Topic 15: Creating a global agreement
Brief Encounter
Unpacking a global policy agreement on biodiversity
Below is an extract of text from the United Nations Convention on Biological Diversity.
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In groups, look at the following text. There are no full stops. Work out a way in which you all read the text from the beginning to the end. Remember to take a breath!
TARGET 3 Ensure and enable that by 2030 at least 30 per cent of terrestrial, inland water, and of coastal and marine areas, especially areas of particular importance for biodiversity and ecosystem functions and services, are effectively conserved and managed through ecologically representative, well-connected and equitably governed systems of protected areas and other effective area-based conservation measures, recognizing indigenous and traditional territories, where applicable, and integrated into wider landscapes, seascapes and the ocean, while ensuring that any sustainable use, where appropriate in such areas, is fully consistent with conservation outcomes, recognizing and respecting the rights of indigenous peoples and local communities, including over their traditional territories.
- Now, without looking at the paragraph or discussing it, on your own you have 1 minute to draw or write anything you can remember from the text.
- Agree one person in your group to read the original text again aloud.
- Then repeat the exercise, on your own, in which you have 1 minute to add anything further that you remember from the text.
- All together, now compare what you all remembered, and create your own summary of the text, using your own words. This time, you can include any punctuation that helps you.
- Why do you think the original paragraph is one long sentence with little punctuation?
Extension
You may wish this to become a longer ‘brief’ encounter through this extension activity that explores how this biological diversity agreement came about:
Below is a very long and difficult first draft of the agreement text that you read above.
To arrive at the final text, many country delegates (i.e. people representing their country) negotiated what they felt was important to include from their own perspective.
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Now read the paragraph below.
Do not feel that you have to read it with the aim of understanding much of the text. The square brackets [ ] indicate where delegates inserted their suggestions about what they wanted to be included in the final text. These suggestions were discussed and negotiated as part of the process of coming up with the final text.
Look at the text in your group:
- What do you notice about this draft text?
- What are the things that stand out to you in the draft text that make it different to things that you usually read?
- Identify anything in the text that you can also find in the final text in the Brief Encounter above.
- Identify 2 to 4 things that became changed in the final text.
- Identify something that is not in the final text.
TARGET 3 Ensure and enable at least [30 per cent] of [all [—] and of [—]] [globally] [at the national level] especially [key biodiversity areas[, ecologically or biologically significant areas, threatened ecosystems] and other] areas of particular importance for biodiversity [and ecosystem functions and services] are [effectively] conserved through [effectively] [well] managed, ecologically representative, well-connected and equitably governed [systems] [networks] of [highly and fully] protected areas [including a substantial portion that is strictly protected] and other effective area-based conservation measures, [and [indigenous] [traditional] territories] [, where applicable,] [which prohibits environmentally damaging activities] and integrated into the wider land[-]/[scapes] and seascapes [and national and regional ecological networks], [in accordance with national priorities and capabilities,] [including the right to economic development, will not affect the right or ability of all Parties to access financial and other resources required for the effective implementation of the whole framework,] [while ensuring that [sustainable use] of these areas, if in place, contributes to biodiversity conservation,] [recognizing the contribution of indigenous peoples and local communities to their management] and [respecting] the rights of indigenous peoples and local communities. Temporary placeholder: [[all land and of [seas] [ocean21] areas [including] all ecosystems22] [all terrestrial, inland waters, coastal and marine ecosystems] [ecosystems as defined by Article 2 of the Convention] [terrestrial, marine and other aquatic ecosystems], Subject to B.Bis and other relevant targets: [including] [over their lands, territories and resources] [, with their free, prior and informed consent] [, [and [including] acting] in accordance with [United Nations Declaration on the Rights of Indigenous Peoples and international human rights law] [national [circumstances and] legislation [and] [as well as] relevant international instruments] [, where applicable]].
Opportunities for Embracing Uncertainty
The first activity enables a group of students to attend deeply to a difficult global agreement that is very certain in its legal terminology and its implications. Such texts are not necessarily easy to read or to understand, and students will notice different things about the text. This activity enables everyone to explore what sense they make of it, together with others, in such a way that allows for multiple readings from a diverse collection of students. This includes them together identifying what matters to them from the text, through bringing their own experiences and knowledge. There is no shame, in this exercise, of not getting a firm grip of all that is implied and stated by the text. It is designed both to be fun and challenging, and it requires group collaboration to build a common understanding of the complex text. The extension ‘long brief encounter’ activity highlights how the final legal document, it all its certainty, emerges out of a messy and uncertain process of achieving consensus that everyone can subscribe to.
