The UK has fallen nearly 40% behind on its pledge to rapidly scale up climate finance for developing countries, according to Carbon Brief analysis.
A freedom-of-information (FOI) request reveals that, rather than rising steadily to meet a target of £11.6bn over five years, UK climate spending overseas has fallen for two years in a row.
It is now around £2bn off track – assuming there should have been even progress towards the goal.
Boris Johnson’s government, with current prime minister Rishi Sunak as chancellor, committed in 2019 to ramping up its international climate finance (ICF) in order to reach a target of £11.6bn between the financial years 2021/22 and 2025/26.
The figures obtained by Carbon Brief show that UK spending has dipped from £1.56bn in 2020/21 to £1.47bn in 2021/22 – and around £1.36bn in 2022/23.
The numbers for 2022/23 are described in the FOI release as “provisional”, but the total sum is similar to one recently reported by the Guardian, based on leaked civil service documents.
Carbon Brief understands that the government’s figures for that period could be revised upwards when the final numbers are released, but are still likely to fall short of the £11.6bn trajectory.
The government would now have to roughly double its recent annual spending over the next three years, on average, if it is to stand any chance of delivering its pledge.
The UK is facing mounting pressure to provide more money to help vulnerable nations deal with climate change. Yet the government has slashed its overall budget for foreign aid, citing economic pressures at home. It has also redirected some of its foreign-aid spending towards the domestic processing of asylum-seekers.
Climate-finance experts tell Carbon Brief that the current shortfall is “troubling”, adding that it will now be “highly challenging” for the UK to achieve its goals without strong political will.
£11.6bn pledge
Former prime minister Boris Johnson announced in 2019 that the UK would spend £11.6bn on ICF between the financial years 2021/22 and 2025/26.
This has since been reinforced by his successor, Rishi Sunak, who told leaders at the COP27 climate summit in 2022 that he “profoundly believe[s] it is the right thing to do”.
The target doubled the government’s previous five-year pledge to spend “at least £5.8bn” on tackling climate change between 2016/17 and 2020/21 – a goal that has been achieved.
Both targets make up the UK’s contribution to a wider promise by all developed countries, as part of the Paris Agreement, to ramp up climate finance for developing countries to $100bn a year by 2020. Three years on, these nations are still yet to reach this target.
Without significantly increased climate finance, developing nations say they will not be able to transition to low-carbon economies and protect their people from climate hazards.
The UK’s climate finance spending has been under intense scrutiny in recent years.
First, the government slashed its overall development aid spending from the UN-backed benchmark of 0.7% to 0.5% of gross national income (GNI), citing the economic shock of Covid-19. Climate projects are among the many under threat from cuts.
Since then, the expansion of military aid to Ukraine and diversion of foreign aid to support refugees arriving in the UK have sucked up more of the shrinking resource pool.
In July, the Guardian reported on a leaked civil service briefing for ministers, explaining why the combination of these factors would justify dropping the £11.6bn goal altogether. The government has denied that it intends to drop the pledge.
Responding to a written question on 17 July, development minister Andrew Mitchell confirmed that the UK had spent “over £1.4bn” on ICF in 2021/22. However, he did not share data for 2022/23 or plans for spending out to 2025/26.
FOI requests
Carbon Brief submitted FOI requests to the three government departments responsible for running climate-related development projects: the Foreign, Commonwealth and Development Office (FCDO); the Department for Environment Food and Rural Affairs (Defra); and the now-defunct Department for Business, Energy and Industrial Strategy (BEIS).
They provided data on ICF spending between 2011/12 and 2022/23, although Defra withheld its 2022/23 data, stating it was “yet to finalise” it. Both the other departments provided this data, with the caveat that the figures were “provisional”.
(For in-depth analysis of more than a decade of climate finance spending, see Carbon Brief’s full analysis.)
The annual totals, broken down by financial year, can be seen in the chart below. (Spending by Defra, which makes up roughly 3% of total climate finance, has been estimated for 2022/23 based on the average spend over the previous five years.)
Annual ICF spending has more than tripled since the UK started officially providing it in 2011. However, as the data obtained by Carbon Brief shows, for the past two years it has been in decline, pushing the £11.6bn goal further out of reach.

If the £11.6bn target had been split evenly over the five years covered by the pledge, the UK would have spent £2.32bn annually on climate finance between 2021/22 and 2025/26.
