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Local officials are often viewed as relatively weak actors in China’s governance structure, largely implementing policies issued from the central level. 

However, a new book – “Implementing a low-carbon future: climate leadership in Chinese cities” – argues that these officials play an important role in designing innovative and enduring climate policy.

The book follows how four cities – Shenzhen, Zhenjiang, Xiamen and Nanchang – approached developing low-carbon policies over the course of almost a decade.

It identifies “bridge leaders” – mid-level local bureaucrats who have a strong interest in a specific policy area and who are unlikely to move often between different posts – as key to effective local climate policymaking.

Carbon Brief interviews author Weila Gong, non-resident scholar at the UC San Diego School of Global Policy and Strategy’s 21st Century China Center and visiting scholar at UC Davis, on her research.

The interview has been edited for length and clarity.

  • Gong on why cities are important: “Over 85% of China’s carbon emissions come from cities. The majority of Chinese people live in cities, so the extent to which cities can become truly low-carbon will also influence China’s climate success.”
  • On what motivates local policymakers: “Mid-level bureaucrats need to think about how to create unique, innovative and visible policy actions to help draw attention to their region and their bosses.”
  • On cities as a way to test new policies: “Part of the function of local governments in China is to experiment with policy at a local level, thereby helping national-level officials develop responses to emerging policy challenges.”
  • On how local policymakers get results: “Even though we tend to think that local officials are very constrained in terms of policy or financial resources, they can often have the leverage and space to build coalitions.”
  • On uneven city-level engagement: “To begin with, all regions received political support if they joined the [low-carbon city] pilot programme. But over the years, different regions have engaged very differently.”
  • On the need for ‘entrepreneurial bureaucrats’: “China will always need local officials willing to introduce new legislations or try new policy instruments…For that, it needs entrepreneurial bureaucrats who are willing to turn ideas into actions.”
  • On international cooperation: “Even with how geopolitics is really complicating things, many cities continue to have common challenges. For example, collaboration between Shanghai and Los Angeles on green shipping corridors is still ongoing”.
  • On the effectiveness of mid-level bureaucrats: “They are creative, they know how to convince their boss about the importance of climate action and they know how that can bring opportunities for themselves and their boss. And because of how long they have worked in one area, they understand the local politics, policy processes and the coalitions needed to provide solutions.”

Carbon Brief: You’ve just written a book about climate policy in Chinese cities. Could you explain why subnational governments are important for China’s climate policy in general?

Weila Gong: China is the world’s largest carbon emitter, so the extent to which global efforts to address climate change can actually reach their goal is largely influenced by China’s efforts.

If you look at the structure of China’s carbon emissions, over 85% of China’s carbon emissions come from cities. The majority of Chinese people live in cities, so the extent to which cities can become truly low-carbon will also influence China’s climate success. That’s why I started to look at this research area.

We tend to think of China as a centralised, big system and a unitary state – state-run and top-down – but it actually also has multi-level governance. No climate action or national climate targets can be achieved without local engagement.

We also tend to think subnational level [actors], including the provincial, city and township levels, are barriers for environmental protection, because they are focused on promoting economic growth.

But I observed these actors participating in China’s low-carbon city pilot programme [as part of my fieldwork spanning most of the 2010s]. I was really surprised to see so many cities wanted to participate in the pilot, even though at the time there was no specific evaluation system that would reward their efforts.

We think of local governments just as implementers of central-level policy. When it comes to issues like climate change and also low-carbon development – in 2010 [policymakers found these concepts] very vague…So I was curious why those local officials would want to take on this issue, given that there was no immediate reward, either in terms of career development or in terms of increasing financial support from the central government.

CB: Could you help us understand the mindset of these bureaucrats? How do local-level officials design policies in China?

WG: The role of different local officials in promoting low-carbon policy is not very well understood. We tend to focus on top political figures, such as mayors or [municipal] party secretaries, because we see them as the most important policymakers.

But that is not entirely true. Those top local politicians are very important in supporting efforts to tackle problem areas…but the focus in my book is the mid-level bureaucrats.

Unlike mayors and party secretaries, mid-level officials tend to stay in one locality for their entire career. That helps us to understand why climate policy can become durable in some places and not others.

Mayors and party secretaries are important for [pushing through policy solutions to problem] issues, but they can also be key barriers for ensuring continuation of those policies – particularly when they change positions…as they tend to move to another locality every three to five years.

Therefore, these top-level officials are not the ones implementing low-carbon policies. That’s why I looked at the mid-level bureaucrats instead.

The conventional understanding of these bureaucrats is that they are obedient and only follow their bosses’ guidance. But actually, when low-carbon policies emerged as an important area for the central government in 2010, opportunities appeared for local governments to develop pilot projects.

Mid-level local officials saw this as a way to help their bosses – the mayors and party secretaries – increase their chances of getting promoted, which in turn would help the mid-level bureaucrats to advance their own career.

Impressing central government officials isn’t really a consideration for these officials…but their bosses need visible or more reliable local actions to show their ability to enforce low-carbon development.

As such, mid-level bureaucrats need to think about how to create unique, innovative and visible policy actions to help draw attention to their region and their bosses.

Secondly, mid-level bureaucrats are more interested in climate issues if it is in the interest of their agency or local government.

For example, Zhenjiang [a city in east China] came to be known as a leader in promoting low-carbon development due to a series of early institutional efforts to establish low-carbon development. In particular, in part because of this, it was chosen for a visit by president Xi Jinping in 2014.

As a result, the city created a specialised agency [on low-carbon development]. This made it one of the first regions to have full-time local officials that followed through on low-carbon policy implementation.

This increased their ability to declare their regulatory authority on low-carbon issues, by being able to promote new regulations, standards and so on, as well as enhancing the region’s and the local policymakers’ reputations by building institutions to ensure long-term enforcement.

