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Sub-national climate-friendly
governance initiatives in developing
world: a case study of State of São
Paulo – Brazil
Kamyla B. Cunha and Fernando Rei
Institute for Energy and Environment
São Paulo – Brasil
REFGOV Conference
15th June 2006
Objective


International negotiations about climate change regime: complexity

Divergence of interests between UN Climate Change Convention
(UNFCCC) Parties

Most of key developing countries - as national states - are very
reluctant to push forward the discussion of commitments distribution
between Parties
It is imperative to envisage alternative environmental governance
initiatives, particularly proactive local and regional policies,
particularly in developing countries.
Objective of this study: to present sub-national climate-friendly governance
initiatives now arising in the developing world, and taking as a study case the
environmental policy implemented by the State of São Paulo, Brazil.
The idea is to demonstrate that even considering the reluctant positions of national states
(from developing countries) in assuming more specific mitigation commitments under UNFCCC
umbrella, there is already happening sub-national proactive governance actions, which are
leading to positive climate-friendly results
Presentation's structure
Role of developing countries in the evolution of the climate
regime:
1.


Emergence of alternative environmental policy structures,
mainly networks originating at local and regional levels:
2.

Positive effects at regional levels
Experience of State of São Paulo:
3.


4.
reluctance of major emitters
need to envisage measures capable of reconciling emission reductions
with socio-economic development
The context of Brazil in the climate change negotiations
Climate-friendly measures under implementation in the regional level
Concluding remarks
Climate change mitigation and the role of
key developing countries

International climate regime:
CHALLENGE:
to engage all the world's major emitters in a
long-term effort that fairly and effectively
mobilizes resources needed to protect the
global climate
Climate change mitigation and the role of
key developing countries
Source: IEA, 2005
Source: OECD/IEA, 2002
Tg CO2 eq
Ranking
Reference year
Country
without
LUCF
LUCF
with
LUCF
Last data available
year
without
LUCF
LUCF
with
LUCF
Last data
without
LUCF
year
Reference year
with
LUCF
without
LUCF
with
LUCF
Annex I
United States
of America
6337
-934
5403
1994
6894
-822
6072
2003
1
1
1
1
Annex I
European
Community
4088
-265
3823
1994
4180
-307
3873
2003
2
2
2
2
nonAnnex I
China
4057
-407
3650
1994
4057
-407
3650
1994
3
3
3
3
Annex I
Russian
Federation
2153
-237
1916
1994
1873
-209
1664
1999
4
4
4
4
nonAnnex I
Brazil
659
818
1477
1994
659
818
1477
1994
9
5
9
5
nonAnnex I
India
1214
14
1229
1994
1214
14
1229
1994
6
6
6
6
Annex I
Japan
1263
-93
1169
1994
1339
2003
5
136
5
7
Annex I
Germany
1108
-31
1077
1994
1018
-36
982
2003
7
7
7
8
nonAnnex I
Un Republic
of Tanzania
39
914
953
1994
39
914
953
1994
69
8
62
9
Annex I
United
Kingdom
700
1
700
1994
651
-2
650
2003
10
10
8
10
Annex I
Ukraine
638
-49
589
1994
527
-56
471
2003
13
15
10
11
Annex I
Canada
630
-110
520
1994
740
-44
696
2003
8
9
11
12
Source: UNFCCC data base
The role of key developing countries:


Developing countries broader participation on climate change
regime encompass 2 aspects:

Environmental effectiveness

Economic competitiveness between countries
G 77 + China: They have almost unanimously held the position of
refusing to discuss any specific mitigation commitments

their historic and current emissions are still much lower than those of
developed countries

differences in their mitigation and adaptation capacity

because of their different adaptive abilities and geographic conditions,
these countries are effectively more vulnerable to the impact of climate
change

They face other priority challenges, such as socio-economic
development and poverty reduction
The whole conflict and its solution hinge on the discussion
about the development model itself
Climate change and development: a new role

Climatic changes can be regarded as new facts that
force upon the State the challenge to reconcile its dual
role:

that of holding political and legal authority to sovereignly
discuss and agree to international measures to face global
environmental problems (through international law)

that of guaranteeing wealth production and prevailing
development patterns
The question arising here is whether the State and the system of
international institutions created by it - the UN - are able to reconcile
these apparently antagonistic roles
Environmental governance and new forms of
addressing climate change

In view of the opposition of representative governments of the main
developing countries in assuming more effective efforts to face
climatic change,

and keeping in mind the nature and inherent limitations of
international law - the legal path to international cooperation among
States -,

it is to be expected that alternative and complementary
mechanisms to address the global environmental problem will
emerge:
These mechanisms have indeed been arising in the inter-state sphere
through the formation of networks among non-governmental
organizations and among regional and local government agents, and in
the infra-state sphere by the initiative of local agents as a reflection of
these networks, or else as purely domestic initiatives
Environmental governance and new forms of
addressing climate change


Carachteristics:

Environmental problems such as climatic change ignore state barriers

It is considered a global common issue, but is concretely felt in infrastate levels == intergenerational responsibility at all levels of social
organization, signifying the emergence of new and complementary
structures to face global environmental problems

cooperative and coordinated action of governance systems based on
several levels (state, supra-state, infra-state and inter-state) and
comprising state and infra-state (regional and local) actors, as well as
non-governmental actors, each performing a variety of roles
Positive effects:

a means to press against the inertia of States

an alternative path to face environmental problems
Environmental governance and new forms of
addressing climate change

