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If the world had adopted the proposal widely endorsed at the end of the ’80s — a freezing of carbon emissions, with a reduction of 20 percent by 2005 — warming could have been held to less than 1.5 degrees.

Action had to be taken, and the United States would need to lead. It didn’t.

There can be no understanding of our current and future predicament without understanding why we failed to solve this problem when we had the chance.

The first suggestion to Rafe Pomerance that humankind was destroying the conditions necessary for its own survival came on Page 66 of the government publication EPA-600/7-78-019. It was a technical report about coal

‘This Is the Whole Banana’ Spring 1979

here was an urgent problem that demanded their attention, MacDonald believed, because human civilization faced an existential crisis. In “How to Wreck the Environment,” a 1968 essay published while he was a science adviser to Lyndon Johnson, MacDonald predicted a near future in which “nuclear weapons were effectively banned and the weapons of mass destruction were those of environmental catastrophe.” One of the most potentially devastating such weapons, he believed, was the gas that we exhaled with every breath: carbon dioxide. By vastly increasing carbon emissions, the world’s most advanced militaries could alter weather patterns and wreak famine, drought and economic collapse.

the Jasons. They were like one of those teams of superheroes with complementary powers that join forces in times of galactic crisis. They had been brought together by federal agencies, including the C.I.A, to devise scientific solutions to national-security problems: how to detect an incoming missile; how to predict fallout from a nuclear bomb; how to develop unconventional weapons, like plague-infested rats.

Agle pointed to an article about a prominent geophysicist named Gordon MacDonald, who was conducting a study on climate change with the Jasons, the mysterious coterie of elite scientists to which he belonged

During the spring of 1977 and the summer of 1978, the Jasons met to determine what would happen once the concentration of carbon dioxide in the atmosphere doubled from pre-Industrial Revolution levels. It was an arbitrary milestone, the doubling, but a useful one, as its inevitability was not in question; the threshold would most likely be breached by 2035.

The Jasons’ report to the Department of Energy, “The Long-Term Impact of Atmospheric Carbon Dioxide on Climate,” was written in an understated tone that only enhanced its nightmarish findings: Global temperatures would increase by an average of two to three degrees Celsius; Dust Bowl conditions would “threaten large areas of North America, Asia and Africa”; access to drinking water and agricultural production would fall, triggering mass migration on an unprecedented scale. “Perhaps the most ominous feature,” however, was the effect of a changing climate on the poles. Even a minimal warming “could lead to rapid melting” of the West Antarctic ice sheet. The ice sheet contained enough water to raise the level of the oceans 16 feet.

MacDonald explained that he first studied the carbon-dioxide issue when he was about Pomerance’s age — in 1961, when he served as an adviser to John F. Kennedy. Pomerance pieced together that MacDonald, in his youth, had been something of a prodigy: In his 20s, he advised Dwight D. Eisenhower on space exploration; at 32, he became a member of the National Academy of Sciences; at 40, he was appointed to the inaugural Council on Environmental Quality, where he advised Richard Nixon on the environmental dangers of burning coal. He monitored the carbon-dioxide problem the whole time, with increasing alarm.

They were surprised to learn how few senior officials were familiar with the Jasons’ findings, let alone understood the ramifications of global warming. At last, having worked their way up the federal hierarchy, the two went to see the president’s top scientist, Frank Press.

Thus began the Gordon and Rafe carbon-dioxide roadshow. Beginning in the spring of 1979, Pomerance arranged informal briefings with the E.P.A., the National Security Council, The New York Times, the Council on Environmental Quality and the Energy Department, which, Pomerance learned, had established an Office of Carbon Dioxide Effects two years earlier at MacDonald’s urging

. Out of respect for MacDonald, Press had summoned to their meeting what seemed to be the entire senior staff of the president’s Office of Science and Technology Policy — the officials consulted on every critical matter of energy and national security. What Pomerance had expected to be yet another casual briefing assumed the character of a high-level national-security meeting.

MacDonald would begin his presentation by going back more than a century to John Tyndall — an Irish physicist who was an early champion of Charles Darwin’s work and died after being accidentally poisoned by his wife. In 1859, Tyndall found that carbon dioxide absorbed heat and that variations in the composition of the atmosphere could create changes in climate. These findings inspired Svante Arrhenius, a Swedish chemist and future Nobel laureate, to deduce in 1896 that the combustion of coal and petroleum could raise global temperatures. This warming would become noticeable in a few centuries, Arrhenius calculated, or sooner if consumption of fossil fuels continued to increase.

Four decades later, a British steam engineer named Guy Stewart Callendar discovered that, at the weather stations he observed, the previous five years were the hottest in recorded history. Humankind, he wrote in a paper, had become “able to speed up the processes of Nature.” That was in 1939.

MacDonald’s history concluded with Roger Revelle, perhaps the most distinguished of the priestly caste of government scientists who, since the Manhattan Project, advised every president on major policy; he had been a close colleague of MacDonald and Press since they served together under Kennedy. In a 1957 paper written with Hans Suess, Revelle concluded that “human beings are now carrying out a large-scale geophysical experiment of a kind that could not have happened in the past nor be reproduced in the future.” Revelle helped the Weather Bureau establish a continuous measurement of atmospheric carbon dioxide at a site perched near the summit of Mauna Loa on the Big Island of Hawaii, 11,500 feet above the sea — a rare pristine natural laboratory on a planet blanketed by fossil-fuel emissions.

After nearly a decade of observation, Revelle had shared his concerns with Lyndon Johnson, who included them in a special message to Congress two weeks after his inauguration. Johnson explained that his generation had “altered the composition of the atmosphere on a global scale” through the burning of fossil fuels, and his administration commissioned a study of the subject by his Science Advisory Committee. Revelle was its chairman, and its 1965 executive report on carbon dioxide warned of the rapid melting of Antarctica, rising seas, increased acidity of fresh waters — changes that would require no less than a coordinated global effort to forestall.Yet emissions continued to rise, and at this rate, MacDonald warned, they could see a snowless New England, the swamping of major coastal cities, as much as a 40 percent decline in national wheat production, the forced migration of about one-quarter of the world’s population. Not within centuries — within their own lifetimes.

On May 22, Press wrote a letter to the president of the National Academy of Sciences requesting a full assessment of the carbon-dioxide issue. Jule Charney, the father of modern meteorology, would gather the nation’s top oceanographers, atmospheric scientists and climate modelers to judge whether MacDonald’s alarm was justified — whether the world was, in fact, headed to cataclysm.

If Charney’s group confirmed that the world was careering toward an existential crisis, the president would be forced to act.

Hansen turned from the moon to Venus. Why, he tried to determine, was its surface so hot? In 1967, a Soviet satellite beamed back the answer: The planet’s atmosphere was mainly carbon dioxide. Though once it may have had habitable temperatures, it was believed to have succumbed to a runaway greenhouse effect: As the sun grew brighter, Venus’s ocean began to evaporate, thickening the atmosphere, which forced yet greater evaporation — a self-perpetuating cycle that finally boiled off the ocean entirely and heated the planet’s surface to more than 800 degrees Fahrenheit

At the other extreme, Mars’s thin atmosphere had insufficient carbon dioxide to trap much heat at all, leaving it about 900 degrees colder. Earth lay in the middle, its Goldilocks greenhouse effect just strong enough to support life.

We want to learn more about Earth’s climate, Jim told Anniek — and how humanity can influence it. He would use giant new supercomputers to map the planet’s atmosphere. They would create Mirror Worlds: parallel realities that mimicked our own. These digital simulacra, technically called “general circulation models,” combined the mathematical formulas that governed the behavior of the sea, land and sky into a single computer model. Unlike the real world, they could be sped forward to reveal the future.

The government officials, many of them scientists themselves, tried to suppress their awe of the legends in their presence: Henry Stommel, the world’s leading oceanographer; his protégé, Carl Wunsch, a Jason; the Manhattan Project alumnus Cecil Leith; the Harvard planetary physicist Richard Goody. These were the men who, in the last three decades, had discovered foundational principles underlying the relationships among sun, atmosphere, land and ocean — which is to say, the climate.

When, at Charney’s request, Hansen programmed his model to consider a future of doubled carbon dioxide, it predicted a temperature increase of four degrees Celsius. That was twice as much warming as the prediction made by the most prominent climate modeler, Syukuro Manabe, whose government lab at Princeton was the first to model the greenhouse effect. The difference between the two predictions — between warming of two degrees Celsius and four degrees Celsius — was the difference between damaged coral reefs and no reefs whatsoever, between thinning forests and forests enveloped by desert, between catastrophe and chaos.

The discrepancy between the models, Arakawa concluded, came down to ice and snow. The whiteness of the world’s snowfields reflected light; if snow melted in a warmer climate, less radiation would escape the atmosphere, leading to even greater warming. Shortly before dawn, Arakawa concluded that Manabe had given too little weight to the influence of melting sea ice, while Hansen had overemphasized it. The best estimate lay in between. Which meant that the Jasons’ calculation was too optimistic. When carbon dioxide doubled in 2035 or thereabouts, global temperatures would increase between 1.5 and 4.5 degrees Celsius, with the most likely outcome a warming of three degrees.

within the highest levels of the federal government, the scientific community and the oil-and-gas industry — within the commonwealth of people who had begun to concern themselves with the future habitability of the planet — the Charney report would come to have the authority of settled fact. It was the summation of all the predictions that had come before, and it would withstand the scrutiny of the decades that followed it. Charney’s group had considered everything known about ocean, sun, sea, air and fossil fuels and had distilled it to a single number: three. When the doubling threshold was broached, as appeared inevitable, the world would warm three degrees Celsius

The last time the world was three degrees warmer was during the Pliocene, three million years ago, when beech trees grew in Antarctica, the seas were 80 feet higher and horses galloped across the Canadian coast of the Arctic Ocean.

After the publication of the Charney report, Exxon decided to create its own dedicated carbon-dioxide research program, with an annual budget of $600,000. Only Exxon was asking a slightly different question than Jule Charney. Exxon didn’t concern itself primarily with how much the world would warm. It wanted to know how much of the warming Exxon could be blamed for.

“It behooves us to start a very aggressive defensive program,” Shaw wrote in a memo to a manager, “because there is a good probability that legislation affecting our business will be passed.”

Shaw turned to Wallace Broecker, a Columbia University oceanographer who was the second author of Roger Revelle’s 1965 carbon-dioxide report for Lyndon Johnson. In 1977, in a presentation at the American Geophysical Union, Broecker predicted that fossil fuels would have to be restricted, whether by taxation or fiat. More recently, he had testified before Congress, calling carbon dioxide “the No.1 long-term environmental problem.” If presidents and senators trusted Broecker to tell them the bad news, he was good enough for Exxon.

The company had been studying the carbon-dioxide problem for decades, since before it changed its name to Exxon. In 1957, scientists from Humble Oil published a study tracking “the enormous quantity of carbon dioxide” contributed to the atmosphere since the Industrial Revolution “from the combustion of fossil fuels.” Even then, the observation that burning fossil fuels had increased the concentration of carbon in the atmosphere was well understood and accepted by Humble’s scientists.

The American Petroleum Institute, the industry’s largest trade association, asked the same question in 1958 through its air-pollution study group and replicated the findings made by Humble Oil. So did another A.P.I. study conducted by the Stanford Research Institute a decade later, in 1968, which concluded that the burning of fossil fuels would bring “significant temperature changes” by the year 2000 and ultimately “serious worldwide environmental changes,” including the melting of the Antarctic ice cap and rising seas.

The ritual repeated itself every few years. Industry scientists, at the behest of their corporate bosses, reviewed the problem and found good reasons for alarm and better excuses to do nothing. Why should they act when almost nobody within the United States government — nor, for that matter, within the environmental movement — seemed worried?

Why take on an intractable problem that would not be detected until this generation of employees was safely retired? Worse, the solutions seemed more punitive than the problem itself. Historically, energy use had correlated to economic growth — the more fossil fuels we burned, the better our lives became. Why mess with that?

That June, Jimmy Carter signed the Energy Security Act of 1980, which directed the National Academy of Sciences to start a multiyear, comprehensive study, to be called “Changing Climate,” that would analyze social and economic effects of climate change. More urgent, the National Commission on Air Quality, at the request of Congress, invited two dozen experts, including Henry Shaw himself, to a meeting in Florida to propose climate policy.

On April 3, 1980, Senator Paul Tsongas, a Massachusetts Democrat, held the first congressional hearing on carbon-dioxide buildup in the atmosphere. Gordon MacDonald testified that the United States should “take the initiative” and develop, through the United Nations, a way to coordinate every nation’s energy policies to address the problem.

