COP: Ocean is on the agenda, but not in the decisions
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Tommi Juusela
Climate Expert, Chair of the Board of John Nurminen Foundation
The ocean and coastal areas are one of the focus areas at the 31st UN Climate Change Conference in November 2026. This is a much-needed change that has been in the works for a long time. In international climate agreements, the ocean has historically received little attention: the Kyoto Protocol (1997) does not mention the ocean at all, and the Paris Agreement (2015) refers to it only once.
Why is it important to address the ocean as part of climate governance? The connection between the ocean and the climate consists of several complementary dimensions. First, the ocean is a central component of the Earth’s carbon cycle. It has sequestered 25-30 percent of carbon dioxide emissions caused by humans and absorbed more than 90 percent of the excess heat generated by human-activity.
Second, coastal mangrove forests and other marine ecosystems serve as significant carbon sinks, while simultaneously protecting coastlines and maintaining biodiversity. Restoring coastal and marine ecosystems and protecting their biodiversity make them more resilient to the effects of climate change.
Third, the maritime industry accounts for approximately three percent of global greenhouse gas emissions: reducing these emissions is essential for reaching climate targets. These are separate issues, but they all show how climate goals cannot be reached without a more comprehensive recognition of the role that the ocean plays.
Ocean has been sidelined in climate policy
The ocean has been underrepresented in climate talks, partly for historical reasons. The UN climate process has been built primarily around the atmosphere and the greenhouse gas emissions of states. In the early stages, there was not enough knowledge on the role of the ocean in the climate system, making the connection easy to overlook. Furthermore, agreeing on international action has been challenging since the high seas, covering over half of the ocean, do not fall under the jurisdiction of any single state.
The ocean became more prominent on the COP agenda only in 2019 in Madrid. Since Glasgow (2021) and Sharm el-Sheikh (2022), it has been a part of the discussions at the annual climate conferences.
However, history does not explain all, since the problems have also been institutional. Decisions and responsibilities on the ocean are dispersed across multiple international organisations and treaty processes. For instance, the International Maritime Organization (IMO) addresses shipping emissions, while the High Seas Treaty on biodiversity beyond national jurisdiction was negotiated under the UN Convention on the Law of the Sea (UNCLOS). Marine biodiversity is also addressed under the UN Convention on Biological Diversity (CBD). Cooperation and connection between these forums is not seamless. The discussion is fragmented across organisations and there is no clear ownership of the issue.
Ocean as part of climate solutions
The fragmentation is also reflected in countries’ climate commitments. Under the Paris Agreement, countries update their nationally determined contributions (NDCs) every five years. In 2025, more than 90 percent of island and coastal states included at least one ocean-related target in their contribution. However, many of these targets focus on marine conservation and climate change adaptation. What has received little attention is the significant opportunities for emission reductions in, for instance, shipping, offshore energy production, and fisheries.
This is a missed opportunity, as the ocean is not merely a victim of climate change, but can be a key part of the solution. According to research, the full-scale implementation of currently feasible ocean-based solutions could deliver up to 35 percent of the emission reduction needed by 2050 to meet the 1.5-degree target. It is not only about future technologies, but concrete solutions that can be advanced today. In addition, the lack of funding also highlights the low priority given to the ocean: the UN Sustainable Development Goal number 14, Life Below Water, is one of the least funded of the SDGs.
In Antalya, the ocean should not only be present in the meeting agenda or speeches, nor should the prevailing fragmented ocean governance hinder ocean-based climate action. There has been enough talk on the role of the ocean. The potential of the ocean has to be reflected in commitments, decisions, and funding.
Tommi Juusela is a climate expert and the Chair of the Board of the John Nurminen Foundation. He is participating in the 31st UN Climate Change Conference (COP31) as a member of the Finnish delegation. The COP31 is held in Antalya, Turkey, from 9 to 20 November
