Revealed: Only a third of national climate pledges support ‘transition away from fossil fuels’
Only around a third of the latest country climate pledges submitted to the UN express support for the “transition away from fossil fuels”, according to Carbon Brief analysis.
Several countries even have used their 2035 climate plans to commit to increasing the production or use of fossil fuels, predominately gas, the analysis finds.
The first global stocktake of progress to tackle climate change, agreed at the COP28 climate summit in Dubai in 2023, calls on all countries to contribute to “transitioning away from fossil fuels”.
Countries were meant to explain how they are implementing the outcomes of the global stocktake, including their contribution to transitioning away from fossil fuels, in their latest climate plans.
However, just 23 of the 63 plans submitted to the UN so far express support for “transitioning away from fossil fuels”, or the “phase out” or “phase down” of their use.
In addition, six countries, including Russia, Nigeria and Morocco, use their climate plans to commit to boosting gas production.
Some two-thirds of countries have not yet announced or submitted their pledges, missing not only the UN deadline of 10 February, but also an extension to September.
How to address the lack of sufficient action from countries with their latest plans is billed to be one of the major issues up for debate at the COP30 climate summit in Brazil next month.
Taking stock
In 2015, countries forged the Paris Agreement, the landmark deal to keep temperature rise “well-below” 2C, with “aspirations” to limit global warming to 1.5C of warming by the end of this century.
At the time, countries’ initial pledges were not enough to put the world on track to meet the temperature targets, so they built a “ratchet mechanism” into the Paris Agreement, requiring them to keep increasing their ambition in the following years.
As part of this, countries agreed to submit new, more ambitious plans every five years detailing what they are doing to take action on climate change and adapt to its impacts. These are called “nationally determined contributions” (NDCs).
The Paris Agreement also stated that, following on from these plans, “global stocktakes” should be conducted to assess collective progress in meeting the temperature goal.
The first global stocktake concluded at the COP28 climate summit in Dubai in 2023, with countries agreeing to a new document setting out how they will respond to a lack of sufficient action to meet the Paris goals.
The two-week talks saw fierce debate about how fossil fuels – the main driver of human-caused climate change – should be referred to in this text.
Activists demonstrating at the 2023 COP28 climate summit in Dubai Credit: Associated Press.
In the end, the stocktake “calls on” all countries to “contribute to” a list of global goals, including “transitioning away from fossil fuels…accelerating action in this critical decade” towards net-zero by 2050.
It was the first time that countries formally acknowledged the need to transition away from fossil fuels in almost 30 years of international climate negotiations.
However, many countries were disappointed that the text did not contain a firmer commitment to phase out all fossil fuels, or even just those with “unabated” emissions.
After Dubai, countries were expected to come up with new NDCs for 2035 that explained how they responded to the priorities set out in the stocktake.
The deadline for submitting the “3.0” NDCs was 10 February 2025, which 95% of countries missed.
On 24 September, the UN convened a climate summit in New York at the sidelines of the UN general assembly in the hope of encouraging more countries to come forward with new NDCs.
China stole the show at the event, announcing a pledge – although not yet formally submitted to the UN – to cut greenhouse gas emissions to 7-10% below peak levels by 2035. Several other countries announced new plans, including Russia, Turkey and Bangladesh.
Following the summit, around one-third of countries have announced or submitted their 2035 NDCs.
Fossil-fuel focus
For the analysis, Carbon Brief reviewed each of the NDCs submitted to the UN to determine whether they express support for “transitioning away” from fossil fuels or for phasing them out or “down”.
Countries were considered to have expressed support if they explicitly mentioned the terms “transition” or “phase out/down” in relation to “fossil fuels” when speaking about their own actions to address climate change.
Some countries spoke in general terms about “reducing” or “replacing” fossil fuels, but did not explicitly reference the need to transition away from or phase them down or out. Others spoke about transitioning to a clean or renewable-based economy, but did not explicitly mention fossil fuels.
For the purposes of this analysis, all of these countries were considered to have not expressed support for the need to transition away from fossil fuels.
