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Global Environmental Change 30 (2015) 21–30

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Global Environmental Change


journal homepage: www.elsevier.com/locate/gloenvcha

Reversing the arrow of arrears: The concept of ‘‘ecological debt’’


and its value for environmental justice
Rikard Warlenius a,*, Gregory Pierce a,b, Vasna Ramasar b
a
Human Ecology Division, Lund University, Sweden
b
LUCID, Lund University Centre of Excellence for Intergration of Social and Natural Dimensions of Sustainability, Sweden

A R T I C L E I N F O A B S T R A C T

Article history: The ecological debt concept emerged in the early 1990s from within social movements driven by rising
Received 16 March 2014 environmental awareness, emerging Western consciousness of responsibility for past colonial
Received in revised form 13 October 2014 subjugations, and a general sense of unease during the debt crisis. First developed organically, mainly
Accepted 24 October 2014
in locally-scaled, civil contexts, ecological debt has since gained attention in academia and international
Available online 18 November 2014
environmental negotiations. Now, the concept of ecological debt requires further elucidation and
elaboration, especially in light of its historical interconnection with environmental justice. In this paper,
Keywords:
the development of the concept of ecological debt in both activist and academic circles is described,
Ecological debt
proposed theoretical building blocks for its operationalization are discussed and three brief cases
Environmental justice
Ecologically unequal exchange illustrating its recent utilization are presented. Ecological debt is built upon a theoretical foundation that
World economy draws on biophysical accounting systems, ecological economics, environmental justice and human
rights, historical injustices and restitution, and an ecologically-oriented world-system analysis
framework. Drawing on these building blocks, the concept of ecological debt has been used as a
biophysical measure, a legal instrument and a distributional principle. In theory and in practice, it has
much to offer the environmental justice movement. We conclude by reflecting on some of the pros and
cons of the ecological debt concept as a tool to be used in fulfilling some of the goals of environmental
justice movements in the world today.
ß 2014 Elsevier Ltd. All rights reserved.

1. Introduction for the Swedish Environmental Advisory Council and largely


intended for a national audience. A first calculation of Sweden’s
Two reports on ecological debt—Deuda ecológica (Robleto and liabilities to future generations, ecological debt was defined in the
Marcelo, 1992) and Miljöskulden (Jernelöv, 1992)—were published report as ‘‘the restoration costs for techno-economic environmen-
in 1992. The authors of these reports, from Chile and Sweden, tal harms and the capital required to pay for recurring repair
respectively, were likely unaware of one another, and their reports efforts’’ (our translation). While Robleto and Marcelo’s report is
are quite different in both approach and content. Robleto and often identified as having been seminal in campaigns calling for the
Marcelo’s report, reflecting ongoing debates on ecological debt that recognition of ecological debt, Jernelöv’s report has had little
had started in Latin America in the late 1980s (Gudynas, 2008), was international significance, though it is still occasionally referred to
meant as a critical interjection into negotiations at the Earth in Swedish research on sustainability.
Summit in Rio. Presenting the concept specifically in the context of The point in mentioning these reports together in introduction
ozone depletion and resulting health costs in Southern Chile, to this paper is that they well-illustrate the breadth of debate over
ecological debt was no less generalized in the report as ‘‘the vital the past twenty and more years on topics having to do with the
heritage of nature. . . that has been consumed and not returned to ecological debt concept. This breadth has led to a seemingly
it’’ (our translation). Jernelöv’s report, on the other hand, the title of endless (and ever-increasing) number of as yet unanswered
which can be translated as The Environmental Debt, was written questions, especially in reckoning the as yet too-little examined
interconnections between ecological debt and environmental
justice, which are congruent but have, as we understand them,
* Corresponding author at: Human Ecology Division, Geocentrum 1, Sölvegatan
quite distinctive origins, scopes and meanings. Environmental
10, Lund 223 62, Sweden. Tel.: +46 73 990 9900; fax: +46 46 222 0472. justice is the broader concept, focusing more generally on the
E-mail address: Rikard.warlenius@hek.lu.se (R. Warlenius). unequal distribution of ecological burdens and benefits. It has its

http://dx.doi.org/10.1016/j.gloenvcha.2014.10.014
0959-3780/ß 2014 Elsevier Ltd. All rights reserved.
22 R. Warlenius et al. / Global Environmental Change 30 (2015) 21–30

