By Hon. Prof. Kariuki Muigua, OGW, PhD, C.Arb, FCIArb is a Professor of Environmental Law and Dispute Resolution at the University of Nairobi, Member of Permanent Court of Arbitration, Leading Environmental Law Scholar, Respected Sustainable Development Policy Advisor, Top Natural Resources Lawyer, Highly-Regarded Dispute Resolution Expert and Awardee of the Order of Grand Warrior (OGW) of Kenya by H.E. the President of Republic of Kenya. He is The African ADR Practitioner of the Year 2022, The African Arbitrator of the Year 2022, ADR Practitioner of the Year in Kenya 2021, CIArb (Kenya) Lifetime Achievement Award 2021 and ADR Publisher of the Year 2021 and Author of the Kenya’s First ESG Book: Embracing Environmental Social and Governance (ESG) tenets for Sustainable Development” (Glenwood, Nairobi, July 2023) and Kenya’s First Two Climate Change Law Book: Combating Climate Change for Sustainability (Glenwood, Nairobi, October 2023), Achieving Climate Justice for Development (Glenwood, Nairobi, October 2023) and Promoting Rule of Law for Sustainable Development (Glenwood, Nairobi, January 2024)*
The Loss and Damage Fund is designed to provide financial assistance to nations most vulnerable and impacted by the effects of climate change. It recognizes the injustices caused by climate change whose impacts are more severe in developing countries. Its adoption will add a third pillar to the global climate finance landscape alongside mitigation and adaptation. The COP 28 outcome is a key milestone towards the operationalization of the Loss and Damage Fund.
There is need to implement the outcome in order to reap the benefits presented by the Loss and Damage Fund. In addition, it is imperative to close the global climate financing gap and address the root causes of climate change in order to effectively confront climate change. Operationalizing the Loss and Damage Fund is an important global agenda that needs to be achieved in order to unlock climate finance and foster climate justice.
At COP 28, parties of the UNFCCC reached a historic agreement on the operationalization of the Loss and Damage fund and funding arrangements. The decision sets out the purpose of the Fund which is to assist developing countries that are particularly vulnerable to the adverse effects of climate change in responding to economic and non-economic loss and damage associated with the adverse effects of climate change, including extreme weather events and slow onset events.
The Agreement invites the World Bank to operationalize the Fund as a World Bank hosted financial intermediary fund for an interim period of four years. According to the Agreement, the Loss and Damage Fund will endeavour to assist those countries that are vulnerable to the adverse impacts of climate change in mobilizing external finance to strengthen their efforts to respond to loss and damage while supporting both the achievement of international goals on Sustainable Development and the eradication of poverty.
The Decision sets out the scope of the Fund which is to provide finance for addressing a variety of challenges associated with the adverse effects of climate change, such as climate-related emergencies, sea level rise, displacement, relocation, migration, insufficient climate information and data, and the need for climate-resilient reconstruction and recovery. The Fund will focus on priority gaps within the current landscape of institutions, including global, regional and national institutions, that are funding activities related to responding to loss and damage.
In relation to the legal status of the Loss and Damage, the COP 28 decision sets out that the Fund will possess international legal personality and appropriate legal capacity as is necessary for the exercise of its functions, the fulfilment of its objectives and the protection of its interests, in particular the capacity to enter into contracts, to acquire and dispose of movable and immovable property, and to institute legal proceedings in defence of its interests.
In addition, in terms of the relationship of the Fund to the Conference of the Parties and the Conference of the Parties serving as the meeting of the Parties to the Paris Agreement, the COP 28 decision provides that the Fund will be designated as an entity entrusted with the operation of the Financial Mechanism of the Convention, which also serves the Paris Agreement, and will be accountable to and function under the guidance of the Conference of the Parties (COP) and the Conference of the Parties serving as the meeting of the Parties to the Paris Agreement.
The COP 28 decision further stipulates that the Loss and Damage Fund will be governed and supervised by a Board that is its decision-making body. The Board will have responsibility for setting the strategic direction of the Fund and for the Fund’s governance and operational modalities, policies, frameworks and work programme, including relevant funding decisions.
Further, in terms of eligibility, the COP 28 decision sets out that developing countries that are particularly vulnerable to the adverse effects of climate change are eligible to receive resources from the Fund. The Fund is intended to promote and strengthen national responses for addressing loss and damage through pursuing country-led approaches, including through effective involvement of relevant institutions and stakeholders, in particular women, vulnerable communities and Indigenous Peoples.
In order to foster access to financial resources by developing countries, the COP28 decision requires the Fund to develop simplified procedures and criteria for fast-tracked screening to determine functional equivalency with internationally recognized standards of national and/or regional funding entities’ safeguards and standards to manage funded programmes and projects in country, as appropriate. In addition, in terms of financial inputs, the COP 28 outcome provides that the Fund is able to receive contributions from a wide variety of sources of funding, including grants and concessional loans from public, private and innovative sources, as appropriate.