During the expansion of the Clean Air Act, he pushed for the creation of the National Commission on Air Quality, charged with ensuring that the goals of the act were being met. One such goal was a stable global climate. The Charney report had made clear that goal was not being met, and now the commission wanted to hear proposals for legislation. It was a profound responsibility, and the two dozen experts invited to the Pink Palace — policy gurus, deep thinkers, an industry scientist and an environmental activist — had only three days to achieve it, but the utopian setting made everything seem possible

We have less time than we realize, said an M.I.T. nuclear engineer named David Rose, who studied how civilizations responded to large technological crises. “People leave their problems until the 11th hour, the 59th minute,” he said. “And then: ‘Eloi, Eloi, Lama Sabachthani?’ ” — “My God, my God, why hast thou forsaken me?”

The attendees seemed to share a sincere interest in finding solutions. They agreed that some kind of international treaty would ultimately be needed to keep atmospheric carbon dioxide at a safe level. But nobody could agree on what that level was.

William Elliott, a NOAA scientist, introduced some hard facts: If the United States stopped burning carbon that year, it would delay the arrival of the doubling threshold by only five years. If Western nations somehow managed to stabilize emissions, it would forestall the inevitable by only eight years. The only way to avoid the worst was to stop burning coal. Yet China, the Soviet Union and the United States, by far the world’s three largest coal producers, were frantically accelerating extraction.

“Do we have a problem?” asked Anthony Scoville, a congressional science consultant. “We do, but it is not the atmospheric problem. It is the political problem.” He doubted that any scientific report, no matter how ominous its predictions, would persuade politicians to act.

The talk of ending oil production stirred for the first time the gentleman from Exxon. “I think there is a transition period,” Henry Shaw said. “We are not going to stop burning fossil fuels and start looking toward solar or nuclear fusion and so on. We are going to have a very orderly transition from fossil fuels to renewable energy sources.”

What if the problem was that they were thinking of it as a problem? “What I am saying,” Scoville continued, “is that in a sense we are making a transition not only in energy but the economy as a whole.” Even if the coal and oil industries collapsed, renewable technologies like solar energy would take their place. Jimmy Carter was planning to invest $80 billion in synthetic fuel. “My God,” Scoville said, “with $80 billion, you could have a photovoltaics industry going that would obviate the need for synfuels forever!”

nobody could agree what to do. John Perry, a meteorologist who had worked as a staff member on the Charney report, suggested that American energy policy merely “take into account” the risks of global warming, though he acknowledged that a nonbinding measure might seem “intolerably stodgy.” “It is so weak,” Pomerance said, the air seeping out of him, “as to not get us anywhere.”

Scoville pointed out that the United States was responsible for the largest share of global carbon emissions. But not for long. “If we’re going to exercise leadership,” he said, “the opportunity is now.

One way to lead, he proposed, would be to classify carbon dioxide as a pollutant under the Clean Air Act and regulate it as such. This was received by the room like a belch. By Scoville’s logic, every sigh was an act of pollution. Did the science really support such an extreme measure? The Charney report did exactly that, Pomerance said.

Slade, the director of the Energy Department’s carbon-dioxide program, considered the lag a saving grace. If changes did not occur for a decade or more, he said, those in the room couldn’t be blamed for failing to prevent them. So what was the problem?

“Call it whatever.” Besides, Pomerance added, they didn’t have to ban coal tomorrow. A pair of modest steps could be taken immediately to show the world that the United States was serious: the implementation of a carbon tax and increased investment in renewable energy. Then the United States could organize an international summit meeting to address climate change

these two dozen experts, who agreed on the major points and had made a commitment to Congress, could not draft a single paragraph. Hours passed in a hell of fruitless negotiation, self-defeating proposals and impulsive speechifying. Pomerance and Scoville pushed to include a statement calling for the United States to “sharply accelerate international dialogue,” but they were sunk by objections and caveats.

They never got to policy proposals. They never got to the second paragraph. The final statement was signed by only the moderator, who phrased it more weakly than the declaration calling for the workshop in the first place. “The guide I would suggest,” Jorling wrote, “is whether we know enough not to recommend changes in existing policy.”

Pomerance had seen enough. A consensus-based strategy would not work — could not work — without American leadership. And the United States wouldn’t act unless a strong leader persuaded it to do so — someone who would speak with authority about the science, demand action from those in power and risk everything in pursuit of justice.

The meeting ended Friday morning. On Tuesday, four days later, Ronald Reagan was elected president.

‘Otherwise, They’ll Gurgle’ November 1980-September 1981

In the midst of this carnage, the Council on Environmental Quality submitted a report to the White House warning that fossil fuels could “permanently and disastrously” alter Earth’s atmosphere, leading to “a warming of the Earth, possibly with very serious effects.” Reagan did not act on the council’s advice. Instead, his administration considered eliminating the council.

After the election, Reagan considered plans to close the Energy Department, increase coal production on federal land and deregulate surface coal mining. Once in office, he appointed James Watt, the president of a legal firm that fought to open public lands to mining and drilling, to run the Interior Department. “We’re deliriously happy,” the president of the National Coal Association was reported to have said. Reagan preserved the E.P.A. but named as its administrator Anne Gorsuch, an anti-regulation zealot who proceeded to cut the agency’s staff and budget by about a quarter

Reagan “has declared open war on solar energy,” the director of the nation’s lead solar-energy research agency said, after he was asked to resign). Reagan appeared determined to reverse the environmental achievements of Jimmy Carter, before undoing those of Richard Nixon, Lyndon Johnson, John F. Kennedy and, if he could get away with it, Theodore Roosevelt.

When Reagan considered closing the Council on Environmental Quality, its acting chairman, Malcolm Forbes Baldwin, wrote to the vice president and the White House chief of staff begging them to reconsider; in a major speech the same week, “A Conservative’s Program for the Environment,” Baldwin argued that it was “time for today’s conservatives explicitly to embrace environmentalism.” Environmental protection was not only good sense. It was good business. What could be more conservative than an efficient use of resources that led to fewer federal subsidies?

Meanwhile the Charney report continued to vibrate at the periphery of public consciousness. Its conclusions were confirmed by major studies from the Aspen Institute, the International Institute for Applied Systems Analysis near Vienna and the American Association for the Advancement of Science. Every month or so, nationally syndicated articles appeared summoning apocalypse: “Another Warning on ‘Greenhouse Effect,’ ” “Global Warming Trend ‘Beyond Human Experience,’ ” “Warming Trend Could ‘Pit Nation Against Nation.’

Pomerance read on the front page of The New York Times on Aug. 22, 1981, about a forthcoming paper in Science by a team of seven NASA scientists. They had found that the world had already warmed in the past century. Temperatures hadn’t increased beyond the range of historical averages, but the scientists predicted that the warming signal would emerge from the noise of routine weather fluctuations much sooner than previously expected. Most unusual of all, the paper ended with a policy recommendation: In the coming decades, the authors wrote, humankind should develop alternative sources of energy and use fossil fuels only “as necessary.” The lead author was James Hansen.

Pomerance listened and watched. He understood Hansen’s basic findings well enough: Earth had been warming since 1880, and the warming would reach “almost unprecedented magnitude” in the next century, leading to the familiar suite of terrors, including the flooding of a 10th of New Jersey and a quarter of Louisiana and Florida. But Pomerance was excited to find that Hansen could translate the complexities of atmospheric science into plain English.

7. ‘We’re All Going to Be the Victims’ March 1982

Gore had learned about climate change a dozen years earlier as an undergraduate at Harvard, when he took a class taught by Roger Revelle. Humankind was on the brink of radically transforming the global atmosphere, Revelle explained, drawing Keeling’s rising zigzag on the blackboard, and risked bringing about the collapse of civilization. Gore was stunned: Why wasn’t anyone talking about this?

Most in Congress considered the science committee a legislative backwater, if they considered it at all; this made Gore’s subcommittee, which had no legislative authority, an afterthought to an afterthought. That, Gore vowed, would change. Environmental and health stories had all the elements of narrative drama: villains, victims and heroes. In a hearing, you could summon all three, with the chairman serving as narrator, chorus and moral authority. He told his staff director that he wanted to hold a hearing every week.

The Revelle hearing went as Grumbly had predicted. The urgency of the issue was lost on Gore’s older colleagues, who drifted in and out while the witnesses testified. There were few people left by the time the Brookings Institution economist Lester Lave warned that humankind’s profligate exploitation of fossil fuels posed an existential test to human nature. “Carbon dioxide stands as a symbol now of our willingness to confront the future,” he said. “It will be a sad day when we decide that we just don’t have the time or thoughtfulness to address those issues.”

That night, the news programs featured the resolution of the baseball strike, the ongoing budgetary debate and the national surplus of butter.

There emerged, despite the general comity, a partisan divide. Unlike the Democrats, the Republicans demanded action. “Today I have a sense of déjà vu,” said Robert Walker, a Republican from Pennsylvania. In each of the last five years, he said, “we have been told and told and told that there is a problem with the increasing carbon dioxide in the atmosphere. We all accept that fact, and we realize that the potential consequences are certainly major in their impact on mankind.” Yet they had failed to propose a single law. “Now is the time,” he said. “The research is clear. It is up to us now to summon the political will.”

Hansen flew to Washington to testify on March 25, 1982, performing before a gallery even more thinly populated than at Gore’s first hearing on the greenhouse effect. Gore began by attacking the Reagan administration for cutting funding for carbon-dioxide research despite the “broad consensus in the scientific community that the greenhouse effect is a reality.” William Carney, a Republican from New York, bemoaned the burning of fossil fuels and argued passionately that science should serve as the basis for legislative policy

the experts invited by Gore agreed with the Republicans: The science was certain enough. Melvin Calvin, a Berkeley chemist who won the Nobel Prize for his work on the carbon cycle, said that it was useless to wait for stronger evidence of warming. “You cannot do a thing about it when the signals are so big that they come out of the noise,” he said. “You have to look for early warning signs.”

Hansen’s job was to share the warning signs, to translate the data into plain English. He explained a few discoveries that his team had made — not with computer models but in libraries. By analyzing records from hundreds of weather stations, he found that the surface temperature of the planet had already increased four-tenths of a degree Celsius in the previous century. Data from several hundred tide-gauge stations showed that the oceans had risen four inches since the 1880s

It occurred to Hansen that this was the only political question that mattered: How long until the worst began? It was not a question on which geophysicists expended much effort; the difference between five years and 50 years in the future was meaningless in geologic time. Politicians were capable of thinking only in terms of electoral time: six years, four years, two years. But when it came to the carbon problem, the two time schemes were converging.

“Within 10 or 20 years,” Hansen said, “we will see climate changes which are clearly larger than the natural variability.” James Scheuer wanted to make sure he understood this correctly. No one else had predicted that the signal would emerge that quickly. “If it were one or two degrees per century,” he said, “that would be within the range of human adaptability. But we are pushing beyond the range of human adaptability.” “Yes,” Hansen said.

How soon, Scheuer asked, would they have to change the national model of energy production? Hansen hesitated — it wasn’t a scientific question. But he couldn’t help himself. He had been irritated, during the hearing, by all the ludicrous talk about the possibility of growing more trees to offset emissions. False hopes were worse than no hope at all: They undermined the prospect of developing real solutions. “That time is very soon,” Hansen said finally. “My opinion is that it is past,” Calvin said, but he was not heard because he spoke from his seat. He was told to speak into the microphone. “It is already later,” Calvin said, “than you think.”

From Gore’s perspective, the hearing was an unequivocal success. That night Dan Rather devoted three minutes of “CBS Evening News” to the greenhouse effect. A correspondent explained that temperatures had increased over the previous century, great sheets of pack ice in Antarctica were rapidly melting, the seas were rising; Calvin said that “the trend is all in the direction of an impending catastrophe”; and Gore mocked Reagan for his shortsightedness. Later, Gore could take credit for protecting the Energy Department’s carbon-dioxide program, which in the end was largely preserved.

8. ‘The Direction of an Impending Catastrophe’ 1982

Following Henry Shaw’s recommendation to establish credibility ahead of any future legislative battles, Exxon had begun to spend conspicuously on global-warming research. It donated tens of thousands of dollars to some of the most prominent research efforts, including one at Woods Hole led by the ecologist George Woodwell, who had been calling for major climate policy as early as the mid-1970s, and an international effort coordinated by the United Nations. Now Shaw offered to fund the October 1982 symposium on climate change at Columbia’s Lamont-Doherty campus.

David boasted that Exxon would usher in a new global energy system to save the planet from the ravages of climate change. He went so far as to argue that capitalism’s blind faith in the wisdom of the free market was “less than satisfying” when it came to the greenhouse effect. Ethical considerations were necessary, too. He pledged that Exxon would revise its corporate strategy to account for climate change, even if it were not “fashionable” to do so. As Exxon had already made heavy investments in nuclear and solar technology, he was “generally upbeat” that Exxon would “invent” a future of renewable energy.

