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AClimateDeal,6FatefulYearsinthe
Making
ByCORALDAVENPORT DEC.13,2015
PARISIttookalmosttwoweeksfornegotiatorsfrom195countriestofinallypass
thelandmarkclimateaccordthisweekendafterseveralespressofueledallnighters
andlong,passionatedebatesoverthemeaningofasingleword,suchasshall.
Butthestoryofhowthedealcametogetherstartedlongbeforethatin
December2009,withthefailureofthelastsuchsummitmeeting,inCopenhagen.
Thatgatheringwas,inhindsight,acasestudyinhownottodoadeal.Thehosts
oftheeventhadsetasterntone,withconcretebarricades,concertinawire,andsteel
cagestohouseprotesterswhosteppedoutofline.
ConnieHedegaard,Denmarksministerofclimateandenergy,wasbluntinher
approach,puttingpressureonallgovernmentstomakethepoliticalpriceofbeing
anobstaclesohighthatnoonewillpayit,shesaidatthetime.
Inthetensefinalhours,worldleadersfromahandfuloflargecountriestookthe
negotiationsintotheirownhands,leavingsmallercountriesfuming.Littleemerged
fromthetalks,otherthanacrimonyandsuggestionsthatperhapssuchsummit
meetingswereultimatelyfutile.AfterCopenhagen,manyworldleadersbelieved
thattheUnitedNationsprocesswouldnolongerworkfortacklingclimatechange,
SecretaryGeneralBanKimoonoftheUnitedNationssaidinaninterview.Itwas
deeplydisappointing.Itwaspainful.
SowhatchangedfromCopenhagentoParis?Inshort,threethings:a
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fundamentalchangeinthegeopoliticsofclimatechangeashiftintheperceptionof
globalwarmingfromadistantwarningtoanimmediatethreatandtheartofFrench
diplomacyduringtheeventandinthemonthsbeforehandtosoftenthesharp
elbowsofnegotiatorsandreducethechancesthatmajorpointsofcontentionmight
killadealagain.Inparticular,theymadesurethateachcountry,regardlessofits
sizeorwealth,feltitsvoicewouldbeheard.
Itwasawonderfulsurprisethataftertheincredibledisappointmentof
Copenhagen,these195countriescouldcometoanagreementmoreambitiousthan
anyoneimagined,saidJimYongKim,theWorldBankpresident,whohasbeen
closelyengagedinthetalks.Thisneverhappens.
ThetalksinCopenhagenwerehandicappedbeforetheyevenbegan,asmajor
countriesviewedPresidentObamawithdeepskepticism.Thereputationofthe
UnitedStatesonclimatechangehadsufferedbecauseofitsdecision,under
PresidentGeorgeW.Bush,towithdrawfromtheworldsfirstclimatetreaty,the
KyotoProtocol.
Americanshadhistoricallydemandedactionfromothernationswhiledoing
littleathome,despitethecountrysstatusastheworldslargestgreenhousegas
polluterthroughrecentdecades.AndtheUnitedStateswaslockedinanimpasse
withChina,theworldsotherlargestpolluter,aseachcountrywaitedfor
commitmentsfromtheotherbeforeactingitself.
Mr.Obama,stillearlyinhisfirsttermandhavingjustwonthe2009Nobel
PeacePrize,promisedotherworldleadersinCopenhagenthatallthiswouldchange
underhisadministration.HeassuredthemthatCongresswasonthevergeof
passingasweepingnewclimatechangebill,sponsoredbySenatorJohnKerryof
Massachusetts.
ButMr.Obamaspledgeswonhimlittlecredibility.Hewastreateddismissively
bytheChinesepremier,WenJiabao,whosenthimprogressivelylowerlevelofficials
forthefinalnegotiations.Inthestrainedclosinghoursoftheconference,Mr.Obama
burstintoameetingwithMr.Wenandotherleaders,wheretheyworkedallnighton
laptopstohammerouttheterms.
