The Government has announced that Australia will cut
greenhouse gas emissions by 26 to 28 per cent by 2030, ahead of the
Paris climate change conference in December.
- Claim one: Tony Abbott says Australia's per capita emissions targets for 2030 are "the best in the developed world".
- Verdict one: Australia's
per capita emissions targets are behind the developed nations of
Switzerland, Norway and Iceland. Mr Abbott is incorrect.
- Claim two: Mr Abbott says that Australia's absolute emissions targets for 2030 are neither "leading" nor "lagging" the field.
- Verdict two: Australia
is behind a number of western nations, but sits in front of both Japan
and South Korea, and is comparable to New Zealand and Canada. Mr
Abbott's claim is justified.
Prime Minister Tony Abbott told ABC Radio's AM program
that Australia's goal
was environmentally and economically responsible and said he was
confident Australia could achieve it "without clobbering jobs and
growth".
"Look, what we are doing on a per capita basis, on a per
person basis, is the best in the developed world. And what we are doing
on an absolute basis, we're not leading the field but we're certainly
not lagging the field either," he said.
But some, including the Opposition spokesman for the Environment
Mark Butler and chair of the
Climate Change Authority Bernie Fraser have disputed the claim that Australia is pulling its weight compared with other developed countries.
How do Mr Abbott's claims about Australia's post-2020 emissions targets stack up? ABC Fact Check investigates.
Setting the targets
The United Nations
convention on climate change will meet in Paris in December to achieve
international agreement on how to keep global warming below two degrees celsius.
Each country party to the convention has agreed to
publish its national contribution to reducing global warming before the meeting.
The
new agreement follows the two rounds of international emissions targets made under the Kyoto protocol and will come into force in 2020.
Australia has pledged, under a Paris Agreement, to reduce greenhouse gas emissions by 26 to 28 per cent below 2005 levels by 2030.
The
submission to the UN climate change convention notes that Australia's
target doubles its rate of emissions reductions compared with the
previous 2020 commitment.
"Across a range of metrics, Australia's target is comparable to the targets of other advanced economies," it says.
Defining the developed world
Mr Abbott compared Australia's new emissions targets with the "developed world".
He compared Australia with the US, Canada, EU, New Zealand, Japan, South Korea and China.
There's no international consensus on what constitutes the developed world, but frequently cited measures include the
International Monetary Fund's advanced economies
(which are classified on per capita income and export diversification),
members of the Organisation for Economic Co-operation and Development,
and countries that the UN considers have a very high
human development index (HDI), based on life expectancy, standard of living and education.
The
UN also defines two groups
of countries based on their emissions commitments — the industrialised
countries and the developing countries. The industrialised list is based
on countries that were members of the OECD in 1992, plus countries with
economies in transition, including Russia and Eastern European
countries and former countries of the Soviet Union.
The UN says
its classification takes into account that "developed countries are
principally responsible for the current high levels of greenhouse gas
emissions in the atmosphere as a result of more than 150 years of
industrial activity".
Twenty-eight countries and the EU have so far
submitted their emissions target commitments for the Paris conference
to the UN.
Fact
Check considers 11 of these countries or regions to be the developed
world (see table below). The list excludes the principalities of
Liechtenstein and Monaco on the basis of size.
All except
Singapore and South Korea are regarded by the UN convention on climate
change, the IMF, the OECD and the UN human development index as
developed countries.
Singapore is regarded as an advanced country
by the IMF and the UN HDI, and South Korea is regarded as an advanced
country on all measures except the UN convention on climate change
index.
Target contribution to reducing greenhouse gas emissions |
| Country | Per cent reduction | Baseline year | Target year |
| Australia | 26 to 28 | 2005 | 2030 |
| Canada | 30 | 2005 | 2030 |
| EU (28 countries) | At least 40 | 1990 | 2030 |
| Iceland | 40 | 1990 | 2030 |
| Japan | 26 | 2013 | 2030 |
| New Zealand | 30 | 2005 | 2030 |
| Norway | At least 40 | 1990 | 2030 |
| South Korea | 37 per cent from business as usual levels by 2030 | - | 2030 |
| Switzerland | 50 | 1990 | 2030 |
| US | 26 to 28 | 2005 | 2025 |
| Singapore | Stabilise emissions peaking around 2030 | - | 2030 |
| Source: UN INDCs as communicated by parties |
Choosing the baseline year
The UN does not specify which baseline year each country should use to calculate its emissions reduction targets.
