[1] The plan outlines measures by which Germany can meet its various national greenhouse gas emissions reduction goals through to 2050 (see table) and service its international commitments under the 2016 Paris Climate Agreement.
The Federal Ministry for the Environment, Nature Conservation, Building and Nuclear Safety (BMUB), under minister Barbara Hendricks, led the development of the plan.
[7]: 2 The Climate Action Programme 2020 (Aktionsprogramm Klimaschutz 2020) is an attempt by Germany to help meet its official 2020 greenhouse gas emissions reductions target after a 'climate gap' had been identified.
How best to control the contribution from coal-fired generation remained controversial, but economy and energy minister Sigmar Gabriel (SPD) dismissed plans aired in his ministry in October 2014 to retire 10 GW of coal capacity.
[16][17] Based on the report, environment minister Barbara Hendricks said in a press release that "the programme will create 430000 additional jobs and a GDP increase of 1% by 2020".
[22] The consultation process involved a series of meetings with states (Länder), municipalities, associations, and citizens, with delegates selected to represent these various groupings in subsequent forums.
The German government also explained its public participation process at the 2015 United Nations Climate Change Conference (COP 21) on 9 December 2015.
[30] Following the leaked document, state governments became increasingly concerned that they were being railroaded into climate change goals that could damage their regional economies.
[33] The new draft shows that individual sectors may escape specific emissions targets and that an end date for coal-fired generation has been omitted.
[33] The weakening of the plan is also a result of industry associations repeatedly criticizing sector targets and itemized measures, which they fear would harm Germany's economic performance and international competitiveness.
The previously leaked June 2016 draft stated that by 2030 "a large majority of newly registered cars" would need to be powered by either electricity or biofuels.
Economy and energy minister Sigmar Gabriel opposes the setting of a coal exit date before job alternatives for lignite workers have been determined.
The new plan also precludes new coal-fired generation and the expansion of existing open-pit mines and calls on the government to lobby for an EU-wide floor price for auctioned EU ETS emissions allowances.
[44] On 8 November 2016, economy and energy minister Gabriel vetoed the plan amid concerns by trade union IG BCE and supported by the BDI industry group.
[45] On 11 November 2016, Reuters news agency reported that chancellor Angela Merkel and ministers Gabriel and Hendricks had agreed on a new draft.
The timing allowed environment minister Barbara Hendricks to present the German plan at the COP 22 climate talks held in Marrakesh, Morocco.
It's about using the strength and creativity of the German market economy, as well as the forces of competition to reach existing national, European and international climate protection targets.
For comparison, the Paris Agreement nationally determined contribution (NDC) for Germany is −55% relative to 1990 (which accords with the final cell in the table).
[1][20]: 4–5 The plan stresses to role of the European Union Emission Trading System (EU ETS) as the primary climate protection instrument covering the energy sector and parts of industry in central Europe.
"If you read the Climate Action Plan carefully, you will find that the exit from coal-fired power generation is the immanent consequence of the energy sector target. ...
Rather the plan states that stricter emissions limits for new cars will be set by the European Union and that "the government will advocate [an] ambitious development of the targets" so that its 2030-goal can be met.
The plan states a next step is to determine the framework needed to ensure that new powertrain technologies and energy forms will be adopted at scale.
Notwithstanding, the plan emphasizes the need to maintain international competitiveness: With our modernizing strategy for the economy, the correct political framework, and active regional and structural policy that supports structural change, we want to create dependable framework conditions for the German economy, to adjust to this transformational process early, and use the possibilities connected to it.
The plan acknowledges that agriculture cannot reach zero emissions, due to the biological processes inherent in plant cultivation and livestock farming.
The government also advocates the use of financial instruments under a reformed EU Common Agricultural Policy to reduce GHG emissions from the sector.
In addition, the government will support efforts to reconcile global finance flows with climate protection goals, for instance through its role on the G20 Financial Stability Board.
[1][20] The plan is predicated on a gradual transformation, achieved through a learning process involving the scientific community and accompanied by public dialogue.
As early as 2018, the government intends to strengthen the plan by quantifying the various emission reduction efforts and their associated ecological, social, and economic impacts.
[53] Simone Peter, co-chair of the Green Party, said "this is not a good plan anymore, it has become an empty shell, because the ministerial colleagues of [environment minister] Hendricks have removed anything that could be of relevance – be it the coal exit, the end of the combustion engine, or a transition in agriculture".
[53] Klaus Töpfer, founding director of the Institute for Advanced Sustainability Studies (IASS), said "this plan is certainly not yet capable of securing the German contribution to the Paris Climate Agreement.