Opportunities for All Students
The substance and scope of this activity is most appropriate for students working at the level of secondary school (aged 11-16 years) or above. The extension activity offers the opportunity to engage for longer, more deeply and with great complexity, that some students may relish. For others, only the first brief encounter activity will be challenge enough. For background information, you can find out more about this agreement here: https://www.cbd.int/gbf/targets/3
Opportunities for Creativity
The students are required to be creative in crafting a narrative from the texts, that can include drawing or text, and it respects their own means of doing so. The extension activity gives an insight into a creative approach of country representatives arriving at consensus.
Opportunities for Linking to Climate Justice
Key to this activity is the planetary justice of the need to pay attention to other species to reduce the harm and threats to their extinction as a result of human needs and desires. The activity begins to give insight into the complexity of engaging different stakeholders to negotiate an agreement. Ideas of social justice might be surfaced in the students’ discussion and questions about how the final text was agreed. The centrality of social justice to these negotiations is picked up in the following ‘Visual Encounter’ and especially in the ‘Deliberative Encounter.’
Visual Encounter
Exploring stakeholder roles
Watch this 3-minute film that explores different perspectives on negotiating an agreement at the United Nations COP 15 Biodiversity Conference that took place in Montreal, Canada, in 2022:
https://www.youtube.com/watch?v=cKCnUltiM0U
Nearly 200 countries attended the conference to negotiate an agreement. There are four people who speak in the film.
When watching the film, think about the following, and then discuss together in groups:
- What are the roles of the four people?
- What position, if any, do they take on biodiversity conservation?
- Were there any differences in what they each emphasise?
- What are the key messages you took from the film?
- What more would you have liked to know that people didn’t talk about?
- If you could take on one of the four roles, which one would you like? Why?
Opportunities for Embracing Uncertainty
This activity starts to explore the different perspectives that different stakeholders have on a UN policy agreement, depending on what their role demands. Students are invited to unpack these different perspectives and consider which they are most aligned to through identifying a role that they would like to take. This accepts that different perspectives are inevitable and integral to democratic processes of negotiation. There is no expectation that students should adopt any given perspective themselves, but each must think about their own values and which of the different roles fits with these.
Opportunities for All Students
Again, this activity is aimed at those working at secondary school level. Some may require the film to be played two or three times.
Opportunities for Creativity
Students have to imagine themselves in the role of particular stakeholders, and those that are very unfamiliar to them and beyond their own experience. Some may enjoy role playing the different stakeholders to help them explore what it is that each might think, feel and say.
Opportunities for Linking to Climate Justice
The key justice issue that emerges further in the film is that of planetary justice. In identifying the different roles, the students will be able to reflect on those who specifically assert a perspective of planetary justice. They will be able to explore how this is represented, especially through the role of the spokesperson from the World Wildlife Fund. Students can explore how much these issues align with their own values when deciding which role to take up. The activity also enables them to think whether the different spokespeople go sufficiently far, not far enough or too far, in representing a version of planetary justice that they themselves can articulate and identify with.
Deliberative Encounter
Negotiating different perspectives
Look at this piece of draft text on biodiversity conservation that you will need to refine and agree between all of you.
TARGET 3 Ensure and enable that by 2030 [at least 30 per cent] of terrestrial, inland water, and of coastal and marine areas, [especially areas of particular importance for biodiversity and ecosystem functions and services], are effectively conserved and managed through ecologically representative, well-connected and equitably governed systems of protected areas and other effective area-based conservation measures, recognizing indigenous and traditional territories, where applicable, and integrated into wider landscapes, seascapes and the ocean, [ensuring that any sustainable use, where appropriate] in such areas, is fully consistent with conservation outcomes, [recognizing and respecting] the rights of indigenous peoples and local communities, including over their traditional territories.
Form five groups, with each representing one of these different global stakeholders:
Indigenous and local community members living in a forested area in Ecuador, which has very high biodiversity, including some animal species, such as the spider monkey, threatened with extinction. A mining company wants to use the land to extract lithium (which is crucial for making the batteries in electric cars). You feel strongly about protecting your traditional values, and feel others should recognise you as important guardians of nature.
