Climate finance is "finance that aims at reducing emissions, and enhancing sinks of greenhouse gases and aims at reducing vulnerability of, and maintaining and increasing the resilience of, human and ecological systems to negative climate change impacts", as defined by the United Nations Framework Convention on Climate Change (UNFCCC) Standing Committee on Finance.
However, the amount of finance actually provided was estimated to be well below what had been targeted. According to OECD figures, climate finance provided and mobilized reached $83.3bn in 2020 and $89.6bn in 2021. This means that the US$100 billion per year by 2020 target has been missed.
Global climate finance was estimated to have reached around $1.3 trillion per year in 2021/2022. However, much more is needed to keep global temperature rises within 1.5°C and avoid the worst impacts of climate change. A 2024 report estimated that climate finance flows must increase by at least sixfold on 2021/2022 levels, reaching $8.5 trillion per year by 2030.
Global climate finance is heavily focused on mitigation. Key sectors for investment have been renewable energy, energy efficiency and transport.: 1549, 1564 There has also been an increase in international climate finance towards the 100 billion target. Most of the estimated US$83.3 billion provided to developing countries in 2020, was targeted at mitigation (US$48.6 billion, or 58%). On a worldwide scale, mitigation financing accounts for over 90% of investment in climate finance. Around 70% of this mitigation money has gone towards renewable energy, however low-carbon mobility is a key development sector. Global energy investment has increased since the 2020 COVID-19 pandemic crisis. However, the crisis has placed great additional strain on the global economy, debt and the availability of finance, which are expected to be felt in years to come.: 1555
In 2010, the World Development Report preliminary estimates of financing needs for mitigation and adaptation activities in developing countries range from $140 to 175 billion per year for mitigation over the next 20 years with associated financing needs of $265–565 billion and $30–100 billion a year over the period 2010–2050 for adaptation.
Finance can be delivered through a range of instruments including grants or subsidies, concessional and non-concessional (i.e. market) loans as well as other debt instruments, equity issuances (listed or unlisted shares) or can be delivered through own funds, such as savings.: 2588 The largest proportions of adaptation finance have been invested in infrastructure, energy, built environment, agriculture, forestry/nature and water-related projects.: 2596
Only around 4-8% of total climate finance has been allocated to adaptation. The vast majority has been allocated to mitigation with only around 1-2% on multiple objectives.: 2590
Adaptation costs are the costs of planning, preparing for, facilitating and implementing adaptation.: 31 Adaptation benefits can be estimated in terms of reduced damages from the effects of climate change. In economic terms, the cost to benefit ratio of adaptation shows that each dollar can deliver large benefits. For example, it is estimated that every US$1 billion invested in adaptation against coastal flooding leads to a US$14 billion reduction in economic damages.: 52 Investing in more resilient infrastructure in developing countries would provide an average of $4 in benefit for each $1 invested. In other words, a small percentage increase in investment costs can mitigate the potentially very large disruption to infrastructure costs.
A 2023 study found the overall adaptation costs for all developing countries to be around US$215 billion per year for the period up to 2030. The highest adaptation expenses are for river flood protection, infrastructure and coastal protection. They also found that in most cases, adaptation costs will be significantly higher by 2050.: 35–36
It is difficult to estimate both the costs of adaptation and the adaptation finance needs. The costs of adaptation varies with the objective and the level of adaptation required and what is acceptable as residual, i.e. 'unmanaged' risk.: 33 Similarly, adaptation finance needs vary depending on the overall adaptation plans for the country, city, or region. It also depends on the assessment methods used. A 2023 study analysed country-level information submitted to the UNFCCC in National Adaptation Plans and Nationally Determined Contributions (85 countries). It estimated global adaptation needs of developing countries annual average to be US$387 billion, for the period up to 2030.: 31
Both the cost estimates and needs estimates have high uncertainty. Adaptation costs are usually derived from economic modelling analysis (global or sectoral models). Adaptation needs are based on programme and project-level costing.: 37 These programmes depend on the high level adaptation instrument – such as a plan, policy or strategy. For many developing countries, the implementation of certain actions specified in the plans is conditional on receiving international support. in these countries, a majority (85%) of finance needs are expected to be met from international public climate finance, i.e. funding from developed to developing countries.: 38 There is less data available for adaptation costs and adaptation finance needs in high income countries. Data show that per capita needs tend to increase with income level, but these countries can also afford to invest more domestically.: 39
Between 2017 and 2021, total international public finance to developing countries for climate adaptation has remained well below US$30 billion per year.: 42 This equals about 33% of the total public climate finance, with an additional 14% spending on cross-cutting activities (supporting both adaptation and mitigation). This includes finance from multilateral development banks, bilateral agencies and multilateral climate funds as the three largest types of provider. 63% of the adaptation-specific funding was provided as loans, and 36% as grants.: 45 Disbursement of funds for adaptation, at 66% of the amounts committed, is much lower than for mitigation. This indicates difficulty and complexity of implementation.: 46
The adaptation finance gap is the difference between estimated costs of adaptation and the amount of finance available for adaptation.: 31 Based on data over 2017-2021, the estimated costs or needs are around 10-18 times as much as current levels of public flows. Domestic budgets and private climate finance for adaptation are not included in these figures. The gap has widened compared to previous assessments. Increasing both international and domestic public finance and mobilising private finance can help to close the finance gap. Other options include remittances, increased finance for small businesses, and reform of the international financial system, for example through changes in managing vulnerable countries' debt burden.: 1550 : 16
A report published in January 2025 found that low carbon energy investments reached 2.1 trillion dollars, but the rate of growth was more than 2 times lower in 2024 (11%) in comparison to the 3 previous years. In the years 2021, 2022, 2023, the rate of growth did not changed much, staying at 24%-29%. Investments fall in the EU and the UK and rested the same in the USA. Investment need to be $5.6 trillion in average every year from 2025 to 2030, to stay in line with the Paris Agreement.
