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As years-long negotiations over boosting global efforts to adapt to climate change enter the final stretch, countries are still divided over targets and the funding to achieve them.

At Cop28 next month, governments are expected to approve a framework to make the Paris Agreement’s global goal on adaptation (GGA) more concrete. The initiative is aimed at enhancing nations’ resilience to extreme weather events, flooding, droughts and sea level rise.

Adaptation is one of the key priorities of the Paris Agreement, alongside emission reductions. But challenges in defining, measuring and funding action on this front have held back progress at the same time as climate risks are accelerating.

Two years ago, at Cop26, countries agreed to a two-year work programme to fill this gap. Developing countries most affected by climate change hoped this would unlock finance to reduce their vulnerability.

Widening finance gap

Developing countries need an estimated $387 billion a year to carry out their current adaptation plans, but in 2021 they only received $21 billion in international adaptation finance, according to a recent report by the UN Environment Programme (UNEP).

“We have seen a reduction in finance and a stalling of flows for adaptation initiatives,” UNEP’s chief scientist Dr. Andrea Hinwood told Climate Home. “We really must act now. It’s only with fast, urgent, consolidated action with appropriate finance flows that we have a chance to address those issues.”

World Bank to initially host loss and damage fund under draft deal

Money is a sticking point in negotiations over the adaptation framework.

Developing countries want the agreement to tackle the question of finance directly, ideally with a dedicated target. On the other hand, developed countries, which would be called upon to foot the bill, oppose any mention of money in the text.

Money struggles

Disagreements nearly sunk talks over the framework in Bonn last June, before being rescued in the eleventh hour. Four months later, as negotiators met for one last time before Cop28, fundamental divisions remained.

The African group proposed the inclusion of a target for the funding of “at least 80% of expressed needs by developing countries” with the size of adaptation finance reaching at least $400bn annually by 2030.

A proposal by China on behalf of the “like-minded group” of developing countries says the framework should require developed countries to provide developing countries with “long-term, scaled-up, predictable, new and additional finance”.

Talks to boost 'underfinanced' climate adaptation split over money

A girl fetches water by digging a hole in a dried up waterbed during a drought in Somalia (Photo: UNDP Somalia/Flickr)

A developed country negotiator told Climate Home they “cannot live” with any references to finance in the framework.

“We want to discuss the substance and not the money. We don’t see the GGA framework as the space to talk about a new climate finance target for adaptation,” they said. “Adaptation finance will be addressed somewhere else and will enable the framework to be effective.”

The European Union suggested in its latest proposal that the role of finance in delivering the targets could be referenced in a decision text outside of the framework.

Forests, methane, finance: Where are the Cop26 pledges now?

But developing countries fear that approving a set of actions without clear indications within the text of how to fund them would lead to an “empty framework”.

Lisa Yassin, a negotiator from the group of least developed countries, told Climate Home “it is critical” the question of finance is addressed within the framework.

“It ensures a commitment to ongoing and enhanced funding that is directly responsive to the needs outlined within the framework’s targets,” she said. “It also guarantees its centrality and better accountability beyond Cop28.”

Broken promises

Fuelling divisions is a deepening distrust by developing countries over rich nations’ failure to cough up cash promised for climate action. Developed countries have still not made good on a 2009 pledge to collectively provide $100bn a year by 2020 to help developing countries cut their emissions and adapt to climate impacts.

They are also off track to meet a promise made at Cop26 to double the adaptation finance for developing countries to around $40 billion by 2025. Adaptation public finance flows to developing countries declined by 15% in 2021 to $21 billion, according to UNEP.

Richard Klein, senior research fellow at the Stockholm Environment Institute, expects “a very difficult conversation” about adaptation finance at Cop28. “If trust and confidence were there that there will be enough money on the table, the question of money under the GGA framework would have not been that crucial. But everybody sees that is not the case,” he added.

Numbers vs high-level targets

Money is not the only dividing line in talks over the adaptation framework. Governments are also split over the wider set of targets that should be included in the text.

Developing nations are pushing for specific numerical targets driving adaptation action. A long list of proposed options includes, for example, measures to protect all humanity with early warning systems for hazardous events by 2027, to boost climate resilience by at least 50% by 2030, and to reduce adverse climate impacts on agricultural production by 50% by 2030.

The OECD must take its chance to stop funding oil and gas

Developed countries, on the other hand, prefer high-level targets that focus more on the process of adaptation policy rather than on specific activities. Both the EU and the UK, for instance, have called for the inclusion of a deadline by which all countries have national adaptation plans in place.

