Conclusions and recommendations
Ambitions
1.COP26 will be a key moment for global climate action. We have been encouraged by the number of countries that have expressed the importance of the climate agenda in international fora; COP26 must now translate these words into actions. The UK Presidency will need to mobilise public engagement so that as countries come forward with ambitious climate targets, those promises are backed by people around the world. COP26 will not be considered a success unless the UK Presidency sets the world on a path to net zero, secures an ambitious green finance package, and helps to build resilience to the impacts of climate change. (Paragraph 9)
2.We welcome the Government’s announcement of four headline ‘objectives’ for its COP26 Presidency. However, beyond this announcement there has been little detail on what the UK Government wants to achieve. Setting ambitious expectations will be crucial to securing the success of the conference and the Government will need to do more than just set out broad ambitions. We recommend that the Government ensures that the process for setting objectives for COP26 is inclusive and incorporates the views of the Least Developed Countries and the countries most vulnerable to the effects of climate change. We recommend that before the beginning of the G7 conference in June, the Government expands its headline objectives into a clear list of targets that the UK Presidency wants to achieve in Glasgow. Using the two events together to mobilise support will give a greater opportunity for success. Only by working with networks of partners will the FCDO ensure that more ambitious NDCs are put forward, and only by making plans early and engaging others will the Government secure buy in from other UNFCCC Parties. (Paragraph 10)
3.We welcome the Government’s commitment to make climate change its number one international priority this year, but the responsibility of the UK does not end when COP26 concludes. The UK must continue its efforts as the torchbearer for the next COP, and beyond, to continue to ratchet up ambition on climate change. The FCDO and the UK’s diplomatic network will have a key role to play in this process. In order to ensure a successful legacy for the UK’s COP Presidency, we recommend that the FCDO publishes an environmental diplomacy strategy, defining the Department’s foreign policy aims for the UK’s COP26 Presidency and beyond, and that it establishes a unit that can support future presidencies. The UK must commit to working closely with the African COP27 Presidency, including with the loan of staff and expertise, to sustain momentum on global climate action; particularly on adaptation, resilience, finance and loss and damage. Without a future commitment Glasgow risks being a one-off jamboree of voice and worry, changing nothing but airmiles. (Paragraph 11)
Diplomacy
4.Environmental diplomacy can enhance the UK’s global leadership in line with the UK’s vision for ‘Global Britain’ set out in the Integrated Review. Covid-19 has delayed international progress on climate action but has provided more time for the UK to prepare the ground for a successful COP26. Every foreign engagement the UK undertakes in the lead up to COP26 can be an opportunity for environmental diplomacy. Environmental negotiations will need to take place within UN frameworks, in bilateral talks with countries, during trade negotiations, at the G7 and the G20, and in the UK’s engagement with NGO’s and the private sector. The UK will also need to ensure that climate objectives are effectively integrated into other foreign policy decisions, including decisions on international security, global health, and overseas aid. (Paragraph 18)
5.The Government should ensure its objectives for COP26 are brought into all of the FCDO’s foreign policy activity, including trade deals, decisions on overseas aid and bilateral and multilateral conversations with other UNFCCC parties. The Government’s international development strategy should be published before COP26 and prioritise climate and biodiversity, listing the commitments that the UK will make along with pledges secured by partners. The recovery from covid-19 will require a Marshall Plan-scale commitment from many and the UK should ensure that this aligns with environmental ambitions, embedding a green outlook into a new economy. The FCDO should communicate to its partners that environmental agendas are not in competition but integral to health, development, and security policies. For COP26 to be successful, the Government should ensure alignment with G7, G20 and COP15 processes and decisions. As both the COP26, G7 and G20 Presidents, the UK and Italian Governments are well placed to ensure this alignment. (Paragraph 19)
6.All countries share a common interest in preserving the planet—the global impacts of the climate crisis mean that COP26 will provide an opportunity for the UK to exercise soft power and rebuild relationships with key countries where differences remain on other issues. The UK Government should use its COP26 Presidency as an opportunity to open dialogues with countries and people around the world on common climate issues. The UK should capitalise on opportunities for collaboration, with like-minded partners on intellectual property sharing for green technology. The FCDO can play a key role in collecting information for the COP Unit, engaging in discussions with countries around the world to discover ‘red lines’ and areas where there is negotiating flexibility. If our diplomatic network is to be effective, posts will need to be set clear negotiating objectives. It will also be essential to secure public support for climate polices. We recommend that the FCDO sets out an engagement strategy that goes beyond governments, using international media and public engagement to promote behavioural change and popular commitment to climate polices. (Paragraph 24)