origin in struggles against the dumping of toxic waste in minority which results from the resources they have levied and the
(mainly African–American) communities in the US in the early destruction and waste produced in the course of the last
1980s, and was therefore originally aligned closely with environ- 500 years.’’
mental racism. Since that time, environmental justice has spread To be sure, the irony of 1992, which marked the 500-year
beyond the US contexts of its origin and is now widely used by anniversary of the ‘‘discovery’’ of the Americas by Columbus, was
activists and academics alike to call attention to how the not lost on the framers of the treaty. While Columbus’ landing in
distribution of ecological burdens follows general patterns of what would come to be known as the West Indies was celebrated
power distributions (for a recent overview, see Martinez-Alier by some at the conference as auspicious in the shaping of the
et al., 2014). Ecological debt, on the other hand (and as focused on modern world, others chose instead to commemorate the victims
in this paper), is more often used as an indicator of the cumulative, of a half millennia of colonialism and oppression, of so many
or net sum, of historical environmental injustices. Although not a centuries of plunder and resource extraction in historical accrual
defining condition of its usage, it primarily focuses on historical by the Western architects of the modern state system of an as yet
geographical inequalities, as between specific countries or more unpaid ecological debt.
generally between the global North and South. Environmental The early 1990s not only gave rise to such remembrances,
justice can also be geographically oriented but is more likely to however, but also to growing acknowledgement of the persistence
focus on categories such as race, gender or class. of such oppressions, especially with the focus in the early 90s on
A more meticulous reckoning of these different but inter- the debt crisis that had by then all but consumed the global South.
connected concepts is crucial, as these interconnections have in the Briefly, international bankers in the 1970s, searching for lucrative
modern period considerably shaped how the concepts of debt and capital investments after the stagnation of oil-shocked industrial-
justice have contributed to and in turn been further shaped by our ized state economies, began to offer cheap loans to developing
individual experiences of the increasingly dire socio-ecological countries, whose governments borrowed heavily (George, 1988).
conditions we all now face regardless of our place on the planet. Responding to this industrial stagnation and concerned about
The primary aim of this paper then is to provide just such a rising inflation, however, U.S. Federal Reserve Chairman Paul
reckoning. It does so in four sections. The first section presents an Volcker resolved early in Reagan’s first term to shift from
overview of the development of the concept of environmental Keynesian to monetarist policies in an effort to break this
debt, while the second provides a glimpse at the current state of stagflationary impasse. Although Volcker’s move, which steeply
both activist and academic knowledge in terms of each type’s raised the federal funds rate from an average of 11.9% in 1979 to
claims for the concept. In the third section, three cases in which the 20% in 1981, did succeed in controlling inflation, at the same time it
concept has been or could be utilized effectively—as a biophysical put heavily indebted third world countries in an impossible
measure, as a legal tool, and as a distributional principle—are situation in regard to debt repayment.
presented. Finally, some pros and cons of using the ecological debt Faced with default, countries saddled with these heavy external
concept as a tool for fulfilling the goal of environmental justice are debts found themselves at the mercy of the World Bank and the
discussed in conclusion in Section 4. International Monetary Fund (IMF), which set conditions for bail-
out or further funding that mandated ‘‘structural adjustments’’ to
2. Historical overview of the concept of ecological debt liberalize national economies and governance structures. Such
adjustments, which led to the global demise of the Keynesian state
2.1. 1992: the cradle of a concept as a governance framework, included massive cuts in public
expenditures, removal of state price controls and subsidies,
In the early 1990s, with the convergence of three important comprehensive privatizations of state-owned companies, currency
historical drivers—rising environmental awareness, emerging devaluations and trade liberalization. Across the global South, the
consciousness among Western peoples of responsibility for past direct result was the rise of grave social consequences, from
colonial subjugations, and a general sense of unease during the reductions in health and education spending, to growing
debt crisis—the concept of ecological debt was in the air. The malnutrition, to dispossessions of land and tenure rights, and so
1992 Rio Earth Summit garnered a lot of media attention for on. As standard practice, these adjustment programmes also
environmental and development issues, which in turn led for the tellingly forced developing countries to refocus their economic
first time to the mobilization of broad civil society on such issues. activities on increasing exports of primary products, mainly
The early 1990s also saw the culmination of various socio-political through intensified resource extractions.
struggles at different scales that had first emerged in the 1960s. By By the early 1990s, the ecological and social degradations that
the time of Rio, for example, many nations had already had at that point already resulted from such mandated intensifica-
acknowledged the impacts of emerging environmental issues tions lent even further authority to the emergence of ecological
and had begun to take seldom before imagined possible state-level debt as a concept that could account for ongoing injustices levied
measures to address them. on the peoples of the global South. Recognizing the place of this
The best known outcomes of the Rio conference are the contemporary injustice within a trajectory of history, one key
environmental conventions on climate change, biodiversity and paragraph of the 1992 Debt Treaty states that foreign debt is only
desertification. Less well-remembered from the meeting is that ‘‘the most recent mechanism of the exploitation of Southern
NGOs and grassroots organizations also adopted a number of peoples and the environment by the North.’’ But what made the
treaties of their own. Particularly relevant for this paper was the concept of ecological debt so brilliant in this context was that it
adoption of the Debt Treaty (1992), which stated that the suddenly made it possible to turn tables against creditors in the
‘‘planetary ecological debt of the North. . . is essentially constituted North. While the developing South had to this point in history
by economic and trade relations based on the indiscriminate always been framed as being indebted to the industrial North, that
exploitation of resources, and its ecological impacts, including is, the concept of ecological debt effectively reversed the direction
global environmental deterioration, most of which is the of the arrow of arrears. Framed through an ecological debt
responsibility of the North.’’ The treaty also demanded that discourse, degradation to both environmental and social ecologies
pressure be put ‘‘on international organizations for the establish- of the South constituted an unpaid account of ongoing Northern
ment, by the end of 1995, of a system of accounting of planet Earth accrual. Thus framed, in other words, the global North became
in order to quantify the cumulative debt of the Northern countries historically reprobate, a delinquent debtor.
R. Warlenius et al. / Global Environmental Change 30 (2015) 21–30 23

