United Nations Framework Convention on Climate Change

The United Nations Framework Convention on Climate Change (UNFCCC) is an international environmental treaty that came into force in 1994. As of 2023, the UNFCCC has 198 signatory states (also known as “Parties”). Signatory states acknowledge that atmospheric greenhouse gas concentrations must be stabilized at a level that will “prevent dangerous [human] interference with the climate system.”[1] They commit to reducing their greenhouse gas emissions while ensuring that ecosystems adapt naturally to climate change, food production is not compromised, and economic development proceeds sustainably.

The UNFCCC is a framework convention, meaning that its main function is to unite countries under a common purpose. The treaty is legally binding but contains no concrete targets or enforcement mechanisms. Instead, it establishes general obligations and lays the foundation for future agreements. As a framework document, the UNFCCC creates the structure for an international response to climate change. Once Parties have defined general principles under a framework convention, they can impose more stringent obligations through subsequent protocols.

The UNFCCC’s decision-making body, called the Conference of the Parties (COP), meets annually to assess international progress and negotiate responses to climate change. Under the framework convention, the COP has established a few important treaties that impose more specific obligations on participating states. In 1997, the Kyoto Protocol was adopted. This treaty committed industrialized countries to reduce their greenhouse gas emissions to meet specific targets. The Paris Agreement was adopted in 2015. This treaty created additional commitments and cooperative mechanisms for international climate action.

What does the framework convention establish?

Climate change as an international problem

Under the UNFCCC, Parties recognize and agree that climate change is a serious international problem. Signatory states commit to stabilizing greenhouse gas emissions to prevent dangerous interference with the climate system. Significantly, the Convention adheres to the precautionary principle. It stipulates that Parties must act cautiously in the face of potentially irreversible damage. Scientific uncertainty should not be a reason to postpone action.

Similar goals, different responsibilities

The UNFCCC creates a framework for international climate change cooperation. Under this framework, industrialized countries are expected to take the lead. Signatory states are divided into three groups that have differing commitments:

  • Annex I includes industrialized countries and countries with economies in transition. These countries are required to adopt national climate change policies and limit their greenhouse gas emissions the most. These states have significant responsibilities under the Convention’s framework because they are the largest source of past and present greenhouse gas emissions. They are also often better financially and technologically equipped to tackle the problem.
  • Annex II includes only industrialized countries (not those with economies in transition). These countries are required to contribute technology and capital to projects in developing countries. The resources Annex II Parties supply are intended to help developing countries reduce their greenhouse gas emissions and adapt to climate change.
  • Non-Annex I Parties are mostly developing countries. These countries are often more vulnerable to climate change due to their geography or economy. Their capacity to mitigate and adapt to climate change may also be limited. They are required to report on their actions in more general terms, less regularly than Annex I countries. The Convention promotes projects that help these countries limit emissions in ways that do not hinder their economic growth.

This structure sets the foundation for subsequent international agreements adopted under the UNFCCC.

Commitment to data gathering and reporting

Although the UNFCCC does not contain binding policy commitments, it indicated that, as a starting point, industrialized countries should attempt to lower their greenhouse gas emissions to 1990 levels by the year 2000. To monitor progress, an inventory of the signatory states’ greenhouse gas emissions data was created. This inventory is continuously being updated. Annex I countries must report their emissions data yearly. This data has been used to improve scientific understanding of climate change and set emissions targets in later agreements.

Administrative structure and process

The UNFCCC outlines the basic institutional structure used for future international climate negotiations. It establishes a Conference of the Parties (COP), a secretariat, and several subsidiary bodies that guide the implementation of the Convention and adoption of future agreements.

Background

The UNFCCC is one of the three Rio Conventions — the others being the Convention on Biological Diversity and the UN Convention to Combat Desertification. The Rio Conventions were adopted at the Rio Earth Summit in 1992. The three conventions, aimed at environmental protection, are closely related. To promote collaboration between them, a Joint Liaison Group has been established.

[1] Article 2 https://unfccc.int/sites/default/files/convention_text_with_annexes_english_for_posting.pdf