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Ms.Hedegaardhadsignaledafewmonthsbeforethetalksbeganthatfailure
wasnotanoptionforthedeal.Chinaandotheremergingnationsmustacceptit
evenifitisntfair,shesaid.
Butforceofwillwouldnotcarrytheday,andthelatebackroomdealfailedto
wintheconsensusrequiredforalegallybindingagreement,asahandfulof
countries,includingVenezuela,BoliviaandCuba,blockeditspassage.Therichare
destroyingtheplanet,saidHugoChvez,theSocialistpresidentofVenezuela,
duringthetalks.Perhapstheythinktheyregoingofftoanotheroneaftertheyve
destroyedthisone.
SoonafterMr.Obamareturnedhome,Mr.Kerrysclimatechangebillfailedin
theSenate.Andfortherestofhisfirstterm,Mr.Obamaputtheissueofclimate
changeonthebackburner.
Thatchangedafterhisreelection.EvenMr.Obamasownaidesweresurprised
whenhetoldtheminearly2013thatheintendedtoputclimatechangeattheheart
ofhissecondterm.InhisfirstStateoftheUnionaddressafterhisreelectionhe
warnedRepublicansonclimatechange,saying,IfCongressdoesntact,Iwill.
ThisenragedRepublicansanddrewcriticismsofabuseofexecutivepower.The
followingyear,theEnvironmentalProtectionAgencyissuedaggressivenew
regulationstocutgreenhousegasesfromcoalfiredpowerplants.Thoserules
whichcouldleadtotheshutdownofhundredsofplantsandfreezeconstructionof
futureplantsstandasthemostsignificantactiontakenbyanyAmericanpresident
onclimatechange.
RepublicansdeclaredthatMr.Obamawaswagingawaroncoal.Butthose
actionsalsofundamentallyalteredtheperceptionoftheUnitedStatesin
internationalclimatetalks.
Itchangedthegame,saidtheFrenchclimatechangeenvoy,Laurence
Tubiana.
Chinasviewsonclimatechangeshifted,aswell.Thevastexpansionofcoal
firedpowerplantsthatwasfuelingChinasrapideconomicgrowthwasalsochoking
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itscitieswithpollution.
Withpublicangerrisingoverrecordlevelsoftoxicsmog,Chineseofficialsbegan
totakestepstocurbChinasuseofcoal.
PayingcloseattentiontothatshiftwasMr.Kerry,nowsecretaryofstate.Hesawan
opportunitytobrokeradeal,andtotrytopavethewaytowardabroaderagreement
inParis.
Throughout2014,Mr.KerryheldaseriesofmeetingsinBeijingfocusedon
climatechange.InOctober2014,heinvitedthetopChineseenvironmentofficial,
YangJiechi,toaprivatelunchattheLegalSeafoodsrestaurantoverlookingBoston
Harbor.Theyspokeforthreehoursaboutthechangesthathadalreadyinfluenced
theirpollutionpoliticsathomeanddiscussedthepossibilityofturningthatintonew
policyontheworldstage.
Thenextmonth,Mr.ObamavisitedBeijing,whereheandPresidentXiJinping
ofChinaannouncedthattheywouldmoveforwardjointlyonplanstoreducetheir
greenhousegaspollution.
Thatannouncementbrokethedeadlockthathadstalledclimatechange
negotiationsforover20years.
ThefollowingmonthinLima,Peru,negotiatorswroteafirstdraftofwhatwould
ultimatelybecometheParisAgreement.Inlanguagemodeledontheagreement
betweentheUnitedStatesandChina,theLimapactrequiredeverycountryto
submititsownclimatechangeplanbeforemeetinginParis.
TheChinaannouncementchangedeverything,saidMr.Kerryinaninterview.
