There is increasing worry that a failure by President Barack Obama to get a climate-change bill through Congress will make it "extraordinarily difficult" for the U.S. to commit to a target in treaty negotiations. Jake Schmidt, international climate policy director for the Natural Resources Defense Council, said China is holding back until it sees what kind of emissions target the U.S. accepts. "If the U.S. put forward a number and gave a clear signal of what it would do, I think China would follow minutes after that," he said.

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