In addition, some countries mentioned in their NDCs that the global stocktake calls for a transition away from fossil fuels, but did not say that transitioning away from fossil fuels would be part of their own actions to address climate change.
These countries were also considered to have not expressed support for the need to transition away from fossil fuels.
Overall, the results show that only one-third of countries express support for the need to transition away from fossil fuels in their NDCs.
Countries used varying language when speaking about the need to transition away from fossil fuels.
Some directly acknowledged that transitioning away from fossil fuels was a key conclusion of the global stocktake and committed to doing this within their own borders.
This includes the UK, Brazil, Canada, Australia, Singapore, Lebanon and Niue. For example, the UK’s NDC states:
“At home and in line with the outcomes of the GST [global stocktake], the UK is committed to transitioning away from fossil fuels to achieve net-zero by 2050.”
Other countries chose to commit to “phasing out” fossil fuels instead of “transitioning away”.
This includes Iceland and Vanuatu. Similarly, Colombia’s NDC says:
“NDC 3.0 reaffirms that the phasing out of fossil fuels is not only a climate imperative, but also an opportunity to strengthen energy sovereignty [and] democratise the benefits of the transition.”
(Colombia and Vanuatu were two of the countries that were disappointed not to see a commitment to phase out fossil fuels included within the global stocktake text.)
Barbados, an island nation known for its strong commitment to climate action, committed in its NDC to “achieve a fossil fuel-free economy” by 2040. In addition, Chile pledged to contribute to the “elimination of fossil fuels”.
In the analysis, these pledges were considered to be support for transitioning away from fossil fuels, despite not using the terms “transition” or “phase out”.
The table below shows the language used by each of the 21 countries that expressed support for transitioning away from fossil fuels, according to the analysis.
Country
Expression of support for ‘transitioning away from fossil fuels’ in NDC
United Kingdom
“At home and in line with the outcomes of the GST, the UK is committed to transitioning away from fossil fuels to achieve net-zero by 2050.”
Brazil
“Brazil will respond to the call to contribute to global efforts under paragraph 28 of decision 1/CMA.5, through the policies and national efforts below, including those under the National Climate Plan. In addition, Brazil would welcome the launching of international work for the definition of schedules for transitioning away from fossil fuels in energy systems, in a just, orderly and equitable manner, with developed countries taking the lead, on the basis of the best available science, reflecting equity and the principle of common but differentiated responsibilities and respective capabilities in the light of different national circumstances and in the context of sustainable development and efforts to eradicate poverty, as per paragraph 6 of decision 1/ CMA.5.”
Canada
“Canada also remains committed to implementing the mitigation outcomes of the Global Stocktake (GST), agreed at COP28…This includes…transitioning away from fossil fuels in energy systems.”
Lebanon
“Guided by the UAE Consensus reached at COP28, which calls on all Parties to transition away from fossil fuels and strengthen support for adaptation, this NDC reflects Lebanon’s commitment to scaling ambition while addressing national vulnerabilities.”
Iceland
“Iceland’s NDC takes note of the outcome of the global stocktake, according to Decision 1/CMA.5. Specifically, Iceland’s NDC seeks to represent the need for deep, rapid and sustained reductions in greenhouse gas emissions in line with 1.5°C pathways by contributing to the phase-out of fossil fuels across sectors and the strategic, fair and ambitious implementation of carbon capture, utilisation and storage, according to para. 28.”
Barbados
“In 2020, the Government of Barbados set the aspirational goal to achieve a fossil fuel-free economy and to reduce GHG emissions across all sectors to as close to zero as possible by 2030. In light of the significant challenges faced by the country, the aspirational goal is currently expected to be reached around 2040.”
Chile
“In 2023, within the framework of the 28th Conference of the Parties to the UNFCCC (COP) in Dubai, the report on the First Global Stocktake, designed within the framework of the Paris Agreement to assess the global response to the climate crisis, was presented…Among its main conclusions, the agreement to move towards the elimination of fossil fuels in energy systems…stands out. All these conclusions are addressed in this NDC, demonstrating Chile’s commitment to climate ambition.”