Hansen had reason to feel upbeat himself. If the world’s largest oil-and-gas company supported a new national energy model, the White House would not stand in its way. The Reagan administration was hostile to change from within its ranks. But it couldn’t be hostile to Exxon.

The carbon-dioxide issue was beginning to receive major national attention — Hansen’s own findings had become front-page news, after all. What started as a scientific story was turning into a political story.

The political realm was itself a kind of Mirror World, a parallel reality that crudely mimicked our own. It shared many of our most fundamental laws, like the laws of gravity and inertia and publicity. And if you applied enough pressure, the Mirror World of politics could be sped forward to reveal a new future. Hansen was beginning to understand that too.

1. ‘Caution, Not Panic’ 1983-1984

in the fall of 1983, the climate issue entered an especially long, dark winter. And all because of a single report that had done nothing to change the state of climate science but transformed the state of climate politics.

After the publication of the Charney report in 1979, Jimmy Carter had directed the National Academy of Sciences to prepare a comprehensive, $1 million analysis of the carbon-dioxide problem: a Warren Commission for the greenhouse effect. A team of scientist-dignitaries — among them Revelle, the Princeton modeler Syukuro Manabe and the Harvard political economist Thomas Schelling, one of the intellectual architects of Cold War game theory — would review the literature, evaluate the consequences of global warming for the world order and propose remedies

Then Reagan won the White House.

the incipient report served as the Reagan administration’s answer to every question on the subject. There could be no climate policy, Fred Koomanoff and his associates said, until the academy ruled. In the Mirror World of the Reagan administration, the warming problem hadn’t been abandoned at all. A careful, comprehensive solution was being devised. Everyone just had to wait for the academy’s elders to explain what it was.

The committee’s chairman, William Nierenberg — a Jason, presidential adviser and director of Scripps, the nation’s pre-eminent oceanographic institution — argued that action had to be taken immediately, before all the details could be known with certainty, or else it would be too late.

Better to bet on American ingenuity to save the day. Major interventions in national energy policy, taken immediately, might end up being more expensive, and less effective, than actions taken decades in the future, after more was understood about the economic and social consequences of a warmer planet. Yes, the climate would change, mostly for the worst, but future generations would be better equipped to change with it.

Government officials who knew Nierenberg were not surprised by his conclusions: He was an optimist by training and experience, a devout believer in the doctrine of American exceptionalism, one of the elite class of scientists who had helped the nation win a global war, invent the most deadly weapon conceivable and create the booming aerospace and computer industries. America had solved every existential problem it had confronted over the previous generation; it would not be daunted by an excess of carbon dioxide. Nierenberg had also served on Reagan’s transition team. Nobody believed that he had been directly influenced by his political connections, but his views — optimistic about the saving graces of market forces, pessimistic about the value of government regulation — reflected all the ardor of his party.

That’s what Nierenberg wrote in “Changing Climate.” But it’s not what he said in the press interviews that followed. He argued the opposite: There was no urgent need for action. The public should not entertain the most “extreme negative speculations” about climate change (despite the fact that many of those speculations appeared in his report). Though “Changing Climate” urged an accelerated transition to renewable fuels, noting that it would take thousands of years for the atmosphere to recover from the damage of the last century, Nierenberg recommended “caution, not panic.” Better to wait and see

The damage of “Changing Climate” was squared by the amount of attention it received. Nierenberg’s speech in the Great Hall, being one-500th the length of the actual assessment, received 500 times the press coverage. As The Wall Street Journal put it, in a line echoed by trade journals across the nation: “A panel of top scientists has some advice for people worried about the much-publicized warming of the Earth’s climate: You can cope.”

On “CBS Evening News,” Dan Rather said the academy had given “a cold shoulder” to a grim, 200-page E.P.A. assessment published earlier that week (titled “Can We Delay a Greenhouse Warming?”; the E.P.A.’s answer, reduced to a word, was no). The Washington Post described the two reports, taken together, as “clarion calls to inaction.

George Keyworth II, Reagan’s science adviser. Keyworth used Nierenberg’s optimism as reason to discount the E.P.A.’s “unwarranted and unnecessarily alarmist” report and warned against taking any “near-term corrective action” on global warming. Just in case it wasn’t clear, Keyworth added, “there are no actions recommended other than continued research.”

Edward David Jr., two years removed from boasting of Exxon’s commitment to transforming global energy policy, told Science that the corporation had reconsidered. “Exxon has reverted to being mainly a supplier of conventional hydrocarbon fuels — petroleum products, natural gas and steam coal,” David said. The American Petroleum Institute canceled its own carbon-dioxide research program, too.

Exxon soon revised its position on climate-change research. In a presentation at an industry conference, Henry Shaw cited “Changing Climate” as evidence that “the general consensus is that society has sufficient time to technologically adapt to a CO₂ greenhouse effect.” If the academy had concluded that regulations were not a serious option, why should Exxon protest

2. ‘You Scientists Win’ 1985

3. The Size of The Human Imagination Spring-Summer 1986

Curtis Moore’s proposal: Use ozone to revive climate. The ozone hole had a solution — an international treaty, already in negotiation. Why not hitch the milk wagon to the bullet train? Pomerance was skeptical. The problems were related, sure: Without a reduction in CFC emissions, you didn’t have a chance of averting cataclysmic global warming. But it had been difficult enough to explain the carbon issue to politicians and journalists; why complicate the sales pitch? Then again, he didn’t see what choice he had. The Republicans controlled the Senate, and Moore was his connection to the Senate’s environmental committee.

Pomerance met with Senator John Chafee, a Republican from Rhode Island, and helped persuade him to hold a double-barreled hearing on the twin problems of ozone and carbon dioxide on June 10 and 11, 1986

F.Sherwood Rowland, Robert Watson, a NASA scientist, and Richard Benedick, the administration’s lead representative in international ozone negotiations, would discuss ozone; James Hansen, Al Gore, the ecologist George Woodwell and Carl Wunsch, a veteran of the Charney group, would testify about climate change.

As Pomerance had hoped, fear about the ozone layer ensured a bounty of press coverage for the climate-change testimony. But as he had feared, it caused many people to conflate the two crises. One was Peter Jennings, who aired the video on ABC’s “World News Tonight,” warning that the ozone hole “could lead to flooding all over the world, also to drought and to famine.”

The confusion helped: For the first time since the “Changing Climate” report, global-warming headlines appeared by the dozen. William Nierenberg’s “caution, not panic” line was inverted. It was all panic without a hint of caution: “A Dire Forecast for ‘Greenhouse’ Earth” (the front page of The Washington Post); “Scientists Predict Catastrophes in Growing Global Heat Wave” (Chicago Tribune); “Swifter Warming of Globe Foreseen” (The New York Times).

After three years of backsliding and silence, Pomerance was exhilarated to see interest in the issue spike overnight. Not only that: A solution materialized, and a moral argument was passionately articulated — by Rhode Island’s Republican senator no less. “Ozone depletion and the greenhouse effect can no longer be treated solely as important scientific questions,” Chafee said. “They must be seen as critical problems facing the nations of the world, and they are problems that demand solutions.”

The old canard about the need for more research was roundly mocked — by Woodwell, by a W.R.I. colleague named Andrew Maguire, by Senator George Mitchell, a Democrat from Maine. “Scientists are never 100 percent certain,” the Princeton historian Theodore Rabb testified. “That notion of total certainty is something too elusive ever to be sought.” As Pomerance had been saying since 1979, it was past time to act. Only now the argument was so broadly accepted that nobody dared object.

The ozone hole, Pomerance realized, had moved the public because, though it was no more visible than global warming, people could be made to see it. They could watch it grow on video. Its metaphors were emotionally wrought: Instead of summoning a glass building that sheltered plants from chilly weather (“Everything seems to flourish in there”), the hole evoked a violent rending of the firmament, inviting deathly radiation. Americans felt that their lives were in danger. An abstract, atmospheric problem had been reduced to the size of the human imagination. It had been made just small enough, and just large enough, to break through.

Four years after “Changing Climate,” two years after a hole had torn open the firmament and a month after the United States and more than three dozen other nations signed a treaty to limit use of CFCs, the climate-change corps was ready to celebrate. It had become conventional wisdom that climate change would follow ozone’s trajectory. Reagan’s E.P.A. administrator, Lee M. Thomas, said as much the day he signed the Montreal Protocol on Substances That Deplete the Ozone Layer (the successor to the Vienna Convention), telling reporters that global warming was likely to be the subject of a future international agreement

Congress had already begun to consider policy — in 1987 alone, there were eight days of climate hearings, in three committees, across both chambers of Congress; Senator Joe Biden, a Delaware Democrat, had introduced legislation to establish a national climate-change strategy. And so it was that Jim Hansen found himself on Oct. 27 in the not especially distinguished ballroom of the Quality Inn on New Jersey Avenue, a block from the Capitol, at “Preparing for Climate Change,” which was technically a conference but felt more like a wedding.

John Topping was an old-line Rockefeller Republican, a Commerce Department lawyer under Nixon and an E.P.A. official under Reagan. He first heard about the climate problem in the halls of the E.P.A. in 1982 and sought out Hansen, who gave him a personal tutorial. Topping was amazed to discover that out of the E.P.A.’s 13,000-person staff, only seven people, by his count, were assigned to work on climate, though he figured it was more important to the long-term security of the nation than every other environmental issue combined.

Glancing around the room, Jim Hansen could chart, like an arborist counting rings on a stump, the growth of the climate issue over the decade. Veterans like Gordon MacDonald, George Woodwell and the environmental biologist Stephen Schneider stood at the center of things. Former and current staff members from the congressional science committees (Tom Grumbly, Curtis Moore, Anthony Scoville) made introductions to the congressmen they advised. Hansen’s owlish nemesis Fred Koomanoff was present, as were his counterparts from the Soviet Union and Western Europe. Rafe Pomerance’s cranium could be seen above the crowd, but unusually he was surrounded by colleagues from other environmental organizations that until now had shown little interest in a diffuse problem with no proven fund-raising record. The party’s most conspicuous newcomers, however, the outermost ring, were the oil-and-gas executives.

That evening, as a storm spat and coughed outside, Rafe Pomerance gave one of his exhortative speeches urging cooperation among the various factions, and John Chafee and Roger Revelle received awards; introductions were made and business cards earnestly exchanged. Not even a presentation by Hansen of his research could sour the mood. The next night, on Oct. 28, at a high-spirited dinner party in Topping’s townhouse on Capitol Hill, the oil-and-gas men joked with the environmentalists, the trade-group representatives chatted up the regulators and the academics got merrily drunk. Mikhail Budyko, the don of the Soviet climatologists, settled into an extended conversation about global warming with Topping’s 10-year-old son. It all seemed like the start of a grand bargain, a uniting of factions — a solution.

Hansen was accustomed to the bureaucratic nuisances that attended testifying before Congress; before a hearing, he had to send his formal statement to NASA headquarters, which forwarded it to the White House’s Office of Management and Budget for approval. “Major greenhouse climate changes are a certainty,” he had written. “By the 2010s [in every scenario], essentially the entire globe has very substantial warming.”

By all appearances, plans for major policy continued to advance rapidly. After the Johnston hearing, Timothy Wirth, a freshman Democratic senator from Colorado on the energy committee, began to plan a comprehensive package of climate-change legislation — a New Deal for global warming. Wirth asked a legislative assistant, David Harwood, to consult with experts on the issue, beginning with Rafe Pomerance, in the hope of converting the science of climate change into a new national energy policy.

In March 1988, Wirth joined 41 other senators, nearly half of them Republicans, to demand that Reagan call for an international treaty modeled after the ozone agreement. Because the United States and the Soviet Union were the world’s two largest contributors of carbon emissions, responsible for about one-third of the world total, they should lead the negotiations. Reagan agreed. In May, he signed a joint statement with Mikhail Gorbachev that included a pledge to cooperate on global warming.

Al Gore himself had, for the moment, withdrawn his political claim to the issue. In 1987, at the age of 39, Gore announced that he was running for president, in part to bring attention to global warming, but he stopped emphasizing it after the subject failed to captivate New Hampshire primary voters.

5. ‘You Will See Things That You Shall Believe’ Summer 1988

It was the hottest and driest summer in history. Everywhere you looked, something was bursting into flames. Two million acres in Alaska incinerated, and dozens of major fires scored the West. Yellowstone National Park lost nearly one million acres. Smoke was visible from Chicago, 1,600 miles away.

In Nebraska, suffering its worst drought since the Dust Bowl, there were days when every weather station registered temperatures above 100 degrees. The director of the Kansas Department of Health and Environment warned that the drought might be the dawning of a climatic change that within a half century could turn the state into a desert.

On June 22 in Washington, where it hit 100 degrees, Rafe Pomerance received a call from Jim Hansen, who was scheduled to testify the following morning at a Senate hearing called by Timothy Wirth. “I hope we have good media coverage tomorrow,” Hansen said.

