Problems and Purpose

The Citizens’ Assembly on Climate gathered 160 randomly selected citizens, representative of the whole society, to discuss how Germany can meet its climate protection targets in a way that is fair to all. Moreover, Germany has taken on the responsibility of contributing to limiting the global rise in temperature; however, it is questionable if Germany will be able to achieve its goals alone. The Citizens’ Assembly on Climate provided an open space for citizens to discuss how the climate goals of the Paris Agreement can be reached socially, economically, and ecologically.

Background History and Context

In 2015, Germany signed the Paris Climate Agreement, a commitment to fulfill its national responsibility in limiting the global temperature increase. To make this possible, Germany’s parliament passed the Climate Protection Act in 2019, and in 2021, Germany’s constitutional court ruled for adjustments and made the targets more ambitious. However, it currently seems unlikely that Germany will be able to achieve the goals of the Paris Agreement. In December 2020, Scientists for Future published a statement advocating for the creation of an initial lottery-based citizens’ assembly on climate change before the end of 2021 [1].

The Citizens’ Assembly on Climate is Germany's third nationwide citizens’ assembly. The first citizens’ assembly was in the fall of 2019 and focused on the topic of democracy. The “Citizens’ Council for Democracy” was not seen as a reminder, but as a compass; further, it was intended to make it easier for Members of Parliament to decide where German democracy needs to develop in the next few decades, and what course of decisions they should make to accurately represent the citizens [2].  The second citizens’ assembly was online at the beginning of 2021 and dealt with Germany’s role in the world. Current global developments and issues are subject to quick changes, and it is a great challenge for politics to keep pace with developing answers and solutions while not losing sight of the people. There needs to be a direct link between politics and citizens, and this is the founding notion of the citizens' assembly "Germany's role in the world.” This citizens’ assembly was proposed by the President of the Bundestag, and adopted by the Bundestag’s Council of Elders. During the assembly, participants discussed German policy on global issues and then recommended their policy solutions. Ultimately, the assembly adopted 32 recommendations on the European Union, sustainable development, peace and security, economy and trade, democracy, and the rule of law [3]. 

The Citizens’ Assembly on Climate brought together 160 German citizens to discuss the overarching key question: How can Germany achieve the goals of the Paris Climate Agreement - taking into account social, economic, and ecological aspects? Throughout 12 meetings and over 50 hours, the participants discussed the possible measures and developed policy recommendations to deal with the climate crisis. For effective discussion, four fields of action were identified: energy, mobility, buildings and heating, and food and agriculture. Smaller groups were formed for each field of action and about 40 participants dealt with each in greater detail throughout the assembly. Participants were accompanied by subject matter presented by experts from civil society, business, and academia to deliver foundational knowledge and convey a range of perspectives.

Organizing, Supporting, and Funding Entities

The patron of the Citizens’ Assembly on Climate is former German President Horst Köhler. Since leaving office, he has been heavily involved in the fight for climate change, and this has furthered his participation in this assembly. Horst Köhler became the patron of the assembly because he viewed the Citizens’ Climate Council as part of a joint search and learning process. He finds the importance of deliberation important because change provokes reluctance, and speaking about doubts and fears aids in processing information. Further, if Germany wants to achieve the goals set by the Paris Climate Agreement, society needs to be willing to change. For Köhler, citizens must be able to sound out the willingness to change and make decisions possible. Ultimately, the Citizens’ Assembly on Climate can produce “a story of home that tells us that we can imagine our future as a good future and that we can shape it ourselves” [4]

The main organizer of the Citizens’ Assembly on Climate was BürgerBegehren Klimaschutz e.V. (BBK). BBK was started in 2008 to focus on climate protection, brought about through democratic processes. The organization operates under the motto, “Make the climate change yourself,” as they encourage and advise local initiatives and politics on exploiting their opportunities for participation in the implementation of climate-friendly local policies. The four-member volunteer board of this organization is responsible for all matters of the association [5]. 

The three institutes IFOC, nexus, and IPG are thematically independent, and they collaborated to ensure a professional, neutral, and open-ended implementation of the deliberative process. IFOC focuses on participation and shaping issues through integrative processes. For IFOC, the key is to ensure political connection from the very beginning to enrich parliamentary and government work. Nexus designs and moderates participatory processes by focusing on transparent communication, active cooperation, and sustainable consensus. IPG works with stakeholders from civil society, business, politics, administration, and science to develop sustainable and meaningful solutions; further, the institute utilizes design-oriented and collaborative methods for this purpose [6].

