Global Climate Change Policy (UNSC)

Fictional, set in the present day. Developed countries have been releasing greenhouse gases into the atmosphere since the dawn of the Industrial Revolution. In recent decades, rapid economic growth in major developing countries such as China, India, and Brazil have led to significant increases in their own greenhouse gas emissions. The Intergovernmental Panel on Climate Change (IPCC), and other organizations and governments have concluded that the warming observed in recent decades is a consequence of human activity. The effects of this global warming or climate change pose risks not only to the environment, but also to the security and livelihoods of people around the world, both now and in the future. Various international responses are possible, but the questions of how to cut emissions and prepare for climate consequences, and who should bear the costs of doing so, have few simple answers. UN Security Council members will need to weigh the options, bearing in mind the potential impact of climate change, the potential effects of proposed measures to limit or prevent it, and the need to secure international support for the multilateral approach from both developed and developing countries.  

A major climate summit is approaching. At the UN climate summit in Paris in 2015, world leaders pledged to reduce or limit their countries’ emissions and to monitor progress toward these goals. However, a new scientific report warns that governments will need to make urgent and unprecedented changes beyond their commitments under the Paris Agreement to avoid serious and potentially irreversible environmental consequences. Despite this alarming information, countries have taken relatively few additional steps toward meeting ambitious targets and in some cases have even retreated from their climate commitments to the Paris Agreement. 

As a part of the upcoming summit, the UN Security Council is convening. The Council will discuss, and take possible action on, the issue of climate change. Historically, the UN Security Council has not taken serious action on climate change. This has left climate action under the auspices of states and other UN bodies. In recent years, the council has begun to discuss the effects of climate change on global security. In light of the growing threat that climate change poses, members will need to decide whether addressing climate change is within the Security Council’s purview. If so, the Council will then decide on what actions are available that could address climate change generally or limit its effects on global peace and security. 

CFR Education extended simulations use a variety of pedagogical tools to create an effective, meaningful, and memorable learning experience for students that builds their global literacy. Students will develop crucial skills such as critical thinking, communication, collaboration, and creativity. Students will complete authentic assessments that feel relevant: instead of five-paragraph essays and book reports, students will write policy memos and participate in a role-play of a meeting of a foreign policy–making body. There are no right or wrong answers in actual policy deliberations, and there are none here, either; students will walk away from this experience with an appreciation for the complexity of policy questions.

In this simulation, students will learn about the UN Security Council, as well as meeting these learning outcomes specific to this simulation:

Concepts  

Issues  

This section presents context, potential benefits and drawbacks, and other information about the policy options outlined in the case that you may find helpful as you guide the role-play and assess students. 

The UN Security Council’s task is to determine what its role is in addressing climate change and how the Security Council should approach the intersection between climate and security moving forward. As members decide what, if any, action the Security Council should take on climate change, they will need to consider how to gain the unanimous approval of the five veto-wielding permanent members of the Security Council, whose diverging interests could be a barrier to robust action.

Policy Options 

The United Nations has been involved in addressing climate change for nearly fifty years. However, the first UN Security Council meeting that addressed the connection between climate change and insecurity did not take place until April 2007. The council has increasingly held meetings to discuss the connections between climate and security in the past decade. That being said, the first climate security resolution was not passed until March 2017. Resolution 2349 primarily addressed protection for civilians from terrorist acts by Boko Haram in the Lake Chad Basin.  The resolution also recognized climate-related risks that would continue to destabilize the region. Effects of the resolution on environmental monitoring remain weak. In recent years, some countries have used their presidential terms at the UN Security Council to organize high-level debates on climate and security risks.  For example, Germany used its term to establish an informal expert group on climate-related risks to peace and security, which first met in November 2020 and focused on Somalia. 

Within the United Nations, the Security Council has the unique authority to adopt resolutions that are considered binding on member states. It also has significant authority to coordinate action across multiple agencies and organizations within the United Nations. Despite multiple UN agencies addressing climate change at different levels already, the UN Security Council has yet to use this authority to address climate issues directly.