Another motivation for many local governments is accessing finance through the pilot programmes. If their ideas impress the central-level government, local policymakers could get access to investment or other forms of financial resources from higher levels of government.

In the city of Nanchang, for example, officials were trying to negotiate access to external investment, because the main central government fund for low-carbon initiatives only provided minimal finance.

Nanchang officials tried to partner with the Austrian government on sustainable agriculture, working through China’s National Development and Reform Commission (NDRC).

It didn’t materialise in the end, but they still created a platform to attract international investment, and gathered tens of millions of yuan [millions of dollars] in central-level support because the fact they showed they were innovating allowed them to access more money through China’s institutional channels.

CB: Could you give an example of what drives innovative local climate policies?

WG: National-level policies and pilot programme schemes provide openings for local governments to really think about how and whether they should engage more in addressing climate change.

The national government has participated in international negotiations on climate for decades…but subnational-level cities and provinces only joined national efforts to address climate issues from the 2010s – starting with the low-carbon city programme.

So we can see that local responses to addressing climate change have been shaped by the opportunities provided by the national government, [who in turn] want more local-level participation to give them successful case studies to take to international conferences.

Local carbon emission trading systems (ETSs) are an example of giving local governments opportunities to experiment.

In my book, I look at the case of Shenzhen, which launched China’s first local ETS. [Shenzhen was one of seven regions selected to run a pilot ETS, ahead of the national ETS being established in 2018.]

Part of the function of local governments in China is to experiment with policy at a local level, thereby helping national-level officials develop responses to emerging policy challenges.

I remember a moment during my field research in 2012, when I was with a group of officials from both the national and local government.

The national government officials asked the local officials to come up with some best practices and solutions, to help them envision what could be done at the national level.

Then there are drivers at the international level, which I think is very interesting.

I observed that the officials particularly willing to take on climate issues usually had access to international training.

During the early stages of subnational climate engagement, organisations such as the German Agency for International Cooperation (GIZ) worked with the NDRC and other national-level agencies to train local officials across the country.

This created more opportunities to help local officials understand what climate change and carbon markets were, and how to use policy instruments to support low-carbon development.

In Shenzhen, local bureaucrats also turned to their international partners to help them design policy.

The city created a study group to visit partners working on the EU ETS and learn how it was designed. They learned about price volatility in the EU ETS and pushed legislation through the local people’s congress [to mitigate this in their own system].

One thing that made the Shenzhen ETS so successful is what I call “entrepreneurial bureaucrats” [who have the ability to design, push through and maintain new local-level climate policies].

Shenzhen’s vice mayor worked with the local people’s congress to push the ETS legislation through. This was the first piece of legislation in China to require compulsory participation by more than 600 local industrial actors. It also granted the local government authority to decide the quotas and scope of the ETS.

These 600 entities also included Shenzhen’s public building sector[, a powerful local interest group].

This shows that, even though we tend to think that local officials are very constrained in terms of policy or financial resources, they can often have the leverage and space to build coalitions – even in China’s more centralised political system – and know how to mobilise political support.

CB: You chose to look at the effectiveness of four cities – Shenzhen, Zhenjiang, Xiamen and Nanchang – in climate policymaking. Why did you choose these cities and how representative are they of the rest of China?

WG: We tend to believe that only economically-advanced areas or environmentally-friendly cities will become champions for low-carbon development…But I was surprised, because Zhenjiang and Nanchang are not known for having an advanced economy, but [they nevertheless built impactful climate] institutions – regulations, standards and legislation that shape individual and organisational behaviours in the long term. I thought they were interesting examples of how local regions can really create those institutions.

Then there was Xiamen, which is seen as an environmentally-friendly city and economically is comparable to Shenzhen when you look at GDP per capita. Xiamen actually did not turn its low-carbon policy experimentation into long-term institutions, instead randomly proposing new initiatives [that were not sustained].

I conducted more than 100 interviews, talking with policy-practitioners inside and outside of government about specific policies, their processes and implementation.

I found that, over the course of eight years, these [cities] showed very different levels of engagement.

Some I categorised into substantive engagement, where the local government delivered on their climate goals. [Shenzhen falls into this category.]

Then there is performative engagement – such as in the case of Nanchang – where the local government was more interested in [using climate policies to] attract external investment and access projects from higher levels of government.

But they were not able to enforce the policies, because impressing higher levels of government became the primary motivation.

Zhenjiang was a case of symbolic engagement. It actually created a lot of institutions, such as a specialised agency and a screening system to ensure new [low-carbon] investment. When I was observing Zhenjiang, from 2012 to 2018, officials recognised they needed to be carbon-constrained.

The problem was that Zhenjiang has a very strong power sector – mainly coal power – which supplies the whole eastern coast. That meant, even though the government was very determined to promote low-carbon policies, they faced [opposition from] very strong local actors – meaning the government could only partially implement the targets they set.

Then there is sporadic engagement, as seen in Xiamen. [The city’s approach to climate policy was incremental and cautious] because of a lack of political support [from officials in Xiamen], as well as local coalitions between key actors. So instead, we find random initiatives being promoted.

This explains the uneven policy implementation in China. To begin with, all regions received political support if they joined the pilot programme. But over the years, different regions have engaged very differently, in terms of the regulations, standards and legislation they have introduced, and whether those were paired with enforcement by a group of trained personnel to follow through on those initiatives.

CB: What needs to be done to strengthen sub-national climate policy making?

WG: It’s very important to have groups of personnel trained on climate policy. Since 2010, when I started studying the low-carbon pilot programme, there were no provincial-level people or agencies fully responsible for climate change. Back then, there was only the [central-level] department of climate change under the NDRC.

