基础四国气候变化部长级会议联合声明
2023年9月20日
1. 巴西、南非、印度和中国四国部长代表基础四国集团于2023年9月20日在纽约气候雄心峰会期间举行会议，各国部长一致认为，应对气候变化挑战必须在可持续发展和全球治理变革的背景下，坚定地以《联合国气候变化框架公约》（以下简称《公约》）及其《京都议定书》和《巴黎协定》的目标、原则和规定为基础。会议由巴西环境与气候变化部长玛丽娜·席尔瓦女士主持，出席会议的有南非共和国森林、渔业和环境部部长芭芭拉·克里西女士、中国生态环境部副部长赵英民先生和印度常驻联合国副代表拉温德拉大使。
2. 部长们认识到，气候变化是我们所处时代最大的挑战之一，应对这一挑战需要推进可持续发展，调动全人类的资源，解决国家内部和国家之间的结构性不平等，同时为向低碳和气候韧性社会公正转型铺平道路。
3. 部长们深切关注单边主义、贸易保护主义和国际合作支离破碎的趋势有损信任，进而危及富有雄心的气候行动，承诺将加强和深化基础四国的领导力和联合行动，旨在减少温室气体排放、提升适应气候变化、增强抵御气候变化不利影响的韧性、促进不受阻碍地技术转让并增强科学的气候知识，特别是通过在发展中国家创造本地价值和提升当地能力。
4. 部长们敦促国际社会团结一致，共同站出来，携手应对气候变化。他们指出，实现联合国可持续发展目标（SDGs）必须成为国际社会的核心优先事项，因为2030年可持续发展议程提供了社会、经济和环境的一揽子系统性长期解决方案，以应对气候变化的复杂性。他们强调，社会经济挑战给发展中国家带来了系统性风险，为实现《公约》最终目标及其《巴黎协定》长期目标，必须解决这些风险。他们呼吁全球团结一致，确保没有一个国家、地区或个人掉队。他们重申，基础四国愿为应对气候挑战尽最大努力作出贡献并与所有国家展开合作。
5. 为打破气候行动的惰性，部长们同意通过增强基础四国的领导力，为《公约》第28次缔约方大会（COP28）到第30次缔约方大会（COP30）和之后的基础四国合作提出新的愿景，其中包括：一是加强基础四国在国际气候变化议程上协调，聚焦《公约》下多边气候制度；二是充分利用各国的科学和学术对话；三是拓展在实施可持续发展和项目上的联合行动与合作。
6. 部长们强调，尽管在全球经济衰退和经济复苏时期面临着巨大的发展挑战和消除贫困的压力，但基础四国将继续以身作则，在可持续发展要务背景下，展现其气候行动最高雄心：
巴西在2023年重返国际议程，将应对气候变化作为巴西政府的优先事项，同时努力消除饥饿、贫困和不平等。巴西坚定地致力于加强多边主义，在亚马逊城市贝伦申办COP30。同时，在现有最佳科学警示的紧迫感和严重性的推动下，巴西提出于2023年8月在贝伦举办亚马逊峰会。贝伦宣言是有史以来第一份认识到亚马逊临界点风险的政治文件。自卢拉总统上任以来，巴西已作出“零毁林”承诺，同时重新启动亚马逊基金和“预防和控制亚马逊合法森林砍伐行动计划”（PPCDAm），以及气候变化部际委员会（CIM），该委员会已决定更新巴西国家自主贡献至最初于2015年提出的绝对水平。更新后的国家自主贡献即，相较2005年，2025年国家减排目标将前从37%提高至48%，在2030年前从50%提高至53%。2023年8月，巴西政府宣布了一项全经济范围的“生态转型计划”，以巩固巴西对未来经济增长、社会包容和环境保护愿景。新政府执政的前八个月，巴西森林砍伐量减少了48%，仅此一项就避免了约2亿吨碳排放。在致力于共同但有区别的责任和各自能力原则的同时，巴西也清楚地认识到自己对最脆弱国家同样负有不同的责任，并将充分履行自己的职责。
南非在努力应对贫困、不平等和失业这三重挑战背景下，以其《国家发展计划》、公正转型国家框架及针对气候适应和减缓的具体战略、立法和法规为指导。南非正在制定一项全面的适应投资计划，以确定实施国家气候变化适应战略的优先措施。南非已制定海洋和海岸适应计划，以及所有地方政府的适应部门计划及风险和脆弱性评估。南非已完善公正能源转型投资计划（JET-IP），其议会正在最后敲定气候变化法案。南非目前正在实施一系列减缓气候变化的干预措施，推动实施其低排放发展战略，包括分配部门减排目标。在政策改革和改善能源安全与获取方面开展大量工作，并在扩大可再生能源部署方面取得了进展。JET-IP概述了实现脱碳目标所需的巨大投资规模和性质。根据该计划，南非在未来五年将需要约980亿美元投资，以实现部分公正转型及其国家自主贡献中的雄心目标。该计划还包括投资本地绿色氢能和电动汽车生产及本地经济以提高技能和实现经济多样化。这一伙伴关系为向发展中国家公正转型提供资金支持开发新的创新模式提供了机会。
