Argentina

1. Introduction:

The Argentine Republic is a country located in the southern hemisphere, with a large territorial extension and a huge diversity of climates, resources, and cultures. However, it faces several complex social problems, such as structural poverty, housing deficit, unemployment, external indebtedness, recurrent devaluations, among others, which were aggravated by the current pandemic. 

The great diversity and heterogeneity that we find within the natural spaces of this country can also be found in the social sphere. From north to south we can find indigenous communities which have historically been marginalized, as well as large cities that concentrate 92% of the population (INDEC, 2010). Inside these, we find a notorious inequality, demonstrated in the poverty index which is 42% (INDEC, 2020). 

In this context, given the need for internal recovery to face the current economic crisis, we find ourselves with short-term policies that continue to leave aside the green transition, instead of promoting the advancement of long-term public policies. From this point of view, the following text aims to analyze the gender perspective and citizen participation within the new NDC (Nationally Determined Contributions) presented in 2020/2021 by our country to the Paris Agreement.

2. Position of the Argentine Republic in the international context

Argentina appears on the international scene as a country with a strong presence in international trade linked to the production and export of commodities, mainly those related to the agro-industrial sector, but also to fossil fuels and metals. As a member of MERCOSUR, Brazil is Argentina's main trading partner, followed by China, the United States, Germany, Chile, Paraguay, Vietnam, and the European Union.

Although Argentina's greenhouse gas emissions are significant, our country is not among the main historical emitters. At the economic level, we are a developing country with an economic matrix highly dependent on raw material exports and the use of its natural resources, which makes it even more vulnerable to the effects of climate change.

3. Position of the Argentine Republic at the international level, in environmentalism 

In the Paris Agreement, it was established that the parties must submit their NDCs, which are the commitments undertaken to carry out mitigation and adaptation actions at a national level. These documents specify their goals and how the parties plan to reduce their net carbon emissions to achieve the goal of keeping the global temperature below 2 degrees Celsius.

Argentina's GHG (greenhouse gas) emissions have increased by 52% in the period from 1990 to 2016, representing a 56% share of global emissions (Worldometer, 2016). With 53%, the energy sector is the largest contributor of emissions, followed by agriculture, livestock, forestry, and other land uses with 37%, then by those from industrial processes with 6%, and finally those from waste with 4%. 

4. Evolution of Argentina's NDCs in comparison (2016-2020)

The NDC presented in 2016 proposed not to exceed net emissions of 483 million tons of carbon dioxide equivalent by 2030 through the implementation of a series of measures in all sectors of the economy, focusing on energy, agriculture, forestry, transportation, industry, and waste.

Argentina's Second Nationally Determined Contribution increased the ambition, presenting an emissions target of 359 MtCO2 e by 2030. This is equivalent to a reduction of 25.7% with respect to the previous NDC and a total reduction of 19% of emissions by 2030, compared to the historical maximum of emissions reached in 2007. The new target is also absolute for all sectors of the economy, although it is not yet sufficient to be within a range compatible with the 2°C temperature limit. To achieve this, Argentina needs to reduce its emissions to below 207 MtCO2e. 

The second NDC focuses on achieving a just transition, including social aspects in an intersectional manner, with a gender perspective and with a view to the most vulnerable, without neglecting participatory processes.

Also, additional goals are presented with a view towards the year 2030. These are: 

• The adaptive capacity of climate policy, strengthening resilience and reducing vulnerabilities in different environmental, economic, and social sectors, prioritizing vulnerable communities, and incorporating a gender and intergenerational equity approach

• Ensure that the inhabitants of Argentina are aware of the effects of climate change, adaptation measures, and capacity building to respond in solidarity to this emergency

In addition, to continue with the axis of citizen participation, improvements were incorporated in terms of transparency by presenting the Information Necessary for Clarity, Transparency, and Comprehension. This is in compliance with paragraph 4.8 of the Paris Agreement.

5. Gender in the NDCs

The reduction of gender gaps and threats to disadvantaged groups, based on empowerment through greater access to resources and information, is of vital importance as it can bring about a significant change in the solutions proposed by governments and also make them fairer and more equitable.