By the time I finished the book, provincial-level departments of climate change had been created across all provinces. But almost nothing has been established at the city level, so most city-level climate initiatives are being managed under the agencies responsible for air quality.

That means climate change is only one of those local officials’ day-to-day responsibilities. Only a handful of cities have dedicated staff working on climate issues: Beijing, Shanghai, Zhenjiang, Shenzhen and Guiyang.

Nanchang devised some of China’s first legislation to include an annual [financial] budget for low-carbon development. But when I revisited the city, officials were not actually sure about how and whether that budget was being used, because there wasn’t a person responsible for it.

Therefore, even if there are resources available, they can go unused because local officials at the city level are so busy. If climate policy is not prioritised, or written into their job responsibilities, that can be a challenge for sustaining implementation.

In China’s governance structure, the national government comes up with ideas, and the provincial level transfers these ideas down to local-level governments. City-level governments are the ones implementing these ideas.

So we need full-time staff to follow through on policies from the beginning right up to implementation.

Secondly, while almost all cities have now made carbon-peaking plans, one area in which the Chinese government can make further progress is in data.

China has recently emphasised the need to strengthen carbon-emissions data collection and monitoring. But when I was conducting my research, most Chinese cities had not yet established regular carbon-accounting systems.

As such, inadequate energy statistics and insufficient detail remain key barriers to effective climate-policy implementation.

In addition, the relevant data usually is owned by China’s National Bureau of Statistics (NBS), which does not always share it with other agencies. Local agencies can’t always access detailed data.

When I visited Xiamen, officials told me the local government is now improving emissions monitoring systems. But there should be more systematic and rigorous data collection, covering both carbon emissions and non-CO2 greenhouse gases. Also, much of the company-level data is self-reported, which could affect the accuracy of carbon-emissions statistics.

For continued climate action, it’s also important that the central government ensures that local officials have the institutional support needed to experiment and propose new ideas.

…China will always need local officials willing to introduce new legislations or try new policy instruments – like Shenzhen with its ETS, or establishing new carbon-monitoring platforms.

For that, it needs entrepreneurial bureaucrats who are willing to turn ideas into actions. Ensuring that local governments have the right set of conditions to do this is very important.

CB: What did you find most surprising when researching this book?

WG: That international collaboration is still very important. I found that many officials learnt about climate change through international engagement.

In the current situation, I think international engagement is still very important – particularly given how, even with how geopolitics is really complicating things, many cities continue to have common challenges. For example, collaboration between Shanghai and Los Angeles on green shipping corridors is still ongoing.

That can bring opportunities for continuing climate action at the city level in the face of rising international tensions, as long as national governments give them space to be involved in international climate action.

Another surprise was the factors of what exactly made climate action durable. I was really surprised that many of the cities that I revisited were still involved in the pilot programmes, despite the central government restructuring that shifted the climate change portfolio from the NDRC to the Ministry of Ecology and Environment – which created challenges for the local governments who had to navigate this.

I also thought that the change in mayors for all four cities would lead to climate initiatives falling off the agenda.

But actually, Zhenjiang, Xiamen and Nanchang all maintained their low-carbon initiatives, despite these changes. This showed it isn’t only strong mayors that bring success, but rather a group of trained personnel building and enforcing regulations and standards. So the importance of bureaucrats and bureaucracy in making climate action durable was actually way beyond my initial expectations.

I was also surprised that bureaucrats can be entrepreneurial, even though they work in a centralised system. They are creative, they know how to convince their boss about the importance of climate action and they know how that can bring opportunities for themselves and their boss. And because of how long they have worked in one area, they understand the local politics, policy processes and the coalitions needed to provide solutions.

The post Interview: How ‘mid-level bureaucrats’ are helping to shape Chinese climate policy appeared first on Carbon Brief.

Interview: How ‘mid-level bureaucrats’ are helping to shape Chinese climate policy

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Climate Change

The world doesn’t need a Paris Agreement for plastics

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Amy Youngman is a legal and policy specialist at the campaigning group Environmental Investigation Agency (EIA).

The chair’s August Aid to Negotiations is being sold as a pragmatic way to rescue the global plastics treaty. However, the text is starting to resemble the architecture of a Paris Agreement-style framework: a patchwork of vague commitments, nationally determined action and reporting, with the hardest substantive decisions left to a future that, my experience following these negotiations tells me, would never arrive.

In March 2022, governments adopted UNEA Resolution 5/14 by consensus, launching negotiations for a legally binding international instrument to end plastic pollution. I joined the global plastics treaty process in Paris in 2023, where hopes of drafting a treaty capable of confronting one of the defining environmental and human health threats of our time were first derailed by procedural warfare.

    Five months later, in Nairobi, I watched the chair close a meeting while delegates still negotiated -allegedly to catch a flight. In 2024 and 2025, in Ottawa, Busan and Geneva, the same small group of blocking states grew bolder, cloaking opposition in language about defending the vulnerable while subsidising a system that fuels the pollution crisis. Offended by ambition, ashamed of nothing.

    A year after the last formal attempt to negotiate a treaty, we are tasked with protecting a fragile process. And despite long-standing support, including legal, policy and technical expertise from my own Environmental Investigation Agency, the chair has excluded observers from the rooms where the treaty’s fate is being decided.

    In that orchestrated quiet, the loudest proposal emerged: the suggestion that the instrument be a “framework convention.” The new Aid, intended to shape the late-September Heads of Delegation meeting, never uses the word “framework”. It does not need to. It strips back substantive obligations and presupposes future action.

    A framework is no match for this crisis

    Framework conventions outline broad principles and leave each country to develop its own plan, often delaying tough decisions to future negotiations that may never happen. This tactic is a political shell game: persuading states that want action now to give up meaningful, binding measures to reach agreement.