“We are hesitant on quantification. You cannot copy and paste the template of emission reduction targets, it doesn’t really work for adaptation,” a developed country negotiator told Climate Home. “We don’t have baselines, it’s difficult to measure, there are plenty of questions there.”

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Pressure builds for fossil fuel transition plan at COP30  

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A growing group of countries wants COP30 to kick off the process of crafting a roadmap for the world to transition away from fossil fuels, which are by far the largest driver of planetary heating.

More than 80 countries on Tuesday issued a call for the “Mutirão” decision – expected to be the main political outcome of the Belém summit – to include a commitment to develop a blueprint that builds on the landmark COP28 agreement in Dubai, which for the first time signalled a global shift away from oil, coal and gas.

The call’s supporters include industrialised nations like the UK, Germany and the Netherlands, as well as large developing countries such as Colombia and Kenya, and low-lying Pacific island states.

“This is a global coalition with Global North and Global South countries coming together and saying with one voice: this is an issue which cannot be swept under the carpet,” UK Energy Secretary Ed Miliband told a press conference on Tuesday. “We have an opportunity to make COP30 the moment we take forward what we agreed at COP28,” he added.

    Since all governments agreed for the first time at the UN climate conference in Dubai to explicitly reference fossil fuels in an official climate summit outcome, major fossil fuel-producing countries – led vocally by Gulf states like Saudi Arabia – have pushed back against efforts to build on that landmark decision.

    But calls for the creation of a roadmap to transition away from fossil fuels have been gathering momentum in Belém since Brazilian President Lula da Silva mentioned the idea at the leaders’ summit nearly two weeks ago.

    “Key for 1.5C”

    Rapid developments over the past ten days in the Amazon city have caught many countries off guard. The European Union has yet to form a joint position on the roadmap, for instance, even though the bloc supports the implementation of the Dubai agreement.

    Tina Stege, climate envoy for the low-lying Marshall Islands, said a global shift away from fossil fuels is “key for keeping the door open on 1.5C and limiting the scale and duration of any overshoot”. UN Secretary General António Guterres conceded last month that the global average temperature will breach, at least temporarily, the key threshold set in the Paris Agreement.

    Stege added that the current reference to a fossil fuel roadmap in the draft outcome decision presented by Brazil’s COP presidency on Tuesday morning was “weak and presented as an option”, while “it must be strengthened and it must be adopted”.

    COP30 Bulletin Day 8: Draft decision draws battle lines on fossil fuel transition, finance and trade

    The draft “Mutirão” decision – which the COP30 hosts hope to land by the end of Wednesday – mentions the transition away from fossil fuels among a wide sweep of options for how to find agreement on the thorniest issues being discussed in Belém.

    One option would encourage governments to convene a roundtable aimed at supporting countries to develop “just, orderly and equitable transition roadmaps”, including for reducing dependency on fuels and stopping deforestation. However, that appears to refer to domestic blueprints and stops short of advocating for a global roadmap that over 80 countries are calling for.

    Ministers from around 20 countries launch a declaration calling for a roadmap to transition away from fossil fuels to be agreed at COP30 in Belem, Brazil on November 18, 2025. (Photo: Matteo Civillini)

    Ministers from around 20 countries launch a declaration calling for a roadmap to transition away from fossil fuels to be agreed at COP30 in Belem, Brazil on November 18, 2025. (Photo: Matteo Civillini)

    Backlash expected from oil producers

    Irene Vélez, Colombia’s Environment Minister, said such a roadmap “must be the legacy of COP30”.

    “I wish that we won’t have to tell the world that the dozens of countries that are here have let them down – not only to those who mobilised today but to future generations,” she added. “We must rise to the occasion”.

    Antonio Hill, a COP veteran from the Natural Resource Governance Institute (NRGI), told Climate Home it is not surprising that strong calls for a fossil fuel transition blueprint are coming from Brazil and Colombia.

    “They are relatively high-cost producers [of oil and gas], they have relatively short horizons in terms of their reserves, and they’re facing structural decline,” he added. “They actually don’t have the luxury of waiting it out.”

    But their push for the inclusion of a fossil fuel roadmap in the COP30 outcome is all but guaranteed to prompt a strong backlash from several other large nations heavily dependent on fossil fuel exports and consumption.

    Petrostates within the Arab group, led by Saudi Arabia, are expected to mount the strongest opposition. And while renewable energy-rich Kenya has endorsed Tuesday’s call, many other African countries remain wary of committing to a fossil-fuel phase-out.

    Fair and funded transition

    Richard Muyungi, the chair of the African Group of Negotiators (AGN), told Climate Home News last Friday that African countries had yet to coordinate their views on the issue, which he described as “very important”.

