COP28 Dispatch

What Congress Needs to Know from Dubai

Welcome! Today kicks off the final stretch of COP28.

Anticipation is building for a final set of texts to come out of COP28. Country representatives and observers participated in the high-level Global Climate Action event today and shared statements on their climate commitments, while members of Congress reflected on a busy weekend representing the U.S. in Dubai.

According to the UNFCCC, there have been 285 press conferences (including two hosted by EESI), 152 global climate action events, 366 side events (including one co-hosted by EESI), and 195 exhibits (including an EESI booth) over the course of the last two weeks. This is on top of the dozens of negotiating sessions each day and the thousands of events hosted by 225 pavilions. Needless to say, the amount of information exchanged and perspectives shared was immense.

Although COP28 is set to close tomorrow, the real work is just beginning. Delegates from governments, industry, and NGOs will need to return home ready to follow up on the commitments and conversations that took place at COP28 with concrete action.

Each minute counts as negotiators work tirelessly on the outcomes of COP28. For updates on the negotiations in addition to EESI’s coverage, see the Earth Negotiations Bulletin’s (ENB's) daily report (detailed summary) and highlights (quick overview).

Missed yesterday’s edition? Check it out here. We are also compiling key COP28 announcements and reports throughout the conference—check back for updates.

Confused by COP terminology and acronyms? Check out EESI's glossary of terms and other helpful guides in the Resources section! Looking for more information, reach out to Anna at [email protected].

Key Takeaways for Congress

The draft text of the global goal on adaptation decision and the latest iteration of the global stocktake draft text were released today. (Negotiations)
The COP28 Presidency hosted a formal closing of the COP to adopt decisions that have been agreed upon. Azerbaijan was formally chosen to host COP29. (Negotiations)
At least 31 members of Congress were in Dubai this weekend. Check out EESI’s tracker for a list of all U.S. leaders who attended COP28. (Congress at COP28)
Representatives from Colombia, Kenya, and France announced the launch of the Global Expert Review on Debt, Nature, and Climate. (Around the World)

Negotiations

Delegates huddling during informal consultations on the
Warsaw International Mechanism for Loss and Damage.
Credit: Mike Muzurakis | IISD/ENB.

Global stocktake draft text: The latest iteration of the draft text was released today at 4:30 p.m. GST/7:30 a.m. EST. It is a 21-page document that is clearly still in the draft phase—many paragraphs appear to be different phrasings of each other and placeholders are in the text for key issues like the global goal on adaptation. The draft text breaks down the stocktake into roughly six sections: a preamble, mitigation (paragraphs 1-50), adaptation (paragraphs 51-87), means of implementation (paragraphs 88-187), international cooperation (paragraphs 188-202), and next steps (paragraphs 203-238).

Page 5, paragraph 39 is where specific actions to mitigate greenhouse gas emissions are listed:

This text does not include the “phaseout” or “phasedown” of fossil fuels; rather, it mirrors text from recent COPs. On other issues of note, the text does draw a direct connection between the UNFCCC and the new Global Biodiversity Framework (paragraph 41), and finance takes up a large portion of the means of implementation section (paragraphs 88-128). The final section of the global stocktake text is supposed to provide clear direction for the path forward, but at this time, it appears to be more of a grab bag of additional paragraphs. According to ENB, “The new text on the global stocktake was met with deep concern and considered ‘utterly insufficient.’ Many felt the text does not live up to the 1.5°C target as the ‘North star’ of the meeting, and even goes back on ambition.“ All the work on the global stocktake during this COP has built on two years of technical work that culminated in the synthesis report published in September 2023.

EESI Briefing: The First Global Stocktake

Global goal on adaptation draft text: Draft text on the global goal on adaptation (GGA) dropped today at 4 p.m. GST/7 a.m. EST. Negotiations on the GGA have been very challenging at this COP, but they must produce an outcome at COP28 to inform the global stocktake and to conclude the two-year work programme designed to carry out this work. The long-awaited draft framework calls out seven targets: reducing climate-induced water scarcity, attaining climate-resilient food and agriculture production, strengthening resilience against climate-related health impacts, reducing climate impacts on ecosystems, increasing the resilience of infrastructure and human settlements, substantially reducing poverty and livelihood vulnerability, and protecting cultural heritage. There are also sections on adaptation finance and on a call for a two-year work programme to develop indicators to measure progress towards the targets.
- EESI Briefing: What’s on the Table for the Negotiations?