    The Chair’s Aid arrives at a framework by subtraction rather than by proposal, which makes it harder to name and potentially easier to accept. Using the Aid, effectively the rejected text from Geneva, as a basis for the next informal meeting in Bangkok will be sold as a way to preserve a distressed UN system and reach consensus in a fractured geopolitical environment.

    This is diplomacy drowning in wishful thinking that the countries fighting binding rules today will approve tougher ones tomorrow. Four years of negotiations and decades of climate diplomacy taught us that this is not a bridge to ambition – this is how ambition dies.

    Modou Fall, 45, head of Senegal Propre (“Clean Senegal”) Association is covered with plastic cups and bags to raise awareness of the damage on the environment caused by waste as he cleans a beach during World Cleanup Day in Dakar, Senegal September 15, 2018. REUTERS/Zohra Bensemra

    Modou Fall, 45, head of Senegal Propre (“Clean Senegal”) Association is covered with plastic cups and bags to raise awareness of the damage on the environment caused by waste as he cleans a beach during World Cleanup Day in Dakar, Senegal September 15, 2018. REUTERS/Zohra Bensemra

    Production is driven by global oil, gas and chemical markets, while products and waste travel across borders. No singular government can regulate its way out of a problem created and amplified by a globalised system.

    Countries have tried, and production kept rising. Now there is plastic everywhere we look, and the cost falls hardest on the people least responsible.

    That failure is why there was consensus to negotiate a treaty, because this crisis requires global action. The purpose was never to list national efforts and call that progress but to create common global rules to address pollution.

    The most politically sensitive issues cannot simply be postponed. How much plastic is produced, which toxic chemicals are allowed in it, which throwaway products are banned, and how future decisions are made are precisely the issues that require global answers. An instrument that refuses to negotiate them will be easier to adopt but useless on arrival.

    Learn from climate governance

    Supporters of a framework approach may point to the ozone treaty as proof that it can work. But the Vienna Convention succeeded for one reason: governments quickly adopted binding upstream controls on ozone-depleting substances.

    Climate offers the opposite warning: a framework followed by contested, delayed and insufficient measures, while emissions keep rising.

    The new chair not only deleted a direct reference to “production and consumption” and bracketed similar preambular language copied from the original mandate. The article on reporting borrows language from the Paris Agreement. Another summer of record heat, fires and floods offers a glimpse of how well that model is working.

    Nothing suggests that the states blocking binding rules today will suddenly accept them tomorrow, and the exponential rise in unchecked plastic production will not pause while governments wait for courage. Blockage is not being resolved, but just pushed forward.

    A framework would lock in the wrong response: unlimited upstream growth with waste management attempting to handle it downstream. No waste system can keep pace with a material engineered for endless growth.

    Keeping to 1.5C of warming is no longer possible – but we must still limit the overshoot

    After four years of INC negotiations, governments know this. States must reject the false choice that the only path to agreement is an instrument too weak to solve the problem it was created to address. Compromise is part of diplomacy. Surrender is not.

    And if the UN keeps pushing that choice, the countries prepared to act must be willing to pursue alternative pathways. Groups of willing governments have built effective agreements before, and existing environmental regimes can deliver new rules without inventing a new empty instrument.

    This process was never meant to find a lowest common denominator. It was to create the rules necessary to change our direction. Bangkok in September will be where the second iteration of this text is shaped. If ambitious countries do not push back, the argument about a framework convention will already be lost by default.

    Negotiations cannot end with governments accepting the crisis rather than solving it. The science is clear and the damage is accelerating. The world does not need another promise to act later. It needs the treaty governments promised to deliver in 2022. 

    The post The world doesn’t need a Paris Agreement for plastics appeared first on Climate Home News.

    The world doesn’t need a Paris Agreement for plastics

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    Climate Change

    As science comes under attack at UN talks, climate movement splits over how to respond

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    With June’s UN climate talks inching towards gridlock, a group of diplomats calling themselves “Friends of Science” issued a stark warning: climate science was under attack in Bonn.

    The coalition, spanning the world’s richest to its most vulnerable nations, pointed the finger primarily at those who think “science threatens their economic prospects” – a thinly-veiled reference to fossil fuel-dependent states accused of casting doubt on long-held scientific tenets in the UN climate process.

    Fiji’s lead negotiator, Sivendra Michael, went still further. He denounced what he called “a very polluted narrative” taking hold outside the negotiating rooms and singled out ECO, a daily newsletter on the talks produced by Climate Action Network (CAN) International, for overlooking the issue.

    “They are representing developing countries, but they are not representing us,” Michael said. His words hinted at how a rift between governments over the science of global warming has created tensions inside the climate movement.

    Watchers of the UN climate talks have told Climate Home News there is growing unease over where the world’s most influential coalition of climate NGOs stands in an increasingly heated debate about how scientific messages produced by the Intergovernmental Panel on Climate Change (IPCC) are crafted and turned into global climate policy.

    UN sets out narrow path back to 1.5C warming after inevitable overshoot

    CAN’s international leadership has publicly backed a line of argument, championed by some big emerging economies including India, that questions how fair and equitable the models underpinning the work of the IPCC – the UN’s climate science body – are because they are dominated by research from the Global North.

    But some climate activists, including from nations on the frontline of the climate crisis in the Pacific, are increasingly disappointed by CAN’s silence in a connected row over whether the IPCC’s forthcoming assessment report should be finished in time to inform the next UN scorecard of global climate action.

    Over the last two years, India, Saudi Arabia, China, Russia and Kenya have pushed back against attempts by a large coalition of nations to align the IPCC’s AR7 report timeline with the second stocktake of national climate plans under the UN climate process. They claim this would put a burden on developing countries with limited resources and restrict their ability to provide scientific input into the process.