印度展示了其多边主义精神，呼吁二十国集团国家采取建设性态度应对气候变化。印度还敦促，气候行动的雄心必须与气候资金和技术转让的行动相匹配。在向各国发出这一号召时，印度提出了“同一个地球、同一个家园、同一个未来”的愿景，旨在加强国际合作，共同应对气候变化等全球性挑战。印度已经超额完成了国家自主贡献承诺之一，即40%的电力装机容量来自非化石燃料，比承诺时间提前了近九年。印度正在按计划实现其他国家自主贡献目标。印度目前正在实施“国家绿色氢能计划”，目标是到2030年实现年产量500万吨。印度继续坚持，将温升幅度维持在《巴黎协定》规定水平内的全球碳预算是一种有限资源，所有缔约方都应公平获取。由于发达国家对全球碳预算的使用超过了其公平份额，应带头采取雄心勃勃的气候行动，包括减排，并根据《公约》和《巴黎协定》规定，向发展中国家提供实施手段支持。
中国高度重视应对气候变化，制定了“1+N”政策体系，致力于积极稳妥推进碳达峰碳中和。2021年，中国的碳强度比2005年下降50.8%。中国优先发展非化石能源。中国非化石能源发电装机容量超过14亿千瓦，占总装机容量的51%以上。中国提供了全球50%的风电设备和80%的太阳能发电设备，为降低全球可再生能源成本作出了突出贡献。中国新能源汽车保有量超过1600万辆，占全球一半以上。中国建立了全球覆盖温室气体排放规模最大的碳市场。中国主动适应气候变化，采取多种措施增强生态系统碳汇能力，森林覆盖率和蓄积量连续30年保持“双增长”。中国宣布将通过南南合作大力支持发展中国家绿色低碳发展，停止在海外新建燃煤发电项目，以实际行动应对气候变化。
7. 部长们强调基础四国集团对所有其他发展中国家的有力承诺和团结立场，包括在“77国集团和中国”下开展更紧密合作。他们重申对古巴作为“77国集团和中国”轮值主席的支持，旨在加强集团团结，维护所有发展中国家的共同利益。
8. 部长们强调《公约》是应对气候变化主要多边渠道。部长们承诺，基础四国将全力支持巴西未来担任将于2025年在亚马逊地区帕拉州首府贝伦市举行的COP30主席。他们还全力支持阿拉伯联合酋长国担任将于2023年11月30日至12月12日在迪拜举行的COP28主席国。他们强调，COP28首次全球盘点（GST）成果对于加强国际合作以及为各国以自主决定的方式更新和加强其国家自主贡献提供信息至关重要。他们期待在2025年举行的COP30上在《巴黎协定》下提交第二轮国家自主贡献。他们承诺将共同努力，确保COP28到COP30的《公约》多边进程能够为团结国际社会、加强实施《公约》及其《巴黎协定》提供平台。他们还强调COP28取得富有雄心、公平、务实、全面和平衡成果的重要性，包括首次全球盘点、运行新的损失与损害基金、新的集体量化资金目标讨论取得进展、通过强有力的全球适应目标框架、以及实施减缓雄心和实施工作方案，并通过公正转型路径的工作方案。他们强调，COP28的各个方面都应侧重于通过加强实施手段来弥补实施的缺口。
9. 部长们强调了营造国际有利环境对于增强全球气候行动的重要性，同时允许各国根据共同但有区别的责任及各自能力原则，考虑不同国情，提交反映其最高雄心的新一轮国家自主贡献及展示相对此前国家自主贡献的进步。他们进一步强调，全球金融架构迫切需要全面转型和现代化，包括对多边开发银行进行系统改革，使其适合支持可持续发展、生态转型和公正、公平转型的目的。他们表示有必要解决对投资发展中国家投资的风险规避倾向，有必要优先考虑赠款支持，有必要大幅降低所有发展中国家的资本成本，因为目前的借贷成本和条件使得包括基础四国在内的世界大多数人口无法获得多边支持。