Formal closing of the COP: While significant work remains, the COP28 Presidency hosted a formal closing of the COP to adopt decisions that have been agreed upon and to forward some unresolved issues to the next meeting of the subsidiary bodies, which will take place in Bonn, Germany, in June 2024. Countries adopted decisions on technology, issues related to the Least Developed Countries, and gender. Decisions were also taken on the presidencies and host countries of COP29 (2024) and COP30 (2025).

COP29 in Azerbaijan: Parties to the UNFCCC formally agreed at the meeting mentioned above that Azerbaijan will host COP29. Azerbaijan Minister of Ecology and Natural Resources Mukhtar Babayev stated, “we recognize the importance of coordinated global response to climate change. And through joint initiatives, we aim to amplify our impact and accelerate progress toward a sustainable future.” COP29 will take place in Baku on the Caspian Sea from November 11-22, 2024.

Brazil for COP30: Brazilian Minister of the Environment and Climate Change Marina Silva shared that COP30 will be held in Belém, Brazil, in the Amazon from November 10-21, 2025. “The Amazon is the living symbol of the seed that we sowed in Rio in 1992. It is the region where you can clearly see the link between the three conventions that were signed that year … these conventions are so closely intertwined in their challenges, but also in the synergies of the solutions they can provide.” At COP30, countries are expected to come forward with revised and ideally more ambitious NDCs.

Experts awaiting text with eagerness and skepticism: As COP28 wraps up, panelists at a press conference held by the Climate Action Network (CAN) were wary of the state of the negotiations. CAN Canada Executive Director Caroline Brouillette expressed disappointment that the leading fossil fuel producers have not responded adequately to the demands of developing nations to undergo a phaseout in a way that does not deepen social inequities. “There will either be an equitable phaseout of fossil fuels or there will be no phaseout of fossil fuels,” she stated. Meanwhile, Andreas Sieber, the associate director of policy and campaigns for 350.org, addressed speculation that the anticipated text from the negotiations will be based on the Sunnylands Statement, an agreement recently reached between the U.S. and China in which the two countries set aside their diplomatic differences for the common goal of tripling renewable energy production over the next seven years. Sieber noted that COP28 has the potential to be a historic success, but cautioned that the Sunnylands Statement “can only be the floor, not the ceiling, both in terms of substance [and] ambition.”

Congress at COP28

Sens. Lisa Murkowski (R-Alaska) and Chris Coons (D-Del.)
recorded a video together while at COP28 over the weekend.
Credit: @ChrisCoons | X/Twitter.

Members of Congress at COP28: There were at least 31 members of Congress in Dubai over the weekend. EESI is tracking U.S. leaders at COP28 to highlight the significant U.S. presence at the summit:
- Sen. Ben Cardin (D-Md.), Chair, Foreign Relations Committee
- Sen. Tom Carper (D-Del.), Chair, Environment and Public Works Committee
- Sen. Chris Coons (D-Del.), Chair, Ethics Committee
- Sen. Ed Markey (D-Mass.)
- Sen. Lisa Murkowski (R-Alaska), Ranking Member, Indian Affairs Committee
- Sen. Brian Schatz (D-Hawaii), Chair, Indian Affairs Committee
- Sen. Sheldon Whitehouse (D-R.I.), Chair, Budget Committee
- Rep. Kelly Armstrong (R-N.D.)
- Rep. Michael Burgess (R-Texas)
- Rep. Salud Carbajal (D-Calif.)
- Rep. Buddy Carter (R-Ga.)
- Rep. Troy Carter (D-La.)
- Rep. Kathy Castor (D-Fla.)
- Rep. Lori Chavez-DeRemer (R-Ore.)
- Rep. John Curtis (R-Utah)
- Rep. Diana DeGette (D-Colo.)
- Rep. Nanette Diaz Barragán (D-Calif.)
- Rep. Jeff Duncan (R-S.C.)
- Rep. Andrew Garbarino (R-N.Y)
- Rep. Garret Graves (R-La.)
- Rep. Chrissy Houlahan (D-Pa.)
- Rep. Ann Kuster (D-N.H.)
- Rep. Susie Lee (D-Nev.)
- Rep. Julia Letlow (R-La.)
- Rep. Mariannette Miller-Meeks (R-Iowa)
- Rep. Frank Pallone (D-N.J.), Ranking Member, Energy and Commerce Committee
- Rep. Scott Peters (D-Calif.)
- Rep. Brad Schneider (D-Ill.)
- Rep. David Valadao (R-Calif.)
- Rep. Tim Walberg (R-Mich.)
- Rep. Brandon Williams (R-N.Y.)