    “But… generally as a continent, we are the least responsible for the [climate] problem, and this is the continent which chooses to harness all the available energy sources to develop,” he said, adding that Africa should not be forced or pushed towards a trajectory that threatens to undermine its development agenda.

    Former German climate envoy Jennifer Morgan said countries pushing for a roadmap need to reassure their counterparts that this will not be a “top-down” exercise.

    “We are talking about a nationally-driven, fair and inclusive process that would also bring in the finance [element],” she told Climate Home News. “For big fossil fuel producers, it is an opportunity to have a dialogue with consumers so that it can be just, orderly and equitable.”

    The post Pressure builds for fossil fuel transition plan at COP30   appeared first on Climate Home News.

    Pressure builds for fossil fuel transition plan at COP30  

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    COP30 Bulletin Day 8: Draft decision draws battle lines on fossil fuel transition, finance and trade 

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    Hopeful that countries can agree on a Belém “political package” by tomorrow when President Lula comes to town, Brazil’s COP30 presidency has drawn up the first draft of a text intended to form the backbone of a deal. 

    The “Mutirão” decision – which the summit’s hosts insist is not a cover text – delves into the four big issues that, although not formally on the agenda, have dominated the discussions in the humid Amazon city: emissions-cutting ambition, country’s climate plans, finance and trade.

    The draft contains a menu of options reflecting a wide range of positions on the thorniest issues at stake, exposing the divisions between governments and the strong diplomatic push still needed to get an agreement over the line.

    David Waskow, director of the international climate initiative at the World Resources Institute, said each bundle of options on the key topics contains both stronger and weaker elements, and countries now face a clear choice. They can get behind “the stronger elements and really reinforce the more ambitious potential outcomes or move in a weaker direction and water down what they come away with from Belém,” he added.

    Mutirão decision for COP30 seen weak on fossil fuel roadmap

    On efforts to cut greenhouse gas emissions, a decision could encourage countries to build on the landmark COP28 agreement and convene a roundtable aimed at supporting countries to develop “just, orderly and equitable transition roadmaps”, including on reducing dependency on fuels and stopping deforestation. That appears to refer to domestic blueprints and stops short of advocating for a global roadmap to transition away from fossil fuels which more than 80 countries are now calling for. 

    A second option, which analysts described as weaker, only invites countries to share opportunities and “success stories” on the transition towards “low carbon solutions”. There is a third option for no text.

    The transition away from fossil fuels gets another mention in the section on how to respond to a shortfall in ambition in countries’ new national climate plans (NDCs) submitted this year.

    Africa wants wiggle room on energy transition as funds fall short

    The first option would see the creation of an annual forum to consider the UN’s official review of emission-cutting targets, known as a “synthesis report”, with the goal of “accelerating action” around the three energy-related outcomes agreed at COP28 in Dubai: tripling renewable energy capacity, doubling energy efficiency and transitioning away from fossil fuels in energy systems. All of those objectives are currently lagging behind.

    Another option in the draft Mutirão” decision would instead see the establishment of a “Global Implementation Accelerator”, a voluntary initiative overseen by this year’s and next year’s COP presidencies to accelerate the implementation of commitments and support countries in turning NDC promises into action.

    Under a third option, the COP30 and COP31 presidencies would coordinate the creation of a “Belem Roadmap to 1.5”, identifying ways to put the world back on track towards reaching the most ambitious temperature goal of the Paris Accord – which the UN has conceded will inevitably be breached, at least temporarily. The presidencies would produce a report summarising their work by COP31 next November.

    Cosima Cassel, programme lead at UK think-tank E3G, said the current options should not be mutually exclusive and a strong outcome would include a combination of an annual stocktake on filling the ambition gap and a roadmap to wean the world off fossil fuels.

    “For that to happen, the presidency will need to work hard to ensure the finance and adaptation package is robust enough to support enhanced NDCs,” she added.

    Finance remains wide open, adaptation in focus

    On adaptation finance, the draft text includes a proposal to triple the support provided by wealthy nations to help developing countries strengthen their resilience to climate impacts.

    The language could be interpreted in two ways: either as a new standalone target of delivering an additional $120 billion per year by 2030, as proposed by the Least Developed Countries (LDC) group, or as a sub-target within the broader £300 billion annual climate-finance goal agreed last year – something likely to be more acceptable to developed countries with shrinking aid budgets.

    There is also a weaker option that only goes as far as acknowledging the need to “dramatically scale up adaptation finance” and provide public and grant-based resources that do not come with strings attached or costly repayments.

