Ad Hoc Working Group

On the Durban Platform for Enhanced Action

Background document for the climate change sessions under the UNFCCC Bonn, Germany, May 2012

Prepared by: Gabriela Fischerova Climate Change Policy Advisor UNDP BRC Bratislava, Slovakia, April 2012

This document is prepared under the global UNDP project Integrating Climate Change into National Policies and Programming with the aim to provide a quick orientation in the submissions of the parties to the UNFCCC on the options and ways for further increasing the level of ambition to reduce global GHGs emissions as a part of the work of the Ad Hoc Working Group Working Group on the Durban Platform for Enhanced Action. The document is based on official UNFCCC documents published on the web site of the UNFCCC. The views expressed in this document are that of the author and do not necessarily represent the views of the UNDP. Bratislava, April 2012

Acronyms
AAUs ADP AOSIS AWG KP AWG LCA COP CMP DCs EU FAO GHGs GRULAC HFCs ICAO ICCP IEA IMO KP LDCs LULUCF NAMAs OECD REDD SBs SBI SBSTA UNFCCC US Assigned amount units Ad Hoc Working Group on the Durban Platform for Enhanced Action Alliance of Small Island States Ad Hoc Working Group on Further Commitments for Annex I Parties under the Kyoto Protocol Ad Hoc Working Group on Long-term Cooperative Action under the Convention Conference of the Parties Conference of the Parties serving as the meeting to the Parties of the Protocol Developing countries The European Union Food and Agriculture Organization Greenhouse Gases Group of Latin America and Caribbean Countries Hydrofluorocarbons International Civil Aviation Organization Intergovernmental Climate Change Panel International Energy Agency International Maritime Organization Kyoto Protocol Least Developed Countries Land use, land-use change, and forestry Nationally appropriate mitigation actions Organization for Economic Co-operation and Development Reducing emissions from deforestation and forest degradation Subsidiary bodies Subsidiary body for implementation Subsidiary Body for Scientific and Technological Advice United Nations Framework Convention on Climate Change The United States of America

Introduction
The 17th Conference of the Parties to the United Nations Framework Convention on Climate Change (UNFCCC) was one of the most demanding sessions under the climate negotiations of the last twenty years. Not only due to extremely heavy agenda and meetings of six formal bodies (COP, CMP, AWG KP, AWG LCA, SBI and SBSTA) but also due to high expectations from the world with respect to the future international climate regime. Regardless to all difficulties and deficiencies, several major outcomes have been successfully agreed: extension of the Ad Hoc Working Group on Long-Term Cooperative Action under the Convention for one year (to reach the agreed outcome on Bali Action Plan by COP18 in Doha, Qatar, 2012); the second commitment period under the Kyoto Protocol, even though somewhat crippled without four major emitters from Annex I (Canada, Japan, Russia, and the US); and the launch of a new process to develop a protocol, another legal instrument or an agreed outcome with legal force under the Convention applicable to all parties. This new agreement should be completed by 2015 and should enter into force in 2020. It is the first time that the considerations on GHG emissions reductions will cover all major emitters, including US, China, India and some of the emerging economies. A new subsidiary body was established to this end: Ad Hoc Working Group on the Durban Platform for Enhanced Action (ADP). Parties and observer organisations were requested by the decision 1/CP.17 to submit by 28 February 2012 their views on options and ways for further increasing the level of ambition to reduce global GHGs emissions. For this, the Conference also decided that the in-session workshop at this negotiating session will be held to consider options and ways for increasing ambitions. This short paper provides background information on ADP, analysis of the submissions, and a table summarising the main points presented by parties or group of parties in their submissions.

Ad Hoc Working Group on the Durban Platform for Enhanced Action Overview

The ADP will formally convene at the plenary session on Thursday 17 May 2012 in Bonn. Parties will elect the Chair, Vice-Chair and Rapporteur for ADP. Chairs of regional groups and constituencies were invited to forward nominations by 31 March 2012. So far, the nomination of Mr. Kishan Kumarsing (Trinidad and Tobago) for the Chair of ADP from GRULAC (Group of Latin America and Caribbean Countries) was received. Parties will strive to elect officers of ADP at the sessions in Bonn, and if necessary at the later session(s) until COP 18, consultations on the election of the officers of the ADP will be finalized. During the opening session parties will have the opportunity to make statements starting with the statements on behalf of groups of parties. The ADP was requested by the decision 1/CP.17 to plan its work in the first half of 2012. To this end parties have submitted their views and opinions and the planning should draw upon these submissions. (Document FCCC/ADP/2012/MISC.3) The COP17 also decided to hold an in-session workshop during May sessions on enhancing mitigation ambition to identify and explore options for a range of actions that can close the ambition gap. Workshop will be held on 21 May and parties and intergovernmental organisations have submitted their views on this issue. (Documents FCCCC/ADP/2012/MISC.1, and FCCC/ADP/2012/MISC.2, respectively).