Foundation grants and donations financed the Citizens' Assembly on Climate. As a funding foundation, Schöpflin Stiftung enables experiments through social risk capital and strengthens their dissemination in civil society [8]. Schöpflin Stiftung was involved in providing funding for the assembly based on raising critical awareness and building a vibrant democracy and diverse society, and these ideals are the foundation of the assembly. Open Society Foundations is the world’s largest private funder of independent groups working for justice, democratic governance, and human rights [10]. The Citizens’ Assembly on Climate was supported by Open Society Foundations on the subject of climate change as both the assembly and the foundation aim to help transform a climate-changed world. GLS Treuhand supports non-profit organizations and projects that contribute to change every day, and because of the purpose of the assembly, this was a great match. Focused on giving and strengthening social commitment, GLS Treuhand funded the assembly with an emphasis on the participatory nature and citizen-driven outcome [11].

Participant Recruitment and Selection

Roughly 14,000 people throughout Germany over the age of 16 were contacted by telephone and asked about their interest in participating. The telephone numbers were randomly generated to ensure that any person with a landline or mobile phone might be theoretically selected for participation. From this, 2,000 people expressed interest in participating. To gain more information, an official invitation was sent out; further, 592 people registered to participate and provided socio-demographic information such as age, gender, and migration experience. In this final step, the sample group was narrowed down to 160 participants based on the socio-demographic criteria asked about. The criterion used for selection was decided to build a group whose demographic composition corresponded as close as possible to the German population as a whole [1]. A representative composition of participants is meant to ensure that many perspectives from a diversity of people can be included in the deliberations, and also to confer with democratic legitimacy.

Methods and Tools Used

The methods and tools used for Germany’s Citizens’ Assembly on climate policy can be divided into three distinct steps: First, the agenda was set by the Scientific Board. The Scientific Board of renowned climate experts and representation from nationwide political parties and organizations generated several topics before narrowing them down for the participants’ discussion. The four topics chosen were transportation, buildings and heat, energy production, and food. After the topics were settled on, discussion ensued. Under the advisory of the scientific board and moderation from participation experts from various organizations, there was an open discussion about the four previously decided topics.

What Went On: Process, Interaction, and Participation

Due to the restrictions of the COVID-19 pandemic, all twelve sessions of the assembly were held virtually. The question at the core of the discussion through all four themes was: “How can Germany achieve the goals of the Paris Climate Agreement - considering social, economic, and ecological perspectives?” [6]. The discussion lasted over twelve weeks with approximately fifty hours total spent listening to presentations and discussing potential policies and plans [6]. In the end, the citizens’ report reached 500 pages to be presented to policymakers for consideration.

Influence, Outcomes, and Effects

The Citizens’ Assembly agreed to propose a mandate to policymakers to ensure that the goal of limiting global warming to less than 1.5 degrees continued to be pursued by policymakers for the welfare of all [1]. There were ten main guiding principles used to demonstrate the conclusions reached by the Citizens’ Assembly, all adopted by at least 85%. They are as follows (as listed in the Citizens’ Report) [1]: 

1. The 1.5-degree target is the top priority.
2. Climate protection serves the common good and is to be prioritized over individual interests.
3. For every action that impacts the climate, there must be education and transparency.
4. Everyone must assume responsibility and accept change as part of combatting the climate crisis.
5. Climate protection must be included in all educational programs.
6. Climate policy must be generationally just.
7. Climate policy must be socially just.
8. Climate policy must be globally just.
9. The future of the economy must be climate-neutral.
10. Actions that impact the climate, whether positively or negatively, must directly impact the actors in turn.

Along with the ten collective guiding principles, there were also principle write-ups for four fields of action. The energy working group focused on reducing the amount of greenhouse gas emissions from the current means of energy production by replacing fossil fuels with sustainable alternatives like wind and solar power along with increasing public acceptance of these renewable alternatives. The group concluded that the transition to renewable energy irrevocably needed to be faster than the federal government had originally planned. They proposed legal requirements (e.g., providing land for renewable energy) and incentives, such as subsidies for dual-use agricultural land, as means to hasten the process and public acceptance. For the energy group, the goal is for Germany's electricity supply to be entirely renewable by 2035. The mobility group concluded that for a climate-friendly change from current transportation systems, there needs to be a 90% reduction in greenhouse gas emissions from systems of transport by 2035. To reach this goal, the group offered three strategies: “avoiding travel, shifting travel to alternative transportation methods, and improving the efficiency of vehicles and engines”. The buildings and heating working group emphasized the need for substantial changes in heat generation and distribution, coupled with a 50% reduction in building heating needs through nationwide renovations. Recommendations stressed informing homeowners about the urgency of energy-efficient renovations, showcasing successful examples, and encouraging state institutions to lead by renovating their buildings. Financing was a central concern, proposing that state institutions contribute to renovation costs. Addressing a shortage of skilled workers was crucial, involving measures such as digitalized technologies in construction, engaging experienced volunteers, and phasing out fossil energy and old heating systems. The group advocated also for nationwide mandatory heat planning for municipalities and districts [1]. 