The multilateral climate funds (i.e. governed by multiple national governments) are important for paying out money in climate finance. As of 2022, there are five multilateral climate funds coordinated by the UNFCCC. These are the Green Climate Fund (GCF), the Adaptation Fund (AF), the Least Developed Countries Fund (LDCF), the Special Climate Change Fund (SCCF) and the Global Environment Facility (GEF). The largest of these, the GCF, was formed in 2010.
Some multi-lateral climate change funds work through grant-only programmes. Other multilateral climate funds use a wider range of financing instruments, including grants, concessional loans, equity (shares in an entity) and risk mitigation options.: 2583 These are intended to crowd in other sources of finance, whether from domestic governments, other donors, or the private sector.
Financial flows and expenditures by national governments on climate are significant. Domestic targets on addressing climate change are set out in national strategies and plans, including those submitted to the UNFCCC under the Paris Agreement. For many developing countries, the plans submitted include targets attached to international financial and technical support (i.e. conditional targets).
National-level coordination of climate funding is important for meeting these domestic targets, and in the case of developing countries, also for accessing international funding.: 9 For all countries and regions, it is recognised that public funding will not be sufficient to meet all finance needs. This means that policy makers need to take a strategic approach through using public funding to leverage additional private finance. Other funding can come from financial institutions such as banks, pension funds, insurance companies and asset managers. Sometimes, public and private sources of funding can be blended into a single solution, for example in insurance, where public funds provide part of the capital.: 1566
Public finance has traditionally been a significant source of infrastructure investment. However, public budgets are often insufficient for larger and more complex infrastructure projects, particularly in lower-income countries. Climate-compatible investments often have higher investment needs than conventional (fossil fuel) measures, and may also carry higher financial risks because the technologies are not proven or the projects have high upfront costs. If countries are going to access the scale of funding required, it is critical to consider the full spectrum of funding sources and their requirements, as well as the different mechanisms available from them, and how they can be combined. There is therefore growing recognition that private finance will be needed to cover the financing shortfall.
Private investors could be drawn to sustainable urban infrastructure projects where a sufficient return on investment is forecast based on project income flows or low-risk government debt repayments. Bankability and creditworthiness are therefore prerequisites to attracting private finance. Potential sources of climate finance include commercial banks, pension funds, insurance companies, asset managers, sovereign wealth funds, venture capital (such as fixed income and listed equity products), infrastructure funds and bank lending (including loans from credit unions). They also include companies from other sectors such as renewable energy or water companies, and individual households and communities.: 1566 These different investor types will have different risk-return expectations and investment horizons, and projects will need to be structured appropriately.
Several different financial models or instruments have been used for financing climate actions. The overall business model may include several of these financing mechanisms combined to create the climate solution. Financial models can belong to different categories e.g. public budgets, debt, equity, land value capture or revenue generating models etc.
Debt-for-climate swaps happen where debt accumulated by a country is repaid upon fresh discounted terms agreed between the debtor and creditor, where repayment funds in local currency are redirected to domestic projects that boost climate mitigation and adaptation activities. Climate mitigation activities that can benefit from debt-for-climate swaps includes projects that enhance carbon sequestration, renewable energy and conservation of biodiversity as well as oceans.
Like normal bonds, green bonds can be issued by governments, multi-national banks or corporations and the issuing organization repays the bond and any interest. The main difference is that the funds will be used only for positive climate change or environmental projects. This allows investors to target their environmental, social, and corporate governance (ESG) goals by investing in them. They are similar to Sustainability Bonds but sustainability bonds also need to have a positive social outcome.