Vanuatu
“Moving beyond our current net-zero status, this NDC recommits Vanuatu to rapidly phasing out fossil fuels, deeply decarbonising and transitioning completely to a circular economy.”
Pakistan
“Natural gas and furnace oil are set to decline, with net reductions of 2,147 MW and 430 MW respectively, as per IGCEP 2025-2035, signaling a gradual phase down of fossil fuels in Pakistan’s capacity mix.”
Colombia
“NDC 3.0 reaffirms that the phasing out of fossil fuels is not only a climate imperative, but also an opportunity to strengthen energy sovereignty, democratize the benefits of the transition, and consolidate Colombia as a Power of Life.”
Niue
Niue understands the need to transition from fossil fuel-based electricity generation to renewable energy to reduce the GHG emissions footprint and ensure energy security.”
Singapore
“Singapore is contributing to the first global stocktake’s call to triple global renewable energy capacity and double the global average annual rate of energy efficiency improvements by 2030. We are also supporting efforts to transition away from fossil fuels in energy systems and phase out inefficient fossil fuel subsidies.”
Australia
“The global stocktake recognised the global direction of travel in its consensus call to transition away from fossil fuels in energy systems and to phase-down unabated coal-fired power. In Australia, our transition is underway.”
United Arab Emirates
“The GST Outcome at COP28, together with the broader UAE Consensus and the work under the Troika, has provided a strong impetus for the UAE NDC 3.0. The outcome of the first GST notably emphasizes the need to transition away from fossil fuels in energy systems in a just, orderly and equitable manner, urging parties to adopt ambitious, economy-wide emission reduction targets.”
Japan
“The items listed in decision 1/CMA.5 have been incorporated to the greatest extent possible into the Plan for Global Warming Countermeasures, which is a comprehensive implementation plan for achieving Japan’s NDC.”
Bolivia
“The persistent dependence on fossil fuels, both for electricity generation and transportation, not only contributes to national greenhouse gas emissions, but also exposes the country to volatility in international oil and gas prices, highlighting the urgency of a fair, sovereign, and resilient energy transition toward renewable sources.”
Nicaragua
“The transition to an energy matrix less dependent on fossil fuels is a fundamental priority of the government.”
Marshall Islands
“This NDC also demonstrates our drive, our achievements, and the challenges we face. In particular, we detail our domestic actions to contribute to the collective commitments made following the global stocktake, including the tripling of renewable energy, doubling of energy efficiency and removal of fossil fuel subsidies, all in pursuit of accelerating the transition away from fossil fuels this decade.”
Cambodia
“This transition will be implemented in two key phases: 70% renewable energy by 2030, followed by a further increase to 72% by 2035, ensuring a gradual yet decisive shift away from fossil fuel dependency in the power sector.”
Bangladesh
“Transitioning away from fossil fuels in energy systems, in a just, orderly and equitable manner [is] central to Bangladesh’s contribution to the global response to climate change. The NDC 3.0 commitments are designed not only to reduce Greenhouse Gas (GHG) emissions but also to accelerate the just energy transition, promote zero- and low-emission technologies, and enhance climate resilience.”
Tuvalu
“We are steadfast in our transition to 100% renewable energy.”
Sri Lanka
“With abundant solar, wind, and hydropower resources, Sri Lanka has a clear opportunity and expressed ambitious commitments to move towards total electricity generation based on renewable sources, to transition away from fossil fuels toward cleaner, decentralised energy systems.”
Nepal
Nepal’s NDC is “informed” by Decision 1/CMA.5 Outcome of the first GST, “such as 1.5C decarbonisation pathway…just transition away from fossil fuels in energy systems.”
Separately, the thinktank E3G has examined how countries speak about their policies for reducing fossil fuels in their NDCs.
It found that more than two-thirds of countries include “explicit references to displacing fossil fuels in their electricity mix”.
However, E3G also noted that “specific language on winding down the production of coal, oil, and fossil gas is lacking in almost all NDCs”.