10. 部长们敦促发达国家遵守公平、共同但有区别的责任和各自能力的原则，扩大提升自身气候行动实现气候中和且不再推迟，并向发展中国家提供新的、额外的、持续的、可预测的、充足的和及时的资金支持。他们强调发展中国家需要数万亿美元，优惠贷款对于发展中国家疏解财政困境很重要。他们进一步敦促发达国家履行其尚未兑现的气候出资义务，包括实现到2020年每年紧急联合调动1000亿美元的目标并延续至2025年，到2025年将其向发展中国家提供的用于适应气候变化的集体资金从2019年的水平至少翻倍，并尽早提出明确的路线图，同时承诺一个新的集体量化目标，该目标应远超过每年1000亿美元的最低标准，并为损失和损害资金安排及基金提供资金。他们回顾相关报告指出，发展中国家每年需要数万亿美元用于减缓和适应行动，而且由于不公平、掠夺性贸易条款及历史和现行的非收益性原材料出口依赖等因素，预计每年有2万亿美元资金流出发展中国家，支撑了发达国家的发展。部长们还关切地注意到，近年来发达国家的化石燃料生产和消费大幅增加，并鼓励发达国家加速率先逐步淘汰本国的化石燃料生产和消费。
11. 他们表示坚决反对变相限制国际贸易的单边、强制性措施，并呼吁所有合作伙伴为努力寻求合作解决方案和伙伴关系，促进可持续产品和服务的生产和贸易准入。部长们认可发达国家在其国内为脱碳所作出的努力和取得的部分成果。然而，他们强调，在国际上，发达国家有选择性的、不充分的、通常无效的行动损害了信心，进而使科学脱碳集体行动的速度和规模受到损害，这向我们指出更大承诺和有效执行的必要性。他们强调，我们需要突破已有成果，以取得必要的成果。
12. 基础四国部长们决心在所有国家之间建立信任，承诺扩大、深化和多样化各国的共同努力，推动强化全球治理体系并提升其有效性，以加强《公约》及其《京都议定书》和《巴黎协定》下既有的原则和目标的实施。他们表示将坚定致力于营造一个有利于可持续发展的国际环境，这将有助于包容的、公平的全球决策进程，有效代表人类的集体智慧和发展意愿，以实现共同繁荣。
BASIC Ministerial joint statement on Climate Change
20 September 2023
1. Ministers of Brazil, South Africa, India and China, representing the BASIC Group, met on 20 September 2023 at the margins of the Climate Ambition Summit, in New York, united by their shared vision that the fight against climate change must be firmly based on the goals, principles and provisions of the United Nations Framework Convention on Climate Change (UNFCCC), its Kyoto Protocol and its Paris Agreement, in the context of sustainable development and the transformation of global governance. The meeting was chaired by H.E. Ms. Marina Silva, Minister of Environment and Climate Change of Brazil, and attended by H.E. Ms. Barbara Creecy, Minister of Forestry, Fisheries and the Environment of South Africa; H.E. Mr. Zhao Yingmin, Vice-Minister of Ecology and Environment of China; and Ambassador R. Ravindra, Deputy Permanent Representative of Permanent Mission of India to the United Nations.
