per cent share from proceeds of CDM projects will contribute to this fund. GEF is entrusted with the responsibility to operate all the funds established. But still there is no assurance that developing countries will eventually get any funds from the North for their adaptation and other needs.
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