    India flags bias in IPCC assumptions

    CAN International Executive Director Tasneem Essop spoke at an online event last month in which panelists challenged the “Friends of Science” campaign launched at the Bonn talks.

    During the webinar, an Indian scientist and government negotiator set out her view that the IPCC’s way of working and scientific assumptions perpetuate inequity between developed and developing countries – and yet its reports have come to be treated as “scripture” that cannot be questioned.

    In her intervention, Essop did not comment directly on the Bonn science campaign nor on the IPCC timeline issue. But the participation of CAN’s leadership in an event where such criticism of the IPCC was aired has sparked concern in some parts of the NGO community.

    “The way in which CAN International is playing into what could be the destruction of the IPCC inputs into the climate process is very concerning,” said Bill Hare, who was involved in CAN’s establishment nearly four decades ago and now runs think-tank Climate Analytics.

    Science ‘under attack’ from fossil fuel interests at UN climate talks

    He added that it was a mistake for CAN International to align itself with arguments made by India and Saudi Arabia, when those countries are blocking the conclusion of the IPCC’s next key report on cutting emissions in time for it to feed into the next global stocktake, which is due to conclude in 2028.

    Like other insiders Climate Home News spoke to, the veteran Australian climate scientist fears these tensions could hamper CAN’s widely recognised power to influence the talks.

    “The CAN International voice has been very, very important in the process. That voice doesn’t need to be diluted at this moment in history – that would be a really bad move,” Hare said.

    Dialogue to reconcile differing views

    Over the last decade, CAN has been working to transform itself into an organisation that is more representative of, and responsive to, voices and needs in the Global South. In 2019, it appointed Essop – a South African expert on climate, energy, poverty and social justice – as executive director, shifting further away from its European and North American roots.

    CAN International, which functions as the broader network’s secretariat, says it is discussing how to reconcile varying views on the IPCC and the science and equity question among its hundreds of member groups spread across 130 countries.

    “We acknowledge that there are different perspectives within a global network of over 2,000 members on these issues,” CAN International’s Essop said in response to questions from Climate Home News. “Given this diversity, we have democratic processes to build internal agreements.”

    “Science and equity are both fundamental principles for effective climate action and are firmly embedded in CAN’s work,” she added in a written statement. “Putting these principles into practice in a painfully unjust world is not always straightforward, which is why we need continued dialogue across the network.”

    Calls for “fair share” approach

    The webinar in late August – which aimed to untangle what organisers described as “a growing narrative” that “treats science and equity as opposing priorities” – opened with a presentation by Tejal Kanitkar, a prominent Indian climate scientist who also serves on her government’s delegations at the IPCC and UN climate talks.

    Outlining the findings of a paper she co-authored, Kanitkar argued that the IPCC had used scenarios for future emission reduction trajectories based primarily on assumptions put forward by Global North researchers that are skewed against the world’s poorest nations. These, she noted, were then incorporated into the first UN review of global climate action in 2023 and turned into widely cited emissions-cutting targets for limiting warming to 1.5C – a goal the UN has now conceded will be breached, at least temporarily.

    Tejal Kanitkar speaking at a meeting of the IPCC in March 2026. Photo: IPCC Secretariat | Melissa Walsh

    Tejal Kanitkar speaking at a meeting of the IPCC in March 2026. Photo: IPCC Secretariat | Melissa Walsh

    Kanitkar said the “Friends of Science” group included “some of the people who have over-consumed the carbon budget and now use science as a slogan”. When Climate Home News raised the participation of diplomats from vulnerable countries, she said they should be asked why they “accept outcomes that burden the poorest the most”.

    Commenting on Kanitkar’s presentation, CAN’s Essop said everyone knows that “imbalances of power dictate who sits at the table, who designs the models and who determines the assumptions underlying them”.

    Her wider intervention focused more generally on the need to ensure that emissions-reduction pathways follow an equitable approach and account for the “fair share” of action countries need to take based on their historical responsibilities for climate change.

    IPCC working to update models

    Hare later acknowledged that most of the IPCC models used for 1.5C scenarios fail to account for the higher cost of capital and transition financing faced by developing countries. But as this is a “well-known” limitation, the IPCC gives a nuanced reading of the scenarios, and the next generation of models it uses is expected to include more consideration of equity, he added.

    Echoing this, a climate scientist from a developing country currently involved in the IPCC process, who did not want to be identified, told Climate Home News that economic models inevitably contain biases and IPCC authors are already working to identify and correct them.

      Despite criticisms of how IPCC scientific reports have been produced, all governments must sign off on every line of a key “summary for policy-makers” at a dedicated meeting. In 2023, the approved summary included the emissions reduction figures in question that informed the UN’s first global stocktake.

      Irrespective of this wider debate, Hare said the “Friends of Science” campaign, which he supports, is focused on the timing of the IPCC’s next assessment cycle rather than the equity of its models.

      Unresolved row over IPCC report timeline

      A political battle over that time-frame has dragged on for more than two years at successive meetings of the science panel, with governments repeatedly failing to find a solution.

      A large majority of nations have been pushing for a timeline that would ensure the next round of AR7 reports can feed into the UN’s global stocktake. But a group of countries, including Saudi Arabia, India, China, Russia and Kenya, have said at previous IPCC meetings that this would put a burden on developing countries with limited resources and have lobbied for a longer process.