‘Transitional fuel’
Carbon Brief also examined each of the submitted NDCs to see how countries speak about new fossil-fuel production and use within their borders.
Six of the 64 nations – around 10% – used their NDCs to pledge to increase fossil-fuel production or use, predominately gas, claiming this could contribute to their efforts to lower emissions.
In its NDC, the world’s fourth biggest emitter, Russia, says it “emphasises the importance of implementing a just transition to low-emission development models using all available solutions”, including “gas as a transition fuel and technologies for reducing emissions in coal-fired power generation”.
During negotiations on the stocktake text in 2023, Russia had pushed successfully to include a controversial paragraph that says “transitional fuels can play a role in facilitating the energy transition while ensuring energy security”, Climate Home News reported.
The publication noted that, after this text was agreed, Antigua and Barbuda negotiator Diann Black-Layne called it a “dangerous loophole”, adding that gas is also a fossil fuel that “we need to transition away from”.
Several African nations, including Nigeria, Morocco, Mauritius and Zimbabwe, also pledged to boost the production or use of gas as part of their “climate” actions.
Nigeria, Africa’s second biggest emitter, says that the country “relies heavily on the oil and gas industry” and that the sector will be “called upon to further grow while adopting sustainability measures”. It continues:
“Natural gas use will be boosted, serving as a key transition fuel in Nigeria’s move towards increased adoption of renewable energy for meeting its net-zero emissions target.”
The world’s energy watchdog, the International Energy Agency, recently reemphasised that there would be no need for any new fossil-fuel production, if the world cuts emissions in line with limiting global warming to 1.5C.
It comes after the world’s top court this year concluded that new fossil-fuel production, consumption, the granting of exploration licences or the provision of subsidies “may constitute an internationally wrongful act”, leaving the states involved vulnerable to legal action.
COP30 calls
After nearly all nations missed the deadline for submitting NDCs in February, UN climate chief Simon Stiell asked laggard countries to do so by the end of September.
This will allow their plans to be included in a new report synthesising the level of progress contained within the latest NDCs, which is due to be published on 24 October. (Less than a third of nations met Stiell’s request.)
The report will come just before COP30, which will take place from 10-21 November in the rainforest Brazilian city of Belém.
Whether and how to respond to the insufficient progress contained within these NDCs, including whether to call for increased ambition in line with the outcomes of the first global stocktake, are among the key issues up for debate at the summit.
The Brazilian presidency is pushing for a formal COP decision on any “disappoint[ment]” over NDCs falling short, collectively, of what is needed to avoid dangerous global warming.
However, other countries would need to agree to this proposal at the summit.
Orcas comment on killer apes destroying the planet by continuing to burn fossil fuels.Orcas discuss Donald Trump and the killer apes’ concept of democracy. Front Orca warns that Trump is crashing his country’s economy and that everything he does he does for the fantastically wealthy.
Climate Adam discusses climate capture and storage. The video is over a year old and Adam refers to COP28 while COP29 was the most recent. Does he mention that there are huge fossil fuel subsidies from governments to the fossil fuel industry for CCS i.e. yet more profit on top of huge profits for destroying the climate and planet?
Wildfires are seen in San Marcos Sierra, Cordoba province, Argentina, on September 23, 2024. (Photo: Stringer/AFP via Getty Images)
“The real question isn’t whether we can afford to act, but whether we can afford not to.”
Research published Tuesday estimates that rich countries could mobilize over $5 trillion a year for climate action worldwide by cutting off subsidies to the oil and gas industry, imposing a levy on big polluters, and cracking down on tax evasion by large corporations and the rich.
The new report from Oil Change International (OCI) was released as world leaders gathered in New York City for high-level United Nations General Assembly talks, a meeting that comes less than two months before the COP29 climate summit in Azerbaijan.
OCI’s research, which includes a fact sheet outlining various proposals to raise funds for climate action, stresses that “there is no shortage of public money available for rich countries to pay their fair share on fair terms for climate action at home and abroad.”
“The urgency and extent of growing economic inequality, unfair sovereign debt crises, climate disasters, and fossil fuel profits have created significant momentum towards many of these measures in international and domestic policy spheres,” OCI’s research brief notes. “Finance has been in the spotlight in most major international political fora in the past few years in recognition that our current financial architecture is a major driver of these overlapping crises.”
Among the proposals laid out in OCI’s brief are an equitable end to “public finance, direct subsidies, and state-owned company investments in fossil fuels,” which could raise $846 billion a year globally; a “climate damages tax” on fossil fuel extraction, which could raise $618 billion a year; a 25% minimum corporate tax rate, which could raise $479 billion annually; and a wealth tax on billionaires, which could raise roughly $2.60 trillion a year in the Global North and over $5.6 trillion worldwide.
Laurie van der Burg, OCI’s public finance lead, said that the rich nations most responsible for the climate emergency “owe this money to Global South countries that have not caused this crisis and need fair finance to deliver strong climate plans next year that phase out fossil fuels.”
“This is essential to avoid climate breakdown and save lives,” she added.
The clock is ticking ⏰ Rich nations must deliver a roadmap for at least $1 TRILLION/year by 2025. No more empty promises. It's time to pay up for a just transition! 💚 Read the full report: https://t.co/eKwm0zXitspic.twitter.com/4qjTO5JQ8c
The COP29 climate summit will take place a year after nations agreed at COP28 to transition “away from fossil fuels in energy systems” in a “just, orderly, and equitable manner.”
The success of that pledge, OCI said, depends on rich nations contributing massively to global climate finance after years of falling short of their pledges and continuing to expand fossil fuel extraction and handouts. Worldwide, environmentally harmful subsidies—including fossil fuel subsidies—have surged to $2.6 trillion a year, according to a report released last week.
“Global North countries have a responsibility to redirect their share of these subsidies in support of climate action,” OCI said Tuesday.
The new report comes on the heels of a record-hot summer and amid devastating extreme weather, from massive flooding across Europe and Africa to wildfires in South America.
Andreas Sieber, associate director of policy and campaigns at 350.org, said Tuesday that “the real question isn’t whether we can afford to act, but whether we can afford not to.”
“It is a bitter irony that rich nations hide behind claims of fiscal restraint, yet trillions are still spent on fossil fuel subsidies and militarization,” said Sieber. “The truth is simple: the money exists, but the political will does not. By treating climate finance as a zero-sum game, wealthy countries not only deepen global inequality but also undermine their own futures.”
“The energy transition isn’t charity—it’s an investment in global stability and security,” Sieber added. “Ignoring the need for support only worsens the climate crisis, which knows no borders.”
Image of InBedWithBigOil by Not Here To Be Liked + Hex Prints from Just Stop Oil’s You May Find Yourself… art auction. Featuring Rishi Sunak, Fossil Fuels and Rupert Murdoch.
THE Tory government met representatives from the oil and gas sector an average of 1.4 times per working day in 2023, an investigation by Global Witness revealed today.
At least 65 fossil fuel organisations and industry bodies were identified as meeting with ministers over the year, according to the group.
Global Witness analysed data by Transparency International UK, looking at any organisation that “could be reasonably assumed to have the goal of influencing policy or legislation in the interests of a fossil fuel company and its shareholders.”
According to its findings, ministers met representatives from the oil and gas sector at least 343 times last year, up from 330 meetings held in 2022.
More widely, the group found that meetings between oil and gas lobbyists and the government have been steadily increasing over the past 11 years.
November 2023 saw record-high levels of meetings when the government met oil and gas lobbyists at least 63 times, equivalent to almost three meetings every working day, the campaigners said.
The Offshore Petroleum Licensing Bill, which would mandate annual licensing of new oil and gas fields in the North Sea, was introduced the same month, they noted.
The end of November also marked the start of the UN climate change conference Cop28 in Dubai.
North Sea oil and gas has become a battleground issue in the UK general election.
The Labour party’s manifesto promises an end to issuing new licenses for finding oil and gas. The Conservative party meanwhile proposes a law that would require the next government to hold a licensing round every year.
