Context: Recently, a new draft text on the Global Goal on Adaptation (GGA) was introduced by the COP28 Presidency. The text is weaker than the earlier draft not only on the means of implementation (MOI) from developed countries to developing countries but also on thematic targets such as ecosystems.

Area of Concerns

• For instance, the earlier target around ecosystems said: ‘Ensuring that at least 30% of ecosystems are maintained, enhanced or restored, including through ecosystem restoration and enhancing ecosystem services.’

• In the current draft, the 30 per cent figure has been removed. This makes it a theme rather than a target.

• The new draft is also without strong language on means of implementation, especially adaptation finance gap and target and no resolution of the inclusion of the principle of Common But Differentiated Responsibilities and Respective Capabilities (CBDR-RC).

• While there are targets for all parts of the adaptation cycle — Impact, vulnerability and risk assessment; Planning; Implementation; Monitoring, evaluation and learning — there is no target for means of implementation, especially finance which is needed to achieve the above targets.

• The earlier text had a figure of $400 billion per year till 2030, which has now been removed. If the new GGA text is adopted in COP28, that would force more than 195 countries to take a ‘Risk and Vulnerability Assessment’ of climate hazards and formulate their national adaptation plan by 2025.

• On December 10, India told the UN Framework for Climate Change Convention (UNFCCC) that the country has spent about Rs 13.35 lakh crore in 2021-22, just over 5.5 per cent of its Gross Domestic Product, on climate adaptation.

• India also expects to incur another Rs 57 lakh crore till 2030 for the same in a business-as-usual scenario.

• The climate adaptation process in India is heavily reliant on domestic resources as the funds promised by the developed countries fall far too short of the requirements. As the new GGA draft is set to be further negotiated, developing country groups feel that the GGA framework would fail without an assurance on adaptation finance.

Global Goal on Adaptation (GGA)

• Global Goal on Adaptation (GGA) is meant to serve as a unifying framework that can drive political action and finance for adaptation on the same scale as mitigation.

• It was proposed by the African Group of Negotiators (AGN) in 2013 and established in 2015 under Paris agreement.

• The draft text is titled as ‘Global Goal on Adaptation’.

• GGA is an attempt to identify a common global goal on adaptation, just like keeping temperatures below the 1.5 degrees Celsius threshold is a global goal on mitigation.

• It has been a long pending-demand of the developing countries, primarily to ensure more focus and resource mobilisation on adaptation.

The draft text talks about the following issues:

• Reducing climate-induced water scarcity,

• Making food and agriculture production climate-resilient,

• Strengthening resilience against climate-related health impacts and

• Similar issues that are common points of interest for the world.

• The text also asks countries to make an assessment of their risks and vulnerabilities, prepare and implement adaptation plans, and put monitoring and evaluation systems in place.

• Further, the GlaSS programme is expected to conclude at COP28 with an annual report.

The new paragraphs in the text of GGA in COP 28 includes:

• A commitment to close the adaptation gap.

• Removal of common but differentiated responsibilities and respective capabilities (CBDR-RC).

Criticism of the GGA

• Developing countries made it clear that the adaptation draft fell well below their expectations and needed to be improved significantly.

• Right now, it only flags issues that are largely developmental in nature.

• Besides, there is no mention of how these objectives are to be realised or the mechanisms that will fund these efforts.

• The draft talks about launching a two-year work programme to develop indicators that would measure the progress being made on the adaptation goals.

• Critics argue that the targets are really vague. Targets in terms of water security, health, livelihoods are not covered.

Road Ahead

• If the GGA framework is adopted, more than 195 countries will have to do their risk and vulnerability assessment of climate hazards, and formulate their specific national adaptation plans by 2025.

• They will also have to establish multi-hazard early warning systems and climate information services for risk reduction by 2027.

• Its adoption, however, depends on consensus of all countries as adaptation action will need a huge amount of money.