Young activists who are concerned about biodiversity loss, many of whom have grown up in cities, and feel strongly that the nature should have rights, just like humans have rights. You feel strongly that young people’s voices should be heard.
Members of an elected government in a high–income country (e.g. USA, UK, Germany, Australia). You want to protect nature, and can afford to do so more than local income countries. You have also promised the citizens in your country, who elected you, that most cars will be electric by 2030; electric cars require using mined metals (e.g. lithium) from low-income countries such as Ecuador.
Members of an elected government in a low–income country (e.g. Bangladesh, Ethiopia, Togo) that is home to a rich biodiversity of animals and plant species. You value biodiversity but are also wary of rich countries pushing you to adopt strong conservation policies. Many of your citizens are poor and live rurally, and they want the government to invest money in jobs that will them help them to achieve a minimum standard of living and provide basic necessities. You feel that those in the richer countries have a lifestyle that you are equally entitled to and that they should pay your country to protect biodiversity.
You are spider monkeys who have survived in the same area for thousands of years and are well adapted to the existing habitat. You are concerned about the threats to your life and those of your family as well as your habitat, which is your home and only means of food and survival.
Your task is to negotiate with the other groups to agree on a final text on biodiversity that will apply to all countries across the globe. You must achieve consensus. This requires everyone to agree on the final text, albeit with all or most having to compromise in one or more areas. Consensus strives to incorporate everyone’s perspectives, needs, and ultimately their permission.
If anyone actively disagrees with the final draft text, no final decision can be arrived at. No decision at all, might arguably be worse for biodiversity and people.
- Start by discussing, in your own groups, what your group thinks about the draft text. What do you agree or disagree with? What do you want to keep the same? Which areas are you prepared to negotiate? Are there any ‘red lines’ for your group? (i.e. things you cannot negotiate on at all).
- Within your group, decide how you are going to represent your discussions with the other groups. Will one person speak for you all, with others advising, or will you share the role in some way?
- All together, between your groups, discuss the draft text and find a way to work towards a final agreement on the wording of the text, as though it were a legal text.
As you propose text, your teacher will act as Chair and change the text onscreen (or else on a large sheet of paper) as the negotiations progress so that all can see them, reflecting the reality of how these negotiations work. The teacher will use track changes and red text to make changes. When text is not agreed by all groups, then it must stay in square brackets. If everyone agrees to the text, then it can come out of square brackets. The teacher will not delete text, but cross through it, if it is requested to be taken out.
As the Chair, your teacher will try to encourage compromise and agreement in the spirit of consensus negotiations. They will allow everyone to speak and respond to each other’s suggestions and encourage you all to give reasons as to why you are proposing certain text.
Opportunities for Embracing Uncertainty
There is inherent uncertainty in the outcome of the groups’ negotiations on the final text, with no one preferable outcome for everyone that can be foreseen in advance.
Opportunities for All Students
Some students will want to research the issues for their particular group in some detail, in order to consider what is important and how to negotiate from their perspective. This activity links well to Topic 13: ‘The Commons’, particularly the Deliberative Encounter which explores whether the Amazon Forest might considered a commons, taking into account the perspectives of different stakeholders.
Opportunities for Creativity
Students have to imagine themselves in their particular role, bringing their own lived experience and what they know, to the particular outline in the brief. They must develop a clear storyline and a persuasive argument to promote their group’s interest. This activity lends itself to greater dramatic effect through the use of role play, costumes and props.
Opportunities for Linking to Climate Justice
Climate justice is central to this activity, as it engages with the interests of those with differential power across the globe. It seeks to engage students in thinking through the implications of this in negotiating agreements, and the inherent imbalances to this process. What is important in the teaching of this activity, is enabling students to engage with a particular role in a way that avoids falling into easy stereotypes about their given group. It will be necessary to probe students’ ideas and to challenge weak assumptions, so that they might think more deeply and with greater insight and nuance, without assuming the answer.
There is scope to extend the activity to deliberate the social justice implications of either using consensus or majority vote, that might include discussion of how a minority interest can sway the outcome for everyone if consensus is required, and that consensus inevitably waters down the final possible agreement which can have greater negative outcomes for particular stakeholders, including nature. To demonstrate the reality and limits of consensus decision making is that only the two state member parties have a true say in the outcomes. After you have heard from all groups, you might tell them that only the first two groups would be able to change the text in reality so none of the text from groups 2 or 3 would be included unless a state member party adopted it in their negotiations. This gives an insight into the workings of global power. It shows the different strengths of voices in global decision making (i.e voices for nature and youth, and even low-income countries are weaker, and voices for high-income countries are strong). Another point to note is that in real life, group 1 would be much larger and well-resourced in the negotiations as compared to group 2, creating another inequitable dynamic.