Itchangedpeoplesthinkingaboutthis.WithouttheChinaannouncement,you
wouldnthave184nationsreadytocometoParis,thehomeworkdone,thetable
set.
Theplanetitselfwaschanging.Fromthetimelawmakersbeganpushingfor
climatechangepoliciesinthe1980s,theissuehadloomedlargelyasafuture
existentialthreat.Butinrecentyears,scientificstudieshavestartedtodrawadirect
linkbetweenclimatechangeandcertainweatherevents,suchasthe2010extreme
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heatwaveandforestfiresinRussiacripplingdroughtsinTexasin2012and
Australiain2014floodinginMiamiandstormsurgesacrossthePacific.
SinceCopenhagen,therehasbeenavirtualtorrentofstudiesthatassessthe
linkbetweenthebuildupofgreenhousegasesandspecificevents,saidMichael
Oppenheimer,aclimatescientistatPrincetonUniversity.Themorerealclimate
changeistotheaverageperson,themorerealitistopolicymakersintermsof
makingdecisionsaboutsavinglivesandcleaningupafterdisasters.
AllthosemomentsleduptoPariswhereelementsofFrenchdiplomacy
helpedtosealthedeal.
LikeMr.Obama,theFrenchpresident,FranoisHollande,wantedtoforgea
legacyonclimatechange,andhewantedalandmarkaccordtobearthenameofhis
capitalcity.Giventhetroubledhistoryofclimatetalks,thehostgovernmentwas
widelyviewedasplayingacrucialroleintheoutcome.Frenchofficials,ledbyMr.
Hollande,ForeignMinisterLaurentFabius,andMs.Tubiana,theclimateenvoy,
wantedtoensurethattheyavoidedthemistakesoftheDanes.
Intheyearleadinguptothetalks,Ms.Tubianatraveledtheworldandmetwith
hercounterpartslongbeforetheyarrivedforthenegotiations.Mr.Fabius,thepoised
andgraciouspublicbrokerofthetalks,helpedsmoothoutdifficultiesbehindthe
scenes.
ThebiggestpointofcontentionwasoverapushbytheUnitedStatesforan
aggressivesystemtoverifythatcountrieswerelivinguptotheiremissionspledges.
ChinaandIndiaarguedthatoutsideverificationwouldbetoointrusive.
Developingcountriesinsistedthatrichcountriesberequiredtopaythemto
adapttotheravagesofclimatechange.Thatprovisionremainsinthetext,butina
preamblesectionthatisnotlegallybinding.
UnliketheCopenhagentalksthatweremarkedbyfrequentwalkouts,theParis
talksremainedonanevenkeel.Negotiatorsfromover100countriesrepeatedlysaid
thattheyhopedthatattheendofthetwoweeks,theywouldreachadeal.
TheFrenchwerealsomindfulthattempersflareanddecisionmaking
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deteriorateswhenpeoplearehungryandtired.Havingreleasedadraftofthe
agreementonThursdaynightprecipitatinganallnightnegotiatingsessionthe
FrenchsaidtheywouldnotreleaseanotheroneuntilSaturdaymorning,thus
guaranteeingthatnegotiatorswouldhaveFridaynighttocatchuponsleep.Andon
thebrinkofreleasingthatSaturdaydraft,whichturnedouttobethefinalone,the
Frenchsuddenlycalledalunchbreak.
Itwasaveryspecificconstellationofevents,saidMr.Kim,theWorldBank
president.ThisdoesnthappeniftheFrencharentworkingonthisforayear.It
doesnthappenifObamadoesntspendthetimebuildingrelationswithXi.It
doesnthappenwithouttheChineseU.S.announcement.Butitrepresentsthe
biggestshiftwehaveeverseenonthisglobalcrisis.
SewellChancontributedreporting.
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AversionofthisarticleappearsinprintonDecember14,2015,onpageA1oftheNewYorkeditionwith
theheadline:AClimateDeal,6FatefulYearsintheMaking.
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