    After climate memo row, Gates gives $1.4bn to help farmers cope with a hotter world

    On wider finance issues, the document features a sweep of options. There is the possibility of creating a three-year work programme and “legally-binding plan” on the implementation of Article 9.1 of the Paris Agreement, which requires rich nations to stump up cash for climate action in the developing world. That is something most developing countries have been calling for, but is highly unlikely to fly with industrialised nations.

    Another option would see countries draw up four different roadmaps, including one aimed at building on the recommendations in the recently published Baku to Belém Roadmap, which charted a path to mobilise $1.3 trillion in annual climate finance for developing countries by 2035.

    There is also an option for no text on finance.

    Finding ways to talk about trade and climate

    Proposals to tackle concerns over trade also feature prominently for the first time in a draft COP decision, after emerging economies like China and India led a pushback against climate-related mechanisms like the EU’s carbon border adjustment.

    Li Shuo, director of the China Climate Hub at the Asia Society Policy Institute, said the final deal would need to include both a political message calling for an “open, free and fair” trading environment and the definition of a process with next steps to achieve that.

    Brazil’s call for COP trade forum gets lukewarm response

    The draft includes a variety of options on both fronts. On the implementation front, the text suggests that the COP30 and COP31 presidencies could organise workshops examining the links between trade and climate. It also raises the option of launching a new dialogue or platform at next year’s mid-year session in Bonn and at COP31 to further discuss trade-related issues.

    Another alternative is for a UN summit and an annual dialogue “on the importance of an open and supportive international economic system in the context of sustainable development and poverty eradication”.

    Li added that trade is expected to be one of the “pillar stones” of the COP30 outcome, but discussions are still very “open-ended” at this stage, and a lot more work needs to be done to find compromises over the coming days.

    COP31 – Australia bid losing steam?

    After a year-long standoff between Turkey and Australia bidding for the hosting rights for next year’s COP31, Aussie prime minister Anthony Albanese showed the first signs of backing down today, saying that a stalemate would “not send a good signal”.

    Speaking at an event in Perth, Albanese said “if Turkey is chosen, we wouldn’t seek to veto that”, The Guardian reported.

    COP’s host rotates every year by region, with next year belonging to the group of “West Europe and Others” – which includes Australia and Turkey. If no agreement is reached by the group, the conference would be held in Bonn, at UN Climate Change headquarters, under the standing Brazilian presidency.

    Australia’s pavilion at COP30 is right next to Turkey’s – an interesting dynamic as the two battle it out to be the host of COP31 next year. (Photo: Megan Rowling)

    Australia’s pavilion at COP30 is right next to Turkey’s – an interesting dynamic as the two battle it out to be the host of COP31 next year. (Photo: Megan Rowling)

    Albanese said defaulting the venue to Bonn would send the wrong signal “about the unity that’s needed for the world to act on climate”. Environment minister Chris Bowen has said he wants to bring world leaders to Adelaide, in collaboration with Pacific countries.

    A majority of voting countries in the group are supporting Australia’s bid, but Turkey has not withdrawn its bid with just a few days left until the end of COP30 – the deadline for choosing the next host city. COP32’s host, on the other hand, was settled last week, with Ethiopia winning the bid to host the 2027 conference in its capital Addis Ababa.

    Pope keeps faith in 1.5C

    The United Nations may have accepted that overshooting 1.5C of warming – at least temporarily – is inevitable – but God’s representative on Earth didn’t get the memo.

    The new pope, Leo XIV, sent a video message to cardinals from the Global South gathered at the Amazonian Museum in Belém on Monday evening, saying “there is still time to keep the rise in global temperature below 1.5°C” although, he warned, “the window is closing.”

    “As stewards of God’s creation, we are called to act swiftly, with faith and prophecy, to protect the gift he entrusted to us,” he said, reading from a sheet of paper in front of a portrait of the Vatican.

    And he defended the 10-year-old Paris Agreement, saying it has ”driven real progress and remains our strongest tool for protecting people and the planet.” “It is not the Agreement that is failing – we are failing in our response,” he said. In particular, the American Pope pointed to “the political will of some.”

    Pope Leo XIV becomes pope on May 9 2025 (Photo: Mazur/cbcew.org.uk)

    Pope Leo XIV becomes pope on May 9 2025 (Photo: Mazur/cbcew.org.uk)

    “We walk alongside scientists, leaders and pastors of every nation and creed. We are guardians of creation, not rivals for its spoils. Let us send a clear global signal together: nations standing in unwavering solidarity behind the Paris Agreement and behind climate cooperation,” he emphasised.