CSIRO
ecologist Dr Pep Canadell told Fact Check all countries choose a
baseline year that is as high as possible to make their emissions
reductions appear favourable.
"The reason people chose 2005 was
because it was prior to the global financial crisis when growth and
emissions, went down in many countries," Dr Canadell, who is executive
director of the Global Carbon Project, a global partnership of climate
scientists, said.
Data from the Department of the Environment shows that Australia's emissions reached a 25-year peak in 2005-06.
Comparing absolute emissions reductions
Mr
Abbott claimed that Australia's absolute emissions reductions are "not
leading" and "certainly not lagging" the developed world.
A spokesman for the Prime Minister told Fact Check this claim was based on data from the
Department of the Environment
comparing Australia with China, South Korea, Japan, EU, US, Canada and
New Zealand using 2005 as a baseline and comparing targets for 2030.
The presentation notes that the US targets are for 2025.
Fact
Check calculated the absolute emissions reductions of all developed
countries, as defined above, that have declared their targets to the UN,
using a baseline of 2005 and a target of 2030 to compare with
Australia.
Climate advisory panel
- A panel of experts has agreed to advise ABC Fact Check for its work on climate issues.
- For this fact check, all members of the panel were consulted.
- Meet the full panel.
Singapore was omitted from the analysis because its emissions will increase over the time frame, peaking in 2030.
The data is derived from the UN
greenhouse gas inventory for each country.
Emissions reductions for the US in 2030 were calculated by extrapolating a straight line from its 2020 and 2025 targets.
For countries with a 1990 baseline, their 2005 actual emissions were used as a comparison with 2030.
South
Korea has defined a "business as usual" target, which predicts its
emissions cuts up to a target date but does not define a baseline.
Its emissions reductions for 2030 were taken from the Department of the Environment data.
The department predicts that South Korea will cut its emissions by 4 per cent by 2030 compared with a baseline year of 2005.
However,
Malte Meinshausen, a senior research fellow at the University of
Melbourne's school of earth sciences and a member of Fact Check's
climate advisory panel, told Fact Check that South Korea would reduce
its emissions by 2 per cent in 2030, based on his own calculations.
Developed world 2030 emissions reductions on 2005 baseline year (%)
UN greenhouse gas data, total emissions for all countries includes land
use and forestry activities, except Norway. Australian emissions for
2005 taken from Department of Environment data; Korea 2030 target taken
from Environment Department data
The results match the
Government's data
comparing Australia's absolute reductions with Canada, Japan, EU, South
Korea and New Zealand and the results for Australia, the US and Canada
were independently verified by David Karoly, a professor of atmospheric
science at Melbourne University's school of earth sciences.
Middle of the pack?
The data shows that Australia comes in at ninth out of 11 countries, ahead of Japan and South Korea.
Australia's
lower target of 26 per cent is only just ahead of Japan and
substantially better than South Korea's projected four per cent.
Canada and New Zealand, with targets of 30 per cent, are close to Australia's upper target of 28 per cent.
However,
the EU (34 per cent) and the US (35 to 39 per cent) are substantially
ahead of Australia and the targets for Iceland, Norway and Switzerland
are a long way ahead.
Professor Meinshausen told Fact Check the US
targets were 33 to 35 per cent when taking into account its net-net
land use accounting.
Net-net accounting
means that the land use emissions for each year are subtracted from the
baseline year of 1990 rather than just accounting for the gross net
emissions each year, which can result in significant emissions credits
due to the legacy effects of pre-1990 land use activities.