2. Ministers recognized that climate change represents one of the greatest challenges of our time and that addressing it requires progress towards sustainable development and the mobilization of all of humanity’s resources to tackle structural inequalities within and among countries, while paving the way for just transitions towards low-carbon and climate resilient societies.
3. Deeply concerned that trends towards unilateralism, trade protectionism and fragmentation of international cooperation jeopardizes trust and, consequently, ambitious climate action, the Ministers pledged to strengthen and deepen BASIC leadership and joint work in actions aimed at reducing greenhouse gas emissions, improving adaptation and resilience to the adverse effects of climate change, promoting unhindered technology transfer, and enhancing scientific climate knowledge, in particular through the creation of local value and the development of local capabilities in developing countries.
4. Ministers urged the international community to come together in a united front to combat climate change. They noted that achieving the United Nations Sustainable Development Goals (SDGs) must be the central priority for the international community, as the 2030 Agenda on Sustainable Development provides the systemic and long-term set of social, economic and environmental solutions that the complexity of climate change requires. They underscored that socioeconomic challenges pose systemic risks for developing countries, which must be addressed for achieving the ultimate objective of the UNFCCC and the long-term goals of its Paris Agreement. They called for global solidarity in ensuring that no country, place nor individual is left behind. They reiterated that BASIC is willing and ready to genuinely contribute its best effort and cooperate with all countries in addressing the climate challenge.
5. To break inertia in climate action, Ministers agreed to strengthening BASIC leadership, by launching a new vision on cooperation among BASIC from COP28 to COP30 and beyond that encompasses: firstly, enhancing BASIC coordination on the international climate change agenda, with a focus on the multilateral climate regime under UNFCCC; secondly, leveraging their countries scientific and academic dialogue; and, thirdly, expanding joint action and cooperation on sustainable development implementation and projects.
6. Ministers highlighted that despite the enormous developmental challenges and pressures of poverty eradication at a time of global economic downturn and economic recovery, the BASIC countries continue to lead by example and will demonstrate their highest ambition on climate action, in the context of their overarching sustainable development imperatives:
Brazil is back on the international agenda in 2023, raising the fight against climate change as a priority for the Brazilian government, alongside efforts to combat hunger, poverty and inequality. Deeply committed to strengthening multilateralism, Brazil has offered to host the 30th Conference of the Parties to the UNFCCC (COP30) in the Amazonian city of Belém. Also driven by the sense of urgency and gravity that the best available science warns us to, Brazil has offered to host the Amazon Summit, also in Belém, in August 2023. The "Belém Declaration" is the first ever political document to recognize the risk of the Amazon's tipping-point. Since President Lula took office, Brazil has committed itself to "zero deforestation," while relaunching the Amazon Fund and the Action Plan for the Prevention and Control of Deforestation in the Legal Amazon (PPCDAm), as well as the Inter-ministerial Committee on Climate Change (CIM), which has decided to adjust Brazil's NDC to the absolute levels originally presented in 2015. Brazil's adjusted NDC will enhance the country's emissions reduction ambition from 37% to 48% by 2025, compared to 2005, and from 50% to 53% by 2030. In August 2023, the Brazilian government announced an economy-wide "Ecological Transformation Plan," which consolidates the country's vision for a future of economic growth, with social inclusion and environmental preservation. In the first eight months of the new government, deforestation fell by 48%, which means that this alone has prevented around 200 million tons of carbon from being emitted. While committed to the principle of CBDR-RC, Brazil is also clear about its equally differentiated responsibility towards the most vulnerable countries, and will stand up fully to its responsibilities.