Analysis of Submissions by Parties

Four groups of countries (African Group, Alliance of Small Island States, the European Union, and Least Developed Countries) and 15 individual country parties (Bolivia, China, Ecuador, Egypt, Ghana, India, Japan, Malaysia, New Zealand, Norway, Pakistan, Saudi Arabia, Switzerland, and the US) have submitted their views on options and ways for further increasing the level of ambition to reduce global GHGs emissions. Many parties expressed their views not only on the work plan, but on principles to be respected, the measures to be discussed, and on organization of work. There are several elements occurring in many submissions: Principles of the Convention to be respected Limitation of the increase of average global temperature The gap in current reduction pledges and what is required by science and measures to be discussed to close the gap 5

Organization of the work Need to build on other international processes

Principles: In most of the submissions, the call for respecting the principles form the Convention, namely the principle of common but differentiated responsibilities and capabilities was frequently stated, together with the principle of equity and the right to develop.

Limitation of the increase of average global temperature Most parties agreed that the increase in global temperature should be held between 1.5C to 2C by the end of the century compared to pre-industrial era. However, one country (Bolivia) believes that the temperature raise should be limited to 1C to 1.5C. In order to reach this, countries are calling for an increase in the level of ambition of reduction pledges with the developed countries taking the lead in the reduction efforts.

The gap and measures to be discussed to close the gap (elements for work plan) The decision 1/CP.17 in its preamble is noting that there is a significant gap between what is required by science and the current pledges by countries1. Most of the submissions acknowledged the existence of the emission gap2 although they differ in what is the actual size of the gap which varies from 6 to 11 and to 14 Gt CO2e, and they admitted the existence of several measures to be considered when discussing how to close the gap. These are: Increasing the share of renewable energy (EU, LDCs, AOSIS, Ecuador) Reducing subsidies for fossil fuels (EU, LDCs, AOSIS, New Zealand, Norway, Switzerland, US) Reducing emissions from international aviation and shipping (EU, LDCs, AOSIS, Norway, Switzerland, US) Energy efficiency improvements (EU, LDCs, AOSIS, Norway) Reducing non-CO2 gases methane, HFCs, other short-lived climate forcers (EU, AOSIS, Norway, Switzerland) Enhancing of carbon market (EU, LDCs, Bolivia to reduce the use of markets; Egypt; Japan; New Zealand; Norway; Switzerland)

The Conference of the Parties noting with grave concern the significant gap between the aggregate effect of parties` mitigation pledges in terms of global annual emissions of greenhouse gases by 2020 and aggregate emission pathways consistent qith having a likely chance of holding the increase in global average temperature below 2C or 1.5C above pre-industrial levels 2 difference between the amount of emissions emitted under the current pledges by countries and what is actually needed according to scientific reality to limit the increase of the average global temperature to maximum 2C by the end of the century

Enhancing REDD+ (EU, Norway) Shifting mix of fossil fuels used in energy production (AOSIS) Introducing International standards (Japan, Switzerland, Bolivia)

Organization of the work Parties have proposed several ways how to organise the future work of ADP, trough: Workshops (either in-session or independent of negotiation session) Pledging meeting/conference Submissions Ministerial conferences Meetings with high-level engagement

Workshops are seen as the most preferred mode of work according to submissions. The workshops should be aimed at: developed countries: scale of emission reduction in aggregate and individual, means of implementation; means to scale up the finance; technical analysis of the gap; emission potential of the policies and measures; conditionalities around pledges and how to remove them; development and implementation of low-emission development strategies; developing countries: possible NAMAs and required means of implementation; needs in terms of developing national strategies; means to support DCs in practice;, national circumstances including finance, technology and capacity building; emission reduction potential in NAMAs; encouragement for DCs to engage in concrete global emission reduction efforts with differentiation for emerging economies, middle income countries and most vulnerable and least developed countries based on agreed criteria;

One country (Ecuador) proposed establishing three working groups: on legal form; shared vision; and new and emerging issues.