So far, council members have not reached a consensus about whether the Security Council should specifically address climate change. In 2021, Ireland and Niger jointly sponsored a draft resolution acknowledging the effects of climate change on security issues. They called for greater consideration of climate issues in future Security Council matters. The resolution gained the support of twelve members, but ultimately failed after Russia vetoed it.

As the threat of climate change grows and its effects on global security become more apparent, Security Council members will likely need to revisit questions of the Council’s role in addressing climate issues. Several members of the council as well as small island states and developing states could argue that climate change represents a security concern. Such a concern could require climate-related assistance to those most directly affected. Other member states could counter that climate change is not in-and-of-itself a threat to international peace and security. Taking this position would mean climate change is outside the purview of the Security Council, which has traditionally only dealt with acute threats. Considering the major warnings expressed by climate experts, some member states could call for the creation of a more robust climate agreement that implements market-based approaches to mitigate climate change. 

As members decide what action the Security Council should take on climate change, they will need to consider how to gain the unanimous approval of the five veto-wielding permanent members of the Security Council. Diverging interests among the permanent members could be a barrier to robust action.
In their deliberations, Security Council members will first need to decide whether it is appropriate for the Security Council to take action on climate change at all. If they do elect to take action, members could consider several options:

Formally Expand the Scope of the UN Security Council to Reflect Climate Change as a Threat to International Security

The UN Security Council could decide that climate change represents a threat to international peace and security. Therefore it would fall  within the council’s purview to address. In its most ambitious form, this option could entail adopting a resolution authorizing peacekeeping missions to climate-threatened areas change–related food and water scarcity. As climate driven scarcity and displacement grows more acute, a peacekeeping force could maintain stability and ensure access to humanitarian aid. 

The Security Council could further demand that member states allow regular independent risk assessments of their mitigation strategies to ensure they are compatible with UN climate goals. Members could also consider addressing climate risks to international security by building out early-warning systems and commissioning annual reports on climate and security. They could further create a Climate Security Committee within the council to institutionalize future climate-related action and coordinate the activity of other UN organs to address climate risks.

This option would represent an unprecedented expansion of the Security Council’s operations. However,  it could allow for a robust international climate response and mitigate many security risks posed by climate change. It is likely to be controversial and could alienate large emitters such as China. 

Call for a Renegotiation of the Paris Agreement

Considering the security risks raised by climate change and the insufficiency of the Paris Agreement as outlined by climate experts, members could decide to adopt a resolution calling for renewed climate negotiations. This move could prompt the creation of a more robust climate agreement with stricter emissions targets. 
A new international climate agreement could also adopt new measures to secure emissions reductions, including:

A binding, international agreement would be the most ambitious goal and could have the most benefit. However, it also faces the most obstacles. Such an agreement would be expensive for countries to implement. Stringent climate standards could drive up prices on many goods, potentially harming those living in poverty. Developed and developing countries often disagree on who should bear the main responsibility for mitigation efforts. This makes an agreement that binds countries to specific steps difficult to achieve. Member states could consider whether to mandate subsidies as a method of offsetting the financial consequences of any agreement. Both cap-and-trade systems and carbon taxes are also politically controversial in many countries, including the United States. Given these obstacles, member states will need to consider how to ensure maximum participation in negotiations. If climate activists and leaders perceive that an agreement stronger than the Paris Agreement cannot be reached, they could opt to not partake in new negotiations. On the other hand, if an agreement is perceived as too severe, it could drive major emitters away. 

Implement Climate-Related Assistance 

The UN Security Council could adopt a resolution requiring high-emitting member states to provide financial, technological, or professional assistance to poorer countries to help them mitigate their emissions, develop or adopt new technology, or adapt to climate change. 

Wealthier countries could, for example, directly finance green projects in developing countries, including renewable power plants and anti-deforestation initiatives. Many countries and organizations, including the United States and international financial institutions, have already been doing this through climate funds. Adaptation assistance likewise could take many forms. These adaptations could include support such as sharing better climate information, providing drought-resistant seeds to help farmers better cope with climate effects, and assisting in infrastructure improvements such as flood protection systems.

