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Climate Change and Ethics
Climate Change and Ethics
Climate Change and Ethics
C
limate change is a matter of concern because, according to Where debate has been more intense is on the question of the
various prognoses offered by scientists, its effects are likely ‘who’—who has a responsibility to shoulder the burdens. Regarding
to be detrimental to human—and not only human—life on the range of potential bearers of responsibility, which could be
this planet: “human beings are transforming Earth in ways that are individuals, corporations or states, for instance, the allocation of
devastating for other forms of life, future human beings, and many responsibilities has so far focused in practice at the level of nation-
of our human contemporaries”1. Given that premise, the central role states, and there has been international agreement to the principle
of ethics is to organize thought about what humans ought to do in of common but differentiated responsibilities among them9. It has
response to the threats they face, and to some extent are creating. generally been assumed, as Grubb noted in 1995, that the main
People engage practically in ethics whenever they make or assess question is justice of allocation of emissions as between states10. This
particular proposals about what should be done; but academics par- assumption is not without its critics11, but the relevance of focusing
ticularly focus on clarifying the structure of moral considerations on states is that they still have main political decision-making pow-
that are brought to bear on a problem, along with elucidating the ers in the world today.
assumptions being borne upon. In practice and in theory, then, eth- Most attention has focused on the criteria for differentiation of
ics reflects on the human goods that climate change can undermine, responsibilities. Because responsibilities imply costs or burdens to
and examines questions such as what actions are right or wrong be borne, and because people have a general preference to shift these
in relation to climate change, who has what duties, and how these whenever possible onto others, there is the most argument here (see
relate to others’ rights, for example, to be protected against effects Table 1). The issues involved have been brought into particular focus
of climate change. The relevant range of problems has come into in connection with debate around international climate change
focus only relatively recently, with most literature appearing during agreements. The Kyoto Protocol adopted the ‘grandfathering prin-
the past 20 years or so, but with considerable acceleration since the ciple’: the developed (Annex-I) countries were required to reduce
time of Gardiner’s seminal review in 20042, and as witnessed by two emissions by an average of 5% compared with 1990 levels. Hence
noteworthy collections of influential articles appearing in the past those already heavily polluting in 1990 could continue emitting
two years3,4. more GHGs than lower-emitting countries. In post-Kyoto negotia-
In what follows, I show first how the greater part of debate about tions, which envisage developing countries also being included in
the ethics of climate change focuses on questions about who has what the emissions reduction programme, the richer countries continue
responsibility to bear the burdens of mitigating it or adapting to it. to press for application of the principle12. Philosophers assessing the
These questions are frequently in practice inflected in the language principle’s rationale, however, have generally regarded it as a prag-
of rights, and the various connections between human rights and matic accommodation rather than a moral argument13: if it is the
climate change are examined next. If some questions concern justice only politically feasible way to get major polluters to accept emis-
in the present, others regard our responsibilities to the future, as sions reductions, it is better than forgoing agreement altogether14.
examined in the third section. The fourth main area of inquiry con- Recent attempts to tease out what more, morally, might be said for
cerns the relation between individual and collective responsibilities. it have not claimed to defeat the main ethical objections15. These
include concerns that the ‘grandfathering’ of emissions rights will
Responsibilities entrench existing inequalities by preventing those who are worse
If humankind were a unitary agent, it could pursue clear objectives off from having the same opportunities and life chances enjoyed
for reducing or capturing carbon emissions, where necessary also by affluent citizens of more heavily polluting countries16; and it
implementing measures for assisting those of the body of human- would effectively prevent less economically developed countries
ity having to adapt to consequences of climate change. But human- from tackling energy poverty, thereby locking them into a state
kind is not a unitary agent. So a prominent debate in climate ethics of underdevelopment17.
concerns who has a responsibility to do what. The ‘what’ is usually A stronger ethical argument can be made for the principle, found
discussed under two headings: mitigation and adaptation. Ethical intuitively persuasive by many, that those who have been causally
evaluation can apply both to the decisions that cause climate change responsible for overburdening the atmosphere have moral respon-
and to its effects. Some philosophers emphasize the distinction sibility for dealing with the consequences. Nevertheless, there are
between the two kinds of responsibility 5, and there are those who considerations of both justice and practicability that tell against the
focus attention primarily on mitigation6 or adaptation7; but there principle that moral responsibility should track causal responsibil-
are also reasons to think an integrated theory appropriate8. ity. One such consideration regards applying it to present or future
Politics and International Relations, School of Social and Political Science, University of Edinburgh, 4.09 Chrystal Macmillan Building, 15a George Square,
Edinburgh EH8 9LD, UK. e-mail: thayward@staffmail.ed.ac.uk
Table 1 | Differentiating common responsibilities: who should bear the costs of dealing with climate change?
