在全球共同應對氣候變化的進程中，《巴黎氣候協議》第七條 —「全球氣候適應目標」（Global Goal on Adaptation, GGA），幫助各國提升適應能力、推動政策落實和資金投入，承載關鍵任務。然而，自《巴黎氣候協議》於2015年通過以來，確立GGA的進展卻一直緩慢。直至2023年，COP28會議在阿聯酋舉行，GGA才被正式確立為「阿聯酋全球氣候韌性框架」（UAE Framework for Global Climate Resilience, UAE FGCR），奠定了日後的落實基礎。
在2024年的COP29會議上，GGA再次獲得推進。《巴庫適應路線圖》將GGA納入未來所有COP會議的常設議程，並計劃在2028年的第二次全球盤點（Global Stocktake, GST）中進行全面審查。然而，與減排行動不同，在評估適應行動的進展、效果和公平性時， 難以設立全球通用的衡量標準，過程尤為複雜。
氣候適應的挑戰：難以量化的複雜性
GGA涵蓋以下七大主題目標：
＊水資源
＊糧食與農業
＊健康
＊生態系統與生物多樣性
＊基礎設施與居所
＊消除貧困與生計
＊文化遺產
同時涉及四大適應週期目標：氣候風險與脆弱性評估、適應規劃、執行與監測，以及評估與學習。但這些領域的進展，往往受到地方環境條件、社會結構和數據覆蓋率所限制。特別是在適應融資、行動定義及具體實施方法上，各國間存在明顯分歧，拖延了許多關鍵議題的實質進展，唯望於今年的波恩氣候會議進一步討論。
波恩會議的主要任務之一，是進一步精簡和完成GGA的指標系統。自GGA啟動以來，專家工作組已將最初的9,000個指標縮減至490個，並計劃在年底的COP30會議前進一步縮減至100個，目標是制定一套科學、全面且具操作性的指標系統。然而，這一過程並不順利，指標制定工作仍面臨多重挑戰。例如，如何在全球通用性與地區性差異之間取得平衡，如何提升數據覆蓋範圍與質量，以及如何解決指標重疊或範疇不清的問題。
以水資源為例，全球性指標需要兼顧不同地區的需求差異；而在健康領域，針對弱勢群體的數據分類仍然不足，疾病應對方面的數據質量也有待提升。此外，消除貧困與生計方面的指標存在分類不清的問題，難以與氣候適應的核心目標直接掛勾。專家建議應採取靈活的科技支援機制，例如通過數字化工具和靈活的報告機制，來解決數據不足的問題。同時，確保指標能夠涵蓋「變革性適應」（Transformational Adaptation）的概念，即全面及有系統 地解決社會不平等的根本問題，而不僅僅局限於漸進式的應對措施。
GGA的意義：推動公平的氣候適應行動
波恩會議的成果將會深遠影響GGA的未來進展，引入針對不同性別需要的指標將有助於揭示氣候脆弱的根源，幫助各國識別最需要支援的群體，實現公平的適應行動。同時，建立GGA指標系統後，可以衡量全球氣候行動進展，影響各國的資金分配、政策設計和長期適應規劃。透過這些指標，全球適應行動將更加透明且具體，這不僅為全球盤點和氣候融資機制提供了實際數據支撐，也為國家層面的適應行動提供了清晰方向。波恩會議的成果將確保適應行動不僅展示決心，還能兼顧公平，並平衡各國的不同需求。
從全球到本地氣候適應：GGA對香港的啟示
對於香港而言，GGA的進展為本地氣候適應行動提供了重要的參考。《香港氣候行動藍圖2050》目前缺乏針對適應行動的具體目標和監測指標，尤其是在文化遺產保護和弱勢社群支援方面，尚未建立全面的政策框架。低碳想創坊敦促特區政府，應藉中期檢視藍圖的契機，參考GGA的指標系統，制定本地化的適應指標和行動計劃，為應對氣候變化提供更明確的方向。
2025 Bonn Climate Conference Special Feature: The Global Goal on Adaptation (GGA)
In the global effort to address climate change, Article 7 of the Paris Agreement introduced the Global Goal on Adaptation (GGA)—a critical framework designed to enhance countries' adaptive capacities, drive policy implementation, and secure financial investments. Despite its importance, progress on establishing the GGA has been slow since the Paris Agreement was adopted in 2015. It wasn't until COP28 in 2023, held in the UAE, that the GGA was formally established under the UAE Framework for Global Climate Resilience (UAE FGCR), laying the groundwork for future implementation.