The growth of bond markets provides increasing opportunities to finance the implementation of the The following financial instruments can also be used for climate finance but were not developed specifically for climate finance:
In 2019, CPI estimated that annual climate finance reached more than US$600 billion. Data for 2021/2022 showed it to be almost USD 1.3 trillion, with most of the increase coming from acceleration in mitigation finance (renewable energy and transport sectors). These figures take into account all countries and both private and public finance. The bulk of this finance is raised and spent domestically (84% in 2021/2022). International public climate finance from developed to developing countries was found to be well below US$70 billion per year for the period 2017-2021.: 42 The OECD, which includes export credits and mobilised private finance, estimated 2021 flows to be USD$89.6 billion. There are differences in estimates due to different definitions and methods used.
In 2016, the four main multilateral climate funds approved $2.78 billion of project support. India received the most single-country support, followed by Ukraine and Chile. Tuvalu received the most funding per person, followed by Samoa and Dominica. The US is the largest donor across the four funds, while Norway makes the largest contribution relative to population size. Climate financing by the world's six largest multilateral development banks (MDBs) rose to a seven-year high of $35.2 billion in 2017. According to OECD figures, climate finance provided and mobilized reached $83.3bn in 2020. Another study reported that the money given for climate change was only worth about a third of what was said ($21–24.5bn).
In 2009, developed countries had committed to jointly mobilize $100 billion annually in climate finance by 2020 to support developing countries in reducing emissions and adapting to climate change.
The European Investment Bank plans to support €1 trillion of climate investment by 2030 as part of the European Green Deal. In 2019 the EIB Board of Directors approved new targets for climate action and environmental sustainability to phase out fossil fuel financing. The bank will increase the share of its financing for to climate action and environmental sustainability to 50% by 2025 The European Investment Bank Group announced it will align all financing with the Paris Agreement by the end of 2020. The bank aims "to play a leading role in mobilising the finance needed to achieve the worldwide commitment to keep global warming well below 2˚C, aiming for 1.5˚C." EIB loans to the sustainable blue economy totalled €6.7 billion between 2018 and 2022, generating €23.8 billion in investments, and €2.8 billion in maritime renewable energy. In the same timeframe, the Bank granted around €881 million to assist in the management of wastewater, stormwater, and solid waste to decrease pollution entering the ocean. In 2023, EIB energy loans climbed to €21.3 billion, up from €11.6 billion in 2020. This funding supports energy efficiency, renewable energy, innovation, storage, and new energy network infrastructure.
Local municipalities contribute 45% of total government investment. Basic infrastructure, such as public transportation or water utilities, is included in their investment. They also update public facilities including schools, hospitals, and social housing. Prioritizing energy efficiency in these projects will assist Europe in meeting climate targets.
Information on climate finance flows is much better for international climate finance than for domestic climate finance.: 1566 International public finance from multilateral and bilateral sources can be tagged to specify that it is targeting climate mitigation or adaptation or both (i.e. is cross-cutting). A number of initiatives are underway to monitor and track flows of international climate finance. For example analysts at Climate Policy Initiative (CPI) have tracked public and private sector climate finance flows from a variety of sources on a yearly basis since 2011.
Research finds substantially lower bilateral climate finance numbers than current official estimates. Reasons are among others a lack of universally agreed-upon definitions of what qualifies as international climate finance and no oversight. This has led to an inclusion of non-climate projects, a lack of transparency and ultimately a credibility issue regarding official international climate finance reporting.
The estimates of the climate finance gap - that is, the shortfall in investment - vary according to the geographies, sectors and activities included, timescale and phasing, target and the underlying assumptions. The 2018 Biennial Assessment estimated financing needs for mitigation between 2020 and 2030 to be USD$1.7-2.4 trillion per year.
Several institutions and researchers have developed methodologies to determine country-specific contribution shares based on equity-principles. All models have in common that they at least use one wealth variable (e.g. share of GDP or GNI) to consider the ability to pay and an emission variable (share of CO2 or GHG) to reflect emission responsibility. Some models additionally consider countries' population or their willingness to pay. Furthermore, another proposal of a mechanism suggests to incorporate forward-looking data in so-called dynamic models. For the dynamic components, the share of GDP is determined by a 2030 forecast adjusted for expected climate damages and the share of GHGs covers future emissions up to 2030 and accounts for unconditional emission reduction targets submitted by the countries where available.
Climate change adaptation is a much more complex investment area than mitigation. This is mainly because of the lack of a well-defined income stream or business case with an attractive return on investment on projects. There are several specific challenges for private investment:
However, there is considerable innovation in this area. This is increasing the potential for private sector finance to play a larger role in closing the adaptation finance gap. Economists state that climate adaptation initiatives should be an urgent priority for business investment.
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