Climate-related assistance, whether pursued alone or as part of a broader approach, is subject to debate. Advocates often argue that it is morally necessary because many poor countries have done little to contribute to climate change but are likely to suffer some of its worst effects. Such assistance could also have practical political effects. It demonstrates that industrialized countries are willing to address the concerns and needs of developing countries. This can increase the willingness of developing countries to join global mitigation efforts. Nevertheless, members could simply not want to commit their resources to providing assistance for other countries or they could not consider climate a priority security issue for the UN Security Council. 

CFR Education extended simulations are project-based learning activities. Project-based learning (PBL) leads to better learning outcomes and improves skills, and is more fun than traditional instructional methods. The website that students will navigate throughout the simulation is divided into several parts:

In the UNSC Guide, students will learn about the UN Security Council, the body they will be simulating. Included are details on its history, how it works, who its major players are, and more. There is also a video interview with experts who have served on the body.

In the Case Notes, students dive into the actual situation they will be trying to solve in their simulation. At the beginning is a clear decision point: the question that students will debate during the role-play. This is followed by detailed background material and a discussion of the role that the United Nations plays.

Preparation and Role-Play includes details on the various roles students could take on, guidelines for the draft resolution clauses they will write, as well as an outline of how the discussion will flow during the role-play.

The Wrap-Up is an important part of the project and includes reflection questions and guidelines for reflecting in a class discussion and in a second memorandum. For historical cases, this section also includes a short description of how the decision point was addressed by policymakers in real life.

The simulation also includes Student Resources, which include a reading list to support research, additional directions and exemplars for writing assignments, and other tips students may find helpful.

Once students have read the simulation and prepared their draft clauses, here is how we recommend structuring the role-play:

Tips for the President of the UN Security Council
In Round 1, you will chair a formal session. Make absolutely sure that every country gives their opening statement before any country is allowed to speak a second time. You will also have to use your judgment about when to move into the more informal meeting of Round 2. Give enough time for students to flesh out their positions and to identify potential allies, but do not wait too long—the most productive negotiations happen in informal meetings, so you want to save time for those in Round 2.

In Round 2, you will call on speakers one at a time. The time limits on speeches are a little looser, so pay close attention to make sure everyone is included and no one dominates. Deciding whether to grant a break for negotiations is a matter of balance. Negotiations can be advanced in small-group discussions, but it is also important for the whole body to be updated on what goes on during the breaks. You will want to strike a balance between breaks for negotiating, and informal meeting time for giving updates and rounding up support for resolutions. It is often helpful to set a deadline for the end of Round 2 to encourage negotiators to come to agreements in a timely manner.

In Round 3, completed draft resolutions will be presented, discussed, and voted on. Before starting, make sure you are clear on the order in which the resolutions were submitted and who is sponsoring each one. When it comes time to vote, it will be helpful to remind everyone of the unique voting rules of the Security Council. If none of the resolutions passes, you can allow further debate and attempt to vote again, or you can move on and guide the council through debate on a presidential statement. Use your judgment about which process is more likely to be successful.

Tips for Online Classes

We suggest conducting the role-play in three rounds and that three-round structure is a helpful way to approach chunking the role-play for online learning as well. You can conduct each round synchronously or asynchronously.

In round one, participants present their positions.

In round two, participants debate the various policy options.

In round three, debate begins to coalesce around the draft resolutions that have substantial support.

This case offers no flashpoints.

Each CFR Education extended simulation involves writing assignments that help students think through policy options and reflect on their learning experience.

In UNSC cases, there are two types of writing assignments.

Simulations have instructions for written assignments (found under the Student Facing Simulation), rubrics, and samples for each of these writing exercises. 

Samples:

Below are sample rubrics for your use in assessing the writing students will do as part of this extended simulation.

These are single-point rubrics. Jennifer Gonzalez, who writes the blog Cult of Pedagogy, has a great explainer, but the bottom line is that single-point rubrics are relatively easy for students to digest but still have all the advantages of giving structure to instructors’ feedback.

UN Security Council Draft Clauses Rubric

UN Security Council Written Reflection Rubric

Downloadable rubrics are available here: