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Mr. Kerry suggested that the legislation’s fate hinges on the willingness of China to agree to verification of its emissions policies. The Senate rejected the Kyoto Protocol because it did not cover developing nations, and senators from both parties have said they will not vote for domestic greenhouse gas reductions if China and India do not also act on climate change.

“Critical to long-term financing is a guarantee that people are going to be transparent and accountable for what they say they are going to do. That’s an essential component for passage of legislation in the Senate next year,” he said.