2.2. ‘‘Organic growth’’: the build-up of a movement demanded the repayment of the climate debt. Countries from both
Latin America (e.g. Cuba, the Dominican Republic, Honduras,
Paredis et al. (2008: 23) aptly describe the development of the Nicaragua, Venezuela) and South Asia (e.g. Sri Lanka) also spoke
concept of ecological debt since the early 1990s as a process of out in favour of such repayment, while Lesotho, on behalf of the
‘‘organic growth.’’ Arising originally within different civil, locally- world’s 49 least developed countries, similarly affirmed support of
scaled contexts and even to this day not having a standardized the concept (TWN, 2010). Also in 2009, the declaration Repay the
definition or truly anchoring personality, place or approach, the Climate Debt: A Just and Effective Outcome for Copenhagen (TWN,
concept has remained rather amorphous and flexible in its 2009a) was drafted and signed by at least 254 organizations, most
characterizations, methodologies and practical applications. On of which were from the global South (TWN, 2009b). According to
this count, it deviates from similar concepts such as ecological the declaration, developed countries are actually in arrears to
footprints and environmental space that were conceived of by developing countries for a two-fold debt—an emissions debt and
academic researchers and had already garnered restricted defini- an adaptation debt—that together constitute the total climate debt.
tions and unified methodologies before subsequently being Notably, however, this climate debt is expressly seen as only one
adopted by NGOs and other activists and practitioners. Indeed, ‘‘part of a larger ecological, social and economic debt owed by the
only the Spanish ecological economist Joan Martinez-Alier (see rich industrialized world to the poor majority’’ (TWN, 2009a).
Section 3 below) has been recognized as an exception to the rule After representatives at the Copenhagen meeting failed to
that has generally disconnected academic and civil society produce any substantive outcomes, Bolivia’s Evo Morales con-
treatments of the ecological debt concept. In referencing its vened the People’s World Conference on Climate Change and the
‘‘organic growth,’’ therefore, Paredis et al. rightly suggest that the Rights of Mother Earth in Cochabamba in April 2010. This initiative
development of the concept has been a bottom-up process of was supported by over 200 civil organizations as well as by states
reasoned knowledge generation through which original ideas and affiliated with the Bolivarian Alliance for the Americas (ALBA)
practices have emanated out of the place-based experiences of (comprised of Bolivia, Cuba, Ecuador, Nicaragua, Venezuela). At
practitioners who have actively worked for ecological equity and Cochabamba, a ‘‘People’s Agreement’’ (PWCCC, 2010) was adopted
justice in the world. that included a fierce statement critical of the UN climate
In the years following the 1992 Earth Summit, the ecological negotiation process and eventually formed the basis of a
debt concept germinated within the context of then-prevalent comprehensive Bolivian proposal submitted to that process a
campaigns for external debt cancellation, growing through side year later (UNFCCC, 2010: 14–39). Climate debt is a central concept
events and networking opportunities at conferences as well as in both the People’s Agreement and the Bolivian proposal, which
through mention in publications calling for cancellation of the characterized ongoing Northern debt accrual thusly: ‘‘[B]y over-
global South’s external debt. A key actor in this period was the consuming the available capacity of the Earth’s atmosphere and
Ecuadorian NGO Acción Ecologica (AE), which presented the climate system to absorb greenhouse gases the developed
statement No More Plunder: They Owe Us an Ecological Debt in countries have run up a climate debt to developing countries
Johannesburg in 1999. That same year, representatives of Friends and mother Earth’’ (Ibid: 15). Significantly, the final declaration of
of the Earth International (FOEI), while gathered in Quito, launched the People’s Summit at Rio+20 (2012) recognized ‘‘historical social
a campaign on ecological debt. Together, AE and FOEI organized a and ecological debt’’ (People’s Summit, 2012).
network of NGOs in founding the Southern People’s Ecological Within UNFCCC negotiations the concept of ecological debt lost
Debt Creditors Alliance (SPEDCA), the aim of which was to push for some ground after 2009, but representatives from the small island
the ‘‘international recognition of the ecological debt, historical and states at the Cancun talks in 2010 introduced as a third point of
current’’ (Paredis et al., 2008: 4). Soon after, the European Network negotiation to augment mitigation and adaptation the concept of
for the Recognition of the Ecological Debt (ENRED), an alliance of ‘‘loss and damage,’’ which in its original form resembles climate
ecological ‘‘debtors’’ sympathetic to arguments for recognition of debt (as well as the historical responsibility approach). Building on
the concept, was also formed. As of this writing, SPEDCA seems to this development, the Warsaw International Mechanism for Loss
remain active insofar as regular updates are made on their website and Damage was then introduced at COP 19 in 2013. It seems to
(http://www.deudaecologica.org), but the ENRED site (www. have stalled there, however, as the meeting’s final compromise
enredeurope.org) notably seems to have been inactive since saw the Warsaw mechanism relegated to a sub-position under the
2004. Then, in 1999, at the peak of the Jubilee 2000 Debt Campaign, adaptation pillar, with no reference being made to historical
the brochure Who Owes Who?: Climate Change, Debt, Equity and liability or compensation for accrued debt. As broken by The Hindu
Survival (Simms et al., 1999) was distributed. The brochure, which (2013), an internal briefing by the US State Department made it
included an attempt to quantify the historical carbon debt of the clear that the US government does not regard claims of
North in comparison to the external debt facing the South, was one ‘‘compensation and liability’’ as a ‘‘productive avenue for the
of the first publications in which the idea of a carbon (or climate) UNFCCC to go down.’’
debt was formulated similarly to the historical responsibility To round out this brief history of the concept of ecological debt a
approach that had been proposed by Brazil and that was included clarifying comment on scale is thought to be appropriate here.
in the 1997 UNFCCC negotiations. In the debate that was sparked Since the 1980s, the concept of ecological debt has most commonly
by this idea of historical responsibility, as Roberts and Parks been used to express relations between states or groups of states at
(2007) explain, the notion of a historical carbon debt was referred the global level; when considering the concept more closely,
to by representatives from several developing countries. Who however, locally-levelled perspectives, although largely ignored in
Owes Who? also importantly marked a shift in focus from the the debate, should without doubt be acknowledged and further
concept of ecological to that of climate debt, which helped to explored. The idea is that although the extent of the ecological
mainstream the debt concept into discussions that were ongoing damages caused by the actions of a particular industrial facility
at the time. often cannot be confined to national boundaries, much of the
Not until 2009, however, in the run-up to the much-anticipated impact from such point-source polluters tends nonetheless to be
COP-15 meeting in Copenhagen, did the concepts of ecological and localized. To this effect, Paredis et al. (2008: 5) have identified a
climate debt really come into their own as a part of the global recent trend of applying the debt concept to situations in which
South’s negotiating platform (cf. Bond, 2010). At a meeting in Bonn corporations are framed as being in arrears for their localized but
in June of that year, for example, Bolivia’s chief climate negotiator no less harmful activities. Terming such instances of ecological
24 R. Warlenius et al. / Global Environmental Change 30 (2015) 21–30