Need to build on other international processes Several countries see the need to link the UNFCCC process to other international processes on related agenda such as ICAO, IMO, FAO, and engage more with the intergovernmental bodies such as UNEP, ICCP, OECD, IEA, WB, IMF, Montreal protocol, CBD, Basel Convention, and members of civil society, particularly those with a specific or sectoral focus on greenhouse gas emissions at a significant scale, and those responsible for implementation at a regional, sub-national, or local level.

Annex: Summary of the Submissions of the Parties on their views on options and ways for further increasing the level of ambition to reduce global GHGs emissions under the ADP COUNTRY African Group (Submitted by Swaziland) VIEW Emission gap around 12 14 Gt Closing the ambition gap Developed countries to commit to higher pledges Pledges by Annex I parties are smaller than loopholes Need to agree global carbon budget ELEMENTS OF THE WORK PLAN Workshops for developed countries (scale of emission reduction in aggregate and individual; means of implementation; means to scale up finance, technology and capacity development in DCs) Workshops for developing countries (possible NAMA and required means of implementation; needs in terms of developing national strategies; means to support DCs in practice) Pledging meeting/conference (raise of ambition by developed countries and identify the pathway to higher pledges; assist DCs in identifying potential and increase level of action through NAMAs; developed countries to pledge additional financial resources to close the gap) Relation to review and other elements of negotiations Enable the identification and exploration of short-term actions ; facilitate a shared understanding of how parties can overcome challenges at the national level; encourage parties that have not yet did so to submit targets or NAMAs In-session workshops, submissions and discussions to culminate at COP18 with the adoption of more ambitious economy-wide emission reduction targets by developed countries and NAMAs by DCs Engage observer states, intl. organizations and members of civil society In-session workshop in May to be in four parts: 1. Technical analyses regarding the size of ambition gap; scale of emission reductions to be achieved by developed countries and DCs separately and collectively; options and ways to close the gap. 2. Annex I parties to present their domestic policies and measures to raise the level of ambition; emission reduction

Alliance of Small Island States AOSIS (Nauru)

Close the ambition gap Holding the increase in global average temperature below 2 or 1.5 Reductions around 12 Gt CO2e in 2020 needed Developed countries to implement higher conditional pledges Elimination of loopholes (AAUs surplus and LULUCF accounting rules) There is little scope for delaying action, internationally coordinated action to be taken by 2017 Wide portfolio of technically and economically viable measures can be taken to close the gap (renewable energy; shifting mix of fossil fuels used in energy production; reducing emissions from international aviation and shipping; reducing subsidies for fossil fuels; energy efficiency improvements; reducing emissions of 8

non-CO2 gases)

potential of these policies, and financial, technological, legal and other constrains preventing the adoption of such policies. 3. Non-Annex I parties to present their national circumstances regarding the means of NAMAs implementation required, including finance, technology and capacity building; domestic policies and measure; emission reduction potential of NAMAs, and constrains preventing the adoption of NAMAs. 4. Annex I to present potential scale and nature of financial resources, transfer of technology and capacity building to be made available for enabling NAMAs. Time for Q&A. Submissions from parties by 16 July 2012; ministerial conference in September 2012; High-level engagement as necessary; in-session workshop and negotiations in October 2012; Ministerial pre-COP in November 2012; COP18 in December 2012 Work plan for 2013 and beyond similar to 2012 Indentify a series of short term activities in 2012 including insession workshops, ministerial conferences and meetings with high-level engagement Explore and adopt early more ambitious economy wide emission reduction targets and actions Call upon the Annex I Parties to remove the conditionalities around their pledges Encourage development and implementation of Low emission Development Strategies (LEDS) in all countries Ensure ADPs work on markets complement the continuity of the Kyoto Protocols flexible mechanisms Call upon parties to remove fossil fuel subsidies Encourage ways to explore adoption of new more ambitious targets for all developed countries Encourage all developing countries to engage in concrete global emission reduction efforts with differentiation for emerging economies, middle income countries and most vulnerable and