Hansen had just received the most recent global temperature data. Just over halfway into the year, 1988 was setting records. Already it had nearly clinched the hottest year in history. Ahead of schedule, the signal was emerging from the noise. “I’m going to make a pretty strong statement,” Hansen said.

Hansen returned to his testimony. He wrote: “The global warming is now large enough that we can ascribe with a high degree of confidence a cause-and-effect relationship to the greenhouse effect.” He wrote: “1988 so far is so much warmer than 1987, that barring a remarkable and improbable cooling, 1988 will be the warmest year on record.” He wrote: “The greenhouse effect has been detected, and it is changing our climate now.”

“We have only one planet,” Senator Bennett Johnston intoned. “If we screw it up, we have no place to go.” Senator Max Baucus, a Democrat from Montana, called for the United Nations Environment Program to begin preparing a global remedy to the carbon-dioxide problem. Senator Dale Bumpers, a Democrat of Arkansas, previewed Hansen’s testimony, saying that it “ought to be cause for headlines in every newspaper in America tomorrow morning.” The coverage, Bumpers emphasized, was a necessary precursor to policy. “Nobody wants to take on any of the industries that produce the things that we throw up into the atmosphere,” he said. “But what you have are all these competing interests pitted against our very survival.”

Hansen, wiping his brow, spoke without affect, his eyes rarely rising from his notes. The warming trend could be detected “with 99 percent confidence,” he said. “It is changing our climate now.” But he saved his strongest comment for after the hearing, when he was encircled in the hallway by reporters. “It is time to stop waffling so much,” he said, “and say that the evidence is pretty strong that the greenhouse effect is here.”

The press followed Bumpers’s advice. Hansen’s testimony prompted headlines in dozens of newspapers across the country, including The New York Times, which announced, across the top of its front page: “Global Warming Has Begun, Expert Tells Senate.”

Rafe Pomerance called his allies on Capitol Hill, the young staff members who advised politicians, organized hearings, wrote legislation. We need to finalize a number, he told them, a specific target, in order to move the issue — to turn all this publicity into policy. The Montreal Protocol had called for a 50 percent reduction in CFC emissions by 1998. What was the right target for carbon emissions? It wasn’t enough to exhort nations to do better. That kind of talk might sound noble, but it didn’t change investments or laws. They needed a hard goal — something ambitious but reasonable. And they needed it soon: Just four days after Hansen’s star turn, politicians from 46 nations and more than 300 scientists would convene in Toronto at the World Conference on the Changing Atmosphere, an event described by Philip Shabecoff of The New York Times as “Woodstock for climate change.”

Pomerance had a proposal: a 20 percent reduction in carbon emissions by 2000. Ambitious, Harwood said. In all his work planning climate policy, he had seen no assurance that such a steep drop in emissions was possible. Then again, 2000 was more than a decade off, so it allowed for some flexibility.

Mintzer pointed out that a 20 percent reduction was consistent with the academic literature on energy efficiency. Various studies over the years had shown that you could improve efficiency in most energy systems by roughly 20 percent if you adopted best practices.

Of course, with any target, you had to take into account the fact that the developing world would inevitably consume much larger quantities of fossil fuels by 2000. But those gains could be offset by a wider propagation of the renewable technologies already at hand — solar, wind, geothermal. It was not a rigorous scientific analysis, Mintzer granted, but 20 percent sounded plausible. We wouldn’t need to solve cold fusion or ask Congress to repeal the law of gravity. We could manage it with the knowledge and technology we already had.

Besides, Pomerance said, 20 by 2000 sounds good.

The conference’s final statement, signed by all 400 scientists and politicians in attendance, repeated the demand with a slight variation: a 20 percent reduction in carbon emissions by 2005. Just like that, Pomerance’s best guess became global diplomatic policy.

Hansen, emerging from Anniek’s successful cancer surgery, took it upon himself to start a one-man public information campaign. He gave news conferences and was quoted in seemingly every article about the issue; he even appeared on television with homemade props. Like an entrant at an elementary-school science fair, he made “loaded dice” out of sections of cardboard and colored paper to illustrate the increased likelihood of hotter weather in a warmer climate. Public awareness of the greenhouse effect reached a new high of 68 percent

global warming became a major subject of the presidential campaign. While Michael Dukakis proposed tax incentives to encourage domestic oil production and boasted that coal could satisfy the nation’s energy needs for the next three centuries, George Bush took advantage. “I am an environmentalist,” he declared on the shore of Lake Erie, the first stop on a five-state environmental tour that would take him to Boston Harbor, Dukakis’s home turf. “Those who think we are powerless to do anything about the greenhouse effect,” he said, “are forgetting about the White House effect.”

His running mate emphasized the ticket’s commitment to the issue at the vice-presidential debate. “The greenhouse effect is an important environmental issue,” Dan Quayle said. “We need to get on with it. And in a George Bush administration, you can bet that we will.”

This kind of talk roused the oil-and-gas men. “A lot of people on the Hill see the greenhouse effect as the issue of the 1990s,” a gas lobbyist told Oil & Gas Journal. Before a meeting of oil executives shortly after the “environmentalist” candidate won the election, Representative Dick Cheney, a Wyoming Republican, warned, “It’s going to be very difficult to fend off some kind of gasoline tax.” The coal industry, which had the most to lose from restrictions on carbon emissions, had moved beyond denial to resignation. A spokesman for the National Coal Association acknowledged that the greenhouse effect was no longer “an emerging issue. It is here already, and we’ll be hearing more and more about it.”

By the end of the year, 32 climate bills had been introduced in Congress, led by Wirth’s omnibus National Energy Policy Act of 1988. Co-sponsored by 13 Democrats and five Republicans, it established as a national goal an “International Global Agreement on the Atmosphere by 1992,” ordered the Energy Department to submit to Congress a plan to reduce energy use by at least 2 percent a year through 2005 and directed the Congressional Budget Office to calculate the feasibility of a carbon tax. A lawyer for the Senate energy committee told an industry journal that lawmakers were “frightened” by the issue and predicted that Congress would eventually pass significant legislation after Bush took office

The other great powers refused to wait. The German Parliament created a special commission on climate change, which concluded that action had to be taken immediately, “irrespective of any need for further research,” and that the Toronto goal was inadequate; it recommended a 30 percent reduction of carbon emissions

Margaret Thatcher, who had studied chemistry at Oxford, warned in a speech to the Royal Society that global warming could “greatly exceed the capacity of our natural habitat to cope” and that “the health of the economy and the health of our environment are totally dependent upon each other.”

The prime ministers of Canada and Norway called for a binding international treaty on the atmosphere; Sweden’s Parliament went further, announcing a national strategy to stabilize emissions at the 1988 level and eventually imposing a carbon tax

the United Nations unanimously endorsed the establishment, by the World Meteorological Organization and the United Nations Environment Program, of an Intergovernmental Panel on Climate Change, composed of scientists and policymakers, to conduct scientific assessments and develop global climate policy.

One of the I.P.C.C.’s first sessions to plan an international treaty was hosted by the State Department, 10 days after Bush’s inauguration. James Baker chose the occasion to make his first speech as secretary of state. “We can probably not afford to wait until all of the uncertainties about global climate change have been resolved,” he said. “Time will not make the problem go away.”

: On April 14, 1989, a bipartisan group of 24 senators, led by the majority leader, George Mitchell, requested that Bush cut emissions in the United States even before the I.P.C.C.’s working group made its recommendation. “We cannot afford the long lead times associated with a comprehensive global agreement,” the senators wrote. Bush had promised to combat the greenhouse effect with the White House effect. The self-proclaimed environmentalist was now seated in the Oval Office. It was time.

8. ‘You Never Beat The White House’ April 1989

After Jim Baker gave his boisterous address to the I.P.C.C. working group at the State Department, he received a visit from John Sununu, Bush’s chief of staff. Leave the science to the scientists, Sununu told Baker. Stay clear of this greenhouse-effect nonsense. You don’t know what you’re talking about. Baker, who had served as Reagan’s chief of staff, didn’t speak about the subject again.

despite his reputation as a political wolf, he still thought of himself as a scientist — an “old engineer,” as he was fond of putting it, having earned a Ph.D. in mechanical engineering from M.I.T. decades earlier. He lacked the reflexive deference that so many of his political generation reserved for the class of elite government scientists.

Since World War II, he believed, conspiratorial forces had used the imprimatur of scientific knowledge to advance an “anti-growth” doctrine. He reserved particular disdain for Paul Ehrlich’s “The Population Bomb,” which prophesied that hundreds of millions of people would starve to death if the world took no step to curb population growth; the Club of Rome, an organization of European scientists, heads of state and economists, which similarly warned that the world would run out of natural resources; and as recently as the mid-’70s, the hypothesis advanced by some of the nation’s most celebrated scientists — including Carl Sagan, Stephen Schneider and Ichtiaque Rasool — that a new ice age was dawning, thanks to the proliferation of man-made aerosols. All were theories of questionable scientific merit, portending vast, authoritarian remedies to halt economic progress.

When Mead talked about “far-reaching” decisions and “long-term consequences,” Sununu heard the marching of jackboots.

Sununu had suspected that the greenhouse effect belonged to this nefarious cabal since 1975, when the anthropologist Margaret Mead convened a symposium on the subject at the National Institute of Environmental Health Sciences.

While Sununu and Darman reviewed Hansen’s statements, the E.P.A. administrator, William K. Reilly, took a new proposal to the White House. The next meeting of the I.P.C.C.’s working group was scheduled for Geneva the following month, in May; it was the perfect occasion, Reilly argued, to take a stronger stand on climate change. Bush should demand a global treaty to reduce carbon emissions.

Sununu wouldn’t budge. He ordered the American delegates not to make any commitment in Geneva. Very soon after that, someone leaked the exchange to the press.

A deputy of Jim Baker pulled Reilly aside. He said he had a message from Baker, who had observed Reilly’s infighting with Sununu. “In the long run,” the deputy warned Reilly, “you never beat the White House.”

9. ‘A Form of Science Fraud’ May 1989

The cameras followed Hansen and Gore into the marbled hallway. Hansen insisted that he wanted to focus on the science. Gore focused on the politics. “I think they’re scared of the truth,” he said. “They’re scared that Hansen and the other scientists are right and that some dramatic policy changes are going to be needed, and they don’t want to face up to it.”

The censorship did more to publicize Hansen’s testimony and the dangers of global warming than anything he could have possibly said. At the White House briefing later that morning, Press Secretary Marlin Fitzwater admitted that Hansen’s statement had been changed. He blamed an official “five levels down from the top” and promised that there would be no retaliation. Hansen, he added, was “an outstanding and distinguished scientist” and was “doing a great job.”

10. The White House Effect Fall 1989

The Los Angeles Times called the censorship “an outrageous assault.” The Chicago Tribune said it was the beginning of “a cold war on global warming,” and The New York Times warned that the White House’s “heavy-handed intervention sends the signal that Washington wants to go slow on addressing the greenhouse problem.”

Darman went to see Sununu. He didn’t like being accused of censoring scientists. They needed to issue some kind of response. Sununu called Reilly to ask if he had any ideas. We could start, Reilly said, by recommitting to a global climate treaty. The United States was the only Western nation on record as opposing negotiations.

Sununu sent a telegram to Geneva endorsing a plan “to develop full international consensus on necessary steps to prepare for a formal treaty-negotiating process. The scope and importance of this issue are so great that it is essential for the U.S. to exercise leadership.”

Sununu seethed at any mention of the subject. He had taken it upon himself to study more deeply the greenhouse effect; he would have a rudimentary, one-dimensional general circulation model installed on his personal desktop computer. He decided that the models promoted by Jim Hansen were a lot of bunk. They were horribly imprecise in scale and underestimated the ocean’s ability to mitigate warming. Sununu complained about Hansen to D. Allan Bromley, a nuclear physicist from Yale who, at Sununu’s recommendation, was named Bush’s science adviser. Hansen’s findings were “technical poppycock” that didn’t begin to justify such wild-eyed pronouncements that “the greenhouse effect is here” or that the 1988 heat waves could be attributed to global warming, let alone serve as the basis for national economic policy.

When a junior staff member in the Energy Department, in a meeting at the White House with Sununu and Reilly, mentioned an initiative to reduce fossil-fuel use, Sununu interrupted her. “Why in the world would you need to reduce fossil-fuel use?” he asked. “Because of climate change,” the young woman replied. “I don’t want anyone in this administration without a scientific background using ‘climate change’ or ‘global warming’ ever again,” he said. “If you don’t have a technical basis for policy, don’t run around making decisions on the basis of newspaper headlines.” After the meeting, Reilly caught up to the staff member in the hallway. She was shaken. Don’t take it personally, Reilly told her. Sununu might have been looking at you, but that was directed at me.

Reilly, for his part, didn’t entirely blame Sununu for Bush’s indecision on the prospect of a climate treaty. The president had never taken a vigorous interest in global warming and was mainly briefed about it by nonscientists. Bush had brought up the subject on the campaign trail, in his speech about the White House effect, after leafing through a briefing booklet for a new issue that might generate some positive press. When Reilly tried in person to persuade him to take action, Bush deferred to Sununu and Baker. Why don’t the three of you work it out, he said. Let me know when you decide

Relations between Sununu and Reilly became openly adversarial. Reilly, Sununu thought, was a creature of the environmental lobby. He was trying to impress his friends at the E.P.A. without having a basic grasp of the science himself.

Pomerance had the sinking feeling that the momentum of the previous year was beginning to flag. The censoring of Hansen’s testimony and the inexplicably strident opposition from John Sununu were ominous signs. So were the findings of a report Pomerance had commissioned, published in September by the World Resources Institute, tracking global greenhouse-gas emissions. The United States was the largest contributor by far, producing nearly a quarter of the world’s carbon emissions, and its contribution was growing faster than that of every other country. Bush’s indecision, or perhaps inattention, had already managed to delay the negotiation of a global climate treaty until 1990 at the earliest, perhaps even 1991. By then, Pomerance worried, it would be too late.

Pomerance tried to be more diplomatic. “The president made a commitment to the American people to deal with global warming,” he told The Washington Post, “and he hasn’t followed it up.” He didn’t want to sound defeated. “There are some good building blocks here,” Pomerance said, and he meant it. The Montreal Protocol on CFCs wasn’t perfect at first, either — it had huge loopholes and weak restrictions. Once in place, however, the restrictions could be tightened. Perhaps the same could happen with climate change. Perhaps. Pomerance was not one for pessimism. As William Reilly told reporters, dutifully defending the official position forced upon him, it was the first time that the United States had formally endorsed the concept of an emissions limit. Pomerance wanted to believe that this was progress.

All week in Noordwijk, Becker couldn’t stop talking about what he had seen in Zeeland. After a flood in 1953, when the sea swallowed much of the region, killing more than 2,000 people, the Dutch began to build the Delta Works, a vast concrete-and-steel fortress of movable barriers, dams and sluice gates — a masterpiece of human engineering. The whole system could be locked into place within 90 minutes, defending the land against storm surge. It reduced the country’s exposure to the sea by 700 kilometers, Becker explained. The United States coastline was about 153,000 kilometers long. How long, he asked, was the entire terrestrial coastline? Because the whole world was going to need this. In Zeeland, he said, he had seen the future.

Ken Caldeira, a climate scientist at the Carnegie Institution for Science in Stanford, Calif., has a habit of asking new graduate students to name the largest fundamental breakthrough in climate physics since 1979. It’s a trick question. There has been no breakthrough. As with any mature scientific discipline, there is only refinement. The computer models grow more precise; the regional analyses sharpen; estimates solidify into observational data. Where there have been inaccuracies, they have tended to be in the direction of understatement.

More carbon has been released into the atmosphere since the final day of the Noordwijk conference, Nov. 7, 1989, than in the entire history of civilization preceding it

Despite every action taken since the Charney report — the billions of dollars invested in research, the nonbinding treaties, the investments in renewable energy — the only number that counts, the total quantity of global greenhouse gas emitted per year, has continued its inexorable rise.

When it comes to our own nation, which has failed to make any binding commitments whatsoever, the dominant narrative for the last quarter century has concerned the efforts of the fossil-fuel industries to suppress science, confuse public knowledge and bribe politicians.

The mustache-twirling depravity of these campaigns has left the impression that the oil-and-gas industry always operated thus; while the Exxon scientists and American Petroleum Institute clerics of the ’70s and ’80s were hardly good Samaritans, they did not start multimillion-dollar disinformation campaigns, pay scientists to distort the truth or try to brainwash children in elementary schools, as their successors would.

It was James Hansen’s testimony before Congress in 1988 that, for the first time since the “Changing Climate” report, made oil-and-gas executives begin to consider the issue’s potential to hurt their profits. Exxon, as ever, led the field. Six weeks after Hansen’s testimony, Exxon’s manager of science and strategy development, Duane LeVine, prepared an internal strategy paper urging the company to “emphasize the uncertainty in scientific conclusions.” This shortly became the default position of the entire sector. LeVine, it so happened, served as chairman of the global petroleum industry’s Working Group on Global Climate Change, created the same year, which adopted Exxon’s position as its own

The American Petroleum Institute, after holding a series of internal briefings on the subject in the fall and winter of 1988, including one for the chief executives of the dozen or so largest oil companies, took a similar, if slightly more diplomatic, line. It set aside money for carbon-dioxide policy — about $100,000, a fraction of the millions it was spending on the health effects of benzene, but enough to establish a lobbying organization called, in an admirable flourish of newspeak, the Global Climate Coalition.

The G.C.C. was conceived as a reactive body, to share news of any proposed regulations, but on a whim, it added a press campaign, to be coordinated mainly by the A.P.I. It gave briefings to politicians known to be friendly to the industry and approached scientists who professed skepticism about global warming. The A.P.I.’s payment for an original op-ed was $2,000.

It was joined by the U.S. Chamber of Commerce and 14 other trade associations, including those representing the coal, electric-grid and automobile industries

In October 1989, scientists allied with the G.C.C. began to be quoted in national publications, giving an issue that lacked controversy a convenient fulcrum. “Many respected scientists say the available evidence doesn’t warrant the doomsday warnings,” was the caveat that began to appear in articles on climate change.

The following year, when President Bill Clinton proposed an energy tax in the hope of meeting the goals of the Rio treaty, the A.P.I. invested $1.8 million in a G.C.C. disinformation campaign. Senate Democrats from oil-and-coal states joined Republicans to defeat the tax proposal, which later contributed to the Republicans’ rout of Democrats in the midterm congressional elections in 1994 — the first time the Republican Party had won control of both houses in 40 years

The G.C.C. spent $13 million on a single ad campaign intended to weaken support for the 1997 Kyoto Protocol, which committed its parties to reducing greenhouse-gas emissions by 5 percent relative to 1990 levels. The Senate, which would have had to ratify the agreement, took a pre-emptive vote declaring its opposition; the resolution passed 95-0. There has never been another serious effort to negotiate a binding global climate treaty.

. This has made the corporation an especially vulnerable target for the wave of compensatory litigation that began in earnest in the last three years and may last a generation. Tort lawsuits have become possible only in recent years, as scientists have begun more precisely to attribute regional effects to global emission levels. This is one subfield of climate science that has advanced significantly sin

Pomerance had not been among the 400 delegates invited to Noordwijk. But together with three young activists — Daniel Becker of the Sierra Club, Alden Meyer of the Union of Concerned Scientists and Stewart Boyle from Friends of the Earth — he had formed his own impromptu delegation. Their constituency, they liked to say, was the climate itself. Their mission was to pressure the delegates to include in the final conference statement, which would be used as the basis for a global treaty, the target proposed in Toronto: a 20 percent reduction of greenhouse-gas combustion by 2005. It was the only measure that mattered, the amount of emissions reductions, and the Toronto number was the strongest global target yet proposed.

The delegations would review the progress made by the I.P.C.C. and decide whether to endorse a framework for a global treaty. There was a general sense among the delegates that they would, at minimum, agree to the target proposed by the host, the Dutch environmental minister, more modest than the Toronto number: a freezing of greenhouse-gas emissions at 1990 levels by 2000. Some believed that if the meeting was a success, it would encourage the I.P.C.C. to accelerate its negotiations and reach a decision about a treaty sooner. But at the very least, the world’s environmental ministers should sign a statement endorsing a hard, binding target of emissions reductions. The mood among the delegates was electric, nearly giddy — after more than a decade of fruitless international meetings, they could finally sign an agreement that meant something.

11. ‘The Skunks at The Garden Party’ November 1989

It was nearly freezing — Nov. 6, 1989, on the coast of the North Sea in the Dutch resort town of Noordwijk

Losing Earth: The Decade WeAlmost Stopped Climate Change We knew everything we needed to know, and nothing stood in our way. Nothing, that is, except ourselves. A tragedy in two acts. By Nathaniel RichPhotographs and Videos by George Steinmetz AUG. 1, 2018

Right now, the outcome that we have been sliding toward seems one in which an autocratic East gradually divides from — and then potentially accelerates past — a democratic but divided West. 

Seizing that opportunity will require an understanding of both economics and history.

By any economic measure the West is significantly more powerful than the East, using the terms “West” and “East” to mean political alliances rather than just geographical regions. The U.S. and its allies account for 60% of global gross domestic product at current exchange rates; China, Russia and the autocracies amount to barely a third of that. And for the first time in years, the West is coming together rather than falling apart.

The question for Biden and the European leaders he will meet this week is simple: What sort of world do they want to build in the future? Ukraine could well mark the end of one great episode in human history. It could also be the time that the free world comes together and creates another, more united, more interconnected and more sustainable one than ever before

the answer to globalization’s woes isn’t to abandon economic liberalism, but to redesign it. And the coming weeks offer a golden opportunity to redesign the global economic order.

Yet once politicians got out of the way, globalization sped up, driven by technology and commerce.

Only after the Second World War did economic integration resume its advance — and then only on the Western half of the map

What most of us today think of as globalization only began in the 1980s, with the arrival of Thatcherism and Reaganism, the fall of the Berlin Wall, the reintegration of China into the world economy, and, in 1992, the creation of the European single market.

When the guns finally fell silent in 1918 and peace was forced on Germany at Versailles (in the Carthaginian terms that Keynes decried so eloquently), the Bidens, Johnsons and Macrons of the time tried to restore the old world order of free trade and liberal harmony — and comprehensively failed. 

As the new century dawned and an unknown “pro-Western” bureaucrat called Vladimir Putin came to power in Russia, the daily volume of foreign-exchange transactions reached $15 trillion. 

More recently, as the attacks on globalization have mounted, economic integration has slowed and in some cases gone into reverse.

Meanwhile in the West, Ukraine has already prompted a great rethink. As German Chancellor Olaf Scholz has proclaimed, we are at a Zeitenwende — a turning point. Under his leadership, pacifist Germany has already proposed a defense budget that’s larger than Russia’s. Meanwhile, Ukrainian immigrants are being welcomed by nations that only a few months ago were shunning foreigners, and, after a decade of slumber in Brussels, the momentum for integration is increasing.

But this turning point can still lead in several directions.

the invasion of Ukraine is accelerating changes in both geopolitics and the capitalist mindset that are deeply inimical to globalization.

The changes in geopolitics come down to one word: China, whose rapid and seemingly inexorable rise is the central geopolitical fact of our time.  

absent any decisive action by the West, geopolitics is definitively moving against globalization — toward a world dominated by two or three great trading blocs: an Asian one with China at its heart and perhaps Russia as its energy supplier; an American-led bloc; and perhaps a third centered on the European Union, with the Europeans broadly sympathetic to the U.S. but nervous about the possible return of an America-First isolationist to the White House and irked by America’s approach to digital and media regulation.

World trade in manufactured goods doubled in the 1990s and doubled again in the 2000s. Inflationary pressures have been kept low despite loose monetary policies.

From a CEO’s viewpoint, Putin’s invasion of Ukraine has done more than unleash Western embargoes and boost inflation. It is burying most of the basic assumptions that have underlain business thinking about the world for the past 40 years. 

Commercially speaking, this bet paid off spectacularly. Over the past 50 years multinationals have turned themselves from federations of national companies into truly integrated organizations that could take full advantage of global economies of scale and scope (and, of course, global loopholes in taxes and regulations)

Just as important as this geopolitical shift is the change in the capitalist mindset. If the current age of globalization was facilitated by politicians, it has been driven by businesspeople. Ronald Reagan and Margaret Thatcher didn’t decide that the components of an iPhone should come from 40 countries. Facebook wasn’t created by senior politicians — not even by Al Gore. Uber wasn’t an arm of the Department of Transportation. 

profits have remained high, as the cost of inputs (such as energy and labor) have been kept low.

Now what might be called the Capitalist Grand Illusion is under assault in Kyiv — just as Norman Angell’s version was machine-gunned on the Western Front.

Militarism and cultural rivalries keep trumping economic logic.

The second is Biden’s long experience

Every Western company is now wondering how exposed it is to political risk. Capitalists are all Huntingtonians now.

Greed is also acquiring an anti-global tint. CEOs are rationally asking how they can profit from what Keynes called “monopolies, restrictions and exclusions.

So the second age of globalization is fading fast. Unless something is done quickly and decisively, the world will divide into hostile camps, regardless of what happens in Ukraine.

this divided world will not suit the West. Look at the resolution passed by the United Nations General Assembly to condemn Russia’s invasion of Ukraine. The most trumpeted figure is that only 40 countries did not vote for this (35 abstained, and five voted against it), compared with 141 countries who voted in favor. But those 40 countries, which include India and China, account for the majority of the world’s population.

we still have time to shape a very different future: one in which global wealth is increased and the Western alliance bolstered.