Our recent study found that new fossil fuels are not needed, and that stopping the extraction of new coal, oil and gas is among the best ways to tackle the climate crisis.
Scientific assessments tell us that global warming above 1.5°C will mean escalating danger to the environment, human health and the economy. We found that, in a world that limits warming to 1.5°C, remaining global demand for fossil fuels could be met by assets that have already been built.
This means that Labour’s plans do not go far enough. Even under existing licenses, new oil and gas fields need not be opened, nor new platforms and pipelines built.
Surplus to requirements
Our research confirms an earlier finding of policy experts at the International Energy Agency (IEA): that no new fields are needed to meet energy demand as the world attempts to achieve net zero emissions. However, our analysis goes further by demonstrating that no new fossil-fuelled power stations are needed either.
If governments stop new projects, the production and consumption of fossil fuel will gradually decline over coming decades as existing assets reach the end of their lifespans. This gradual transition will give time to plan the process, to protect and create jobs and to build solar and wind farms that meet energy demand as fossil fuels are phased out.
A stop to new fossil fuel projects is essential to “transitioning away” from coal, oil and gas, which is what governments agreed to do in December 2023 at the COP28 climate summit in Dubai. This is a necessary commitment, but since it is expressed as a vague and collective goal with an indeterminate end point, it is easy for governments to pay lip service to it while maintaining business-as-usual.
The IEA recently reported that global investment in fossil fuels has increased every year since 2020, even as governments announced net zero emissions targets. An investigation by campaign group Global Witness found that the United Arab Emirates signed over US$100 billion of oil deals in 2023 while it presided over climate negotiations.
Commitments to no new fossil fuels, such as Labour’s plan to end new licensing, are less prone to obfuscation because they are specific and immediate. What’s more, it is clear for everyone to see if a new fossil fuel project is being built. Making commitments that are easily verifiable is a proven recipe for building international trust and cooperation around a shared goal.
There are also political advantages to stopping new fossil fuel projects. Coalitions that support fossil fuels, including oil firms and their employees, are more capable of organising against the closure of existing assets than the cancellation of those yet to be built. Opposing coalitions, including communities living with the pollution and disruption of oil and gas extraction, tend to be more successful when mobilising against planned projects.
The new norm
By making a “no new fossil fuels” commitment, governments can help establish a new norm.
A norm is an expected standard of behaviour, like the norm against smoking in indoor public places, or the international norm against slavery. The more states and global institutions adopt a norm the more social pressure it places on others to follow suit. Once a critical mass has adopted the norm, its spread is self-sustaining.
Arguably, this process is well underway for coal – the dirtiest fossil fuel. The Powering Past Coal Alliance, a group of governments committed to phasing out coal power, was founded in 2017 by the UK and Canada. Already the alliance has expanded to include 60 national governments, including major coal consumers Germany and the US.
The process of norm-building is gathering pace for other fossil fuels too. Governments that become core members of the Beyond Oil and Gas Alliance, which so far numbers 15, commit to issuing no new licenses for oil and gas exploration on a path to the total phase-out of fossil fuel production.
The Clean Energy Transition Partnership, comprising 41 governments and financial institutions, commits to ending international lending for fossil fuel projects. And in the private sector, 22 financial institutions have pledged to stop financing new oil and gas projects.
Were a future UK government to commit to stopping new oil and gas fields, it would lend considerable momentum to the norm, given the UK’s role in the history of the oil industry and the fact that is home to BP and Shell, two of the world’s five “supermajor” oil companies.
The UK Climate Change Committee, the government’s independent advisers, has noted that stopping new oil and gas projects would send an important signal to other countries. Such a move would also restore the UK’s reputation as an international leader on tackling climate change, at a critical time when the climate-denying far right is making inroads.
Don’t have time to read about climate change as much as you’d like?
Greg Muttitt, Honorary Research Fellow, Energy & Climate Change, UCL; Fergus Green, Lecturer in Political Theory and Public Policy, UCL, and Steve Pye, Associate Professor in Energy Systems, UCL