Reactions and reflections: Following a busy weekend at COP28, some members of Congress shared their reactions from the venue or their reflections upon returning home:
- Rep. DeGette via a post on X/Twitter: “I was pleased to attend #COP28 and see firsthand how the U.S. is leading internationally to address the climate crisis. I’m going to continue pushing to build on the progress we’re making to curb harmful emissions and preserve our planet for generations to come.”
- Sen. Markey via a video on X/Twitter while witnessing a protest in the conference venue: “Indigenous people are protesting the destruction of their native lands. They need real solutions and compensation for the harm being done to them. From COP28 to back home in the United States—it’s time for the world to listen.”
- Sens. Murkowski and Coons via a video on X/Twitter: Sen. Murkowski noted, “There is so much creativity and innovation here … The conversations we have had with leaders from all over the globe and the panels we have been participating in, it has been pretty exciting.” Sen. Coons continued, “We have had a chance to meet with leaders from Japan, Korea, the Pacific Island States, and from the EU and to speak to audiences from the U.S. and around the world to talk about our bipartisan legislative work together on everything from clean concrete to climate resiliency planning and to encourage folks that we will continue our climate ambition in the U.S.”
- Rep. Pallone via posts on X/Twitter: “On leaving #COP28, I believe the U.S. has accomplished a lot, leading pledges to triple renewables & double energy efficiency by 2030 & mobilizing countries, as well as private industry, with funding to achieve the COP26 Global Methane Pledge to reduce emissions by 30% by 2030 … Much more needs to be done on climate action, but there is clearly a consensus to significantly reduce emissions and prioritize clean energy over fossil fuels.”
- Sen. Schatz via a thread on X/Twitter: “A few takeaways as we wrap up at #COP28 1) The Inflation Reduction Act is the biggest climate action in human history, and it's working. 2) Climate action is good for the environment and good for the economy. The IRA is proof, and other countries should do it too. 3) The climate crisis is the biggest threat we've ever faced, and we need to keep working together as a global community to meet the moment. 4) We can't allow fossil fuel interests to undermine climate action. Continuing to burn fossil [fuels] while the planet's on fire isn't an option. 5) There are lots of new and innovative ways to combat climate change. We need to nurture and invest in research and solutions. 6) Thanks to our effort in the U.S. to pass the biggest climate action in history, American leadership on climate is back. But there’s much more work to do, so let’s keep at it.”

Around the World

Ministers and other high-level officials whose countries are
members of the Global Alliance on Green Economy.
Credit: UNFCCC.