So far, however, the government has fallen far short of this, spending £1.46bn in 2021/22 and just £1.36bn in 2022/23. This amounts to a £1.81bn – or 39% – shortfall over the two-year period, relative to even progress towards the £11.6bn goal.
If the government is still to meet its £11.6bn target, climate finance would have to more than double to £2.92bn in 2023/24 and stay that high until 2025/26 – an unprecedented increase.
The 2022/23 figure obtained by Carbon Brief aligns with the Guardian’s reporting on a leaked civil service document, which “confirmed” that ICF spend for 2022/23 was £1.35bn – and expected to rise to around £1.59bn in 2023/24.
Despite this confirmation, Carbon Brief understands that, when the final spending total for 2022/23 is released, it could be higher.
Jonathan Beynon, a senior policy associate at the Center for Global Development who, until 2022, worked for FCDO on climate finance and other issues, tells Carbon Brief this could be achieved in part by reclassifying more funds within existing foreign aid projects as climate-related. Again, this was mentioned in the leaked document.
A government spokesperson tells Carbon Brief that “the government remains committed to spending £11.6bn on international climate finance and we are delivering on that pledge”, adding that “we will publish the latest annual figures in due course”.
‘Shockingly low’
All of this means that the £11.6bn target is slipping out of reach, according to former Conservative FCDO minister Zac Goldsmith, who resigned from government in June, citing its “apathy” towards climate change and the environment. He tells Carbon Brief:
“Technically, [the target] does remain government policy, but the shockingly low levels of expenditure make it a mathematical impossibility that the promise can be kept. Among beleaguered and hard-working civil servants this is an open secret and well understood. Indeed, the only way the promise can be kept is if the next government in its first year spends well over 80% of all its bilateral spending on climate, which clearly cannot happen with all the other important commitments we have.”
Clare Shakya, a climate finance expert at the International Institute for Environment and Development (IIED), tells Carbon Brief it would be “highly challenging” for the government to “double the level of spending in a year and still ensure the projects and programmes it was supporting were of good quality”.
Faten Aggad, a climate diplomacy expert and adjunct professor at the University of Cape Town, agrees that it is “doubtful” the UK government would prioritise climate spending with its current economic outlook and a general election looming. She tells Carbon Brief:
“Engagements of the current government also show that the commitment to the climate agenda is not as strong as one might have hoped. So I would be surprised to see the spending doubled.”
However, Beynon tells Carbon Brief a “backloaded trajectory” – where spending started off relatively low and then increased more towards the end – was always envisaged for the five-year £11.6bn target period. (This is confirmed in the Guardian’s reporting, which says the government’s internal target for ICF spending in 2022/23 had been £1.77bn.)
He notes that the same pattern can be seen in the previous five-year target period, which still resulted in the goal being successfully met. A slow start can reflect the time taken for new climate projects to be set up and developed.
That said, Beynon adds that he would have expected an “uplift” by 2022/23, so the trend continuing downwards would be “troubling”. As for whether the target can still be achieved, he says:
“The short answer is: it’s possible, but it’s challenging…Primarily because of the wider context – the cuts in ODA [official development assistance] and the decision to choose to spend a good chunk of that ODA on hosting refugees.”
While developed countries are technically allowed to spend some of their aid budget on housing refugees, the UK spent an unusually high amount – around 30% – on this in 2022, to accommodate people arriving from Ukraine and Afghanistan. Only three nations, none of them major aid providers, spent higher proportions of their development aid in this way.
Experts tell Carbon Brief that, depending on the government in charge and how much they prioritise international development, the target could still be achieved.
“The goal is certainly within reach if the political will is there to achieve it,” Saleemul Huq, director of the International Centre for Climate Change and Development (ICCCAD) in Bangladesh, tells Carbon Brief.
The Treasury has confirmed that foreign-aid spending will likely not be restored to 0.7% of GNI until at least beyond 2027/28, if the Conservative government remains in power – two years after the £11.6bn deadline. The opposition Labour party has said it will examine a “pathway back to 0.7%” over the course of the next parliament, if it wins the upcoming general election.
Beynon says that, with such widely publicised targets in place, climate-related development spending has, in his view, been “relatively protected”, compared to other areas of development aid that have felt the impact of cuts.
At the recent G20 summit in India, Sunak announced a pledge of £1.62bn in climate finance to the Green Climate Fund (GCF), described by the government as a “major contribution” towards its £11.6bn commitment.
Yet given the wider state of UK climate finance, Goldsmith says the prime minister, or chancellor Jeremy Hunt, would need to “personally intervene” to bring the UK back on track for the goal. Goldsmith criticises Sunak for “pretending we are on course when [he knows] we simply are not”.