debt ‘‘the private ecological debt or the environmental liability,’’ This subsidy, which began in the colonial era and continues
Meynen and Sébastien (2013: 434) define this more limited unabated even today, not only enriches the North but also
formulation of debt as, at minimum: ‘‘impoverishes and degrades the land, culture, and development
potential of Southern countries.’’ Supporting this claim are
The sum of all monetized ecological damages accumulated over
correlations between environmental degradation and trade rela-
a time in the geographically defined surroundings of a certain
tions with the North as well as data on the North’s disproportionate
extraction or production unit, where the cause-effect relation-
use of the global commons. Important warrants that link the data
ship between the unit and the damages is sufficiently unique
to the claim are theories of ecologically unequal exchange and
and confirmed.
deteriorating terms of trade (e.g. prices of Southern export
Due to existing controversies surrounding the ‘‘monetization’’ commodities falling as a result of increased competition). Another
of natural values, this definition is contestable. Opposition to the aspect of this socio-ecological subsidy is the North’s appropriation
definition can, however, be contrasted with existing international of a disproportionate share of the global sink-capacity through its
jurisprudence, as many countries—and the local actors/EJOs that vast greenhouse gas emissions (234–35).
work within them—now have environmental laws and institutions The second claim Rice identifies concerns cancellation of the
designed to handle such cases of localized liability that might be South’s external financial debt. External debt is viewed as the
framed through the general concept of ecological debt. Admittedly, ‘‘fulcrum whereby the current development model entrenches
the potential challenges actors face in moving forward with such the continuance of the socio-ecological subsidy’’ (237). In order to
liability claims are enormous and each particular case and country repay their debt, Southern countries are forced to accelerate
will be different, but the fact that such litigation falls now within extraction and export of their natural resources, which, as the same
the realm of possibility can be regarded as at least some small development model is forced on all debtors simultaneously, tends
progress in broadening the concept of ecological debt through to reduce the prices of those resources on the world market,
downscaling to more localized cases of socio-environmental thereby leading to further intensifications of such extractive
arrears (see Peralta, 2007). efforts. A truly vicious circle, external debt repayment is shown
What this small progress might portend for the future is by no actually to lead to an increase in the ecological debt claims of the
means inconsiderable. Because most EJOs also act locally, the South against the accounts of the North. The call for external debt
importance of the concept of ecological debt to actors at such levels cancellation should, consequently, not be seen as benevolence
cannot be gainsaid. As such, it is immediately useful as an conferred upon the developing world but as an obligation for the
increasingly more recognized tool available to such organizations whole world if real action is going to be taken against ongoing
in their struggles for environmental justice. Operationalization of ecological and social degradations. What needs to be remembered
the concept in this way may also more robustly connect local is that whatever the monetary value of such continued degrada-
organizations to the burgeoning international ecological debt and tions might be, it is likely many times higher than the financial debt
justice movements, where they might find their struggles now owed to the North (237–38). Framed in this way, the arrow of
bolstered through virtual eco-justice collaboratories, jurispru- arrears can again be shown to be reversed through the ecological
dence cyber-workshops, media kit templates, etc. At the same debt concept.
time, the mainstreaming of the concept to a broader audience, as The NGO advocates’ third claim as identified by Rice is that
with the prominent role it plays in activist-author Naomi Klein’s present levels of Northern production and consumption are
recent book, This Changes Everything, further bolsters its legitimacy unsustainable over the long term, especially since they are
and increases its recognition beyond the core of that international founded on the South’s socio-ecological subsidy. In this way,
movement. In this way, small progresses can lead to great the neoliberal development model can be shown to be at the root
outcomes; the organic growth of history can lead to great of not only the continued impoverishment of the South but also of
movements of progressive change. the global ecological crisis. One implicit target of this claim is the
reductionism of neoclassical economics, with its tendency to
overlook the socio-ecological subsidy and insist ‘‘on quantifying
3. Instantiating the past: from organic growth to collaborative
everything according to a monetary metric’’ (240).
strategizing
The fourth claim identified by Rice is that the ecological debt
must be paid. As Rice argues, ‘‘equity for present and rational
3.1. The activist ecological debt argument
obligations to future generations demands Northern countries
begin paying back the accrued socio-ecological subsidy, an
Despite the organic growth of ecological debt, the concept
obligation that can be defined as an ‘ecological debt’’’ (241).
has always retained a stable conceptual core. Sociologist James
Closing the Northern account and alleviating the debt, it is argued,
Rice (2009), in applying argument analysis to eight NGO policy
is not only a matter of justice but could also be a first step in
papers that advocate for the ecological debt concept, describes
avoiding the anticipated collapse scenario of the current develop-
the rhetoric of these papers as representative of the stability of
ment model. It would also represent a move towards a more
this core through their ‘‘counter-hegemonic discourse calling for
sustainable model of social organization. As such, this claim
a fundamental reappraisal of North–South political and eco-
amounts to a moral demand, presenting a clear alternative to the
nomic relations’’ (249). In his analysis, Rice identifies four
neoliberal worldview. Towards this goal, a first action might be the
primary claims that underlie the eight NGO arguments
immediate cancellation of the South’s external debt followed by—
advocating for the ecological debt concept. The first and most
in an active reversal of the arrow of arrears—the implementation of
fundamental claim is of the existence of a socio-ecological
much needed structural adjustment in the North, one that moves
subsidy. As Rice states:
us all closer to a way of life that is sustainable (244).
Northern historical development and present production and
consumption levels are reliant upon a socio-ecological ‘subsidy’ 3.2. Academic conceptualizations of ecological debt
imposed on Southern countries. The socio-ecological subsidy
refers to the underpayment and, at times, explicit looting of Concurrent with the organic growth, ecological debt has also
the natural resource assets and labor power of Southern increasingly garnered widespread support and legitimacy within
countries (233). academic circles. Indeed, academic investigations have for the
R. Warlenius et al. / Global Environmental Change 30 (2015) 21–30 25

most part attempted to more formally develop the claims of NGO primary aim of their research is to remedy some of the weaknesses
advocates, linking ecological debt to quantifiable tools within they have identified relating not to the concept as such but to the
economics, material flows and environmental resource account- operationalization of the concept. As the group argues:
ing. Two significant contributors have been economic historian
The reality of ecological debt cannot be denied: the historical
and ecological economist Joan Martinez-Alier at the Autonomous
and current ecological damage experienced by other countries
University of Barcelona and a group of Belgian researchers at Ghent
and global ecosystems caused by industrialised countries and
University led by Erik Paredis.
the overuse of ecosystem goods and services are amply
According to Martinez-Alier (2002), ecological debt is an
documented. Besides, the concept . . . [is] a potentially powerful
economic concept that arises from distribution conflicts of two
tool for reviewing North and South relations or rethinking
kinds. The first is ecologically unequal exchange, which can be
sustainable development policies (IX).
defined as ‘‘the fact of exporting products from poor regions and
countries, at prices which do not take into account the local Moreover, the group argues that a more precise working
externalities caused by these exports or the exhaustion of natural definition of ecological debt must be drafted if current weaknesses
resources, in exchange for goods and services from richer regions’’ in the concept are to be overcome. It submits the following for
(Ibid: 214). This concept has its roots in a structuralist world- general consideration:
systems analysis with a Marxist-inspired, heterodoxic economic The ecological debt of country A consists of
view of world trade. Through it, world trade is seen as unjust
because of power relations that enable core nations to establish (1) the ecological damage caused over time by country A in other
oligopolies and impose deteriorating terms of trade upon countries or in areas under the jurisdiction of other countries
‘‘developing countries’’ peripheral to the system. In the 1980s through its production and consumption patterns, and/or
and 1990s, political ecologists increasingly adopted this analytical (2) the ecological damage caused over time by country A to
framework, broadening it to include the ecologically devastating ecosystems beyond national jurisdiction through its consump-
aspects of the unequal exchange between the global North and tion and production patterns, and/or
South (cf. Bunker, 1985; Altvater, 1993; Hornborg, 1998, 2011). (3) the exploitation or use of ecosystems and ecosystems goods
The second conflict leading to ecological debt according to and services over time by country A at the expense of the
Martinez-Alier arises in the tendency of wealthy countries to equitable rights to these ecosystems and ecosystem goods and
disproportionately utilize environmental space without paying for services of other countries or individuals (149).
it. This tendency primarily refers to the use of carbon sinks and is
an important factor in the accrual of carbon or climate debt. The two key concepts in the Ghent group’s working definition
Significantly, the primary components of Martinez-Alier’s are ‘‘ecological damage’’ and ‘‘use at the expense of the equitable
conceptualization of ecological debt can be traced through the rights of others.’’ In these terms, an ecological debt can be said to
very real social and ecological injustices that are manifest around have accrued when one country causes ecological damage in
the modern world. Ecologically unequal exchange, for example, is another country or to the global commons. Accrual can also be said
seen to emerge in the (unpaid) costs of reproduction or to have occurred in situations where disproportionate use has been
maintenance or sustainable management of renewable resources made of ecosystem services that could otherwise have been
that have been exported from the peripheries of the global South. It reasonably assumed to be shared equally by all on the earth. This
is also discernible in the costs of the future unavailability of definition notably echoes Martinez-Alier’s conceptualization of the
destroyed, non-renewable natural resources. No less troublingly, two distributional conflicts that lead to the accrual of ecological
ecologically unequal exchange is apparent in the (unpaid) debt, where the first—the cumulative effects of ecologically
commercial value of appropriated genetic resources. As for the unequal exchange—consists of ecological damage, and the
disproportionate use of environmental space, two important second—disproportionate use of the global commons—results in
manifestations (a by no means comprehensive list) are notable situations of ‘‘use at the expense of the equitable rights of other
in the world today: the (unpaid) reparation costs of or countries.’’
compensation for the impacts caused by imports of toxic waste, The development of ecological debt as a useful concept will
and the (unpaid) costs of free disposal of gas residues (e.g. GHGs require that its ongoing organic growth be somewhat tempered by
and other kinds of air pollution). the development of ontological and epistemological touchstones
Martinez-Alier importantly admits that quantifying ecological from which both activists and academics can draw and to which
debt in monetary terms is knotty but emphasizes that the point is they can refer regardless of where they work for justice in the
to ‘‘consider that the external debt from south to north has already world. This is not to say that the concept’s growth should be
been paid on account of the ecological debt the north owes to the stultified; indeed, it should not be. But moving forward, it does
south’’ (2002: 233). To those critical of the very idea of monetizing need to be appositely channelled. In order to strengthen the
nature’s services, he entreats, ‘‘mea culpa. My excuse is that the ontological and epistemological foundations of the concept in this
language of chrematistics is well understood in the north’’ (Ibid: way, Paredis et al. (2008: 72–81) have proposed that ecological
228). debt be recognized as resting on four theoretical building blocks.
The most comprehensive synthesis of previous analyses of Firstly, the rich theoretical tradition of biophysical accounting
ecological debt as well as one of the most detailed attempts at systems can be readily tied in to the ambitious project of
quantifying the concept has been undertaken by a group of Belgian measuring trade flows in non-monetary, ecological terms.
scholars at Ghent University led by Erik Paredis. In their 2008 book Secondly, the relevance of these accounting methods can largely
The Concept of Ecological Debt: Its Meaning and Applicability in be argued through theories of ecological economics, with
International Policy (Paredis et al., 2008), the Ghent group surveys augmenting foundations coming, thirdly, from theories of envi-
existing literature, advances a synthesis definition, proposes ronmental justice and human rights. Finally, theories and cases of
methodological and theoretical building blocks, and discusses historical injustices and restitution can be drawn on in providing
ecological debt’s status in international environmental law. It also a fourth building block. Notably, in a sympathetic critique of
meticulously calculates Belgium’s ecological debt accrual from its Paredis et al., Rice (2009: 248–249) proposes an additional
use of energy and consequent contribution to climate change as theoretical block: a broad, ecologically-oriented world-system
well as from its agricultural production and food supply. The analysis framework.
26 R. Warlenius et al. / Global Environmental Change 30 (2015) 21–30

