How oceans could soak climate policy

Oceans are acknowledged in several UNFCCC processes, but there is a pressing need for more precise and integrated actions to fully harness their climate mitigation potential.

The role of the oceans in the global effects of greenhouse gases cannot be overestimated. As pointed out in a report by the policy research institute IDDRI (1), in advance of the UNFCCC COP29, the oceans have absorbed 93 per cent of the excess heat caused by greenhouse emissions. They have also absorbed 28 per cent of the emitted CO₂.

The capture of excess heat as well as CO₂ has buffered some of the planet’s heating, i.e., global temperature rise would be even worse without these regulating capacities. It should come as no surprise, however that, these processes are associated with heavy costs for the oceans and their ecosystems. Warming, sea-level rise, oxygen loss, and acidification (caused by excess CO₂) are given as examples of the negative impacts.

As pointed out in the report, the UNFCCC has long recognised the ocean as part of the climate system. Article 3.1 of the Convention states that all parties “should protect the climate system for the benefit of present and future generations of humankind”. The report notes that the “…recognition of the ocean as an essential element of the climate system to be protected is reiterated in the 2015 Paris Agreement, particularly in its preamble and Article 5”.

The practical integration of the oceans into climate work has, however, seemingly lagged behind, and IDDRI’s report highlights some of the processes that have so far taken place in order to improve this integration. The report also describes alternatives for future activities in this direction.

Regarding the processes involved, the report firstly highlights integration through science. The scientific endorsement of the IPCC is described as a “pivotal moment” for this process. The IPCC’s work has led to the production of a number of special reports, one of them being the Special Report on the Ocean and Cryosphere in a Changing Climate (SROCC). IDDRI points out that SROCC is a very thorough review that demonstrated how vitally important the oceans are in terms of both climate mitigation and adaptation. IDDRI also explains that other important work, namely collaboration between the IPCC and the Intergovernmental Science-Policy Platform on Biodiversity and Ecosystem Services (IPBES) was spurred on by the SROCC.

The second process highlighted in IDDRI’s report is the integration of oceans and climate through the Nationally Determined Contributions (NDCs). Initially, i.e., in the first cycle of NDCs, these strategies generally focused on risks imposed by climate change on the oceans, whereas concrete action received less attention. Also, according to the report, “…large ocean States and groups of States, such as Australia, Brazil, Russia, the United States or the European Union, did not reference the ocean in their strategies at all”. Later on, following work from the ocean community, integration though NDCs has gained much more traction. The report identifies some key elements for support for “ambitious ocean-based action”. These include, for example, the Talanoa Dialogue (in relation to COP23, with Fiji as president), state-led coalitions (e.g., the High-level Panel for a Sustainable Ocean Economy, and the Friends of the Ocean and Climate group), and most importantly a decision at COP23, encouraging Parties to “consider, as appropriate, ocean-based action in their national climate goals and in the implementations of these goals”. As a result of these efforts, as the report points out, updated NDCs have moved from simply describing risks, to solution-orientated approaches.

The third process described by IDDRI is the integration through UNFCCC workstreams. Here, important elements have also included non-Party stakeholders, such as the Marrakech Partnership for Global Climate Action (2016), and the Ocean Action Days at COPs.

Fiji, was, as mentioned, president of COP23, and with the support of Sweden, initiated the Ocean Pathway Partnership, which “…aimed to embed the ocean in UNFCCC processes and accelerate action for ocean conservation”. Chile, as president of COP25, called this convention “the Blue COP”, ultimately leading to a regular Ocean and Climate Change Dialogue, which now has a specific priority topic each year. Among many important milestones (2) for the integration into UNFCCC workstreams and for the Ocean and Climate Change Dialogue, it is worthwhile to note a COP26 decision that “…ultimately anchored the ocean into the climate regime, as Paragraph 60 invites the relevant work programmes and constituted bodies under the UNFCCC to consider how to integrate and strengthen ocean-based action in their existing mandates and workplans and to report on these activities within the existing reporting processes, as appropriate”.

As for future pathways for ocean-climate integration, IDDRI’s report recommends focussing on processes within five topics.

The first topic is called “Building the next generation of NDCs”. Here, among other things, the report refers to the 2023 Global Stocktake, which “…issued a warning that the world is not currently on track to meet the goals of the Paris Agreement” and “…encourages States to further strengthen ocean-based action”. Specifically, the report points out that ocean measures “…are still underrepresented in climate strategies” and that there is lack of precision and specifications regarding the implementation of ocean-based climate measures.

“Making the best of the Ocean and Climate Dialogue” is the title of the second topic. Here, important recommendations concern selection of topics “…highlighting the interlinkages and synergies between ocean-based action and the agenda items of various UNFCCC and Paris Agreement workstreams where it can be advanced”. Parties are encouraged to request a five-year work programme of the Ocean and Climate Dialogue.

The third topic is on “Strengthening the place of the ocean in selected UNFCCC agenda items”. These items (which are thoroughly described in the report), are: Research and systematic observation (COP agenda item 5); Mitigation Work Programme (CMA agenda item 6); Adaptation Committee (COP agenda item 6, SBSTA/ SBI agendas); Climate Finance (COP agenda item 8); and Collaborative approaches (CMA agenda item 14, SBSTA agenda).

The fourth and fifth topics deal with “Reinforcing stakeholders’ mobilization” and “Enhancing synergies with other multilateral environmental agreements”. The former includes, for instance, recommendations concerning the Marrakech Partnership for Global Climate Action on “Ocean and Coastal Zones”, and the so-called “Ocean Breakthroughs”, which according to the report “…currently stand as the only established pathways for ocean sub-sectors to deliver on both climate and nature targets”. The latter in particular makes recommendations on synergies with CBD, and between NDCs and National Biodiversity Strategies and Action Plans (NBSAPs). Furthermore, the importance of BBNJ – and international agreement aimed at ensuring the conservation and sustainable use of biodiversity in marine areas beyond national jurisdiction – is highlighted.

Importantly, the report also provides warnings with regards to blue carbon market mechanisms – and carbon accounting in coastal ecosystems – as well as marine carbon capture, removal and storage.

1: Rochette et al., 2024. Integrating the ocean into the climate regime: Future prospects. IDDRI Issue Brief. Link: https://www.iddri.org/sites/default/files/PDF/Publications/Catalogue%20I...écryptage/202406-IB0424-ocean%20climate_0.pdf
2: See also a previous article in Acid News dedicated to ocean issues at COP28: https://www.airclim.org/acidnews/turning-point-oceans-climate-action