Principles Differentiation criteria Pros Cons
Causal responsibility Those who have caused the It seems fair that those who cause a Those who emitted in the past may not have realized
(‘polluter pays’) build-up of CO2 in the atmosphere problem should deal with it they were doing anything wrong, and now are dead
should bear the costs anyway; so while requiring future polluters to pay
may be fair, we cannot impose costs on
past polluters
‘Beneficiary pays’ Those who have benefited from This principle maintains connection with Because it assumes that strict liability can apply
excess emissions should pay causal responsibility by allowing that retrospectively and can be inherited, present
past polluters can be deemed to have beneficiaries can complain that it is unfair on them
bequeathed liabilities to those who have
been advantaged today by past emissions
Ability to pay Those who are able to should pay This recognizes that past emissions may Disconnecting responsibility from causation can
not have yielded present benefits for a given have perverse incentives if the ecologically efficient
country and places costs on those least are effectively required to subsidize polluters
harmed by having to bear them
actions as opposed to applying it retrospectively. Retrospective of public goods such as modern medicine or better technologies
application of the principle can be challenged on the general that have also raised living standards in developing countries28. But
grounds that this is presumptively illegitimate for any principle18. Shue’s rejoinder is that whatever benefits less developed countries
More particularly, the ‘polluter pays’ principle—which is a specific have received, these have mostly been charged for, the recipients
application of causal responsibility (and sometimes misleadingly being “left with an enormous burden of debt, much of it incurred
conflated with it)—is normally not deployed as a principle of his- precisely in the effort to purchase the good things produced by
torical accountability but as a practical device for ‘internalizing’ industrialization”29. Finally, another possibility is that past emis-
the externalized environmental ‘costs’ of economic activities19. So sions may not have yielded appreciable benefits to the present gen-
understood, it is a future-orientated principle that allows rational eration at all, but here Smith’s suggestion of applying thresholds of
decision-making about the acceptability of costs in advance of ability to pay 30 seems a sensible solution.
incurring them. The imputation of obligations and costs retrospec- In fact, one further principle frequently invoked in the climate
tively, which is anyway questionable ethically and legally, is the justice literature is that those with the ability to pay should shoulder
more so if the emitters of previous generations were ignorant of the the burden. This has pragmatic advantages over the previous two
detrimental consequences of their actions20. Furthermore, there is in that it does not require investigations of causality, or other prob-
the evident practicality that principles of liability cannot apply to lematic historical considerations. It is not usually commended as a
members of deceased generations themselves. Thus some people sole or primary principle for allocating responsibilities, however, as
argue that the causal responsibility principle can be amended so that that could support injustice or perverse incentives in cases where
if we inherit assets from our grandparents, then we should also be an ability to pay has been achieved through particular efficiency or
prepared to accept any liabilities that are attendant on those assets. ecological frugality. But it is arguably appropriate to apply where the
Simon Caney suggests that to adopt this stance is not to amend but other principles fail or cannot apply 13.
to abandon the causal responsibility principle21; it is certainly to take In any debate about distributing responsibilities, to define them
a distinct position. is also to delimit them, and the flipside of the question concerns the
This line of reasoning supports a second principle discussed in rights that people have. For instance, determining a responsibility
the climate justice literature, the ‘beneficiary pays’ principle: those not to emit more than a certain amount of carbon dioxide is, in
who enjoy benefits generated by past activities that also cause effect, to license emissions up to that amount, and it is this amount
harms to others have responsibility to shoulder a burden of alleviat- that negotiators want to know about in practice.
ing those harms22. On an approach sometimes referred to as ‘the
Brazilian proposal’ in Kyoto discussions, we should take account of Debates about rights
countries’ historical emissions because countries that have polluted The language of rights has figured prominently in climate ethics
heavily have benefited considerably therefrom in terms of increased debates. In particular, there is debate about whether climate change
wealth and more developed infrastructure23. Such countries have an can be regarded as a human rights issue, and if so how31. Two prom-
‘ecological debt’ to repay 24. inent lines of argument can be distinguished: one treats the use of
One objection, noted by Caney, is that it is unfair to hold cur- the planet’s carbon absorption capacity as a necessary good that
rent members of more affluent nations responsible for over-use of humans have a right to share; the other focuses on how harms to the
the atmospheric commons by their predecessors when there is little planet’s capacities can undermine goods that humans have a right
that they could have done to alter the energy choices of their ances- to see protected.
tors25. Others, however, point to the many advantages those living The idea that there is a human right to a certain amount of green-
in developed countries enjoy over their counterparts in developing house-gas emissions has emerged with the idea that an appropri-
countries today as a result of their nations’ historical emissions26. ate benchmark for international agreements should be an equal per
Neumayer suggests that “the current developed countries readily capita entitlement. Some have argued that there is an entitlement
accept the benefits from past emissions in the form of their high to equal or minimum emissions32, and the idea of a human right
standard of living and should therefore not be exempted from being to ‘subsistence emissions’ has been influential in debates about the
held accountable for the detrimental side-effects with which their ethics of climate change since it was first proposed by Henry Shue,
living standards were achieved”27. albeit then in the different context of ozone emissions33. Other phi-
Another objection, though, is that some of the benefits of past losophers, however, have entered sceptical considerations. As David
emissions are not confined to the emitting countries. Grubb et al., for Miller says: “People have human rights to whatever is necessary to
example, argue that past emissions made possible the development meet their basic needs as human beings, but they cannot claim a
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(Oxford Univ. Press, 2011). The author declares no competing financial interests.