The Food and Agriculture Working Group delved into the significant impact of diets on climate, addressing both food production and consumption. It recognized that the production and consumption of food are interconnected and vital in combating climate change. The group acknowledged that animal agriculture contributes significantly to greenhouse gas emissions in the food sector. By 2030, the Citizens' Assembly recommended comprehensive structural changes in agriculture and food production across the EU, with a focus on climate protection. Proposed measures included introducing a modern law for Germany's agriculture sector to limit emissions, providing viable opportunities for farmers to adopt regenerative practices, and calculating subsidies based on environmental impact to incentivize sustainable agriculture. The reduction of livestock and a significant decrease in meat and dairy consumption were suggested to cut emissions from animal agriculture by 50% or more [1].

To increase transparency, the participants proposed that all food products display an official seal indicating their climate impact by 2030. The price of food products should reflect their environmental and health costs, making climate-friendly products more affordable and climate-damaging ones more expensive. The group also recommended implementing new nutrition guidelines to ensure climate-friendly menus in public spaces, such as canteens, schools, and daycare centers, by 2023. Simultaneously, legal requirements should disincentivize food waste [1].

Analysis and Lessons Learned

Studies have shown that citizens’ assemblies increase support for climate change action when done correctly, particularly demonstrated by this case in Germany. Public support drives political uptake, and it was noted that when compared to policies proposed by the federal government, proposals from the Citizens’ Assembly see a 6.5%  increase in the probability of choice [8]. However, research has also found that this increase in probability is dependent on how citizens’ assemblies are designed and the public awareness of the assembly [8]. 

While citizens’ assemblies make it easier for policymakers to implement otherwise financially controversial plans to curb the effects of climate change, the same may not be said for more nuanced or divisible topics such as race-related policies. In other words, the sentiments of the collective affect the plausibility of policy implementation– emphasizing the importance of the citizens’ assembly as a democratic force. 

Citizens’ assemblies were found to help aid public discourse around policy, increasing both legitimacy and support [8]. Citizens tended to be supportive of the idea of having a mix of a representative panel and an expert panel to ensure policy decisions were made from an informed perspective [8]. However, in the future, research still needs to be done about the effect that citizens’ assemblies have on trust in the policymaking process and representation [8]. In all, citizens' assemblies are a democratic innovation that has the potential to increase public support for and representation in policy.

See Also

References

1. Citizens’ climate report: Recommendations for german climate policy. (2021). Bürgerrat Klima. https://buergerrat-klima.de/content/pdfs/BK_211213_Gutachten_Digital_English.pdf.
2. Citizens’ council for democracy: Citizens’ council: Citizens’ council. (n.d.). Büergerrat Demokratie. https://demokratie.buergerrat.de/buergerrat/.
3. Citizens’ assembly Germany’s role in the world. (n.d.). Bürgerrat Deutschlands Rolle. https://deutschlands-rolle.buergerrat.de/en/
4. Schirmherrschaft: Bundespräsident a. d. Horst Köhler. (n.d.). Bürgerrat Klima. https://buergerrat-klima.de/wieso-ein-buergerrat-klima/schirmherr-horst-koehler
5. About us. (n.d.). Über Uns Bürgerbegehren Klimaschutz. https://buerger-begehren-klimaschutz.de/ueber-bbk/
6. Die Träger & Institute | Bürgerrat Klima. (n.d.). https://buergerrat-klima.de/wer-ist-teil-des-buergerrat-klima/traeger-institute.
7. English information | bürgerrat klima. (n.d.). https://buergerrat-klima.de/english-information
8. Grantmaking. (n.d.). Schöpflin Stiftung. https://www.schoepflin-stiftung.de/en/grantmaking/
9. Kuntze, L., & Fesenfeld, L. P. (2021). Citizen assemblies can enhance political feasibility of ambitious climate policies (SSRN Scholarly Paper 3918532). https://doi.org/10.2139/ssrn.3918532
10. What we do. (n.d.). Open Society Foundations. https://www.opensocietyfoundations.org/what-we-do
11. Die GLS treuhand. (n.d.). GLS-Treuhand. https://gls-treuhand.de/die-gls-treuhand/

External Links

https://buergerrat-klima.de/english-information

https://www.buergerrat.de/en/news/climate-assembly-in-germany/

Notes