Least Developed Countries (Gambia)

Addressing the gap of 6 11 Gt CO2e Global emissions to peak by 2015 at the latest Pledges proposed by Annex I parties in aggregate are 13 18%below 1990 Range estimated by the IPCC is 25 40%

least developed countries based on agreed criteria Organize a high-level ministerial session on the level of ambition Ensure effective, new and additional financial support, technological and capacity building to design and implement NAMAs Actions: 1. Introduce changes to the energy system; 2. Introduce sector by sector changes (electricity production; industry; transport; aviation and shipping; buildings; forestry; agriculture; waste) Majority of actions and options can be agreed and implemented in a step wise manner and must be not deferred to 2015 At the May workshop, latest available knowledge about mitigation gap to be presented by experts Active contribution by all parties in LCA process COP18 to acknowledge the scale of the gap and agree to continuously monitor the scale Identify opportunities to bridge the gap implement the pledges under the LCA and the KP; analyze complementary initiatives (emissions from HFCs; through ICAO and IMO address global emissions from international aviation and maritime transport; phasing out subsidies for fossil fuels; promote renewable energy and energy efficiency; enhancing REDD+; targeting support effectively) decisive progress enhancing action on REDD+ and on a new market-based mechanism Process: UNFCCC secretariat to produce a written report after the May workshop; additional workshops to be organized before COP18; Up-to-date information provided by IPCC, UNEP, IMO, ICAO, FAO and relevant experts before COP18 about the potential to increase mitigation ambition Domestic actions, bi- and plurilateral cooperation, internationally coordinated activities to be implemented to address mitigation potential

European Union (Denmark) This submission is supported by Bosnia and Herzegovina, Iceland, Serbia and the former Yugoslav Republic of Macedonia.

Closing the gap of 6 to 11 GT CO2e Clear steps to be agreed to deliver increased ambition through a set of concrete initiatives Mitigation actions on global level must be guided by overarching goal of keeping the global mean temperature increase below 2C New agreement to be negotiation should include mitigation commitment for all parties Integrated approach to be taken drawing upon several processes and outcomes (review, LCA)

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Bolivia

Limit the raise of temperature in this century between 1C to 1.5C Increase the level of ambition Historic responsibility should be reflected in the mitigation commitments Following principles should be respected: of common but differentiated responsibilities; right to develop; equal access to the atmosphere; transparency and comparability; Developed countries to take the lead in reducing emissions by undertaking ambitious mitigation commitments and providing financial resources and transferring technology to DCs Recognition of historic responsibility Social and economic development and poverty eradication are the first and overriding priorities of DCs The rights of nature should be fully respected Existing international legal framework and regime to address climate change to be reinforced Negotiation process to be in accordance with the biophysical limits of the planet For DCs, adaptation is the priority ADP to create and strengthen the capacity of the social, economic, cultural and environmental systems to address the adverse effects of climate change

ADP to be open towards innovative approaches COP18 to adopt decisions based on recommendations of ADP Call upon relevant international bodies to develop and present concrete initiatives; Build on other international negotiation processes (Montreal protocol, CBD, IMO/ICAO, Basel convention etc.) Mitigation commitments for most industrialized countries through the compulsory standards or indicators Identification of major emitting sectors for each country Changes in consumption and production patterns should be implemented No double counting, no loopholes Emissions to peak not later than in 2017 Quantifications to be made by clear and objective methodology Official base year should be 1990 Reduce using the carbon market

China

Ecuador

Agree on the issues related to the transparency of action and to generate coercive measures Specific needs and special circumstances of DCs must be taken into account Precautionary measures to anticipate, prevent or minimize the causes of climate change Taking into account different socio economic contexts Promotion of sustainable development New innovative financing mechanisms to be used Measures not to constitute a means of arbitrary or unjustifiable discrimination or a disguised restriction on international trade

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Egypt

Share of global emissions originating in developing countries will grow to meet their social and development needs Principles of equity, and common but differentiated responsibilities and respective capabilities should guide the actions

