Because a number of major emitters were not required to make mandatory emission reductions and others were not signatories at all, the Protocol never covered more than about a third of global GHG emissions during its first commitment period. Annan acknowledged this when, at the end of his second term, he made the first substantive engagement by any Secretary-General on the issue of climate change. Speaking at the twelfth meeting of the Conference of the Parties (COP) to the UNFCCC and the second COP serving as a Meeting of the Parties to the Kyoto Protocol (CMP) (COP 12/CMP 2), in Nairobi, Kenya, in November 2006, he emphasized, "while the Kyoto Protocol is a crucial step forward, that step is far too small.