Evaluating progress on loss and damage: an assessment of the Executive Committee of the Warsaw International Mechanism under the UNFCCC

Abstract

The Warsaw International Mechanism for Loss and Damage Associated with Climate Change Impacts (WIM) was established in 2013, and its Executive Committee (ExCom) is developing a new five-year workplan. Seizing this opportune moment to assess institutional progress on the issue of loss and damage under the United Nations Framework Convention on Climate Change (UNFCCC) we address two research questions: (1) Has the ExCom delivered on its workplans to date, and (2) how has the ExCom’s progress varied across thematic areas? Drawing on public documentary sources, we assess the effectiveness and timeliness of the delivery of activities across five thematic areas: slow onset events; non-economic losses; comprehensive risk management approaches; human mobility; and finance, action and support. We find that there has been progress across the thematic areas, but that it has varied in pace. Delays are associated with activities from the two-year workplan being moved into the first five-year workplan or being devolved to the more recently established expert groups. Our results also show that decisions from the Conference of the Parties (COP) or the COP serving as the Meeting of the Parties to the Paris Agreement (CMA) have played a critical role in accelerating specific aspects of the ExCom’s work. Finally, we note that the ExCom is increasingly relying on its expert groups and their members to deliver many activities. This research advances our understanding of the nature and pace of progress on this issue, and raises new questions about the politics of global climate policy implementation. KEY POLICY INSIGHTS The WIM ExCom’s workplans are characterized by broad goals and are ambiguous about start dates and deadlines. To enhance accountability, future workplans would benefit from clearly defined objectives, outcomes, and timelines. The workplans do not seem to constitute strong commitments: Parties make use of COP/CMA decisions to strengthen the workplans by mandating specific activities or deadlines, adding new activities and prioritizing among existing ones. The politics of implementation merits greater attention: wider political dynamics around loss and damage shape the pace of the ExCom’s supposedly technical work. One example is the delayed establishment of the expert group on action and support.