4. Illustrating the present: three cases applying the concept of overwhelmingly driven by the other two income groups’
ecological debt activities. In interpreting these findings, the Srinivasan group
concluded that the mounting climate damages impressed upon
In view of its history of organic growth over the past several poor nations will in the end far exceed the current foreign debt
decades, that ecological debt and similar concepts have already ($1.8 trillion) of those nations.
been effectively utilized empirically should not be unexpected. Despite such sophisticated attempts, however, no generally
Illustration of how such concepts have been used until now not accepted methodology to measure ecological debt yet exists. The
only further demonstrate their value as tools in the pursuit of prime reason for this shortcoming is likely that there is no
justice but also helpfully provide cases to which both activists and consensus on which of all possible variables should be chosen to
academics can refer and upon which they can build in developing include in calculating a total ecological debt. Instead, researchers
their own theories and projects. In this regard, what follows are have found that the more limited undertaking of calculating
three brief cases that provide such illustration, first of ecological carbon (or climate) debt is more manageable. Doing so has been
debt being used as a biophysical measure within sustainability shown to be easily reviewable and pertinent data for conducting
science and ecological economics, then of its being used as a legal such calculations tends to be readily accessible. Furthermore, such
tool within international environment law, and finally of its being analyses are regarded by many as being highly relevant because of
used as a distributional principle within political theory. the ever-increasing sense of urgency that surrounds the climate
Developing ecological debt into a scientifically recognized crisis and also because carbon debt has been shown to compose the
method as well as enhancing both its legal status and the ethical largest portion of the total ecological debt (Martinez-Alier, 2009:
underpinnings of its fairness claim could, taken together, form the 59; Simms, 2009: 83).
basis of an effective strategy that renders the concept a powerful Perhaps, we propose, the generally perceived reasonableness of
policy tool within the UN system for Southern governments climate debt could be utilized to spur wider acceptance of the
seeking redress for past environmental injustices. Surprisingly, broader concept of ecological debt. The fact is that a number of the
however, few governments have at this point shown much interest publications already mentioned in this subsection include carbon
in supporting such efforts. The exception to this general rule was debt in their broader calculations of ecological debt. Beyond those
the support for climate debt shown by several Southern govern- already mentioned, specific calculations of carbon debt have also
ments in the lead up to COP-15 in Copenhagen in 2009. The timing been performed by Botzen et al. (2008) as well as by several NGO
of this exception perhaps indicates the greater scientific robust- initiatives, including Simms et al. (1999), FOEI (2005), the Jubilee
ness perceived in the concept of climate debt as compared to Debt Campaign (2007), Christian Aid (2009), Simms (2009), Action
ecological debt and/or the former’s direct policy relevance to UN Aid (2009) and TWN (2009c). Moreover, Bolivia has also twice now
climate negotiations. Regardless, the relative disinterest of submitted such debt calculations to the UNFCCC (2009, 2010),
governments in supporting research on ecological debt remains while other calculations have also been made by high-level
somewhat of a riddle that is beyond the scope of the present international institutions such as the UNDP (2007/2008) and the
context. UN (2009). Inclusion of papers on the closely related notion of
historical responsibility for climate change only lengthens the list.
4.1. Ecological debt as a biophysical measure Friman (2013), for example, provides an overview of the historical
responsibility argument within the UNFCCC negotiations. Other
A methodological pillar of the ecological debt movement, the examples include the 1997 Brazilian proposal to the UNFCCC
rich theoretical tradition of biophysical accounting has existed for (noted above), and articles by Enting and Law (2002), den Elzen
more than half a century. The robustness of this tradition is and Schaeffer (2002) and Müller et al. (2009). A synthetic proposal
evidenced, for one example, in how Georg Borgström’s coinage of for calculating climate debt was made by Warlenius (2012).
the term ghost acreage in 1965 is now regarded as the forerunner
both to Hans Opshoor’s development of the concept of ‘‘environ- 4.2. Ecological and climate debt as legal instruments
mental space’’ (Spangenberg, 1995) and to Rees and Wackernagel’s
(1992) formulation of ‘‘ecological footprints.’’ Since then, new The aspect of ecological debt that has received the most scholarly
methods have also been developed that, for instance, now enable attention to date from a legal perspective is climate change. Some
researchers to estimate a society’s social metabolism, such as legal scholars argue that at some point ‘‘there will be a general
through material (and sometimes energy) flow analyses (Fischer- obligation of industrialized nations under international law to
Kowalski, 1998), and to measure the human appropriation of net compensate developing nations for damage resulting from anthro-
‘‘primary production,’’ energy returns on energy inputs and time- pogenic climate change’’ (Tol and Verheyen, 2004: 1109). Although
space appropriations (Hornborg, 2006). many issues must be resolved before such an outcome can occur and
Ecological debt and carbon debt have, respectively, also more many more issues need to be addressed before the broader concept
and more often been directly applied as biophysical measures. Azar of ecological debt will be viewed as a legitimate legal instrument,
and Holmberg (1995), Jenkins (1996), Smith (1996), Torras (2003) numerous principles already in place provide a firm foundation for
and Paredis et al. (2008), for example, have all made ambitious such developments. To be sure, certain principles and concepts used
attempts to quantify portions of the North’s ecological debt. The in multilateral environmental agreements (MEAs) as well as in
research of Srinivasan and his colleagues (2008), however, has international legal practice more generally already bear striking
arguably been the most compelling to date. Their study estimated resemblance to ecological debt. In their survey of current MEAs, for
the environmental costs of human activities from 1961 to 2000 for example, although Paredis et al. (2008: 89) found no direct
six major categories—climate change, stratospheric ozone deple- references to ecological debt, they did identify several concepts
tion, agricultural intensification and expansion, deforestation, that might provide the foundation for the emergence of climate and
overfishing, and mangrove conversion—and showed how the ecological debt as legal instruments. Examples of these are:
driving forces and damage impacts of these activities are
distributed among low-, middle-, and high-income nations. Their (1) The principle of common but differentiated responsibilities (CBDR)
findings revealed striking imbalances in the distribution of was first introduced in the 1992 Rio Declaration (UNCED, 1992
damage impacts, with low-income nations bearing a far greater [Principle 7]) but can be traced even further back to the
proportion of social and environmental costs that even today are Stockholm Declaration (UNCHE, 1972 [Preamble Point 7])
R. Warlenius et al. / Global Environmental Change 30 (2015) 21–30 27