Global Climate Action: At the high-level Global Climate Action event facilitated by the COP28 Presidency, a total of 18 representatives from national and local governments, Indigenous groups, organizations, and current and former COP Presidencies provided reflections on the past two weeks of COP, including:
- Ambassador Wael Aboulmagd, special representative of the COP27 Presidency, congratulated the COP28 Presidency on amassing record funding for the Green Climate Fund, for which 31 countries have now made new commitments totalling $12.8 billion over the next four years.
- A representative for the COP28 Presidency touted that multilateral development banks have increased climate finance by a cumulative $22.6 billion, and that the World Bank has extended debt repayment pauses for developing countries following climate disasters.
- A representative for Japan praised the launch of the Global Cooling Pledge and the Coalition for High Ambition Multilevel Partnerships (CHAMP) for climate action, and restated Japan’s commitment to both.
- UNFCCC Secretariat Director of Communications and Engagement Ina Parvanova highlighted the launch of the Africa Green Industrial Investment Initiative, backed by $4.5 billion in financing. The initiative is expected to reduce fossil fuel pollution and its related health impacts, create millions of jobs across the continent, and empower women and girls.
- A representative for the U.S. restated the country’s commitments, including co-leading the pledge to double energy efficiency and triple renewable energy globally by 2030 (120 signatories); co-leading a pledge to triple nuclear energy by 2050 (over 20 signatories); joining the Powering Past Coal Alliance; holding the first-ever Methane Summit with China and the UAE and mobilizing over $1 billion in grant funding for methane reduction; pledging $3 billion to the Green Climate Fund; and doubling down on actions to attract private finance through efforts like PREPARE and the Blended Finance for the Energy Transition program. U.S. climate finance is expected to exceed $9.5 billion internationally in 2023, the representative stated, and is on track to meet its 2024 goal of $11 billion.

A global climate dichotomy: Last month, the Climate Chance Association launched the sixth edition of its Global Synthesis Report on Climate Action, which analyzes the “reality of climate actions” across all sectors and levels of government since the Paris Agreement was forged. The report’s authors detailed key findings at a press conference today. The analysis shows that carbon dioxide emissions rose by 7% since the Paris Agreement, with Climate Chance President Ronan Dantec noting that “we have never consumed so many fossil fuels in our history.” Notably, while high-income nations have reduced their emissions since 2015 (particularly following the decrease in coal emissions from the U.S., U.K., and Japan), developing countries with emerging economies have increased their emissions. For example, while the EU has decreased its emissions by more than 25% since 1990, Indonesia has increased its emissions by more than 25% in the past three years because new coal plants have been brought on line to provide electricity for nickel plants—a critical mineral for decarbonization, including in Europe. The report also details impediments to progress in transportation, carbon capture and storage, and forest cover, among other sectors.

Foreign debt impedes climate action: At a press conference, panelists from Colombia, Kenya, and France announced the launch of the Global Expert Review on Debt, Nature, and Climate. The review, which is scheduled to conclude by COP29, will address how foreign debt accrued by developing countries—particularly during the COVID-19 pandemic—has hindered their capacity to invest in climate adaptation, decarbonization, and nature. A representative from Kenya noted that developing countries pay five to eight times more interest for sovereign debt, and that increased interest rates will slow debt payments in Africa, effectively slowing their climate action. The review will also seek new ways of financing to better support developing countries that want to invest in decarbonization, renewable energy, and nature.
- EESI Briefing: Congress and International Climate Finance

Building bridges in climate finance: At a side event on international finance architecture, panelists examined the Bridgetown Initiative within the context of systemic climate finance transformation. The Bridgetown Initiative was launched by Barbados Prime Minister Mia Mottley in 2022 to reform international development finance, with an emphasis on protecting climate-vulnerable nations from debt crises that can result from the cost of responding to climate disasters. Despite progress, panelists argued that much more is needed to implement the initiative. One expert pointed out that high debt burdens are forcing many developing countries to expand fossil fuel projects as a means of repaying their debt, and recommended climate finance based on grants to prevent such counter-productive outcomes.

Freshwater for all: Eight additional countries have joined the Freshwater Challenge, for a total of 38 new countries joining during COP28. The challenge aims to restore degraded lakes, rivers, and wetlands by 2030, and conserve those that are intact. The initiative, launched at the UN 2023 Water Conference in New York, was chosen as one of the Water Outcomes of COP28 and will facilitate the implementation of restoration and conservation goals by increasing access to freshwater-related data and funding resources.