South Africa is guided by its National Development Plan, in the context of efforts to address the triple challenges of poverty, inequality and unemployment, as well as by its national framework on Just Transition and specific strategies, legislation and regulations addressing climate adaptation and mitigation. South Africa is undertaking the development of a comprehensive Adaptation Investment Plan to identify priority measures for the implementation of its National Climate Change Adaptation Strategy. A dedicated oceans and coast adaptation plan has been developed, as well as an Adaptation sectoral plan and risk and vulnerability assessment of all district municipalities. The Just Energy Transition Investment Plan (JET-IP) has been refined and parliament is finalising its climate change bill. South Africa is currently implementing a number of climate change mitigation interventions to facilitate implementation of its Low Emission Development Strategy, including the allocation of sectoral emissions reduction targets. Intensive work is underway on policy reforms and improving energy security and access, with progress towards larger-scale deployment of renewable energy. The JET-IP outlines the enormous scale and nature of investments needed to achieve decarbonisation goals. According to the plan, South Africa will need the investment of approximately US$98 billion over the next five years to enable part of the just transition and achieve the ambitious targets it has set out in its NDC. It also includes investment in local production of green hydrogen and electric vehicles, and investing in local economies to develop skills and enable economic diversification. This partnership presents an opportunity to develop a new and innovative model for financial support for just transitions in developing countries.
India displayed its spirit of multilateralism by calling upon G-20 nations to adopt a constructive attitude to fight climate change. India also urged that ambition for climate action must be matched with actions on climate finance and transfer of technology. This clarion call to nations was made with a vision of ‘One Earth, One Family, One Future’ to foster stronger international cooperation in combating common global challenges such as climate change. India has overachieved one of its NDC commitments by already meeting 40% of its installed power capacity from non-fossil fuel based sources almost nine years ahead of its committed time. India is on track to achieve other NDC goals. India is now implementing the National Green Hydrogen Mission, with the target is to reach an annual production of 5 MMT by 2030. India continues to insist that global carbon budget for maintaining the temperature increase within levels mandated by the Paris Agreement is a finite resource to which all Parties should have equitable access. Since developed countries have used more than their fair share of the global carbon budget, they should take lead in undertaking ambitious climate actions, including mitigation of emissions, and provide means of implementation support to developing countries as mandated under the UNFCCC and Paris Agreement.
China attaches great importance to addressing climate change, has formulated the 1+N policies and is committed to working actively and prudently toward the goals of reaching peak carbon emissions and carbon neutrality. China’s carbon intensity in 2021 was 50.8 percent less than that in 2005. China gives priority to the development of non-fossil energy. The total installed capacity of non-fossil energy power generation in China exceeded 1.4 billion kilowatts, counting for more than 51% of the total installed capacity amount. China provides 50% of the world's wind power equipment and 80% of the world's solar power generation equipment, making outstanding contributions to the reduction of global renewable energy costs. China has more than 16 million new-energy vehicles, counting for more than half of the worldwide amount. China launched the largest carbon market covering greenhouse gas emissions in the world. China has proactively adapted to climate change and has taken various measures to build up the carbon sink capacity of ecosystems, and achieved “double growth” in forest coverage and stock for the past 30 years. China has announced that it will strongly support the green and low-carbon development in developing countries by south-south cooperation and will stop building new coal-fired power projects overseas, demonstrating its concrete actions in response to climate change.
7. Ministers confirmed BASIC’s strong commitment and solidarity to all other developing countries, including by working closer together within the Group of 77 and China (G77+China). They reiterated their support for Cuba, as the current Chair of the G77+China, with a view to strengthening the unity of the group and advancing the common interests of all developing countries.