Professor
Karoly's analysis also included the UK and Germany which, although they
are not compelled to announce separate targets to the EU, will aim to
reduce their emissions by 60 per cent and 45 per cent, respectively.
Dr
Canadell told Fact Check the Prime Minister's claim was largely correct
with regard to Australia's absolute emissions reductions, if the field
was considered to be the developed world
.
"[But]
if the pack is the EU, we're behind the big pack, but extend it to the
rest of the developed world and we are somewhere in the middle," he
said.
The
Climate Change Authority
said the Government's emissions targets put Australia "at or near the
bottom of the group of countries we generally compare ourselves with".
These countries were
the UK, Switzerland, Germany, Norway, US, EU, Canada, New Zealand, Japan, China and South Korea.
Dr Canadell said being ahead of Japan in absolute emissions reductions was not a great comparison.
"Japan
has an incredible energy crisis," he said. "They shut down 30 per cent
of their nuclear energy production [as a result of the Fukushima nuclear
disaster] and are now reopening them but have huge uncertainty for
their future energy."
Comparing per capita emissions
Hugh
Bromley, an associate analyst with Bloomberg New Energy Finance, an
independent research firm of 200 energy and carbon market specialists
providing research to banks, governments and energy companies,
told Fact Check that every government emphasised different emissions metrics over others.
"Different
governments will take a view, rightly or wrongly, that a population
basis, or intensity basis, or absolute reductions level target is more
comparable or relevant to their economy," he said.
The Government's information notes that Australia's population and economy is growing faster than most other developed countries.
As a result, Australia's population growth of 1.5 per cent a year to 2030 will push up its emissions.
Mr Abbott claimed that what Australia is doing on a per capita basis is the best in the developed world.
"So
look, the other point to make is that when you look at emissions per
person, we've got a 50 per cent reduction, which is the best outcome of
any of the developed countries which have so far pledged a target for
Paris," he said.
Fact Check calculated Australia's emissions
reductions per capita and compared them with the other developed
countries who have declared their post-2020 targets.
The
Department of the Environment data is in agreement with Fact Check's
calculations for Australia, the US, New Zealand, the EU, Canada, Japan
and South Korea but the department did not include Switzerland, Iceland
or Norway.
The data was checked by each of the experts Fact Check spoke to.
Emissions per capita change 2005-2030 (per cent)
 |
| Source: UN greenhouse gas data, total emissions for all countries (exc.
Norway and Australia - includes land use) and forestry activities );
Australian emissions for 2005 taken from Department of the Environment
data; Korea 2030 target taken from Environment Department data.
Population data from UN 2015 revision of World Population Prospects,
except Australia (from 2015-16 budget projections and ABS historical
data) |
The results show that Australia will aim to
cut its emissions per person by around 50 per cent by 2030, exceeded
only by Switzerland, Norway and Iceland, though the latter's per capita
reductions are almost identical to Australia.
The Department of
the Environment used projected population data from the 2015-16 budget
to calculate the per capita emissions for 2030.
When the UN population data is used, Australia's per capita emissions are 47 to 49 per cent by 2030.
The chart above uses the Government's more favourable per capita emissions numbers.
The per capita emissions reductions for the US upper limit, of 49 per cent, are also very similar to Australia.
In
addition, Professor Karoly's analysis shows that the UK's emissions per
person will be reduced by 67 per cent from 2005 to 2030.
But Australia has the highest population growth of any of these developed countries, growing 50 per cent by 2030.
While
that makes the task of reducing emissions per person easier, it makes
the task of reducing overall emissions more difficult.
However, Dr
Canadell said the results show that Australia was the highest per
capita emitter of the group and would remain so in 2030 with emissions
per capita around 14 to 15 tonnes of CO2 per person, closely followed
by Canada on 13.7 tonnes of CO2 per person.
"It means that we are
so carbon intensive per capita that coming down should be much easier
than [countries like] Japan," he said. "They are already much cleaner to
begin with which means that additional cleaning is becoming harder and
harder for them."
Japan is the only one of the developed countries
with a shrinking population and yet is still aiming to cut its per
capita emissions by 21 per cent.