    UN climate chief Simon Stiell welcomed the message, adding that the Pope’s words “challenge us to keep choosing hope and action, honouring our shared humanity and standing with communities all around the world already crying out in floods, droughts, storms and relentless heat”.

    War’s carbon footprint grows but stays off the books

    During the Leaders’ Summit that happened just before COP, Brazilian President Luiz Inácio Lula da Silva referred to ongoing conflicts around the world, saying that “spending twice as much on weapons as we do on climate action is paving the way for climate apocalypse”. “There will be no energy security in a world at war,” he added.

    But COP30’s schedule doesn’t appear to reflect his concerns, as there’s no mention of any peace initiative on the official schedule and no thematic day for peace, a marked difference from COP28 and COP29, when Baku called for a global truce for the summit’s duration. It didn’t produce the desired result.

    And yet discussions about militarism and what it is costing the planet have not been absent from the COP30 halls. The first week saw the publication of ‘Accounting for the uncounted: The global climate impact of military activities’, an analysis by a group of civil society organisations and the University of Warwick that showed how global armed forces produce 5.5% of all greenhouse gas emissions.

    If counted as a country, they would be the fourth-biggest emitter, topped only by the US, China and India – and producing more emissions than the continent of Africa.

      Ellie Kinney, senior climate advocacy officer with the Conflict and Environment Observatory (CEOBS), one of the organisations behind the report, explained that, while the Paris Agreement made military emissions reporting voluntary, few countries fully comply.

      China and the US, the world’s two biggest military spenders, have ceased their partial reporting on them altogether: the US has not sent its annual report to UNFCCC this year, and China said its military emissions are “not occurring”.

      Yet the research findings are alarming: the Russia-Ukraine conflict has produced 237 million tonnes of CO₂ over three years, while the Gaza conflict has already surpassed the combined annual emissions of Costa Rica and Estonia. The Afghanistan war was responsible for a staggering 400 million tonnes CO₂, and the EU’s rearmament could lock in 200 million tonnes of CO₂ mainly through the production and transportation of weapons, an activity that uses steel and aluminium, which are very carbon-intensive to produce.

      Ana Toni, COP30’s CEO, said back in March that countries that increase their military budgets should also increase their climate spending or face more wars in the future. “Wars come and go. Unfortunately, climate change is there for a long time,” she added.

      The European Parliament used its annual COP resolution this year to call on the defence sector to help tackle climate change by cutting its emissions intensity and urged EU decision-makers to formulate a proposal to increase the transparency of military emissions accounting to the UNFCCC.

      Campaigners want military emissions reporting to be mandatory, especially after 2024 – the first calendar year to surpass the 1.5C temperature goal and, with 56 wars involving 92 nations, the year with the highest number of active conflicts since WWII.

      “We can’t have this future where defence comes at the cost of climate action,” Kinney of CEOBS said. “Military security is not the only security – climate action is part of our collective security, too.”

      A Munduruku Ingenous peoples’ demonstration (Photo UNFCCC/Diego Herculano)

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      COP Bulletin Day 8: Pope keeps faith in 1.5C

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      The United Nations may have accepted that overshooting 1.5C of warming – at least temporarily – is inevitable – but God’s representative on Earth didn’t get the memo.

      The new pope, Leo XIV, sent a video message to cardinals from the Global South gathered at the Amazonian Museum in Belém last night, saying “there is still time to keep the rise in global temperature below 1.5°C” although, he warned, “the window is closing.”

      “As stewards of God’s creation, we are called to act swiftly, with faith and prophecy, to protect the gift he entrusted to us,” he said, reading from a sheet of paper in front of a portrait of the Vatican.

      And he defended the 10-year-old Paris Agreement, saying it has ”driven real progress and remains our strongest tool for protecting people and the planet.” “It is not the Agreement that is failing – we are failing in our response,” he said In particular, the American Pope pointed to“the political will of some.”

      “We walk alongside scientists, leaders and pastors of every nation and creed. We are guardians of creation, not rivals for its spoils. Let us send a clear global signal together: nations standing in unwavering solidarity behind the Paris Agreement and behind climate cooperation,” he emphasised.

      UN climate chief Simon Stiell welcomed the message, adding that the Pope’s words “challenge us to keep choosing hope and action, honouring our shared humanity and standing with communities all around the world already crying out in floods, droughts, storms and relentless heat”.

      Former US climate negotiators Trigg Talley and Todd Stern at COP30 on November 17

      The post COP Bulletin Day 8: Pope keeps faith in 1.5C appeared first on Climate Home News.

      COP Bulletin Day 8: Pope keeps faith in 1.5C

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