Experts warn that a failure to scale up climate finance would seriously threaten the UK’s international reputation. Shakya says:
“If the UK does not meet its own promised contributions, this will not only impact the UK’s standing, but also whether any rich countries can be trusted.”
In less than two months, Sunak will travel to COP28 in Dubai where there will once again be significant pressure placed on developed countries to meet their existing climate-finance pledges – as well as raise the bar higher in the coming years.
The post Analysis: How the UK has fallen 40% behind on its £11.6bn climate-finance pledge appeared first on Carbon Brief.
Analysis: How the UK has fallen 40% behind on its £11.6bn climate-finance pledge
Climate Change
GEF raises $3.9bn ahead of funding deadline, $1bn below previous budget
The Global Environment Facility (GEF), a multilateral fund that provides climate and nature finance to developing countries, has raised $3.9 billion from donor governments in its last pledging session ahead of a key fundraising deadline at the end of May.
The amount, which is meant to cover the fund’s activities for the next four years (July 2026-June 2030), falls significantly short of the previous four-year cycle for which the GEF managed to raise $5.3bn from governments. Since then, military and other political priorities have squeezed rich nations’ budgets for climate and development aid.
The facility said in a statement that it expects more pledges ahead of the final replenishment package, which is set for approval at the next GEF Council meeting from May 31 to June 3.
Claude Gascon, interim CEO of the GEF, said that “donor countries have risen to the challenge and made bold commitments towards a more positive future for the planet”. He added that the pledges send a message that “the world is not giving up on nature even in a time of competing priorities”.
Donors under pressure
But Brian O’Donnell, director of the environmental non-profit Campaign for Nature, said the announcement shows “an alarming trend” of donor governments cutting public finance for climate and nature.
“Wealthy nations pledged to increase international nature finance, and yet we are seeing cuts and lower contributions. Investing in nature prevents extinctions and supports livelihoods, security, health, food, clean water and climate,” he said. “Failing to safeguard nature now will result in much larger costs later.”
At COP29 in Baku, developed countries pledged to mobilise $300bn a year in public climate finance by 2035, while at UN biodiversity talks they have also pledged to raise $30bn per year by 2030. Yet several wealthy governments have announced cuts to green finance to increase defense spending, among them most recently the UK.
As for the US, despite Trump’s cuts to international climate finance, Congress approved a $150 million increase in its contribution to the GEF after what was described as the organisation’s “refocus on non-climate priorities like biodiversity, plastics and ocean ecosystems, per US Treasury guidance”.
The facility will only reveal how much each country has pledged when its assembly of 186 member countries meets in early June. The last period’s largest donors were Germany ($575 million), Japan ($451 million), and the US ($425 million).
The GEF has also gone through a change in leadership halfway through its fundraising cycle. Last December, the GEF Council asked former CEO Carlos Manuel Rodriguez to step down effective immediately and appointed Gascon as interim CEO.
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New guidelines
As part of the upcoming funding cycle, the GEF has approved a set of guidelines for spending the $3.9bn raised so far, which include allocating 35% of resources for least developed countries and small island states, as well as 20% of the money going to Indigenous people and communities.
Its programs will help countries shift five key systems – nature, food, urban, energy and health – from models that drive degradation to alternatives that protect the planet and support human well-being by integrating the value of nature into production and consumption systems.
The new priorities also include a target to allocate 25% of the GEF’s budget for mobilising private funds through blended finance. This aligns with efforts by wealthy countries to increase contributions from the private sector to international climate finance.
Niels Annen, Germany’s State Secretary for Economic Cooperation and Development, said in a statement that the country’s priorities are “very well reflected” in the GEF’s new spending guidelines, including on “innovative finance for nature and people, better cooperation with the private sector, and stable resources for the most vulnerable countries”.
Aliou Mustafa, of the GEF Indigenous Peoples Advisory Group (IPAG), also welcomed the announcement, adding that “the GEF is strengthening trust and meaningful partnerships with Indigenous Peoples and local communities” by placing them at the “centre of decision-making”.
The post GEF raises $3.9bn ahead of funding deadline, $1bn below previous budget appeared first on Climate Home News.
GEF raises $3.9bn ahead of funding deadline, $1bn below previous budget
Climate Change
Marine heatwaves ‘nearly double’ the economic damage caused by tropical cyclones
Tropical cyclones that rapidly intensify when passing over marine heatwaves can become “supercharged”, increasing the likelihood of high economic losses, a new study finds.