The incorporation of a gender perspective in the second NDC presented by Argentina is transversal throughout the sectors it covers, mainly as a point of analysis of present and future measures to address the climate crisis. It also highlights the need for this approach, recognizing the present inequalities and the greater vulnerability of women and girls to the effects of climate change. 

Even though these inequalities are certain, the gender approach only refers to vulnerabilities and makes no mention of the capacities and possible contributions that women could make, nor are they mentioned as possible actors of change.

In reference to intersectionality, we can find the connection of the gender approach linked to education, employment, and urban areas, recognizing the greater vulnerability faced by women who are unemployed, who cannot access education, and who dedicate themselves to domestic tasks, inside a context of social marginalization in informal settlements as well as outside of it. 

The Second NDC submitted by Argentina establishes 15 guiding principles that will serve as a guide for the design, implementation, and monitoring of national adaptation and mitigation actions. Among them is the gender axis, which states that "this places people in a central position as subjects of rights, under the principles of equality, non-violence, and non-discrimination, while empowering the autonomy and participation in decision-making of women and LGBTI+ groups, through the deconstruction of gender-based power mechanisms".

In addition, an analysis from a gender perspective was adopted to evaluate the national adaptation measures, "where for each measure classification criteria are established according to its impact on reducing inequality" divided into three degrees: 

• Measures that report no gender-related impacts

• Measures with potential gender-differentiated impact

• Measures that transform gender gaps

Finally, we find good practices and lessons learned from the adoption of gender mainstreaming in adaptation. This section explains the steps of the work plan developed for the implementation of gender mainstreaming in climate policy. As a first step, a diagnosis of existing gender inequalities in NDC policies was carried out, followed by a training and sensitization stage and then the generation of spaces for the exchange of experiences among specialists, technicians, and indigenous communities to "achieve an inclusive and integral gender mainstreaming strategy".

6. Youth inclusion in the NDCs

The active participation of young people in calling for better climate policies is a point that cannot be ignored by governments. The incorporation of the youth perspective into policy discussions and decisions does not usually happen, however, we must recognize the fundamental role that youth play in climate action. 

With regard to the inclusion of youth within the NDC, no specific measures or considerations are found, nor are there any analyses of the situations they are going through in the present and in the future. However, within its limited appearances, it appears linked to vulnerability and as a target of educational and cultural policies aimed at promoting empowerment. Youth is also mentioned within the Mesa Ampliada process, which is a space for articulation through which the integration of the contributions of various sectors and actors is achieved. The objective of this roundtable is to promote discussion with all stakeholders from the academic sector, workers, civil society, unions, municipalities, indigenous communities, and the private sector, among others, on how the cross-cutting issues for which each sector is responsible can permeate the design and implementation of the National Climate Change Adaptation and Mitigation Plan.

We can find a timid reference to the climate activism carried out by thousands of young people through different organizations within the country through the statement that these organizations participated in the talks given by the government on gender and climate change, leaving aside the importance of political advocacy and local activities carried out by these young people. 

7. Citizen participation in the NDCs

The importance of transparency and citizen participation in environmental policy relies on the fact that, in order to increase ambition and achieve the transition to a low-emission development model, governments need to work together with civil society. In addition to increasing ambition, it is essential to hear the voices of frontline communities who are already facing the effects of the climate crisis, and that more people are involved to achieve greater legitimacy of climate plans and to ensure greater support and monitoring of their implementation, ensuring that targets are met and shortcomings are identified. Given the enormous challenge we face, it is necessary to address it consciously and systematically, requiring the involvement and effort of all sectors.

The Paris Agreement crystallized the parties' commitments on "education, training, public awareness, participation and public access to information on climate change" in Article 12 and within Article 6 of the 1992 United Nations Framework Convention on Climate Change (UNFCCC). This originated the term Action for Climate Empowerment (ACE), which aims to "empower all members of society to engage in climate action, through education, training, public awareness, public participation, public access to information and international cooperation on these issues."