Leaders in the just transition: The Global Climate Action Partnership (GCAP) hosted an event at the U.S. Center to showcase leadership in net-zero transitions centered around justice and resilience, drawing on perspectives from Africa, Asia, Latin America, and the Caribbean. Michael Sinocruz, director of the Energy Policy and Planning Bureau in the Department of Energy of the Philippines, discussed the value of GCAP’s Asia Low Emission Development Strategies Partnership. He cited electric vehicles, energy efficiency, and green hydrogen as policy areas that have progressed in the Philippines as a result of engagement with GCAP. Speaking on behalf of the Ministry of Environment of Nigeria, Amudi Chioma Felistas Edeh highlighted that GCAP enables a bottom-up approach, which allows many African countries to determine their own capabilities in the transition to net zero. Marlon Apañada, who represents Latin America and the Caribbean in GCAP’s finance working group, explained how GCAP helps to direct green finance from various sources—commercial, philanthropic, public, or blended—to the most appropriate projects.

Green economy: The UAE established the World Green Economy Organization (WGEO) soon after the adoption of the Paris Agreement to support “bankable and sustainable green projects,” explained Jerome Auchere, a senior director at WGEO. One year ago, the organization launched the Global Alliance on Green Economy, which today boasts 86 member countries, most of which are developing countries. Through the alliance, WGEO shares technical assistance, facilitates finance, and highlights best practices.

Other News

At Expo City in Dubai. Credit: EESI.

Demystifying MCDR: A side event on marine carbon dioxide removal (MCDR) illustrated methods of ocean carbon sequestration, explained various interests in the sector, and presented challenges and data gaps currently hindering MCDR implementation. The IPCC’s Sixth Assessment Report found that emission targets cannot be met without the integration of atmospheric and ocean carbon removal practices. As Ed Hill of the UK’s National Oceanography Centre noted, oceans are the largest carbon sink on Earth, holding 50% more carbon than the atmosphere. However, Hill also cautioned that the ecological impacts of MCDR are not yet well understood. The transboundary nature of the ocean presents geopolitical challenges, and the ever-changing ocean environment makes the design of monitoring, reporting, and verification (MRV) practices difficult. Paul Holthus of the World Ocean Council added that MRV tools will be essential to assessing the success of MCDR as well as its environmental impacts. Kerry Nichols of the nonprofit Ocean Visions presented a new, high-level roadmap that aims to test the effectiveness of MCDR technologies by 2030.
- EESI Article: “Making Waves: The Importance of Oceans at COP28”

Charting a course: Blue Sky Maritime Coalition, a network of waterborne transportation companies in Canada and the U.S. focused on maritime emission reductions, held a press conference to promote the release of its new report, Roadmap to Net-Zero Emissions: North American Waterborne Transportation. This roadmap seeks to address six major challenges to accomplishing commercially viable, net-zero emissions in the maritime industry: built-in inefficiencies resulting from a siloed value chain, the need for diversified solutions to accommodate many different types of vessels, the lack of demand to reach scale for fuel and energy infrastructure, patchwork policies and regulations at various levels of government, unwillingness by consumers to pay a “green premium,” and a lack of consistent and verifiable emissions data.
- EESI Issue Brief: Climate Change Mitigation and Adaptation at U.S. Ports

Solutions for small businesses: At a U.S. Center event on how trade can enable climate solutions, panelists discussed the climate opportunities and challenges for small businesses. Discussions covered the historic under-representation of small businesses at COP, the difficulties of regulation and reporting compliance, and the shortage of investment in non-technology businesses. The importance of small businesses as job creators and essential producers—and finding ways to meet their needs—was a major theme. “We have to take some of this climate money and make it accessible to breakthrough entrepreneurs,” explained Robynne Anderson, president of consulting firm Emerging Ag, Inc.