Such storms also have higher rates of rainfall and higher maximum windspeeds, according to the research.
The study, published in Science Advances, looks at the economic damages caused by nearly 800 tropical cyclones that occurred around the world between 1981 and 2023.
It finds that rapidly intensifying tropical cyclones that pass near abnormally warm parts of the ocean produce nearly double – 93% – the economic damages as storms that do not, even when levels of coastal development are taken into account.
One researcher, who was not involved in the study, tells Carbon Brief that the new analysis is a “step forward in understanding how we can better refine our predictions of what might happen in the future” in an increasingly warm world.
As marine heatwaves are projected to become more frequent under future climate change, the authors say that the interactions between storms and these heatwaves “should be given greater consideration in future strategies for climate adaptation and climate preparedness”.
‘Rapid intensification’
Tropical cyclones are rapidly rotating storm systems that form over warm ocean waters, characterised by low pressure at their cores and sustained winds that can reach more than 120 kilometres per hour.
The term “tropical cyclones” encompasses hurricanes, cyclones and typhoons, which are named as such depending on which ocean basin they occur in.
When they make landfall, these storms can cause major damage. They accounted for six of the top 10 disasters between 1900 and 2024 in terms of economic loss, according to the insurance company Aon’s 2025 climate catastrophe insight report.
These economic losses are largely caused by high wind speeds, large amounts of rainfall and damaging storm surges.
Storms can become particularly dangerous through a process called “rapid intensification”.
Rapid intensification is when a storm strengthens considerably in a short period of time. It is defined as an increase in sustained wind speed of at least 30 knots (around 55 kilometres per hour) in a 24-hour period.
There are several factors that can lead to rapid intensification, including warm ocean temperatures, high humidity and low vertical “wind shear” – meaning that the wind speeds higher up in the atmosphere are very similar to the wind speeds near the surface.
Rapid intensification has become more common since the 1980s and is projected to become even more frequent in the future with continued warming. (Although there is uncertainty as to how climate change will impact the frequency of tropical cyclones, the increase in strength and intensification is more clear.)
Marine heatwaves are another type of extreme event that are becoming more frequent due to recent warming. Like their atmospheric counterparts, marine heatwaves are periods of abnormally high ocean temperatures.
Previous research has shown that these marine heatwaves can contribute to a cyclone undergoing rapid intensification. This is because the warm ocean water acts as a “fuel” for a storm, says Dr Hamed Moftakhari, an associate professor of civil engineering at the University of Alabama who was one of the authors of the new study. He explains:
“The entire strength of the tropical cyclone [depends on] how hot the [ocean] surface is. Marine heatwave means we have an abundance of hot water that is like a gas [petrol] station. As you move over that, it’s going to supercharge you.”
However, the authors say, there is no global assessment of how rapid intensification and marine heatwaves interact – or how they contribute to economic damages.
Using the International Best Track Archive for Climate Stewardship (IBTrACS) – a database of tropical cyclone paths and intensities – the researchers identify 1,600 storms that made landfall during the 1981-2023 period, out of a total of 3,464 events.
Of these 1,600 storms, they were able to match 789 individual, land-falling cyclones with economic loss data from the Emergency Events Database (EM-DAT) and other official sources.
Then, using the IBTrACS storm data and ocean-temperature data from the European Centre for Medium-Range Weather Forecasts, the researchers classify each cyclone by whether or not it underwent rapid intensification and if it passed near a recent marine heatwave event before making landfall.
The researchers find that there is a “modest” rise in the number of marine heatwave-influenced tropical cyclones globally since 1981, but with significant regional variations. In particular, they say, there are “clear” upward trends in the north Atlantic Ocean, the north Indian Ocean and the northern hemisphere basin of the eastern Pacific Ocean.
‘Storm characteristics’
The researchers find substantial differences in the characteristics of tropical cyclones that experience rapid intensification and those that do not, as well as between rapidly intensifying storms that occur with marine heatwaves and those that occur without them.
For example, tropical cyclones that do not experience rapid intensification have, on average, maximum wind speeds of around 40 knots (74km/hr), whereas storms that rapidly intensify have an average maximum wind speed of nearly 80 knots (148km/hr).
Of the rapidly intensifying storms, those that are influenced by marine heatwaves maintain higher wind speeds during the days leading up to landfall.
