Climate change groundhog day is almost upon us. Environment ministers have gathered in Cancún, Mexico, for the annual meeting at which they never quite manage to sign a new global treaty. At least not one that includes the world's largest emitters of carbon dioxide – namely the United States and China. This year the negotiators may manage to reach agreement on some rules for how developing countries can be more transparent about their domestic climate initiatives in return for delivery by rich countries on pledges of climate finance.

Many followers of the UN climate talks blame a failure of leadership by governments or expeditious corporate lobbying for the recurring nightmare, but often overlook a basic, underlying political principle: that global deal-making cannot outpace public opinion back home. The big picture still sees the US too hidebound by its domestic travails to make any grand promises on cutting its emissions.

In the relatively climate-friendly UK, even in the teeth of the Climategate email debacle, 78 per cent of people recently polled by Ipsos MORI believe that climate change is either partly or mostly caused by human activity (the number of people who accept humanity's role in climate change is smaller, but still in the majority even in the US). However, in an IPPR poll prior to the May general election, fewer than one in five put climate change in the top three or four issues on which they would base their voting decisions.

Over time, environmental issues in general enjoy the strong support of less than 10 per cent of the UK electorate and rarely peak at more than 20 per cent. The economy peaks at roughly 70 per cent.

This pattern is repeated in many developed countries, on whose leadership the rest of the world's pathway to a clean economy rests. In the recent Australian election, climate change was typically rated eighth or lower in the list of voters' priorities. A US poll from early 2010 ranked climate change 21st out of 21 "priority" issues for the year ahead.

People's views are of course shaped by many influences and the war of attrition is doubtless being fought with considerable funding from carbon-intensive corporate interests. But the paradox of climate politics is more profound and deeply rooted than this. Safeguarding tomorrow's climate requires action today that in many cases may harm the interests not only of what environmentalists call "Big Carbon", but also consumers and taxpayers.

A report this week from the UK's Climate Change Committee suggests that the annual cost of decarbonising electricity supply could be £10bn. This cost will be passed on by utilities to households and industry. Annual household electricity bills in the UK currently add up to approximately £10bn, so it's not hard to imagine how quickly the flimsy support for climate policy could melt away as people see steep rises in the costs of heating their homes.

You don't have to be a climate-change sceptic to feel that a largely regressive de facto tax on household energy, at a time when people are already feeling the pinch, could prove an emissions reduction pledge too far.

Until the climate debate is better handled at the domestic level and the knotty question of who pays is resolved, it is hard to see how the climate cabal can escape their international negotiations groundhog day.

Andrew Pendleton is senior research fellow at the Institute for Public Policy Research: ippr.org.