One of the great problems with modern liberalism for the past few decades has been its lack of a gripping narrative and a compelling cast of heroes and villains

Now Putin has inadvertently reversed all that. Freedom is the creed of heroes such as Zelenskiy; anti-liberalism is the creed of monsters who drop bombs on children.

Biden can soften that message at home by adding a political dimension to his trade agenda. “Build back better” applies to globalization, too. A global new deal should certainly include a focus on making multinational companies pay their taxes, and the environment should be to the fore. But Biden should also talk about the true cost of protectionism in terms of higher prices, worse products and less innovation.

So far, Biden’s handling of the Ukraine invasion has been similarly nuanced. He has drawn a line between supplying the resistance and becoming involved in the war (or giving others an excuse to claim the U.S. is involved). And he has put firm pressure on China to stay out of the conflict.

Biden needs to recognize that expanding economic interdependence among his allies is a geostrategic imperative. He should offer Europe a comprehensive free-trade deal to bind the West together

It is not difficult to imagine Europe or democratic Asia signing up for these sorts of pacts, given the shock of Putin’s aggression and their fear of China. Biden’s problem is at home. Why should the Democratic left accept this? Because, Biden should say, Ukraine, China and America’s security matter more than union votes.

Biden should pursue a two-stage strategy: First, deepen economic integration among like-minded nations; but leave the door open to autocracies if they become more flexible.

CEOs who used to build empires based on just-in-time production are now looking at just-in-case: adding inefficient production closer to home in case their foreign plants are cut off.

Constructing such a “new world order” will be laborious work. But the alternative is a division of the world into hostile economic and political blocs that comes straight out of the 1930s

Biden, Johnson, Scholz and Macron should think hard about how history will judge them. Do they want to be compared to the policymakers in the aftermath of World War I, who stood by impassively as the world fragmented and monsters seized the reins of power? Or would they rather be compared to their peers after World War II, policymakers who built a much more stable and interconnected world?

The Western policymakers meeting this week will say they have no intention of closing down the global order. All this economic savagery is to punish Putin’s aggression precisely in order to restore the rules-based system that he is bent on destroying — and with it, the free flow of commerce and finance. In an ideal world, Putin would be toppled — the victim of his own delusions and paranoia — and the Russian people would sweep away the kleptocracy in the Kremlin. 

In this optimistic scenario, Putin’s humiliation would do more than bring Russia back to its senses. It would bring the West back as well. The U.S. would abandon its Trumpian isolationism while Europe would start taking its own defense seriously. The culture warriors on both sides of the Atlantic would simmer down, and the woke and unwoke alike would celebrate their collective belief in freedom and democracy.

There’s a chance this could happen. Putin wouldn’t be the first czar to fall because of a misjudged and mishandled war.

Regardless of whether China’s leader decides to ditch Putin, the invasion has surely sped up Xi’s medium-term imperative of “decoupling” — insulating his country from dependence on the West.

For the “wolf pack” of young Chinese nationalists around Xi, the reaction to Ukraine is another powerful argument for self-sufficiency. China’s vast holdings of dollar assets now look like a liability given America’s willingness to confiscate Russia’s assets,

Some Americans are equally keen on decoupling, a sentiment that bridged Republicans and Democrats before Putin’s invasion of Ukraine.

In the great intellectual battle of the 1990s between Francis Fukuyama, who wrote “The End of History and the Last Man” (1992), and his Harvard teacher Samuel Huntington, who wrote “The Clash of Civilizations” (1996), CEOs have generally sided with Fukuyama.

Biden needs to go further in the coming weeks. He needs to reinforce the Western alliance so that it can withstand the potential storms to come

Keynes, no longer a protectionist, played a leading role in designing the International Monetary Fund, the World Bank, and the infrastructure of the postwar Western order of stable exchange rates. He helped persuade the U.S. to lead the world rather than retreating into itself. He helped create the America of the Marshall Plan. This Bretton Woods settlement created the regime that eventually won the Cold War and laid the foundations for the second age of globalization.

At the closing banquet on July 22, the great man was greeted with a standing ovation. Within two years he was dead — but the world that he did so much to create lived on. That world does not need to die in the streets of Kyiv. But it is on course to do so, unless the leaders meeting this week seize the moment to create something better. 

the benefits are really vivid, they are really clear. Everybody agrees that the world will be better off the faster we move. And that really wasn’t the case five or 10 years ago. There was much more muddled analysis and messaging then. And I think we have to take advantage of the new unanimity and not let people fall back on the logic of status quo bias and incumbency and just think that change is expensive and difficult

david wallace-wellsMy basic feeling is that the changes that we need are all systemic. And so the things that individuals can do to make that change are primarily through the political realm, not through their individual behavior. If we want to really halt this problem and get a handle on it, it means large, large scale changes that are beyond the capacity of individuals to enact on their own.

jane coastonHow do we get our house in order? What do I as an individual or the people listening to this podcast, how do I make this happen on my level? Knowing all of that, what do I do? What do I personally need to do? Give me a thing to do, Genevieve!

If you want to learn more about personal responsibility, I recommend Jason Marks’s article in the Sierra Club magazine, “Yes, actually, individual responsibility is essential to solving the climate crisis,” and the New York Times guest essay by Auden Schendler, “Worrying About Your Carbon Footprint is Exactly What Big Oil Wants You to Do.”

david wallace-wells

I don’t know that we have to all take on a feeling of guilt for the rise of G.D.P. under neoliberalism, because I don’t know that most of us have actually even seen that money.

ultimately, the things that we need to do to really get a hold of this are way bigger than cutting your food emissions by 10 percent or 50 percent or whatever. It’s like, the three of us in this room, we can’t build an electric grid, a solar farm. We can’t make sure that there are Tesla charging stations all across the country. We can’t re-imagine land use policy or agricultural policy. We can’t put an honest price on carbon so that when you’re buying gas, you’re actually paying for the environmental damage that’s being caused or when you’re buying an airplane ticket. Those are just things that are well outside of our capacity to control

jane coastonCould you explain what climate justice means to an audience that is me?genevieve guentherBasically, it means that the global north historically has been responsible for the vast majority of carbon pollution. And the global south has been responsible for almost none of it. Since 1990, for example, the top 10 percent of earners have been responsible for 52 percent of the growth of global emissions. And the poorest, 50 percent, who largely live in the global south, have been responsible for about 7 percent of global emissions. But that hasn’t grown at all. Historically, they have contributed nothing to the exponential growth of emissions and the increased and accelerating global heating that we’re already seeing. So the idea of climate justice is that global north nations have a moral responsibility to reduce their emissions first and faster so that there is some room left in whatever carbon budget we still have for the global south to pull themselves out of poverty.

jane coastonDavid, what do you make of what Genevieve said about the messaging about good and evil there?

david wallace-wellsI would say even more importantly, we can’t set our standard at extinction. It’s not like if we survive and avoid extinction, that that’s a success. There is huge suffering between here and there. And every degree of temperature rise is going to create more suffering. And every degree we avoid can help us avoid that.

The climate crisis has begun in the United States, too. But the real violence of it is in the global south. And I would argue that the global north doesn’t see it because the news media isn’t reporting on it and because the kind of white supremacy prevents people in this country from really recognizing that this is a violence that would feel unimaginable if it happened to their children.

genevieve guentherOK, so the first part is understanding why we have to do this. And I would argue that most Americans still don’t know enough about global heating and the climate crisis.

jane coastonYeah, but and a benefit when? Because I think a lot of this messaging relies on something that, in general, people do not like, which is, you may need to do a thing or change a thing about your life for a future that we have not yet defined. From a messaging perspective, how do we message the urgency

To think about the concrete impacts, 350,000 Americans, it’s estimated, die every single year from the air pollution from the burning of fossil fuels. That is a death toll literally equal to the 2020 death toll from COVID.

Or is it going to take so long that, in fact, things are going to spiral out of control?

within the space of a few years, by simply refusing to accept their own impotence, they have literally remade the entire landscape of global climate politics. Like in the U.S., when we have Joe Biden who Sunrise gave an F to in the primary, talking about this as an existential threat, that is because the protests worked. And they worked in an incredibly short amount of time

I personally think the high consumption, and particularly the flying of people who are in the public eye, trying to communicate the urgency of the climate crisis, is incredibly destructive to building a political movement. They’re actually doing something extremely counterproductive in my interpretation. They’re reinforcing everybody’s cognitive dissonance with their behavior, which is also a form of speech. They’re communicating that they’re not willing to make transformative changes and not willing to support transformative policies, and that, in fact, you need to use fossil fuels even to do climate work. And so, for me, I feel like the people who need to worry about their carbon footprints insofar as anybody does are the 1 percent and people in the climate movement.

here are huge, huge health consequences from this pollution. It may be the case that air pollution may even be a bigger crisis than climate change. That is how dramatic these impacts are. They happen to be caused largely by the same thing so we can solve them at the same time, but we’re talking about rising rates of respiratory disease and coronary disease and cancers of all kinds and Alzheimer’s and dementia and ADHD and criminality and premature birth and low birth weight. And just every aspect of human flourishing is damaged by the pollution that is produced by the burning of fossil fuels

david wallace-wellsIt’s really, really stark, as Genevieve lays out, that it is the wealthy countries of the world and the wealthy people of the world who have engineered this crisis. So whenever we hear about the problem of India, the problem of electrifying sub-Saharan Africa, these are problems. We need to figure them out and do them clean in a way that doesn’t imperil the future of the planet. But those are only problems that we have to deal with now because of the development patterns that countries like ours and across northern Europe went through over the last few decades and centuries.

Half of all emissions in the entire history of humanity have come in the last 30 years. Now since Al Gore published his first book on warming, you know I often joke it’s since the premiere of “Friends,” which means that, actually, the people who have done the lion’s share of the damage to the planet are alive today. And it is true, of course, that the people who have been running Shell and Chevron and ExxonMobil have much more responsibility than I do or Genevieve does or Jane does. But it is also the case that all of us have benefited in significant ways from economic activity that has been powered by fossil fuels and to which we could have raised louder objections earlier.

genevieve guentherI think it’s worthwhile to point out that the vast majority of Americans are literally going to be richer once we have decarbonized, because their electricity, their heating, their transportation, and their health care costs are going to go down significantl

genevieve guentherPick one. Do it once a week, and things will change. First thing is vote. You can’t do that once a week, but vote in every election. Vote

some of the actions that you’re talking about, the individual actions, I think can be useful in terms of generating small scale political energy that can eventually sort of trickle up into politics. Leaders see that we’re making changes. They see that we’re demanding changes. They may feel more comfortable making those changes themselves.

We as a culture need to normalize that it’s actually healthy not to be happy in the face of climate change and that it doesn’t mean we’re failed Americans. It means that we’re actually human beings who are having an appropriate and ethical moral response to the suffering that is coming in the pipe for everybody, also our own children

Or you can donate to groups that are working on electoral politics directly, like the Environmental Voter Project or Stacey Abrams’s Verified Action

david wallace-wellsHonestly, the person I was talking to was the United States. I mean, that is the perspective that we have as a country. And as guilty as I feel as responsible as I feel, as I’m sure, Genevieve, and to some extent, Jane, you feel, all of us are actually behaving in ways that are imposing that kind of suffering on people elsewhere in the world. It’s almost unavoidable, given the systems that we live in today. And that is really horrifying. But I think the more clearly that we can see that, the more likely we are to be demanding real change of our leaders and the systems in which we live

david wallace-wellsWell, some of them can matter in limiting your carbon footprint. So if you don’t eat beef, if you don’t take airplanes, if you drive an electric car, you’re probably pretty far along in reducing your own carbon footprint. And that is one measure of climate responsibility, carbon responsibility

The ability to put your preferred candidates in office is a huge part of the climate fight

david wallace-wellsI think that this story is one about our responsibility towards other humans, in which collectively, human behavior has imperiled the future of the planet. I think as a result, we have to talk about it in terms of good and evil, that there are very obvious sides.

And it is borne disproportionately by Black and Brown and poor people.

genevieve guentherI actually agree with David. This is a systemic problem that is only going to be solved by governments and large corporations leading the transformation of our economies to zero-emission economies. That said, rich people across the globe have a responsibility, a personal responsibility, to reduce their discretionary emissions, to reduce their consumption, both for climate justice reasons and also simply because we need them to do it if we’re going to meet our emissions targets and halt global heating.

what is hopeful about these net zero pledges, even as they are greenwashing, is the fact that these companies feel pressure to make them at all, right? This is a sea change in politics. If they can’t actually transform, they’re going to be pushed out, and new incumbents are going to come in. And the question is, can we do this fast enough to halt global warming in time to preserve much of the habitable world?