      Member of the “Friends of Science” campaign wears a pin in Bonn. Photo: IISD/ENB – Kiara Worth

      Member of the “Friends of Science” campaign wears a pin in Bonn. Photo: IISD/ENB – Kiara Worth

      In Bonn this summer, the coalition that wants to align AR7 with the 2028 stocktake – which includes diplomats from Fiji, Nepal, the European Union, Switzerland, Sierra Leone and Panama – vowed to ensure that decision-making in the UN climate process remains based on the “best available science”, including the IPCC assessment reports.

      They pointed the finger at “the usual suspects” but stopped short of singling out any countries at the public press conference. Discussions in the previous week had seen Saudi Arabia and India play down the centrality of IPCC reports in the UN stocktake and oppose calls in draft texts to encourage scientific work on scenarios to limit an overshoot of the 1.5C warming goal.

      Bonn upset fuels further tension

      A campaigner with knowledge of internal discussions told Climate Home News that many civil society groups from some of the world’s most vulnerable nations, including the Pacific islands, had expected CAN International to back calls in Bonn defending the centrality of the IPCC in UN climate policy-making.

      Despite this, a day before the “Friends of Science” press conference, CAN published an ECO newsletter that did not mention the issue. Instead, it voiced surprise over the claims of an attack on science happening in the negotiations and accused some of the IPCC’s loudest-defending governments of hypocrisy for continuing to expand fossil fuels and not delivering “fair shares” of emissions cuts and finance to the developing world.

      “We were really shocked we could not find a common position and then this jarring narrative was being pushed,” the campaigner added.

      After divisions hardened in Bonn, Hare said his organisation was approached by “very upset” CAN members from various regions about the stance taken by the network’s international leadership on the issue.

      Industry and NGOs lobby to weaken UN carbon credit rules in “coordinated” push

      While Climate Home News understands that internal discussions have continued during the summer, including at a CAN leadership meeting in Nairobi in recent days, the campaigner said that CAN International’s endorsement of the recent webinar that directly challenged the “Friends of Science” coalition did not send a reassuring signal.

      Some observers said they feared it would inflame tensions over how climate science is defined and utilised for policy purposes, with consequences reaching well beyond Bonn.

      In a statement to Climate Home News, Essop said that “at a time when communities are experiencing the most horrific impacts of climate chaos, our collective energy must turn to solutions such as filling the Loss and Damage Fund, the phasing out of fossil fuels led by the Global North, and justice for people who are least responsible for this climate emergency”.

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      Q&A: What can – and cannot – be said about global warming’s role in the 2026 Himalayan floods

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      On the morning of 26 August, flash floods surged through a Himalayan border region of Nepal and the Chinese region of Tibet, killing more than 1,300 people, with thousands still missing.

      In the days since the floods, scientists have examined satellite imagery, drone footage and seismic data in order to understand and explain the forces behind the event.

      While initial theories pinned the flood on a glacial collapse, scientists now understand the event as a “multi-hazard cascade”, which began with a bedrock collapse.

      Some climate sceptics have tried to use this to falsely claim that human-caused climate change had no impact on the event.

      Yet, scientists have noted that, while no formal attribution study has been carried out thus far, warming is making such ice-rock avalanches in the region more likely.

      Researchers have highlighted how rapid warming is dramatically reshaping Asia’s high-mountain region – and identified rising temperatures, glacier retreat and permafrost thaw as factors that may have all contributed to the disaster.

      Balendra Shah, Nepal’s prime minister, has called the floods a “serious signal that…the risks we must bear in the Himalayan region are increasing” due to climate change.

      Here, Carbon Brief unpacks what scientists currently know about the causes of the catastrophic event and what they can – and cannot – say about the role of climate change.

      What happened?

      A report published on 28 August by the HiRisk scientific consortium of high mountain experts detailed the events that led to the flash floods.

      It said that events were set in motion on 26 August when a mass of bedrock, as well as the glacier ice on top of it, broke off a slope of Langtang-Lirung mountain in the Nepalese Himalaya, plunging from approximately 5,200 metres above sea level to the valley floor at 3,000 metres.

      The landslide shook the ground hard enough that, at 8:37am Nepal local time, the US Geological Survey (USGS) initially reported a magnitude 4.4 earthquake. Later that day, it clarified the shaking was caused by glacier collapse and debris flow, equivalent to a magnitude 5.2 earthquake.

      On the valley floor, the melting ice, water and debris slammed into the Lhende Khola river, a high-altitude river that runs along Nepal’s border with China.

      Known downstream as the Bhote Koshi river in Nepal and the Poiqu or Poqu in China, the Lhende Khole feeds a network of rivers across Nepal and the Chinese region of Tibet, including the Trishuli river. (In China, the Lhende Khola is known as the Donglin Tsangpo.)

      This image shows a map of Nepal.
      The designations employed and the presentation of the material on this map do not imply the expression of any opinion whatsoever on the part of Carbon Brief concerning the legal status of any country, territory, city or area or of its authorities, or concerning the delimitation of its frontiers or boundaries. Credit: Carbon Brief.

      A large “debris” lake was briefly formed on the valley floor. When this lake burst, a wall of water and rock travelled downstream, killing more than a thousand people and destroying settlements, roads, bridges, hydropower plants and border posts across Nepal and Tibet.

      HiRisk said that the floodwave travelled down rivers as fast as 30km an hour (around 19 miles per hour) and reached Mugling – a Nepalese town more than 130km downstream – at around 1pm local time.

      A separate report from the Center for Land Surface Hazards in the US noted that the flood moved “exceptionally fast, was sediment-laden and extreme in scale”. For example, in the Nepalese municipality of Galchhi, the Trishuli river rose by nine metres in 30 minutes, it said.

      Writing in the Conversation, Dr Umesh Haritashya, a glaciologist at the University of Dayton in Ohio, explained that the disaster “wasn’t finished when the first wall of water passed [on 26 August]”.