In relation to financial instruments, the COP 28 outcome provides that the Fund will provide financing in the form of grants and highly concessional loans on the basis of the Board’s policy for the provision of grants, concessional resources and other financial instruments, modalities and facilities. In addition, the Fund may deploy a range of additional financial instruments that take into consideration debt sustainability (grants, highly concessional loans, guarantees, direct budget support and policy-based finance, equity, insurance mechanisms, risk- sharing mechanisms, pre-arranged finance, performance-based programmes and other financial products, as appropriate) to augment and complement national resources for addressing loss and damage.
The COP 28 outcome also requires programmes, projects and other activities financed by the Fund to be regularly monitored for impact, efficiency and effectiveness. The cop 28 outcome is therefore important in operationalizing the Loss and Damage Fund and expanding the landscape of climate finance. Operationalization of the Fund has been described as an essential tool to deliver climate justice. It is therefore necessary to implement the COP 28 outcome in order to operationalize the Loss and Damage Fund.
In addition, it has been asserted that the loss and damage funds should be new and additional – and come as grants not loans in order to fulfill the purpose of the Fund. It is also imperative for the world to close the climate financing gap. It has been highlighted that the current climate change funding pledges fall far short of what is actually required to mitigate the worst impacts of climate change and to deal with the unavoidable consequences. Developed countries have failed to deliver on an agreed climate finance target of $100 billion annually by 2020 resulting in inadequacy, imbalance and unpredictability of climate finance flows to developing countries thus affecting implementation of mitigation and adaptation measures in developing countries.
There is an apprehension that the Loss and Damage Fund may suffer from the same fate of inadequate funding thus affecting the response to climate change in vulnerable countries. The world urgently needs to find more resources for mitigation, adaptation and loss and damage so that climate change will not erode humanity’s chances to deliver on the Sustainable Development Goals.
Finally, it is imperative to confront the global problem of climate change by addressing its root cause through reducing greenhouse gas emissions. Unless this is achieved, more countries will continue to face the devastating effects of climate change. This calls for all countries especially the developed countries which are the largest contributors to global greenhouse emissions to comply with their climate commitments under the Paris Agreement as set out in their Nationally Determined Contributions (NDCs). Through this, the threat of climate change will be minimized and the Loss and Damage Fund will only be required in extreme cases.
The Loss and Damage Fund holds immense promises in enhancing the global response to climate change. It can unlock climate finance and foster climate justice. There is need to operationalize the Fund in order to provide financial assistance to nations most vulnerable and impacted by the effects of climate change towards climate justice.
*This is an extract from the Book: Promoting Rule of Law for Sustainable Development (Glenwood, Nairobi, January 2024) by Hon. Prof. Kariuki Muigua, OGW, PhD, Professor of Environmental Law and Dispute Resolution, Senior Advocate of Kenya, Chartered Arbitrator, Kenya’s ADR Practitioner of the Year 2021 (Nairobi Legal Awards), ADR Lifetime Achievement Award 2021 (CIArb Kenya), African Arbitrator of the Year 2022, Africa ADR Practitioner of the Year 2022, Member of National Environment Tribunal (NET) Emeritus (2017 to 2023) and Member of Permanent Court of Arbitration nominated by Republic of Kenya. Prof. Kariuki Muigua is a foremost Environmental Law and Natural Resources Lawyer and Scholar, Sustainable Development Advocate and Conflict Management Expert in Kenya. Prof. Kariuki Muigua teaches Environmental Law and Dispute resolution at the University of Nairobi School of Law, The Center for Advanced Studies in Environmental Law and Policy (CASELAP) and Wangari Maathai Institute for Peace and Environmental Studies. He has published numerous books and articles on Environmental Law, Environmental Justice Conflict Management, Alternative Dispute Resolution and Sustainable Development. Prof. Muigua is also a Chartered Arbitrator, an Accredited Mediator, the Managing Partner of Kariuki Muigua & Co. Advocates and Africa Trustee Emeritus of the Chartered Institute of Arbitrators 2019-2022. Prof. Muigua is a 2023 recipient of President of the Republic of Kenya Order of Grand Warrior (OGW) Award for his service to the Nation as a Distinguished Expert, Academic and Scholar in Dispute Resolution and recognized among the top 5 leading lawyers and dispute resolution experts in Band 1 in Kenya by the Chambers Global Guide 2022 and was listed in the Inaugural THE LAWYER AFRICA Litigation Hall of Fame 2023 as one of the Top 50 Most Distinguished Litigation Lawyers in Kenya and the Top Arbitrator in Kenya in 2023.
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