The second piece is a kind of climate communication that shows people how this is going to affect them. Most people think of this as a crisis that’s for the global south or for the distant future or for our grandchildren’s grandchildren or whatever. And it’s up to every single communicator, as far as I’m concerned, to make it clear in really concrete embodied terms what this crisis is going to mean for the children who are alive today.

When I started writing about climate five years ago, I would not have thought that this kind of political change was at all possible. We are living through what is a genuinely unprecedented global climate awakening, which has totally changed the landscape of what is possible. And it really has made the world and the future look sunnier

famously last year, Drew Shindell, who’s an air pollution expert at Duke, testified before U.S. Congress saying that a green transition of the American energy system would entirely pay for itself through the public health benefits of cleaner air. You could put aside all of the climate impacts. You could put aside all the benefits of cheaper electricity. And just because we would be healthier as a result, even in the U.S. where air is already clean, the dollars and cents would add up and make that a very, very clear win for all of us

here’s another thing you can do. You can organize your workplace to ask your company to make greener business decisions or to lobby Congress for climate policies

once they’re in office, keep pressuring them. Call their D.C. offices. Call their local offices. Send them emails regularly

he dynamic is even more horrifying elsewhere in the world where other countries have much dirtier air than we do. Estimates are as high as 10 million people globally dying of air pollution every single year, 8.7 million of them from the burning of fossil fuels

then the third piece of that is really showing how making these changes that are required would be such a benefit to them.

that you have to live like a monk to make this work. That may have been, to some degree, true 25, 30 years ago when the alternative systems that we now see right around the corner were much farther away in the distance and much more expensive. But it just isn’t the case now that to green our economy will require an enormous burden

when we think of it simply in terms of, is the economy going to grow faster or is it going to go slower, I think we really, really miss the huge, huge public health consequences of continuing running the systems as we are running them today, and also the huge benefits we would get from getting off those systems

david wallace-wellsIn 2070, we’re in a net zero world. Nobody has a carbon footprint. So having more kids is not going to make one difference in either direction. And I think we’re still in a place where we can keep that goal in mind and fight to make that possible so that we don’t have to do things like reduce family size.

I had this interaction just before the pandemic at an event I did. I keep thinking about it. I think about it maybe every week, maybe every day, where I gave a talk about looking at how dire some of these situations could be. And afterwards, somebody came up to me who assured me that he was not a climate denier. And then he said, so really, how bad is it going to get? And I said, well, at two degrees, we’re talking about 150 million people dying of air pollution. And he said, but that’s out of 8 billion. And I said, well, yeah, I mean, I’m not talking about the total extinction of the human race here, but 150 million is 150 million. That’s 25 Holocausts. And he said, but out of 8 billion.

the true, are we going to make humans extinct, kind of futures that we were talking about as slim but real possibilities a few years ago, I think are much, much less likely today. And that is in large part the result of climate protests by people who started their activism within the last few years.

genevieve guentherAnd just say that the word “responsibility” has two different definitions, right? There’s the sense of responsibility as guilt. Who is responsible for this crime? Who has to pay the price? But then there’s responsibility as duty. Who’s going to take responsibility for cleaning up this mess?

There is a very small ask that can be made, which is just to support the people who support aggressive climate action. We’re talking about massive, immediate, or quasi immediate payback for all of the investments we’re making.

If you don’t have the time to do that, donate money. Donate money to organizations that are putting their bodies on the line. Here are some of them— Sunrise, Fridays for Future

finally, one of the most impactful things that you can do is simply talk about climate change in your social networks, especially when it feels most socially awkward and embarrassing. Because unless we continue to break the kind of conspiracy of climate silence that allows people to look away, we’re not actually going to have the kind of pressure internally and psychologically in people that will help them join the climate movemen

genevieve guentherWell, let me contextualize this for a moment. The concept of the carbon footprint is actually a legitimate concept in sustainability research. It was developed by two researchers in the 1990s

What is the 1 percent? In the United States, I would define the 1% as people making $450,000 a year and above. So it’s hard to imagine how much consumption is normalized among these people. It is not at all considered wasteful to buy a new SUV every two or three years as new models come out. It is not all considered extravagant to fly up to 20 times a year. It is not at all horrific to buy an entirely new wardrobe two or three times a year and throw it all away. In fact, this is considered a signal that you are in the rich group and that you are living your best life.

it actually has to be done right now. We don’t get another shot at this.

Do my personal actions, be they avoiding plastic straws or composting or calculating my personal carbon footprint, as oil companies seem to really want me to do, or switching light bulbs or becoming a vegetarian, in the scheme of averting climate change or mitigating climate change, do those actions really matter?

I think that there are certain actors who have played hugely disproportionate, often toxic, roles in that story, namely the fossil fuel industry and their allies in political power, not just in the U.S. but all around the world.

that’s not to say that that person is as culpable as the CEOs of ExxonMobil. Obviously, there’s a huge spectrum of culpability, but I think that a huge majority of Americans are understandably viewed by people elsewhere in the world as contributing to the problem as opposed to contributing to the solution, and that we should not dismiss that judgment because we happen to think, well, I was just doing it for myself, or I was just acting in the system in which I live. We should take seriously that judgment and try to think about what we can do to sort of make it right, so to speak.

But BP extracted this concept from academia and created a multimillion dollar campaign, trying to change the discourse of the climate crisis and make, as you said, Jane, everybody feel responsible for causing the climate crisis, but also feeling responsible for solving it by doing things like no longer driving or no longer flying or no longer eating beef or turning off lights or using plastic straws. And as David said, this is impossible. Even if every single one of us brought our personal carbon emissions down to zero, we would not halt global heating.

number two, join a campaign or an activist group. There are local chapters of groups called the Sunrise Movement and 350.org in many communities. If you’re really hardcore, you can join Extinction Rebellion

It will require an investment, but that will sort of pay for itself in the relatively short term. And so we’re now in a situation where a lot of people often think that moving into a sustainable future is going to make their lives suck. And the truth is that just isn’t the case, but that is what the companies that are profiting from the status quo would like you to think because nobody wants their lives to suck.

I think we need to really tell the climate story as a story of good and evil because these people have known for decades what their products were going to do. And not only did they keep producing and selling fossil fuels, they lied about it. They lied about what they knew. And they tried to do everything they could to capture our political system just to sustain their own wealth and power. I think that’s pretty bad. It’s criminal. It’s absolutely criminal.

some of the changes that you’re talking about, people are compelled to do because they don’t want to feel a part of the ugliness of the destruction of the planet, more than because they’re making a rational calculation about how best to use their time and what they can do that has the highest impact

But the fossil fuel industry, as part of their disinformation campaign, wants to make everyone feel helpless, feel overwhelmed, and wants to shift our attention away from the political action that has a chance of resolving the climate crisis to what can’t possibly work, which is focusing on our carbon footprint.

I just don’t think that that’s the end all, be all of it, because I do think that many people, even today, think, OK, I want the future to be stable and green and prosperous. But I don’t want to pay $1 more at the pump for a gallon of gas and may actually vote in an election on that basis

That said, reducing the discretionary emissions of the top 1 percent is actually a piece of the decarbonization puzzle. So, if the top 10 percent reduced their carbon emissions do

n to the level of the average European, which is still quite significant — eight tons a year — we would be about one-third of the way to decarbonizing our systems. So we emit as a globe about 30 gigatons of carbon dioxide a year. And this reduction in luxury consumption would reduce emissions by about 10 gigatons a year. So that is just a staggering number.

Most of the people who are listening to this podcast and nobody in this room, for sure, is responsible for causing the climate crisis. But we’re all responsible for now solving it to the best way that we can.

Greenpeace. And here are some social justice organizations — UPROSE and WE ACT. There are also two new organizations who are writing climate policy in a new way and lobbying on the Hill to get them passed. They are Climate Power and Evergreen Action.

While there is a sort of transition bump and we should have public policy that addresses it, especially for communities who are already suffering, it’s also the case that the obvious economic logic is also the obvious environmental logic here. These are no longer in tension.

for me, that answer is really exclusively through a political engagement and political activism because we really need to shake the whole infrastructure of the world. And the only people who are capable of doing that are the people who are in corridors of power in politics and the corporate worl

There are many differences among these eras of globalization and retrenchment, Feinman is careful to say. The World Wars and Great Depression were not just about a rejection of globalization, and that rejection of globalization was as much a result of those events as their cause,

From the mid-19th century to 1914, advances like steamships, the telegraph, the telephone and the Suez and Panama canals dramatically shrunk distances and increased communication, and the world underwent a period of rapid globalization.

“The first great globalization wave, in the half-century or so before WWI, sparked a populist backlash too, and ultimately came crashing down in the cataclysms of 1914 to 1945,”

Yet there are some strong parallels, Feinman says. “Modern globalization has been spurred by some of the same forces that powered the pre-WWI epoch: New technologies, an open, free-trade, rules-based world economic system underpinned by the leading power of the day, and a period of general peace among major countries.”

Today, the free flow of capital and trade exceeds what it was in the pre-World War I era. And the share of Americans who are foreign-born and the share of wealth owned by the richest Americans — an indicator of inequality — have returned to pre-World War I levels, after dipping during the mid-1900s, as the two graphs below show

Feinman says that globalization is far from solely responsible for the economic malaise that some in the United States and around the world experience. In addition to globalization, technology, social changes and government policies have all been instrumental in determining who benefits and who loses out from global economic integration in past decades.

At this point, the threat to globalization is mostly a risk rather than a reality, says Feinman, and “cooler heads may well prevail.” The global economy is still remarkably integrated, and new techno

And while wealthy nations have allocated over $11 trillion for domestic Covid-19 responses, the UNs' Global Covid Humanitarian Response Plan -- meant to coordinate and rally support for crisis -- and conflict-affected countries -- is currently less than 40% funded.

Analysis by the International Chamber of Commerce found that the global economy could lose as much as $9.2 trillion if vaccines are not equitably distributed to low-income countries, with wealthy nations bearing half that loss. Unmanaged instability, insecurity, migration and climate change have similar consequences for US interests.

Women and girls bear the greatest brunt of humanitarian crises and are critical to resolving them and rebuilding their communities. With women representing 70% of the global care workforce and producing as much as 70% of the food in some low-income nations, there is a double dividend in prioritizing them.

Of the nearly $4 trillion has allocated to combat the pandemic, just less than 0.2% has been allocated to support the international Covid-19 response, including $4 billion for the global vaccine effort. The ICC study indicates that the $27.2 billion needed to close the gap on global vaccine distribution could deliver a return "as high as 166 times the investment."

Sustained improvement in these destabilizing displacement crises will deliver humanitarian and strategic benefit -- but it will take aid, diplomacy, sustained engagement and coordination with donors, UN agencies and international financial institutions.

The Institute for Economics and Peace estimates that for every $1 the US spends on conflict prevention, it saves $16 in response costs.

America's absence during the previous administration created a spiral of disengagement that has left the world leaderless at this crucial time. And while the US cannot resolve these challenges alone, US leadership can encourage others to share the burden.

The US cannot lead without getting its own house in order -- keeping President Biden's commitment to resettle 125,000 refugees in his first year; building a humane, credible, efficient US asylum system that protects those in need of safety; reinvigorating humanitarian diplomacy, engagement with the UN and the multilateral financing institutions to leverage US resettlement and aid into global action. 2021 celebrates the 70th anniversary of the Refugee Convention.

With the US presidency of the UN Security Council in March, the Biden administration can lead the world in reinvigorating the laws of war and rally other democratic nations to hold violators accountable.

A new intelligence assessment of global trends projects that China will outstrip the United States as the leading economic power before 2030, but that America will remain an indispensable world leader

“The growth of the global middle class constitutes a tectonic shift,” the study says, adding that billions of people will gain new individual power as they climb out of poverty. “For the first time, a majority of the world’s population will not be impoverished, and the middle classes will be the most important social and economic sector in the vast majority of countries around the world.”

half of the world’s population will probably be living in areas that suffer from severe shortages of fresh water, meaning that management of natural resources will be a crucial component of global national security efforts.

terrorists could mount a computer-network attack in which the casualties would be measured not by the hundreds or thousands killed but by the millions severely affected by damaged infrastructure, like electrical grids being taken down.

At least 15 countries are “at high risk of state failure” by 2030, the report predicts, among them Afghanistan and Pakistan, but also Burundi, Rwanda, Somalia, Uganda and Yemen.

The best-case situation for global security until 2030, according to the study, would be a growing political partnership between the United States and China.

The worst-case situation envisions a stalling of economic globalization that would preclude advancement of financial well-being around the world. That would be a likely outcome after an outbreak of a health pandemic that, even if short-lived, would result in closed borders and economic isolationism.