The Second NDC is the result of the joint work of 15 working groups of the national public administration, federal articulation tables, and working meetings with different sectors of society coordinated by the National Cabinet on Climate Change (GNCC). The different contributions from the public and private sectors were articulated within the Enlarged Roundtable and the Advisory Council. This table includes civil society organizations; scientists; universities and study centers; trade unions; youth groups; chambers, councils, and business federations; professional associations; citizen groups; media; social movements; municipalities; indigenous communities; the legislative branch; the judiciary and political parties.

Among the 15 guiding principles mentioned above is the principle of participation, which recognizes the magnitude of the challenge presented by the climate crisis and the consequent need for the commitment and participation of different sectors and actors in society. It also incorporates environmental education for the responsible exercise of citizen participation. 

The gender perspective, in addition to young people, indigenous peoples, diversities, and people with disabilities, focused on vulnerabilities are considered as actors with limited participation in decision making and access to resources to do so. Given this scenario, capacity building is proposed to ensure better access to resources (credit, technology, and training).

8. Conclusion

The degree of importance given in the Second NDC to the gender perspective, the consideration of the most vulnerable groups, and the achievement of a just and equitable transition is notorious and transversal within the goals proposed by Argentina. However, it was carried out only in view of the vulnerabilities that arise, leaving aside the possibilities of incidence that people from these groups have. Youth is considered in the same way, in addition to not being a cross-cutting area. It is necessary that they also be included in the decision-making processes and to be considered not only as recipients of measures, but also as agents of change. 

The necessary measures to achieve greater participation by the different actors in society are already in place. Just as the Escazú Agreement, which is the first environmental treaty in Latin America and the Caribbean, establishes in Article 1 its objective of guaranteeing the rights of access to environmental information, public participation in decision-making processes, and access to environmental justice, also stating the purpose of strengthening the capacities of the people of present and future generations, the Law on Minimum Requirements for Adaptation and Mitigation of Global Climate Change (Law 27520) establishes that each jurisdiction must promote and facilitate access to the different means of participation available to all interested parties. 

Although the objectives presented in the new NDC are more detailed, more ambitious, and incorporate a remarkable social perspective, at present the goals can be read in documents but not in concrete policies, which generates incoherence within the international and local political field. The realization of the right considerations is of utmost importance, but what really is necessary is the fulfillment and initiation of the economic and political transition to a green economy, whereas now it is currently heading in the opposite direction. In order to ensure that no one is left behind, the necessary measures must be implemented as soon as possible, bearing in mind that the clock is already ticking. 

9. References

• Santander Trade Market, Foreign Trade Figures in Argentina (2021) | https://santandertrade.com/es/portal/analizar-mercados/argentina/cifras-comercio-exterior 

• Paris Equity Check | http://paris-equity-check.org/warming-check.html#open-graph

• Argentina: Short Way To Go (WWF) | https://wwf.panda.org/discover/our_focus/climate_and_energy_practice/ndcs_we_want/reviewed_ndcs_/argentina/

• Climate Action Tracker, Argentina | https://climateactiontracker.org/countries/argentina/

• Climate Transparency, Argentina Climate Transparency Report (2020) | https://climateactiontracker.org/countries/argentina/

• FARN: “Argentinas New Climate Goals: An Important Improvement but not Sufficient ” (2020) | https://farn.org.ar/las-nuevas-metas-climaticas-argentinas-una-mejora-importante-pero-no-suficiente/

• UNESCO, Action for Climate Empowerment  | https://unfccc.int/files/cooperation_and_support/education_and_outreach/application/pdf/action_for_climate_empowerment_guidelines.pdf

• NDC Partnership: Gender in NDC | https://ndcpartnership.org/gender

• Second Contribution Determined at the National Level of the Argentine Republic (2020) | https://www4.unfccc.int/sites/ndcstaging/PublishedDocuments/Argentina%20Second/Argentina_Segunda%20Contribuci%C3%B3n%20Nacional.pdf

• What is Action for Climate Empowerment? | https://unfccc.int/topics/education-youth/the-big-picture/what-is-action-for-climate-empowerment