ADP to meet twice a year Deliver progress for consideration by the Three working groups to be convene do discuss and agree four key issues: legal form,; shared vision; new and emerging issues Draft instrument to be submitted to COP 21 (2015) Issues to be addressed: Mitigation; adaptation; response measures; development and transfer of technology; financing; capacity building Acknowledgement that there is a considerable potential for international cooperation under the UNFCCC Developed countries to implement higher level of mitigation pledges International global carbon market under the UNFCCC to be open and transparent Support to be provided relative to the needs indentified by DCs Unilateral measures to combat climate change should not constitute a means of arbitrary or unjustifiable discrimination or a disguised restriction on international trade, including on the carbon credits Process to identify in advance the level of support available Workshops for developed countries (identify different scenarios for scale of emission reductions, common accounting format; means of implementation, means to scale up technology transfer an finance to developing countries) Workshops for developing countries (indentify possible NAMAs, needs in terms of developing national strategies, including national inventories; means of support; how a global carbon market can enhance the voluntary mitigation actions) Workshops for means of implementation (available means to assist DCs in identifying potential, ways and tools to ensure additional resources; role of international organizations/multilateral financial institutions in supporting efforts under the UNFCCC; identify available technologies and option for cooperation on R&D)

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Ghana

Ensuring that global temperature increase is limited to well below 2C is the foremost collective priority of all parties Principle o f common but differentiated responsibilities and respective capabilities justifies the need for all developed countries to reduce their emissions well below 40% of 1990 levels by 2020

India

Japan

All principles and provisions of the Convention will apply in totality to both the process and its results Efforts to increase level of ambitions must be made in accordance with the principle of common but differentiated responsibilities Increase of level of ambition should be based on the work of all subsidiary bodies (SBs, AWGs) Annex I parties to increase level of ambition in the frame of 2012 -2020 based on the Fourth assessment report by IPCC Annex I parties to reduce their emissions at least by 255 40% by 2020 Proposal was made by G8 to achieve at least 50% reduction of global emissions by 2050 Inputs from the Fifth Assessment report by the IPCC should be fully taken into consideration

Focus on all parties to the Convention not only on the action of emerging developing countries Outcome of ADP should be supplementary to the Kyoto Protocol. KP should not end after the second commitment period, there should be the third and subsequent commitment periods under the KP Negotiations to address all five pillars of Bali Action Plan adequately The kind of legal instrument to be determined at an early stage of the negotiations Work plan for enhancing mitigation ambition relates to pos 2020 period Ambition in the frame of 2012 2020 under the Durban platform relates to the commitments of Annex I parties In case of Annex I parties that are parties to the Kyoto Protocol a parallel process should be initiated to determine compliance with their commitments Non-KP parties would also need to increase their targets/actions

Setting a global goal by 2050 and intetify a time frame for the global peaking Increase transparency of mitigation efforts and share best practices through MRV Parties to review and update their targets or actions for 2020 Consideration of various types of approaches and measures (setting targets and action plans to increase penetration of best available technologies, sharing globally applied efficiency standards on specific products; identifying roadmap for technology developments International cooperative actions for achieving low-carbon development globally (national low carbon development

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strategies should be established and implemented in all countries) Various approaches, including opportunities for using markets should be further utilized to promote mitigation actions in both developed and developing countries in a cost-effective manner

Kazakhstan

Malaysia

New Zealand

Norway

Kazakhstan is striving for transition to low carbon development The country accepted voluntary commitments -15% in 2020 and by -25% in 2050 compared to 1992 Is considering to increase level of ambition and to change the base year to 1990 Principles of equity and common but differentiated responsibilities should be respected Developed countries must first implement ambitious targets and provide finance, technology and capacity building to DCs to enable these countries to implement NAMAs Increasing level of ambition must be understood in the context of sustainable development Increase of the level of global ambition should be informers by the Fifth Assessment Report Need to limit the increase of global temperature below 2C Interrelationships between UNFCCC and the outside processes should be consider to increase dialogue with the private sector, intergovernmental organizations and international think tanks Significant gap in of 6 to 11 Gt CO2e Actions taken in the period up to 2020 are crucial to met the 2C target Carbon markets and other forms of result-based finance is the most efficient way of ensuring emission reductions

ADP should not interfere with the process of successfully completing the work under the AWG LCA and AWG KP