      He continued that a new “barrier lake” – estimated to hold a few million cubic metres of water – had developed in a location where two rivers meet in Tibet before crossing into Nepal. This lake burst on 28 August and the river rose again, he said.

      On 4 September, the chief of Nepal’s National Disaster ​Risk Reduction and Management Authority, told Reuters that property and infrastructure worth “at least” $2.5bn (£1.9bn) had been lost. Dharma Raj Upreti estimated the cost to build roads and temporary shelters, provide drinking water and ⁠restore power would be around $53m (£39m).

      How did bedrock collapse trigger the flash floods?

      In the immediate aftermath of the floods, initial reports suggested that the trigger was a collapsing glacier or earthquake in the high mountains of Nepal.

      After confirming that a seismic tremor was as a result of falling rock and ice, the USGS said the trigger was likely a “glacial collapse and debris flow”. This was widely picked up by the media.

      Subsequently, satellite imagery revealed that an “enormous chunk of the mountainous bedrock” beneath the glacier had also given way, reported the New York Times.

      Dr Kristen Cook, a geomorphologist at the Université Grenoble Alpes in France, told the newspaper:

      “The rock that the glacier was sitting on collapsed…It was a much larger collapse than we were initially able to see in the satellite imagery.”

      The result was a “deluge of rock and ice, which pulverized into mud and water as it surged down the mountainside”, the newspaper said.

      Dr Jakob Steiner a geoscientist at the University of Graz in Austria, tells Carbon Brief:

      “It was not a glacier that collapsed. It was the mountain below the glacier that collapsed and the glacier had no other chance but to go with it because it was sitting on top of it.

      “The trigger for that is something that we are not 100% certain about, but, in the end, it very much looks like simply a mechanical failure of the rock material because of stressors that have built up over a long period of time.”

      Failures of “bedrock” – the hard, solid rock that sits below looser rocks and soil – are an “increasingly common occurrence”, says Prof Bethan Davies, a professor of glaciology at Newcastle University. She tells Carbon Brief:

      “These massive landslides occur in mountain regions, commonly following rapid deglacierisation [the melting away of a glacier]. Similar events happened in the Chamoli event in 2021 [in the Indian Himalaya] and in the Blatten landslide last year in Switzerland. They’ve also occurred recently in Alaska.”

      With a shift in focus from the failure of a glacier to the bedrock underneath, some climate sceptics seized on the development to falsely claim that climate change had not played any role in the disaster.

      These include Dr Matthew Wielicki, recently appointed by the Trump administration to lead the US Global Change Research Program, on Twitter, as well as former Conservative peer and climate-sceptic commentator Matt Ridley in the Spectator.

      However, scientists have highlighted the likely contribution of rapid warming in the region. These factors include the thawing of permafrost and glacier retreat. (For more, see sections below).

      Fundamentally, “this would have been a much less significant tragedy if it had been just a rock-slope failure”, notes Davies.

      The initial landslide took a mixture of rock and ice into a valley that “contains buried ice” as well, she says, providing the water that “resulted in the hyperconcentrated flow, which took so many lives”.

      How have temperatures risen in the affected region?

      Global temperatures have risen by roughly 1.4C since the pre-industrial period. However, this increase is not uniform across the planet, with some regions warming faster than others.

      A study published in Global and Planetary Change in June 2026 investigated changes in the Langtang catchment – a river basin in central Nepal, in which the Langtang-Lirung mountain is located, which eventually drains into the Ganges. Around one-quarter of the area is made up of glaciers.

      The paper found that glacial areas of the catchment – found at 4,000 metres above sea level – warmed at 0.31C per decade over 1960-2023. This was “more than three times” the rate observed at a lower elevation weather station, the authors said.

      Looking in more detail at the site of the glacial collapse, Dr Robert Rohde, chief scientist for Berkeley Earth, used ERA5 reanalysis data to show how temperature has changed at the 5,200-metre elevation site where the mass of ice and rock broke loose.

      Rohde’s analysis found that June-to-August temperatures have been rising at the site of the glacier collapse since the year 1940, with 2026’s summer the fourth warmest on record, behind 2024, 2025 and 2022. This is shown in the graph below.

      Average summer (June-August) temperature at the ice-rock avalanche site over 1940-2026.
      Average summer (June-August) temperature at the ice-rock avalanche site over 1940-2026. Data source: Rohde, Bluesky (2026)

      Rohde also found that the days leading up to the disaster recorded the hottest August temperatures ever experienced at the site. This is shown in the graph below.

      Daily average temperature, from 1 June-1 September, at the glacier collapse site.
      Daily average temperature, from 1 June-1 September, at the ice-rock avalanche site. 2026, 2025 and 2024 are shown in dark, mid and light blue. All other years from 1940-2023 are shown in grey. Source: Rohde, Bluesky (2026)

      On social media, Rohde stated:

      “Given the warming trend, this Nepali glacier had probably been thinning and weakening for years, or even decades. But it ultimately failed during the warmest week in one of its warmest years on record. It would be a hell of a coincidence if global warming wasn’t at least partially to blame.”

      How have rising temperatures affected mountain stability?

      Many experts have linked warming temperatures in the region to thawing permafrost – ground that has been frozen for at least two consecutive years, whose thickness ranges from less than one metre to more than a kilometre.

      Steiner is part of a research team that has been using sensors to monitor permafrost in the region since 2014. He tells Carbon Brief that it is “pretty clear” the permafrost has been thawing “very actively” at elevations as high as 5,200 metres above sea level “for many years”. He adds:

      “This means that the ground has, over the last decades, moved from being in a solid state into – at least, periodically during the warm season – patchy ground where some is frozen and some isn’t…

      “If you have frozen ground next to non-frozen ground, you have dynamics happening between that because there are different densities and there’s movement happening, which is conducive to interventional failure – and that we know from many other cases.”