It may be helpful to use the following information to feed into group discussions at different points:
- It is likely that lower income countries would try to reduce the percentage of protected areas and alter the text about prioritising high biodiversity areas as this places a significant pressure on them financially as most biodiversity is located in lower income countries. Resource mobilisation and sufficient financial support to enable this is at the heart of the entire Convention on Biological Diversity. They would push for a stronger text to be included on sustainable use, as they need to utilise biodiversity to ensure economic development.
- Higher income countries are likely to be more ambitious about the percentage of protected areas, as global biodiversity conservation is seen as important. Yet, they may not be willing to support ambitious enough financial commitment to support lower income countries. They may encourage the use of text that financialises biodiversity such as natural capital and ecosystem services, as this fits in with capitalist economic models, rather than text recognising intrinsic values, such as ‘mother nature’ and ‘rights of nature’. For a film about the Rights of Nature, see here: https://www.youtube.com/watch?v=XSdRFXTGrC4&t=931s
- Indigenous peoples will perhaps argue for stronger text than ‘recognising and respecting’ the rights of indigenous peoples as this is quite vague and non-binding. They may also champion the inclusion of text recognising the ‘rights of nature’ and ‘Mother Earth’ which better aligns with most indigenous relations with nature that suggest that humans are part of nature and should have a more respectful relationship with it.
- Young activists are likely to support higher percentages of protected areas and also to get some text on intergenerational equity included.
Beyond the Classroom Encounter
Interspecies council
You will each explore and produce some information about one species in your neighbourhood. This might be a plant or animal species. To do this, we invite you to imagine and empathise with the needs of your chosen animal or plant. Think about the following:
- What concerns your animal or plant? Why?
- What do they most value in your neighbourhood?
- What would they like more of, and why?
- What would they like to get rid of or change? Why?
You might want to talk to others to find out what they know about your chosen species, including any changes in their population and habitat over the recent decades.
Create a card that includes visuals and text about the species, and anything you want to share in response to the above questions. This is to inform and share with others.
Bring your card to an ‘interspecies council’ as you come together to represent the interests of the different species that you have each researched. You will discuss, negotiate and agree together five key considerations that need to be taken into account in an imaginary (or real) planned development in your neighbourhood. You will each represent your chosen animal or plant species.
Think about how you would make the case for their interests (rather than your own). You can use the information on your card to prompt you.
Opportunities for Embracing Uncertainty
We cannot know how other species experience their habitats and, in many instances, the fast human-induced changes that are brought about within them. The activity links well to those in Topic 3 ‘Encountering Environments’. You can see a short article about a UK government-run ‘interspecies council’ here: https://moralimaginations.substack.com/p/article-in-ends-report-government. And here is a film, entitled River Roding Interspecies Council, about one event exploring the concerns of different species living in or around the river that you might want to share with your students:
(scroll down to the film on this site: https://openpolicy.blog.gov.uk/2024/02/07/using-experimental-methods-to-reimagine-decision-making-for-the-freshwater-system-post-2043/, undertaken by Phoebe Tickell of Moral Reimaginations)
This activity links well to those in Topic 12: ‘Nature Conservation’.
Opportunities for All Students
This activity can involve children of all ages, with some collecting more basic information whereas others can go into detail. Students for whom play is integral to their educative experience might enjoy role-playing the animals and plants, and using their knowledge of what those animals need to thrive, having imaginary discussions, conversations, and arguments, about what they want and need to thrive. As plants, they will quickly find that they are unable to move, whereas animals usually can, and this can raise important discussions about what then might plants need that is different to animals.
Opportunities for Creativity
Again, this activity relies on the students imagining another perspective, and one they are unlikely to have done before. There is scope to create the cards using different media and to evoke the issues for their chosen species through a literary sensibility. They might be inspired to read poetry that similarly evokes the lives of different plant and animal species.
Opportunities for Linking to Climate Justice
This activity emphasises planetary justice, through requiring students to pay attention and to imagine the lives of other species in ways that detract from always placing themselves, and other humans, at the heart of any considerations. This is also important, even where there are humans with a diversity of needs that require attention, for example in the planning of a new town or a specific building development.