Focus on new processes such as International Assessment and Review (ICA) and International Consultations and Analysis (ICA) Consider actions in specific sectors and/pr regional initiatives such as reform of inefficient fossil fuel subsidies Encourage participation in carbon markets Identifying innovative ways to involve private sector Encourage agreements outside of the UNFCCC Emissions pathways foreseen from now, up to 2020 and beyond 2020 Work plan to address both options before and 2020 and after 2020 Further developing carbon markets aiming at the global market Increase a certainty of what expected emissions outcomes should be accounted for

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Pakistan

Saudi Arabia

Work of the ADP should be guided by Principles of common but differentiated responsibilities, equity and transparency Current pledges of Annex I parties are 12% to 18%, what is far below the required reduction to achieve the goal of a 2C limit on temperature rise (25% - 40%) Raising level of ambition is not a requirement from all parties Largest share of historical emissions has been caused by Annex I countries, so they have to take a lead in the mitigation efforts 15

Emissions from international transport need to be addressed effectively Work to be organized in simple way (in-session workshops, technical briefings) Main format should be an open and informal arena for parties to present their plans and ideas, seek partners and ways to enhance existing initiatives Further insight into the costs of various options Organizations and institutions outside of the UNFCCC should be invited to participate in workshops (OECD, IEA. WB. IMF, IMO, ICAO, others) Addressing existing emission sources with large mitigation potential (alumina and chemicals, power sector) Country and regional-led strategies and global strategies could be pursued under the work plan Global strategies for global carbon market; increased use of result based financing; phasing out harmful fossil fuel subsidies; transformation of energy use; REDD+; reducing emissions from HFCs; reducing emissions of black carbon and other short-lived climate forcers Further analysis of the emission gap Input on how the new agreement can achieve the necessary level of ambition In-session workshop to consider ways to increase level of ambition How to address historical responsibility How to integrate the climatic objectives along with the short term and long term goals How much more is expected from developed countries How to address developing countries sustainable development goals

Switzerland

Annex I parties to reduce emissions and provide assistance to non-Annex I countries to help them contribute to the climate change mitigation Emissions from non-Annex I countries will have to grow in order to meet their development needs Non-Annex I countries may contribute voluntarily to global emission reduction efforts under the condition of receiving financial support, technology transfer and capacity building from Annex I countries Agree on legally binding mitigation commitments by all parties to allow for a well-functioning of cost efficient approaches such as market mechanisms Level of ambition must be backed by common underlying accounting rules and robust MRV Rules based system under the Convention should be strengthened Agreement on global peaking of emissions and global emission reduction goals for 2050 and development and implementation of low emission development strategies (LEDS) are crucial building blocks of an effective regime to combat climate change For rapid and efficient global response to climate change, support to developing countries in their mitigation and adaptation efforts is a key

US

Purpose of the work plan should be to gain a shared understanding of the potential of various global, regional 16

Work plan on enhancing mitigation ambition must inform parties on options and ways to increase level of ambition Foster enhanced mitigation action at the global level in the period up to 2020 and well beyond Deepen technical understanding of options Bring adequate political attention to the issue, taking into account common but differentiated responsibilities and capabilities and equity Work to start in may workshop Workshops or other activities under the work plan to be held on frequent basis and at least at the occasion of the regular negotiating sessions Thematic areas for technical dialogue: sectors and approaches with considerable global mitigation potential, including emissions from international aviation and maritime transport, phasing down production and consumption of HFCs, agriculture sector, design of the new market mechanism, removal of fossil fuel subsidies, promotion of clean technologies and climatefriendly investment, elaboration of ecological standards and development of global labels through multistakeholder process Political dialogue to be held on high level roundtables on ambition on annual cycle prior to the COPs or as deemed timely, discussion to be informed by technical dialogue Work plan should respect the integrity of parties nationally derived targets and actions and limitations

and national options for enhancing mitigation action Work plan should seek to encourage parties to enhance their mitigation efforts to the greatest extent possible

Potential options the work plan could assess: encourage those parties that have not yet done so to formulate and list mitigation pledges, consider initiatives, programmes and activities outside of the Convention, address HFCs, maritime and aviation emissions under the ICAO and IMO, removing subsidies for fossil fuels Consider coalitions and among parties or group of parties with similar emission profiles Work plan on ambition is distinct from the negotiation of the new protocol/legal instrument/agreed outcome with legal force, nevertheless, the appropriate form is ADP Session on the ambition work plan should be conducted as a forum for sharing ideas among parties as well as observers

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