Although the wind speeds are very similar between the two groups once the storms make landfall, the pre-landfall difference still has an impact on a storm’s destructiveness, says Dr Soheil Radfar, a hurricane-hazard modeller at Princeton University. Radfar, who is the lead author of the new study, tells Carbon Brief:
“Hurricane damage starts days before the landfall…Four or five days before a hurricane making landfall, we expect to have high wind speeds and, because of that high wind speed, we expect to have storm surges that impact coastal communities.”
They also find that rapidly intensifying storms have higher peak rainfall than non-rapidly intensifying storms, with marine heatwave-influenced, rapidly intensifying storms exhibiting the highest average rainfall at landfall.
The charts below show the mean sustained wind speed in knots (top) and the mean rainfall in millimetres per hour (bottom) for the tropical cyclones analysed in the study in the five days leading up to and two days following a storm making landfall.
The four lines show storms that: rapidly intensified with the influence of marine heatwaves (red); those that rapidly intensified without marine heatwaves (purple); those that experienced marine heatwaves, but did not rapidly intensify (orange); and those that neither rapidly intensified nor experienced a marine heatwave (blue).

Dr Daneeja Mawren, an ocean and climate consultant at the Mauritius-based Mascarene Environmental Consulting who was not involved in the study, tells Carbon Brief that the new study “helps clarify how marine heatwaves amplify storm characteristics”, such as stronger winds and heavier rainfall. She notes that this “has not been done on a global scale before”.
However, Mawren adds that other factors not considered in the analysis can “make a huge difference” in the rapid intensification of tropical cyclones, including subsurface marine heatwaves and eddies – circular, spinning ocean currents that can trap warm water.
Dr Jonathan Lin, an atmospheric scientist at Cornell University who was also not involved in the study, tells Carbon Brief that, while the intensification found by the study “makes physical sense”, it is inherently limited by the relatively small number of storms that occur. He adds:
“There’s not that many storms, to tease out the physical mechanisms and observational data. So being able to reproduce this kind of work in a physical model would be really important.”
Economic costs
Storm intensity is not the only factor that determines how destructive a given cyclone can be – the economic damages also depend strongly on the population density and the amount of infrastructure development where a storm hits. The study explains:
“A high storm surge in a sparsely populated area may cause less economic damage than a smaller surge in a densely populated, economically important region.”
To account for the differences in development, the researchers use a type of data called “built-up volume”, from the Global Human Settlement Layer. Built-up volume is a quantity derived from satellite data and other high-resolution imagery that combines measurements of building area and average building height in a given area. This can be used as a proxy for the level of development, the authors explain.
By comparing different cyclones that impacted areas with similar built-up volumes, the researchers can analyse how rapid intensification and marine heatwaves contribute to the overall economic damages of a storm.
They find that, even when controlling for levels of coastal development, storms that pass through a marine heatwave during their rapid intensification cause 93% higher economic damages than storms that do not.
They identify 71 marine heatwave-influenced storms that cause more than $1bn (inflation-adjusted across the dataset) in damages, compared to 45 storms that cause those levels of damage without the influence of marine heatwaves.
This quantification of the cyclones’ economic impact is one of the study’s most “important contributions”, says Mawren.
The authors also note that the continued development in coastal regions may increase the likelihood of tropical cyclone damages over time.
Towards forecasting
The study notes that the increased damages caused by marine heatwave-influenced tropical cyclones, along with the projected increases in marine heatwaves, means such storms “should be given greater consideration” in planning for future climate change.
For Radfar and Moftakhari, the new study emphasises the importance of understanding the interactions between extreme events, such as tropical cyclones and marine heatwaves.
Moftakhari notes that extreme events in the future are expected to become both more intense and more complex. This becomes a problem for climate resilience because “we basically design in the future based on what we’ve observed in the past”, he says. This may lead to underestimating potential hazards, he adds.
Mawren agrees, telling Carbon Brief that, in order to “fully capture the intensification potential”, future forecasts and risk assessments must account for marine heatwaves and other ocean phenomena, such as subsurface heat.
Lin adds that the actions needed to reduce storm damages “take on the order of decades to do right”. He tells Carbon Brief:
“All these [planning] decisions have to come by understanding the future uncertainty and so this research is a step forward in understanding how we can better refine our predictions of what might happen in the future.”
The post Marine heatwaves ‘nearly double’ the economic damage caused by tropical cyclones appeared first on Carbon Brief.
Marine heatwaves ‘nearly double’ the economic damage caused by tropical cyclones
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