What's on the agenda? UN climate change negotiation agendas since 1995

Our understanding of climate change has expanded to include issues beyond reducing greenhouse gas emissions. Yet, we do not have a sound empirical understanding of how negotiations under the auspices of the United Nations have evolved to address an increasingly wide range of issues relevant to climate change. To understand what the climate talks have focused on and how the volume of work has changed, the authors create a Climate Negotiations Database that categorizes negotiation agenda items starting from the first Conference of the Parties (COP) of the UN Framework Convention on Climate Change in 1995. Overall, the volume of work in the negotiations is shown to have steadily increased over time but it is not necessarily tied to the negotiation of new rules enshrined in major agreements or outcomes. While the negotiations have broadened to include a wider range of issues, we demonstrate that transparency and mitigation matters traditionally dominate the agendas. This finding lends support to the call for greater balance among issues. Transparency and mitigation show different patterns. While mitigation issues are more negotiations-intensive, and often about markets, the transparency discussions tend to be more implementation-focused. The database provides an empirical base for further research on various aspects of global climate governance.