At COP29 in 2024, the GGA gained further momentum. The Baku Adaptation Roadmap officially integrated the GGA into the permanent agenda of all future COP meetings. It also set a significant milestone: a comprehensive review of GGA's progress during the second Global Stocktake (GST) in 2028. However, unlike mitigation efforts, evaluating adaptation progress, effectiveness, and equity poses unique challenges. The lack of universally applicable metrics for adaptation makes the process particularly complex.
The Challenge of Quantifying Climate Adaptation
The GGA encompasses seven broad thematic goals:
＊Water resources
＊Food security and agriculture
＊Health
＊Ecosystems and biodiversity
＊Infrastructure and human settlements
＊Poverty eradication and livelihoods
＊Cultural heritage
These themes are supported by four adaptation cycle objectives: Assessing climate risks and vulnerabilities; Developing adaptation plans; Implementing and monitoring actions; and Evaluating and learning from outcomes. Despite this comprehensive framework, progress in these areas is often constrained by local environmental conditions, societal structures, and gaps in data availability. Particularly, disagreements among countries regarding adaptation financing, action definitions, and implementation methods have hindered substantial advancements on crucial issues. Many hope that the 2025 Bonn Climate Conference will provide an opportunity for deeper discussions and pave the way for concrete progress.
One of the primary objectives of the Bonn Conference is to further streamline and finalise the indicator system for the Global Goal on Adaptation (GGA). Since the launch of the GGA, the Expert Working Groups have managed to reduce the initial 9,000 proposed indicators to 490. The goal is to narrow this down further to a concise, actionable set of 100 indicators by the end of the year, ahead of COP30. This ambitious effort aims to create a scientific, comprehensive, and practical indicator framework. However, the process has been far from smooth, with multiple challenges still unresolved.
Some of the key obstacles include: Striking a balance between global applicability and regional specificity; Expanding data coverage and improving data quality; and Addressing issues of overlapping indicators or unclear categories.
For instance, in the water sector, global indicators need to account for the differing needs and vulnerabilities across regions. In the health sector, insufficient disaggregated data for vulnerable populations and low-quality data on disease response continue to hinder progress. Similarly, indicators for poverty eradication and livelihoods often suffer from vague classifications, making it difficult to align them directly with the core adaptation goals.
Experts suggest that flexible technological support mechanisms should be adopted to address these issues. Solutions such as digital tools and adaptive reporting frameworks could help close data gaps. Moreover, the indicator system must incorporate the concept of Transformational Adaptation—a systemic approach aimed at addressing the root causes of social inequality, rather than merely implementing incremental adaptation measures.
The Importance of GGA: Promoting Equitable Climate Adaptation
The outcomes of the Bonn Conference will have a profound impact on the future progress of the GGA. For example, introducing gender-responsive indicators could help uncover the root causes of climate vulnerability by identifying the groups most in need of support, thereby ensuring equitable adaptation efforts. A well-constructed GGA indicator system will also enable the measurement of global climate action progress, influencing funding allocation, policy design, and long-term adaptation planning at the national level.
With such indicators in place, global adaptation actions will become more transparent and specific. This would not only provide concrete data to support the Global Stocktake (GST) and climate financing mechanisms but also offer clear guidance for adaptation efforts at the country level. The Bonn Conference's achievements will ensure that adaptation actions are not only ambitious but also equitable, meeting the diverse needs of countries while balancing fairness and effectiveness.
From Global to Local Adaptation: Lessons for Hong Kong
The progress of the GGA offers important insights for Hong Kong’s climate adaptation efforts. Currently, the Hong Kong Climate Action Plan 2050 lacks specific targets and monitoring indicators for adaptation actions, particularly in areas such as cultural heritage protection and support for vulnerable communities.
CarbonCare InnoLab has urged the Hong Kong SAR government to use the mid-term review of the Climate Action Plan 2050 as an opportunity to align local adaptation efforts with the GGA framework. Hong Kong can establish clearer directions for tackling climate change challenges by adopting localised indicators and actionable plans inspired by the GGA. This would ensure that its adaptation strategies are not only aligned with global standards but also tailored to address local vulnerabilities and priorities effectively.
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