Dr Canadell said only the oil rich countries in the Middle East were higher per capita emitters than Australia.
A fair comparison?
All
the experts Fact Check spoke to highlighted the difficulties of
comparing Australia's emissions targets with other countries.
Dr
Canadell said comparing Australia to Switzerland was problematic because
Switzerland, like many European countries, "outsourced" its carbon
emissions to other countries because they have almost no production of
goods.
"If a country was to decide we're going to shut down our
heavy industry so we don't pollute and we'll buy everything from China
or Vietnam, that will appear good in your carbon accounting but it does
nothing to the global pursuit for carbon neutralisation," he said.
Australia
often compares itself to Canada on emissions measures because Canada is
a resource rich, large land mass country with a small population.
The data shows Canada will have similarly high emissions per person in 2030 and cuts almost as large, as Australia.
Mr
Bromley told Fact Check the difference between Australia and most of
the countries it compares itself with is that Australia has a
high-polluting energy sector.
"We have such a low population density that there's a lot of emissions already in the system that can be abated," he said.
"Whereas
if you have hydro power or geothermal energy as Canada and New Zealand
do, there's very little you can do in the power system to make it more
efficient or reduce emissions."
He said that comparing emissions targets among countries is "the great challenge".
"This is why climate negotiations have taken the better part of two decades to get to where they are now and that's not far."
Verdict: Per capita emissions
Mr
Abbott claims that what Australia is doing on a per capita basis on
proposed emissions targets is the best in the developed world.
Fact Check's analysis shows that Australia
will cut its emissions per person by 50 per cent by 2030 but
Switzerland, Norway and Iceland will cut their emissions per capita by
up to 10 percentage points more.
Even using the Government's more
generous interpretation, based on its population estimates, Australia's
per person emissions reductions are still not close to those countries.
In
addition, Australia's rate of per capita emissions, one of the highest
in the world, will still be the highest among developed countries in
2030.
Mr Abbott's claim on per capita emissions is incorrect.
Verdict: Absolute emissions
The Prime Minister also claims that
Australia's recently announced carbon emission targets are "not leading"
and "certainly not lagging" the developed world in terms of absolute
emissions.
The data on countries that have submitted their targets
to the UN shows that Australia's targets are ninth of 11 developed
countries and only just ahead of Japan, whose emissions targets have
been negatively affected by the Fukushima nuclear disaster.
Nonetheless,
Australia's emissions reduction targets of 26 or 28 per cent are close
to those of New Zealand and Canada on 30 per cent.
Mr Abbott's claim on absolute emissions is justified.
Sources
- Tony Abbott, ABC radio AM, August 12, 2015
- Mark Butler, ABC radio breakfast, August 11, 2015
- Bernie
Fraser, Statement - some observations on Australia's post-2020
emissions reduction target, Climate Change Authority, August 14, 2015
- Paris 2015 UN climate change conference, What is COP21/CMP11?
- United Nations Framework Convention on Climate Change, Intended Nationally Determined Contributions
- United Nations Framework Convention on Climate Change, Kyoto protocol
- Australian Government, Australia's intended nationally determined contribution to a new climate change agreement, August 2015
- International Monetary Fund, World economic outlook, April 2015
- United Nations development programme, Human Development Reports
- United Nations Framework Convention on Climate Change, parties and observers
- United Nations, Intended nationally determined contributions, as communicated by parties
- Department of the environment, Australia's emissions projections 2014-15, March 2015
- Australian Government, Australia's post-2020 emissions reduction target, press conference August 11, 2015
- United Nations Framework Convention on Climate Change, Greenhouse gas inventory data - detailed by party
- Iversen, Lee and Rocha, Understanding land use in the UNFCCC, May 2014
- Australian Government, Australia's 2030 climate change target, 2015
- United Nations, World population prospects, the 2015 revision
- Australian Government, 2015-16 budget paper number 3, appendix A
- Australian Bureau of Statistics, Australian historical population statistics, 2014