Mr. Burrows noted that the audiences in China were far more accepting of the American intelligence assessments — both those predicting China’s economic ascendancy and those warning of political dangers if there was no reform of governance in Beijing — than were audiences in Russia.

To assess the validity of this study, the research and analysis team graded its past work on global trends, an effort undertaken every four years since 1996. Past studies, it found, underestimated the speed with which changes arrived on the global scene.

previous assessments should have paid greater attention to ideology.

The risk of conflict within a state — like a civil war or an insurgency — is expected to decline in Latin America, but will remain high in sub-Saharan Africa, in parts of the Middle East and South Asia, and in some Asia-Pacific island hot spots

Most worrisome — and already a part of the global security dynamic — is an assessment that future wars in Asia and the Middle East could include nuclear weapons.

Other important demographic trends will be aging populations in Europe, Japan, South Korea and Taiwan, which could slow their economies further

“the health of the global economy increasingly will be linked to how well the developing world does — more so than the traditional West.”

In addition to China, the developing nations that “will become especially important to the global economy” include Brazil, Colombia, India, Indonesia, Nigeria, South Africa and Turkey.

And that absence was illustrated just as vividly by news coverage of planes full of medical supplies from China arriving in Italy, at a time when the US was quietly flying in half a million Italian-made diagnostic swabs for use in its own under-equipped health system

“To me what is so striking is the complete absence of the US from public debates. The US is basically off the map, and China very much is on the map,”

what is happening now is going to linger on, simply because what we’re going through now is such a traumatic experience … It is going to remain very much in our individual and collective memories.”

this week’s $2tn stimulus bill contained scarcely more than $1bn (about 0.06%) for spending outside the US.

additional aid has done little to soften the image of an administration that has employed xenophobic rhetoric and breaking with its closest partners in its efforts to intensify economic pressure on its enemies, Iran and Venezuela, whose populations are at high risk from the coronavirus.

Despite its responsibility for allowing the virus to run rampant in the first place, China has had notable success in reshaping its image as a leader by its later efforts to contain the disease and its outreach to Italy and other vulnerable countries.

“China is filling a public goods vacuum, not a leadership vacuum,” Khanna said. “People here are not idiots. They know exactly where this came from, so you don’t need to worry about China winning any global narrative campaign in the world.”

the coronavirus crisis will inflict more lasting damage on the US’s standing than the 2003 Iraq invasion.

“China wasn’t in the wings in 2003,” she said. “It wasn’t ready to take over that global role. Well, it’s now in a position where it can take over global leadership, and it’s just waiting for the US to misstep or to lose support among its allies

From the debacle over testing to Trump’s months-long denial about the scale of the threat and his constant political point-scoring, the US has showed itself to be anything but a model for the rest of the world to emulate.

worldwide faith in US competence has been one of the pillars of its global standing, and is currently crumbling.

“Far from making ‘America great again,’ this epic policy failure will further tarnish the United States’ reputation as a country that knows how to do things effectively,” Walt wrote in Foreign Policy, in a commentary titled “the death of American competence”.

Khanna pointed out that China’s neighbours in Asia are well aware that Beijing’s censorship during the initial outbreak in Wuhan resulted in a missed opportunity to contain the virus

“US global leadership won’t just end because they bungled their response to the coronavirus, but I think we will come to find that this was a pivotal point,”

the extent to which China succeeds in exploiting the crisis to pursue global primacy would be dependent on whether Beijing can be successfully challenged, for example from a change to a more outward leadership in Washington, or a Europe that can transcend its divisions.

“It basically depends on how everyone else reacts more than how China itself acts,”

The answer comes in a second report, which is set to be released on Wednesday by the International Federation of Journalists, a Brussels-based union of journalism unions whose mission gives it a global bird's-eye view into news media almost everywhere. The group, which shared a copy with me, hired an author of the first report, Louisa Lim, to canvass journalists in 54 countries

The interviews “reveal an activation of the existing media infrastructure China has put in place globally,” Ms. Lim, a former NPR bureau chief in Beijing who is now a senior lecturer at the University of Melbourne, wrote in the report. “As the pandemic started to spread, Beijing used its media infrastructure globally to seed positive narratives about China in national media, as well as mobilizing more novel tactics such as disinformation.”

China is fighting what is in some ways an uphill battle

“The accusation on China is what the U.S. has been doing all along,”

The report found that a new media push accompanied the intense round of Chinese diplomacy in the pandemic, providing protective equipment initially and then vaccines to countries around the world, all the while scrambling to ensure that things as varied as the pandemic’s origin and China’s diplomacy was portrayed in the best possible light.

Both the media and vaccine campaigns are intertwined with China’s “Belt and Road” global investment campaign, in which Chinese support comes with strings attached, including debt and expectations of support in key votes at the United Nations.

Instead, the cultural power represented by companies like Netflix and Disney — vastly more powerful and better funded than any government effort — has been doing the work.

Its growing authoritarianism, its treatment of the Uyghurs and its crackdown on dissent in Hong Kong damaged global views of China, according to other surveys, even before the pandemic began in Wuhan.

it is less the exposure of a secret plot than it is documentation of a continuing global power shift. China’s media strategy is no secret, and the Chinese government says its campaign is no different from what powerful global players have done for more than a century.

I spoke to journalists on five continents who participated in the report. Their attitudes ranged from alarm at overt Chinese government pressure to confidence that they could handle what amounted to one more interest group in a messy and complex media landscape.

the general secretary of the International Federation of Journalists, Anthony Bellanger, said in an email that his view of the report is that while “China is a growing force in the information war, it is also vital to resist such pressures exerted by the U.S., Russia and other governments around the world.”

there’s little question of which government is more committed to this campaign right now. A report last year by Sarah Cook for the Freedom House, an American nonprofit group that advocates political freedom, found that Beijing was spending “hundreds of millions of dollars a year to spread their messages to audiences around the world.”

The United States may have pioneered the tools of covert and overt influence during the Cold War, but the government’s official channels have withered

Trump sought to turn those outlets into blunter propaganda tools, and Democrats and their own journalists resisted. That lack of an American domestic consensus on how to use its own media outlets has left the American government unable to project much of anything.

much of China’s diplomacy is focused on places that, while they may not have the cultural or financial power of European countries, do have a vote at the U.N. And while they appear often to be improvisational and run out of local embassies, China’s efforts are having a global impact.

Erin Baggott Carter, an assistant professor of political science at the University of Southern California, said her research has found that American news organizations whose journalists accepted official trips to China subsequently “made a pivot from covering military competition to covering economic cooperation.”

In talking to journalists around the world last week about Chinese influence, I was also struck by what they didn’t talk about: the United States. Here, when we write and talk about Chinese influence, it’s often in the context of an imagined titanic global struggle between two great nations and two systems of government

from Indonesia to Peru to Kenya, journalists described something much more one-sided: a determined Chinese effort to build influence and tell China’s story.

“Americans are quite insular and always think everything is about the U.S.,” Ms. Lim said. “Americans and the Western world are often not looking at what is happening in other languages outside English, and tend to believe that these Western-centric values apply everywhere.”

Last year, a Chinese scientist he worked with published a specific forecast: “It is highly likely that future SARS- or MERS-like coronavirus outbreaks will originate from bats, and there is an increased probability that this will occur in China.”

Humans today are exposed to more deadly new pathogens than ever. They typically come from animals, as global travel, trade and economic development, such as meat production and deforestation, push people, livestock and wildlife closer together

Scientists knew infectious disease outbreaks were becoming more common, with 2010 having more than six times the outbreaks of pathogens from animal origins than in 1980, according to data in a study by Brown University researchers.

Yet plenty was left undone, in areas including funding, early-warning systems, the role of the WHO and coordination with China. A big chunk of U.S. funding went toward protecting Americans against a bioterror attack. Government funding for pandemics has come largely in emergency, one-time packages to stop an ongoing outbreak.

She said a better solution would be to fund public health more like national defense, with much more guaranteed money, year in, year out.

“Will there be another human influenza pandemic?” Dr. Webster asked in a paper presented at an NIH meeting in 1995. “The certainty is that there will be.”

Experts including Dr. Webster were particularly concerned about the potential for spillover in southern China, where large, densely populated cities were expanding rapidly into forests and agricultural lands, bringing people into closer contact with animals. Two of the three influenza pandemics of the 20th century are thought to have originated in China.

Dr. Webster and others warned it could re-emerge or mutate into something more contagious. With U.S. funding, he set up an animal influenza surveillance center in Hong Kong. The WHO, which hadn’t planned for pandemics before, started compiling protocols for a large-scale outbreak, including contingency plans for vaccines.

At a dinner back in the U.S., he remembers one guest saying, “Oh, you really needed to have someone in the U.S. to be impacted to really galvanize the government.”

That “drove home the reality in my own mind of globalization,” said Dr. Fukuda. SARS showed that viruses can crisscross the globe by plane in hours, making a local epidemic much more dangerous.

The WHO’s director-general, Gro Harlem Brundtland, publicly criticized China. The government under new leaders reversed course. It implemented draconian quarantines and sanitized cities, including a reported 80 million people enlisted to clean streets in Guangdong.

By May 2003, the number of new SARS cases was dwindling. It infected around 8,000 people world-wide, killing nearly 10%.

After SARS, China expanded epidemiologist training and increased budgets for new laboratories. It started working more closely in public health with the U.S., the world’s leader. The U.S. CDC opened an office in Beijing to share expertise and make sure coverups never happened again. U.S. CDC officials visiting a new China CDC campus planted a friendship tree.

In Washington in 2005, a powerful player started driving U.S. efforts to become more prepared. President George W. Bush had read author John M. Barry’s “The Great Influenza,” a history of the 1918 flu pandemic

Mr. Bush leaned toward the group of 10 or so officials and said, “I want to see a plan,” according to Dr. Venkayya. “He had been asking questions and not getting answers,” recalled Dr. Venkayya, now president of Takeda Pharmaceutical Co. ’s global vaccine business unit. “He wanted people to see this as a national threat.”

Mr. Bush launched the strategy in November, and Congress approved $6.1 billion in one-time funding.

The CDC began exercises enacting pandemic scenarios and expanded research. The government created the Biomedical Advanced Research and Development Authority to fund companies to develop diagnostics, drugs and vaccines.

A team of researchers also dug into archives of the 1918 pandemic to develop guidelines for mitigating the spread when vaccines aren’t available. The tactics included social distancing, canceling large public gatherings and closing schools—steps adopted this year when Covid-19 struck, though at the time they didn’t include wide-scale lockdowns.

A year after the plan was released, a progress report called for more real-time disease surveillance and preparations for a medical surge to care for large numbers of patients, and stressed strong, coordinated federal planning.

A European vaccine makers’ association said its members had spent around $4 billion on pandemic vaccine research and manufacturing adjustments by 2008.

The $6.1 billion Congress appropriated for Mr. Bush’s pandemic plan was spent mostly to make and stockpile medicines and flu vaccines and to train public-health department staff. The money wasn’t renewed. “The reality is that for any leader it’s really hard to maintain a focus on low-probability high-consequence events, particularly in the health arena,” Dr. Venkayya said.

In the U.S., President Barack Obama’s administration put Mr. Bush’s new plan into action for the first time. By mid-June, swine flu, as it was dubbed, had jumped to 74 countries. The WHO officially labeled it a pandemic, despite some evidence suggesting the sickness was pretty mild in most people.

That put in motion a host of measures, including some “sleeping” contracts with pharmaceutical companies to begin vaccine manufacturing—contracts that countries like the United Kingdom had negotiated ahead of time so they wouldn’t have to scramble during an outbreak.

In August, a panel of scientific advisers to Mr. Obama published a scenario in which as many as 120 million Americans, 40% of the population, could be infected that year, and up to 90,000 people could die.

H1N1 turned out to be much milder. Although it eventually infected more than 60 million Americans, it killed less than 13,000. In Europe, fewer than 5,000 deaths were reported.

The WHO came under fire for labeling the outbreak a pandemic too soon. European lawmakers, health professionals and others suggested the organization may have been pressured by the pharmaceutical industry.

France ordered 94 million doses, but had logged only 1,334 serious cases and 312 deaths as of April 2010. It managed to cancel 50 million doses and sell some to other countries, but it was still stuck with a €365 million tab, or about $520 million at the time, and 25 million extra doses.

The WHO had raised scares for SARS, mad-cow disease, bird flu and now swine flu, and it had been wrong each time, said Paul Flynn, a member of the Council of Europe’s Parliamentary Assembly and a British lawmaker, at a 2010 health committee hearing in Strasbourg.

Ultimately, an investigation by the council’s committee accused the WHO and public-health officials of jumping the gun, wasting money, provoking “unjustified fear” among Europeans and creating risks through vaccines and medications that might not have been sufficiently tested.

“I thought you might have uttered a word of regret or an apology,” Mr. Flynn told Dr. Fukuda, who as a representative of the WHO had been called to testify.