8. Ministers highlighted that the UNFCCC is the principal multilateral body for addressing climate change. Ministers pledged BASIC’s strong support to Brazil’s prospective presidency of COP30, in 2025, in the Amazon city of Belém do Pará. They also fully supported the United Arab Emirates Presidency of COP28, which will take place in Dubai, from 30 November to 12 December 2023. They underscored that the outcome of the first Global Stocktake (GST) at COP28 will be crucial to reinforce international cooperation and inform countries in updating and enhancing, in a nationally determined manner, their Nationally Determined Contributions (NDCs). They look forward to presenting their second NDCs to the Paris Agreement by 2025, when COP30 will be held. They committed to working together to ensure that the UNFCCC multilateral process from COP28 to COP30 provides a platform to unite the international community around enhancing the implementation of the Convention and its Paris Agreement. They also underscored the importance of COP28 delivering an ambitious, equitable, pragmatic, comprehensive and balanced outcome, including the first GST, the operationalization of the new Loss and Damage Fund, progress on the deliberations on the New Collective Quantified Finance Goal, the adoption of a robust framework for the Global Goal on Adaptation, as well as the implementation of the Mitigation Ambition and Implementation Work Programme (MWP) and the adoption of the Work Programme on Just Transition Pathways. They highlighted all dimensions of COP28 should focus on addressing implementation gaps through enhanced means of implementation.
9. Ministers underscored the critical importance of creating an international enabling environment for unlocking enhanced global climate action, whilst empowering countries to present their most ambitious next round of NDCs and to demonstrate progression relative to their earlier NDCs, based on the principle of common but differentiated responsibilities and respective capabilities, in the light of different national circumstances. They further underscored the urgent need for a fundamental transformation and modernization of the global financial architecture, including a systematic reform of the multilateral development banks to make them fit-for-purpose in supporting sustainable development, ecological transformation, and just and equitable transitions. They recalled the necessity of addressing risk aversion in investing in developing countries, of prioritizing grant support, and of dramatically lowering the cost of capital in all developing countries, as current cost and conditionality on borrowing money makes multilateral support out of reach of the majority of the world’s population, including in BASIC countries.
10. Ministers urged developed countries to abide by the principles of equity and common but differentiated responsibilities and respective capabilities and to scale up climate actions for them to reach climate neutrality without further delay and provide new and additional, sustained, predictable, adequate and timely finance to developing countries. They recalled that needs of developing countries are in trillions of USD, and concessional finance is crucial to avoid fiscal distress among developing countries. They further urged developed countries to honor their unfulfilled climate finance obligations, including delivering on the goal of jointly mobilizing USD 100 billion per year urgently by 2020 and through to 2025, at least doubling their collective provision of climate finance for adaptation to developing countries from 2019 levels by 2025, and putting forward a clear roadmap as early as possible, whilst committing to a new collective quantified goal that goes well beyond the floor of USD 100 billion per year and providing finance for the Loss and Damage funding arrangements and Fund. They recall the reports showing that trillions of USD are needed annually by developing countries for mitigation and adaptation actions and that an estimated two trillion dollars flow out of developing countries to feed development in the developed countries each year, due to factors such as unfair and exploitative terms of trade and historical and current dependency on the export of un-beneficiated raw materials. The Ministers also noted with concern that there has been a significant increase in the production and consumption of fossil fuels by developed countries in recent years, and encouraged them to take the lead in phasing-out their own fossil fuel production and consumption, in an accelerated manner.
11. Ministers expressed their strong rejection of unilateral and coercive measures that constitute a disguised restriction on international trade, and called on all partners to strive for cooperative solutions and partnerships for stimulating the production and trade access for sustainable goods and services. Ministers recognized existing efforts and partial results towards decarbonization by developed countries at the domestic level. They underscored, nevertheless, that at the international level selective, insufficient, and often ineffective action by developed countries has undermined confidence and, consequently, speed and scale in collective action for the decarbonization recommended by science, which points out to all of us the need for greater commitments and effective implementation. They highlighted we need to break the inertia of the results already obtained in order to leverage the results that are necessary.
12. Determined to building trust among all countries, BASIC Ministers committed to broadening, deepening and diversifying their joint efforts towards a strengthened and effective global governance for the implementation of the principles and goals enshrined under the UNFCCC, its Kyoto Protocol and its Paris Agreement. They expressed their firm commitment to contributing to an international environment that is conducive to sustainable development and to inclusive and equitable global decision-making processes that are effectively representative of humanity’s collective intelligence and development aspirations, with a view to shared prosperity.
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