Agenda 21

ICLEI: International Council for Local Environmental Initiatives

NRG4SD: Network of Regional Governments for Sustainable
Development
From the perspective of the developing world, these networks could be
viewed as an alternative way to address climate change challenges
where the official position of nation-states is still one of reluctance to
take early action
Climate-friendly governance initiatives implemented
in the State of Sao Paulo:
the position of Brazil's Federal Government



COPs negotiations: the country plays an important role:

putting forward important proposals for the Kyoto Protocol design and
further regulations,

acting in favour of the interests of developing countries: G 77+ China
The country lies in the 5th position in the top GHG emitters:

More than 75% domestic emissions are due to deforestation

The government sustain its position arguing that there is already in place
national programs in the energy sector (such as PROCEL and
PROINFA) and in the forest management.
Brazil's government shares the main arguments of other developing
countries
Climate-friendly action in state of São Paulo
Economic development, energy profile and CO2
emissions trends:
• 41 million inhabitants: 21%of Brazil's entire
population
• Biggest economy of Brazil: representing 32% of
the national economic productivity, with a GDP of
US$ 235 billion in 2003
• Between 1995 and 2004, Brazil's GDP and São
Paulo's GSP grew at annual rates of 4.9 and 4.8
percent respectively
Sao Paulo State: Economic development, energy
profile and CO2 emissions trends:

Energy consumption in 2000 amounted to 27% of the national matrix

In 2004, the industrial and transportation sectors were the most
significant energy consumers, with 39% and 26% of the state total
respectively

the transport and industrial sectors are the most important sources of
CO2 emissions in the state

Emissions profile: 83 million metric tons in 2003 , or nearly onequarter of Brazil's total

The state would be the 39th-largest emitter in the world

In 2002, carbon intensity in São Paulo was 32% lower than the
national average (515 tCO2/R$ GSP and 762 tCO2/R$ GDP
respectively)
Sao Paulo State: Economic development,
energy profile and CO2 emissions trends:
Climate-friendly initiatives

1995: Climate Change Prevention Program - PROCLIMA

2002: published its Agenda 21: climate change figures prominently

2002: the state Government and other regional authorities launched
the NRG4SD. Nowadays, the state is part of the Steering Committee

2005: the state government of São Paulo signed a cooperation
agreement with the state of California, USA

2005: the state government of São Paulo created a Forum on
Climate Change
Climate-friendly initiatives

Landfill emission reduction:



Improvement of waste disposal areas and landfills
Use of the landfill gas to generate energy. Ex.: Aterro
Bandeirantes
Reducing transportation emissions:





Increase of ethanol production
Integrated Transport Plan at Metropolitan area of São Paulo
Hybrid diesel-electric vehicles
Expansion of the fleet of electric trolleybuses
Rapid transit corridors
Climate-friendly initiatives

Program for Reduction of Emissions to the
Atmosphere (PREA)

Land use carbon sequestration (Riparian Forest
Program)

Biomass origin electricity

Development of ambitious new-model vehicle
emission standards (PROCONVE Phase 7)
Climate-friendly initiatives: benefits

Transport sector:
 PROCONVE:

1997 to 2000: net benefits to public health in São Paulo of
over 4,500 avoided deaths and 5,500 avoided hospital
admissions, valued at US$2.9 billion to 4.0 billion.

Between 2000 and 2020, the PROCONVE program is
expected to result in almost 10,000 avoided hospital
admissions and more than 8,800 avoided deaths attributed to
air pollution, with an economic value of US$4.8 billion to $6.7
billion.
 state

of São Paulo's Integrated Transport Plan:
is expected to result in an additional 2,277 avoided hospital
admissions and 1,800 avoided deaths from 2000 to 2020,
with a value of US$1.7 billion to 2.3 billion
Climate-friendly initiatives: benefits

PREA:


It is estimated that savings of 8 to 15 percent are achievable in
Brazilian industry based on cost-effective measures such as
replacing oversized motors, improving transmission systems,
replacing overloaded internal lines and transformers, correcting
low power factors, and reducing excessive peak loads. Additional
savings of 7 to 15 percent could be achieved by using efficient
motors and variable-speed drives; improving the efficiency of
electrical furnaces, boilers, and electrolytic processes; and
through greater use of cogeneration.
The state's reforestation projects:

provide many other social and environmental benefits, including
job creation, protection of ecosystem services (water purification,
flood regulation, local climate regulation) and protection of
biodiversity.
Conclusion remarks

Even though nation-states may remain reluctant to
assume early climate change mitigation measures, thus
making the international arena a complex and difficult
path for the convergence of climate-friendly initiatives,
there is enough space for alternative structures and
approaches in both developing and developed countries

The spread of environmental networks at local and
regional levels is an interesting governance example that
legitimates regional climate-friendly actions, enhancing
closer inter-regional cooperation and acting as a nuclear
voice able to make positive impacts at national and
international levels
Conclusion remarks

The implementation of climate-friendly measures and the demonstration of
their benefits can be used as instruments to pressure nation-states to
change their positions.

Internationally, the networks can create a representative arena to share
experience and to participate in official negotiations.

These alternative environmental instruments are particularly important to the
developing world:

the results of climate-friendly measures implemented under the influence of
networks or by initiative of regional governments demonstrates the prevalence of
environmental and cost benefits.
 These initiatives validate the idea that it is not impossible to reconcile climate
protection and development.

The experience of São Paulo state, though somewhat isolated within the
Brazilian political scene, is an illustrative example of the fact that early action
in climate mitigation can brings good results -- and this is particularly
meaningful with regard to developing countries.
Thank you for your attention!
Kamyla B. Cunha
Institute of Energy and Environment
UNICAMP
[email protected]
55 – 11 – 3815 4580