      Davies also points to the “degradation” of perennially frozen ground as a factor in the disaster:

      “This permafrost acts as a glue to hold together the rocks and, as it melts, the rock can become weakened.”

      Permafrost thaw can also result in saturated ground, says Davies, which adds “pressure in the joints” of rock and can “facilitate” failure. She continues:

      “Sources of the water include melting permafrost and meltwater from the overlying glacier. We know that this event happened during a period of warmth, but in the absence of heavy precipitation, pointing to ice melt as the source of water.”

      A 2025 study of rock and ice avalanches in High Mountain Asia found that more than two-thirds started in areas “where permafrost is probable”.

      How have glaciers retreated in the affected region?

      Glaciers – frozen rivers of ice holding three-quarters of the global freshwater supply – are extremely vulnerable to climate change.

      In the Himalaya, the rate of glacier retreat has doubled since the late 20th century, according to a 2019 study in Science Advances.

      The Global and Planetary Change study found that glacier area loss rates in the Langtang catchment increased more than fourfold from 1964 to 2023 – with melting accelerating after 2000.

      It added that glaciers in the region also experienced “fragmentation” and “widespread thinning” over this period.

      The study noted that this loss “coincided with elevation dependent warming”.

      The figure below provides an overview of glacier loss in the Langtang catchment over 1964-2023, with orange, red and dark red indicating areas of retreat.

      In addition, green dots note points of glacier fragmentation, while blue dots show separation and pink show disconnection.

      Glacier loss in the Langtang catchment over 1964-2023.
      Glacier loss in the Langtang catchment over 1964-2023. Orange, red and dark red indicate areas of retreat. Green dots note points of glacier fragmentation, while blue dots show separation and pink show disconnection. Credit: Silwal et al. (2026)

      In comments released by the University of Reading, Prof Maria Shahgedanova, a climate scientist researching climate impacts on mountain glaciers, said that the glacier involved in the floods had “retreated by approximately 450 metres between 1990 and 2020”.

      She adds that this “potentially reduce[d] the mechanical support provided by the glacier to the underlying rock slope”.

      Speaking to Carbon Brief, Davies reiterates that the retreat of the glacier is “potentially a contributing factor” to the bedrock collapse and subsequent disaster.

      This is because the removal of the glacier from the lower slopes leaves the “upper rock slopes less stable”, she says.

      The most recent assessment by the International Centre for Integrated Mountain Development said that glaciers in the Hindu Kush Himalaya region are “rapidly shrinking” as a result of climate change. (This region extends 3,500km over Afghanistan, Bangladesh, Bhutan, China, India, Myanmar, Nepal and Pakistan.)

      It said this loss is threatening the safety of the nearly two billion people, including by increasing the risk of “glacial lake outburst floods” (GLOFs). A GLOF is a sudden and catastrophic release of meltwater from a glacial lake.

      Although this disaster was not caused by a GLOF, it is known that climate change is making such events more likely.

      Can the event be attributed to climate change?

      In the wake of the flash floods, climate campaigners, media outlets and Nepalese politicians have linked them to human-caused climate change.

      However, many climate scientists have cautioned that it is too early to say precisely how climate change impacted the disaster.

      Davies tells Carbon Brief:

      “These events happen so quickly that the exact causes and drivers can take a little time to uncover, especially if the event was a surprise and there had been no monitoring system in place.”

      When trying to determine the role human-caused climate change played in the intensity or likelihood of extreme weather, scientists turn to the field of “attribution science”.

      To date, no formal rapid attribution study has been produced that attempts to quantify whether – and how – climate change contributed to the event.

      Scientists have noted that climate attribution of ice-rock avalanches – which are typically driven by a variety of factors – remains limited, in part because of the lack of a long-term observational record of previous collapses in high mountain areas.

      Meanwhile, the studies that do exist stop short of directly linking such disasters to climate change. For example, the authors of a 2021 study into the Chamoli ice-rock avalanche concluded that “we cannot attribute this individual disaster specifically to climate change”.

      However, they added, the “possibly increasing frequency of high-mountain slope instabilities can likely be related to observed atmospheric warming and corresponding long-term changes in cryospheric conditions (glaciers and permafrost)”.

      In the aftermath of the disaster, many researchers have similarly highlighted that climate change could not be singled out as the cause of the disaster, even if warming likely increased the probability of its occurrence.

      On the Climate Brink substack, Carbon Brief’s climate science contributor Dr Zeke Hausfather noted that a “definitive single-event attribution” of the more recent disaster “may never be possible” due to the “messy causality of rock-ice avalanches”.

      However, he added that both the existing scientific literature and “essentially every scientist working on these hazards point in the same direction” – namely, that warming is making such events more likely in the Himalaya.

      Steiner tells Carbon Brief it might be possible to attribute different factors that played a role in the disasters to climate change – for instance, the recession of the glacier – but it would be more difficult to do so for the event as a whole.

      Part of the reason for this, he says, is that rock failures in this region of the Himalaya have occurred for millennia, well before humans started altering the climate.

      However, he continues:

      “The physics of it is not something that has been made possible by climate change. This could have happened without it. But the chance of it happening – and the likelihood of it happening five years after a previous, similar event [in Chamoli] – we, as the scientific community, can be pretty confident about that [being increased because of a changing climate].

      “This is because so many of the changes that we know are related to climate change can potentially drive the build-up to eventual failure.”

      Ultimately, says Davies, a “careful attribution study is needed, but it is hard to argue that the rapidly warming climate is not having an effect in these regions”. She adds:

      “A single event may have multiple drivers, but we are seeing an increase in these events and are likely to see more as the permafrost and glacier melt continues.”

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