7.The US Climate Summit and COP15 (the biodiversity COP) will be two key moments where the UK will need to take stock of progress and push for increased ambition. As the COP26 President, the UK should play a leading role in both the preparations for the US conference and during the conference itself. We recommend that the UK works closely with the US administration to align the objectives of the US climate summit on 22 April with the objectives of COP26. The United States’ unquestioned importance in the pledging of climate commitments should not replace the UK’s diplomatic role in bringing together other partners. It will be important for the FCDO to find ways to build bridges between both processes as well as pushing for ambitious commitments from the USA and China at COP26. (Paragraph 25)
8.The UK has a strong record for building coalitions for climate action, such as the High Ambition Coalition at UN climate negotiations, and it could build upon this during its COP Presidency. Summits such as the global summit on climate and development provide an important opportunity to influence those countries most affected by the impacts of climate change. The UK Government should look to build overlapping circles of interest to build support for change and to drive forward global ambition. Building on partnerships that may be temporary, the UK should enable with staff support, though not always lead, groups of low-lying states, island nations, developing economies, high ambition states, and vulnerable country groups, amongst others, building on the work of the Small Island Developing States. We recommend that the FCDO make use of their relationships with the previous Chilean hosts, the Italian co-presidents, and other regional partners to build a network of sectoral leaders to help secure a worldwide push for increased climate ambition. The UK’s Presidency should be viewed as organisational and enabling. (Paragraph 26)
9.In order to map the whole picture, it is important that the Government organise inclusive pre-meetings and do not simply hold pre-meetings on a regional basis. The Government should publish the agenda of these meetings to ensure inclusivity and to allow other countries to monitor the status of discussions. (Paragraph 27)
10.It is essential that domestic policy decisions support rather than undermine diplomatic efforts. We recommend that the UK leads by example and sets ambitious domestic climate policies. We welcome the introduction of the Net Zero Innovation Portfolio and recommend that the Government continue to explore and promote opportunities presented by new green technologies. HM Treasury is a key partner to the FCDO. Financial instruments that ensure enduring responsibility for environmental impact will be essential to demonstrate the UK’s enduring commitment to a green agenda and key to ensuring that the City’s leadership is used to embed change. (Paragraph 29)
11.COP26 must aim to secure a form of realistic pricing of carbon output that prevents carbon offshoring and fully prices in the cost of the production of goods and transport. Building on the G7 and G20 to ensure the burden is carried by the commissioning country, and to incentivise change in producing nations, will change a simple equation based on the cost of energy to one based on the cost to the planet. The UK’s financial services sector, and particularly its insurance industry, is well placed to understand these costs. Using new forms of finance to look at cost-sharing based on innovative ledgers would provide an opportunity to realise the impact and share the reward of growth, while encouraging cross-industry and jurisdictional cooperation on climate targets. (Paragraph 30)
Covid-19
12.For COP26 to be successful, the Government will need to ensure that negotiations are inclusive and take into account the viewpoints of the Least Developed Countries and the countries most vulnerable to the effects of climate change. It will not be possible to guarantee that negotiations are inclusive unless the Government ensures that people from the world’s Least Developed Countries have effective access to them. Poor internet access and connectivity could prove a real barrier to hosting an inclusive conference. Diplomatic efforts during the pandemic and recovery must recognise these challenges, participants should be supported with accessing negotiations and the Government must recognise situations where in-person diplomacy is needed. The event should be viewed as an opportunity to look at new ways of connecting communities, not just an obstacle. (Paragraph 34)
13.The UK Government must recognise that it may not be possible for 30,000 delegates to attend a conference in November. There is a distinct possibility that large parts of the summit will have to be moved online or downscaled because of risks from covid-19. Those participating need more certainty on how covid may affect the logistics of the conference. In response to our report the UK Government should set out the criteria it will use to determine whether COP26 can go ahead as an in-person conference. We recommend that the Government set out what will happen if COP26 cannot have an in-person ‘green zone’ or if the main conference cannot go ahead with the expected number of attendees. The Government should also set out priorities for in-person attendees and contingency plans for virtual or hybrid events. (Paragraph 35)
14.Given the commitment of the global environmental community to a green agenda, a downscaled COP26 could become the first expression of a new approach to international climate diplomacy, rejecting airmiles for airwaves and living the message of carbon neutrality. (Paragraph 36)
Published: 19 April 2021 Site information Accessibility statement