twenty years earlier. It is still commonly referred to in many Another strategy for those seeking to develop the debt concept
MEAs. The primary link between CBDR and ecological debt is as a legal instrument has been to address environmental harms as
the acknowledgement of the historical responsibility of abuses of human rights. For instance, the African Commission on
industrialized countries for global environmental problems, Human and Peoples’ Rights (Communication, 2001) has stated that
which implies their obligation to take far-reaching measures in while involved in irresponsible oil extraction in the Niger Delta the
responding meaningfully to such problems (89–90); former military regime of Nigeria violated the rights of the Ogoni
(2) The principle of intra- and intergenerational equity is also part of people with regard to health and the right to a healthy
the original Rio Declaration (UNCED, 1992 [Principle 3]) and environment. According to the commission’s recommendations,
also has its roots in the Stockholm Declaration (UNCHE, 1972 the new civilian government should compensate the victims, clean
[Principles 1 and 2]). It can also be found in the UNFCCC, CBD up their lands and rivers, and make sure environmental and social
and UNCCD. As with ecological debt, it addresses the problems impact assessments are made a part of future extractive
caused by unsustainable production and consumption patterns operations.
and promotes policies for restitution of past degradations (91); Finally, a promising tendency, famously noted by Barkan in The
(3) The polluter pays principle (PPP) is at this point sufficiently well- Guilt of Nations (2000), is the growing practice of providing
established in MEAs to be considered a general principle of restitution for historical injustices. To date, most cases have been
international environmental law. Its main link to ecological rooted in reparations for German atrocities committed during
debt is its allocation of economic obligations for activities that World War II, but other cases have considered the consequences of
are damaging the environment, with prevention being impor- colonialism, such as with the acknowledgement of land rights for
tant and inherent to the concept (93; see UNCED, 1992 Aboriginals in Australia and with British apologies to the Maori in
[Principle 16]); New Zealand. As Paredis et al. speculate (2008: 113), ‘‘the question
(4) The Adaptation Fund under the Kyoto Protocol, which is funded is whether the concept of ecological debt could one day become
by a two per cent levy on clean development mechanism part of this growing moral trend.’’
(UNFCCC, 1998 [Article 12]) projects and thus financed by
developed countries, is used for projects in developing 4.3. Ecological debt as a distributional principle
countries. Some consider it the first step to repaying the
carbon debt (94); and The dominant practices of the contemporary realpolitik were
(5) The Convention on Biological Diversity (UNCBD, 1992 [Article lucidly reflected during the 2009 Copenhagen Climate Summit in a
1]) established the principle of equitable benefit sharing, which statement by the US Special Envoy for Climate Change Todd Stern:
states that commercial use of certain natural (genetic) ‘‘We absolutely recognize our historic role in putting emissions in
resources should be shared in a fair and equitable way with the atmosphere, up there, but the sense of guilt or culpability or
the country providing those resources. In terms of ecological reparations, I just categorically reject that’’ (Reuters, 2009). Stern’s
debt, equitable compensation for extraction and use of such statement is suggestive not only of the global North’s reticence in
resources should be made. acting to rectify the various harms of its historical practices. It also
suggests that, just as with legal practices, ecological debt-related
Grounded in the idea that contemporary international law is issues have to some degree been discussed in recent years without
not enough, Pigrau et al. (2013) argue for a more holistic approach directly referencing the concept as such. In this way, ecological and
that advocates a reinterpretation and reconstruction of the current climate debt can be seen as issues of distribution, both spatially and
international order in terms of global constitutionalism and an temporally. This is especially true within the growing field of
enhanced human rights approach in order to address ecological environmental political theory, in which several different distribu-
debt and environmental justice. In their study, Paredis et al. tional principles for future allocations of climate change burdens
evaluate the main obstacles blocking acceptance of ecological debt have been proposed and discussed. One such principle that
as a framework in international environmental law and possible conceptually resembles climate debt has been referred to alterna-
strategies for overcoming these obstacles. Among other things, tively as ‘‘polluter pays’’, ‘‘contributor pays’’, ‘‘historical account-
they point out that most of the links established thus far between ability’’ or ‘‘responsibility’’. There has actually been a ‘‘surprising
ecological debt and legal praxis have been future-oriented and convergence of philosophical writers on the subject,’’ according to
mainly focus on pollution and environmental damage. Ecological one of the most prominent of them, Stephen M Gardiner (2004).
debt is, however, a highly retroactive concept, and besides pollution Two important articles that are illustrative of this consensus in
it also regards the use of natural resources without equitable favour of historical responsibility in a future allocation scheme are
compensation as part of the debt—a framing of resource use that Henry Shue’s ‘‘Global Environment and International Inequality’’
hardly figures at all in current environmental law (111–112). (1999) and Eric Neumayer’s ‘‘In Defense of Historical Accountabil-
Importantly, other legal strategies beyond those seeking to ity for Greenhouse Gas Emissions’’ (2000). Shue starts off with an
develop the debt concept as a legal instrument also exist, providing oft-quoted analogy:
relatively untested options for utilizing debt concepts to achieve
the end of ecological justice through litigation. For example, All over the world parents teach their children to clean up their
several attempts have been made to stop the environmentally own mess. This simple rule makes good sense from the point of
harmful activities of transnational companies by filing lawsuits view of incentive: if one learns that one will not be allowed to
under the U.S. Alien Tort Claims Act (ACTA). Though still holding get away with simply walking away from whatever messes one
some promise, this approach ‘‘has not proven to be a very good creates, one is given a strong negative incentive against making
basis for securing compensation for environmental claims’’ messes in the first place. Whoever makes the mess presumably
(Paredis et al., 2008: 106), a position that was firmly reinforced does so in the process of pursuing some benefit—for a child, the
in 2013 when the US Supreme Court unanimously held in an benefit may simply be the pleasure of playing with the objects
opinion joined by five justices (with several concurrences under- that constitute the mess. If one learns that whoever reaps the
scoring differences in reasoning) that the presumption against benefit of making the mess must also be the one who pays the
extraterritoriality applies to claims under the Alien Tort Statute cost of cleaning up the mess, one learns at the very least not to
and that nothing in the statute rebuts that presumption (Kiobel v. make messes with costs that are greater than their benefits
Royal Dutch Petroleum Co., 133 S.Ct. 1659 (2013)). (Shue, 1999: 533).
28 R. Warlenius et al. / Global Environmental Change 30 (2015) 21–30