Collaboration for innovation: At a U.S. Center event on climate technology innovation, a panel of climate innovators from SolarSpace, Lyten, General Electric, and Ignite Power discussed their progress on climate solutions and highlighted the importance of collaboration and partnerships, particularly with governments. David Vili, founder and CEO of SolarSpace, discussed the company’s recent memorandum of understanding with the Department of Energy to generate solar energy in space.
- EESI Podcast: “How the Department of Energy is Catapulting Clean Energy Innovation to Commercial Liftoff”

Adaptation for smallholder farmers: Former UN Secretary-General Ban Ki-moon introduced, via video remarks, an event today on smallholder farmers and climate adaptation. He explained, “At the frontline [of climate change] are smallholder farmers, especially women and youth, who are facing the immense adverse effects and challenges day by day. Supporting and fortifying the resilience of smallholder farmers … is imperative.” He then explained that investing in these farmers, including the farmers from sub-Saharan Africa and Sri Lanka who were on the panel, can help address poverty, food insecurity, and climate impacts. The Ban Ki-moon Centre for Global Citizens also launched its report, Youth AgriChampions’ Demand Paper.
- EESI Article: “Growing Career Opportunities for Young People in Agriculture”

Attributing weather to climate: At a side event on extreme weather and climate change, weather and climate experts discussed the role of attribution in such events. According to Dr. Benjamin Strauss, CEO and president of Climate Central, we are now able to confidently make statements about how climate change affects the severity and likelihood of weather events. The panelists discussed how being able to make a causal link between climate change and extreme weather events allows for better planning and preparation for future events, as well as enhanced estimation of the amount of financing needed in the wake of these events.
- EESI Briefing: Innovation as Climate Action: Advances in Weather Forecasting

Gender-just awards announced: Women Engage for a Common Future, an eco-feminist NGO, announced the recipients of its Gender Just Climate Solutions Awards at a press conference. The award celebrates people and projects that are implementing gender-just climate solutions. The Technical Solutions winners were Jo Ashbridge and Apu Roy for their Build for Safety project, an eco-friendly construction training program for impoverished women in Bangladesh. The Non-Technical Solutions winner was Naiyan Kiplagat of Paran Women Group for the Indigenous network’s success with engaging women in climate mitigation and adaptation. The Transformational Solutions winners were Ayesha Amin and Hira Amjad for their framework tool that provides gender-just guidelines for climate crisis responses.
- EESI Article: “In Climate Diplomacy, Being Gender-Blind Leaves Women Behind”

Resources

EESI resources

Article series: Quick reads connecting international climate talks to Congress
Briefing series: What Congress Needs to Know About COP28
- Congress and International Climate Finance
- What's on the Table for the Negotiations?
- The First Global Stocktake
Climate Change Solutions: Bi-weekly newsletter covering climate, energy, and environmental issues
COP28 Announcement Tracker: Key Announcements from the 2023 U.N. Climate Summit
COP28 Report Tracker: Key Climate Reports Launched at the 2023 U.N. Climate Summit
U.S. Leaders at COP28: Updates on Members of Congress and Other U.S. Officials at the 2023 U.N. Climate Summit
EESI's United Nations Framework Convention on Climate Change Glossary of Terms

Tracking the negotiations

CarbonBrief: Reporting and analysis on the U.N. climate talks, with in-depth tracking of country positions in the negotiations
COP28 Resource Hub: World Resources Institute's extensive set of resources on the climate negotiations
Earth Negotiations Bulletin: A play-by-play of the negotiations, plus expert analysis from the International Institute for Sustainable Development
ECO Newsletter: The climate advocate’s perspective from Climate Action Network International

Background and logistics

U.A.E. COP28 Presidency website: Priorities, details, and logistics for the negotiations from this year’s host country
UNFCCC COP28 website: Conference details and all updates on documents produced during the negotiations
Congressional Research Service: Reports related to the UNFCCC

Questions about COP28?

Reach out to EESI Policy Manager Anna McGinn with your questions. We will get back to you or include the information in an upcoming newsletter.

Thanks for reading!

This newsletter covering COP28 will be running from November 30 to December 12.
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Staff contributors: Daniel Bresette, Molly Brind’Amour, Alison Davis, Amaury Laporte, Anna McGinn, and Nicole Pouy

About EESI

EESI is an independent 501(c)(3) nonprofit advancing science-based solutions for climate change, energy, and environmental challenges to achieve a sustainable, resilient, and equitable world. Founded on a bipartisan basis by members of Congress, EESI has been informing policymakers about the benefits of energy efficiency, renewable energy, and environmental conservation since 1984.

CFC #10627