This report surveys the United Nations negotiations, from a primarily U.S. perspective. Formal international negotiations were launched in December 1990 to address growing scientific and political concern about human-induced climate change. Because emissions come from all countries, only concerted reductions by all major emitters can stabilize the rising GHG concentrations in the atmosphere. The primary issues for negotiation in 1990 remain the same today:
when and by how much to reduce greenhouse gas emissions globally in order to achieve the UNFCCC's objective of avoiding " dangerous anthropogenic interference with the climate system "; how to share " common but differentiated responsibilities " among countries taking into account " historic contributions " and " respective capacities " of different people—in particular, the acceptable degree of participation of low-income countries; what mechanisms are best suited to assuring GHG reductions at the lowest cost, respecting national sovereignty and supporting " sustainable economic development " and " the eradication of poverty "; how cooperatively to understand the risks and facilitate adaptation to climate changes, especially by those people least able to cope on their own; and how to adapt international arrangements over time as science, social conditions, and capabilities evolve. As a Party to the UNFCCC, the United States has general obligations to reduce its GHG emissions, report its emissions and be subject to international review, and assist lower-income countries, and other binding commitments. The United Nations Framework Convention on Climate Change (1992)

The international negotiations launched in 1990 culminated in the 1992 adoption of the United Nations Framework Convention on Climate Change (UNFCCC) in Rio de Janeiro, Brazil. The UNFCCC also listed in Annex II the then-wealthiest Parties (including the United States), which committed to providing agreed new and additional financial resources to assist the developing country Parties to meet their obligations. The Kyoto Protocol (1997)

As a first enforceable step toward meeting the objective of the UNFCCC, the 1997 Kyoto Protocol promised to reduce the net GHG emissions of industrialized country Parties (Annex I Parties) to 5.2% below 1990 levels in the first commitment period of 2008 to 2012. In Congress, however, opposition was strong. While the inter-sessional meetings during 2008 and 2009 showed little movement, public and many diplomatic expectations were high that the United States, and perhaps China and other developing countries, would come to the Copenhagen negotiations with a new willingness to change positions and agree to (1) a second commitment period of the Kyoto Protocol with GHG targets for Annex I Parties and (2) a new instrument that would include quantitative GHG commitments for the United States and perhaps an array of non-Annex I Parties or all Parties. Intellectual property controversies are not addressed. COP 17 in Durban, South Africa (2011)

Among the decisions made by Parties at COP 17 in Durban, South Africa were two of particular note: (1) an agreement to a second commitment period (CP2) of the Kyoto Protocol, and (2) a mandate, the Durban Platform for Enhanced Action (DP), to negotiate by 2015 a new agreement "with legal force" that would be "applicable to all Parties", to begin implementation after 2020. In concept, the Durban Platform mandate could eliminate after 2020 the bifurcation of countries into "developed" or "developing." These processes have given way to new paths forward focused
1. under the UNFCCC, on
a. implementation of past agreements, and
b. the search for a future accord to be hammered out by the Ad Hoc Working Group on the Durban Platform for Enhanced Action (ADP);
2. under the Kyoto Protocol, on adoption of the Doha Amendment, which established a second commitment period for GHG targets from 2013-2020, covering 37 countries and the European Union, and requiring reductions of GHG emissions to, on average, 18% below 1990 levels. Under the 2010 Cancun Agreements, more than 85 Parties—both Annex I and non-Annex 1(including China, India, Indonesia, Mexico, and many others)—made non-binding pledges to abate national GHG emissions. The Doha Amendment to the Kyoto Protocol

The Doha Amendment to the Kyoto Protocol established the second commitment period, from 2013-2020 for the Kyoto Protocol, with GHG targets for 37 countries plus the EU averaging a reduction of 18% below 1990 levels. Japan, New Zealand, and the Russia Federal declined new GHG targets because all major emitters did not participate. Additional issues that may be important to Congress include the compatibility of any international agreement with U.S. domestic policies and laws; the adequacy of appropriations and fiscal incentives to achieve any commitments under the agreement; the desirable form of any agreement; and any requirements for potential ratification and implementing legislation, should a formal treaty emerge from the negotiations.
The November 2013 negotiations in Warsaw are the most recent in a series aimed at arranging multilateral cooperation to address climate change. The United Nations launched formal international negotiations in 1990 to respond to growing scientific and public concern about human-induced emissions of greenhouse gases (GHG), principally carbon dioxide. This report chronicles the main milestones and issues in the United Nations process to address climate change.
The 1992 United Nations Framework Convention on Climate Change (UNFCCC): Governments agreed in 1992 to the United Nations Framework Convention on Climate Change (UNFCCC), which continues to provide the principle—but not sole—framework for global cooperation on the issue. The treaty's objective is to stabilize GHG concentrations in the atmosphere at a level that would prevent dangerous human-induced interference with the Earth's climate system. A 2010 political statement interpreted this as a vision of GHG cuts to prevent global average temperature from increasing more than 2°C (2.6°F) above pre-industrial levels.
The United States, as a Party to the UNFCCC, has qualitative obligations to report national GHG emissions; cooperate on science and technology development; enact programs to abate emissions; and provide agreed new and additional financial resources to assist low-income countries to mitigate and adapt to climate change. When the UNFCCC was drafted, the then-industrialized countries emitted two-thirds of annual GHG emissions (excluding emissions from deforestation). These Annex I countries correspondingly accepted a lead role in abating GHG emissions, though all countries agreed to "common but differentiated responsibilities."
The 1997 Kyoto Protocol and its 2012 Doha Amendment: When UNFCCC entered into force in 1995, Parties agreed that enforceable obligations were necessary to prevent "dangerous climate change." The 1995 Berlin Mandate called for a new protocol by 1997 with "no new commitments for developing countries" Under the resulting 1997 Kyoto Protocol, 37 of the then-highest income countries and the European Union (EU) committed to reduce their GHG emissions on average to 5% below 1990 levels during the "first commitment period" of 2008 to 2012. The United States signed but did not become a Party to the Kyoto Protocol. The 2012 Doha Amendment to the Kyoto Protocol established a second commitment period of the Kyoto Protocol for the period 2013-2020, with GHG abatement pledges from 37 countries plus the EU. Japan, New Zealand, and the Russian Federation declined to participate in the Doha Amendment to the Kyoto Protocol. Canada withdrew from the Kyoto Protocol in 2012.
The 2010 Cancun Agreement: In 2010 for the first time under the UNFCCC, a negotiated agreement contained language for GHG pledges by all major emitting Parties. Many Parties, including China, pledged quantitatively to limit their GHG emissions. However, these pledges are not considered "legally binding."
Currently, the Durban Platform Negotiations: The current round of negotiations is the Durban Platform for Enhanced Action. The Durban Platform's mandate is for a new agreement "with legal force" that would be "applicable to all Parties" and begin implementation after 2020. In concept, this mandate could eliminate the bifurcation in the UNFCCC between Annex I and non-Annex I Parties, or between countries with and without binding GHG obligations.
Issues for Congress: Many in Congress are concerned with the merits of a treaty, and with the goals and obligations it might embody. One concern is the compatibility of any international agreement with any U.S. domestic policies and laws, should consensus emerge on whether and how to address climate change. Additional issues include the costs and other impacts of obligations; the parity of actions among countries and effects on trade competitiveness; the adequacy of appropriations, fiscal measures, and programs to achieve any commitments under the agreement; and the desirable form of the agreement and related requirements. A new treaty would require Senate consent to ratify it as well as possible federal legislation to meet any U.S. commitments.