Shue goes on to formalize this analogy in a first principle of 5. Final considerations on EJO utilization of the ecological debt
equity: ‘‘those who have been unilaterally put at a disadvantage concept
are entitled to demand that in the future the offending party
shoulder burdens that are unequal at least to the extent of the According to Sociologist James Rice (2009), there are ‘‘several
unfair advantage previously taken, in order to restore equality’’ advantageous characteristics of ecological debt as a tool for
(Ibid: 534). Neymayer (2000: 187–188), while holding to Shue’s promoting a reconceptualization of North-South political-eco-
articulation of this ethical argument in referring to what he calls ‘‘the nomic relations.’’ As this paper has shown, such characteristics
principle of equality of opportunity,’’ also adds two further supports: might together further the struggle for environmental and social
(1) science is indisputably on the side of historical accountability in justice in the world. It can do so in several important ways. First,
that global warming is a consequence of greenhouse gases the ecological debt concept acknowledges the interconnections
accumulated over time, and (2) the long-held legal precedent that between society, nature and economy that are so often held as
the polluter pays must be conformed to in allocation schemes separate, irreducible objects within social science and policy-
based on the argument of historical accountability. making. Second, it brings a historical dimension to discussions of
Of course, numerous objections to the idea of historical sustainability and climate change, illuminating how present
accountability have been raised. Shue (1999: 535–537) provides divides and challenges are derived from long-term processes of
three illustrative examples: (1) poor countries have also benefited capital accumulation. Third, it does not appeal to charity or aid to
from the enrichment of the developed countries; (2) historical settle the external debt crisis but instead reframes the cancellation
environmental damage was unintentional, and people cannot be of external debt as a moral obligation. Finally, it holds the potential
held responsible for harmful effects they could not have foreseen; to ‘‘convey a new voice within the arenas in which international
and (3) it is unethical to hold people responsible for damage that development concerns are debated. . . a voice united by common
they have no direct relation to, as with holding current generations experiences and highlighting the social and environmental
responsible for past emissions. Shue’s main counterargument in contradictions expressed within Southern countries that advocates
response to the first objection is that ‘‘whatever benefits LDC’s of neoliberal globalization arguably overlook’’ (Rice, 2009: 246).
have received, they have mostly been charged for.’’ The second Still, relevant criticism of the concept as it has been articulated
objection, Shue argues, rests upon a false equivalency between up to this point provides several opportunities for making
punishment and responsibility—it is indeed common to find ecological debt even more effective as a tool in the struggle for
people civilly liable for the unintentional or unforeseen effects of justice in the world. Rice agrees with Paredis et al. (2008: 247), for
their actions, even when it would be considered unfair for them to instance, that arguments for ecological debt are not sufficiently
be held punitively responsible for those same effects. According to developed to be operable as a viable tool in international
Shue, the third objection is inapposite because today’s generation negotiations. At this point, it is backed only by a limited numbers
of people who live in industrialized countries are anything but of experts, and the statistical evidence supporting its claims
unrelated to the emissions of earlier generations since this remains too insufficient to be drawn from within international
generation is the beneficiary in many aspects of their daily lives policy arenas. This weakness may be remedied, the Ghent
of earlier industrial activity. In his study that shows through researchers argue, with the development of a stronger link
statistical correlations how two-thirds of the variation in 1990 per between ecological debt as a campaign tool and as a scientific
capita GNP can be explained by contributions to climate change, method. In overcoming this weakness, EJOLT, as a research project
Neumayer (2000: 189) effectively reinforces this claim. that brings EJO activists together with progressive scholars
In an important side note, the premise for counterargument through a dialectical dynamic of activist and academic knowledge
against the third common objection to historical responsibility generation, should play a significant role in both refining the
presented by Shue is that generations today continue to benefit concept and linking it to political campaigning.
from earlier periods’ industrialization. As has been pointed out We caution, however, that this dynamic will likely have to
recently (Godard, 2012: 12), however, such benefit is sometimes contend with criticisms of the (academic) conceptualization of the
uncertain and possibly over-estimated. Neither Shue nor Neu- concept of ecological debt that are quite the opposite of those
mayer, for example, reflect on the consequence for their arguments discussed by both the Paredis group and Rice. This criticism
of the industrial degeneration of a country like Ukraine, which has concerns the tendency and potential risk that deployment of the
a massive responsibility for climate change from its past industrial ecological debt concept will only serve to amplify the general
activities even though the benefits its people receive from tendency within environmental policy to objectify, quantify,
historical emissions largely vanished with the hard economic monetize, and in the end commodify nature. We share this
times Ukraine has faced since the end of the Soviet period. In this concern and are highly sceptical of, for instance, the market
case, holding Ukraine accountable for past emissions that in no mechanisms of the Kyoto Protocol and the nostrum of the ‘‘green
way benefit present generations in deciding its current climate economy’’ that was hailed at the Rio+20 conference in 2012.
burden allocation may be unjust. This situation is discussed at We do, however, also believe that it is possible to draw a sharp
length in Warlenius (2013), whose tentative conclusion is that line between monetization and commodification. The long
cases of declining, de-industrialized economies point to the need to tradition within ecological debt thinking—going back at least to
move away from ‘‘pure,’’ strict liability approaches to calculating the Debt Treaty of 1992—to provide more or less detailed
climate debt by taking into consideration the fundamental quantifications of debt accrual are politically important and
difference between ‘‘subsistence emissions’’—emissions that are scientifically engaging. Even the monetization of the debt, which
the result of activities necessary for providing basic needs such as is methodologically more daring, has political advantages since, as
food production—and ‘‘luxury emissions’’ (cf. Agarwal and Narain, Martinez-Alier (2002: 228) noted, ‘‘chrematistics is well under-
1991; Shue, 1994; Vanderheiden, 2008). The former is considered a stood in the north.’’ A precondition for maintaining the sharp
basic right, so arguably only the latter should be taken into line between monetization and commodification can therefore be
consideration in allocation of historical responsibility within a understood as being an effective means by which to clarify the
future burden sharing system. According to this proposal, difference between reparation and payment. Severe ecological
Ukraine’s historical record of emissions would thereby be damage because of either colonial plunder or structurally-enforced
expunged and some of its current emissions be allowed for free extraction can never be fully remunerated through economic
(Warlenius, 2013: 41). transactions; in this way, a reparation paid for historical abuses
R. Warlenius et al. / Global Environmental Change 30 (2015) 21–30 29

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