In accordance with the Paris Agreement, each Party is to prepare, communicate and maintain, every five years, successive NDCs that it intends to achieve and each successive NDC will represent progression reflecting the Party’s highest possible ambition and be informed by the outcomes of the GST.  The communicated NDCs are to be recorded in the NDC registry, maintained by the secretariat.

Further, under the Paris Agreement, in communicating their NDCs, Parties are to provide the information necessary for clarity, transparency and understanding in accordance with decision 1/CP.21 and any relevant decisions of the CMA. 

COP 21 decided that Parties shall submit their NDCs to the secretariat at least 9–12 months in advance of the relevant CMA session with a view to facilitating the clarity, transparency and understanding of the NDCs, including through a synthesis report prepared by the secretariat. 

CMA 1 adopted further guidance on the information necessary for clarity, transparency and understanding of NDC.  It emphasized that the guidance is without prejudice to the inclusion of components other than information on mitigation in an NDC and decided that, in communicating their second and subsequent NDCs, Parties shall provide the information necessary for clarity, transparency and understanding as applicable to their NDCs.  

CMA 3 requested the secretariat to annually update the NDC synthesis report and to make it available to the CMA at each of its sessions. 

CMA 5, reaffirming the nationally determined nature of NDCs and Article 4, paragraph 4, of the Paris Agreement, encouraged Parties to come forward in their next NDCs (2025) with ambitious, economy-wide emission reduction targets, covering all GHGs, sectors and categories and aligned with limiting global warming to 1.5 °C, as informed by the latest science, in the light of different national circumstances. It also encouraged Parties to communicate in 2025 their NDCs with an end date of 2035, pursuant to paragraph 2 of decision 6/CMA.3. 

This report synthesizes information from the 64 new NDCs, representing 64 Parties  to the Paris Agreement, recorded in the NDC registry  between 1 January 2024 and 30 September 2025. 

The guidance on the information necessary for clarity, transparency and understanding of NDCs was used as a general framework for synthesizing the relevant information contained in the communicated NDCs,  which was supplemented by the synthesis of other information included in the NDCs but not covered by the guidance.

This report covers information communicated by Parties in their new NDCs and the synthesized information is presented for all those Parties taken together. It also provides, where possible, a comparison between those Parties’ previous and new NDCs.

The approach to and methods for estimating projected emission levels resulting from NDC implementation are described in a separate technical document. 
 

A total of 91 per cent of Parties provided the information necessary for clarity, transparency and understanding of their NDCs in accordance with Article 4, paragraph 8, of the Paris Agreement and paragraph 27 of decision 1/CP.21.

Furthermore, all Parties provided other information, such as on policy frameworks, gender, children and youth, Indigenous Peoples and local communities, ACE, non-Party stakeholder engagement, international cooperation, outcomes of the GST, just transition, Article 6 of the Paris Agreement, forests, ocean, mitigation co-benefits, adaptation, domestic mitigation measures, and means of implementation necessary for NDC implementation.

With regard to GHG emission reductions, the total GHG emission level resulting from the implementation of Parties’ new NDCs is projected to be around 13.0 (12.0–13.9)  Gt CO2 eq in 2035, which is 6 per cent below the projected 2030 level reported in those Parties’ previous NDCs and 17 (11–24) per cent below the 2019 level. Full implementation of all new NDCs, including all conditional elements, is estimated to bring the total GHG emission level of the relevant group of Parties down to 12.3 (12.0–12.7) Gt CO2 eq by 2035, which would be 19–24 per cent below the 2019 level. Implementation of their new NDCs will result in a peaking of GHG emissions for the group of Parties before 2030, with strong emission reductions thereafter until 2035. Most of the new NDCs are linked to the Parties’ long-term decarbonization targets and development pathways, including the net zero targets communicated in the NDCs or LT-LEDS, which involve reaching net zero emissions by between 2040 and 2060, with the majority for 2050. The aggregate emission level of the Parties projected for 2035 is approximately consistent with a linear trajectory from the estimated 2030 emission level to their aggregate targeted net zero emission level.

Projected range of greenhouse gas emission levels for the Parties that have submitted 2035 targets according to their new nationally determined contributions

Credit: UN Climate Change

A total of 97 per cent of Parties provided information in their new NDCs on the legal and policy frameworks that facilitate their NDC implementation. The nature of such frameworks varies across Parties and includes acts, laws and decrees as well as policies, strategies and plans. The adoption of comprehensive climate change acts, laws or decrees that establish the legal framework for NDC implementation was pointed to by 41 per cent of Parties. On the policy side, 39 per cent of Parties referred to their national climate change policies and 41 per cent to their national climate change strategies and plans as important instruments for supporting NDC implementation. Further, a total of 94 per cent of Parties reported on legal and policy instruments that contribute to NDC implementation in key sectors such as energy, environment, water, waste, agriculture and food security, forestry, disaster risk reduction and management, health, urban and spatial planning, transport, and buildings, construction and infrastructure. Among these, the environment sector stands out, with 77 per cent of Parties providing information on environmental legal and policy instruments containing climate-related components. Climate change considerations have also been incorporated within sustainable development frameworks: 47 per cent of Parties highlighted sustainable development legislation, agendas, strategies and plans as instruments that underpin the legal and policy frameworks that facilitate NDC implementation.

Share of Parties that reported legal and policy instruments that contribute to the implementation of their nationally determined contributions by key sector

Credit: UN Climate Change

Gender integration into NDCs is advancing, with Parties increasingly considering gender to promote inclusive and effective climate action. In their new NDCs, 89 per cent of Parties provided information related to gender and 80 per cent affirmed that they will take gender into account in implementing the NDCs. Of the Parties that referenced gender, 16 per cent had not included reference to gender in their previous NDCs and 35 per cent considered gender to a similar extent to previously. Of the Parties that referenced gender in their previous NDCs, 51 per cent elaborated more on the topic in their new NDCs.

Reference to gender in nationally determined contributions

Credit: UN Climate Change

It is the first time that a section on children and youth has featured in the NDC synthesis report. A total of 88 per cent of Parties in their new NDCs (compared with 61 per cent in their previous NDCs) included information, generally more clearly and in more detail than previously, reflecting a stronger commitment to meaningful inclusion, on how children and youth have been or will be considered in NDC development and implementation, with enhanced recognition of the role of children and youth as agents of change.

A total of 72 per cent of Parties reported an increased focus on the vital role of Indigenous Peoples and local communities in climate adaptation and mitigation, compared with 66 per cent previously. Parties not only acknowledged the particular climate change vulnerabilities of Indigenous Peoples and local communities but also emphasized the importance of strengthening climate action through integration of traditional, Indigenous and local knowledge and the increased participation of these groups in climate leadership. Parties highlighted the benefits of combining traditional and modern practices while ensuring the participation and leadership of Indigenous Peoples and local communities in climate efforts. Adaptation actions involving Indigenous Peoples and local communities include developing community-based adaptation plans; implementing measures related to terrestrial and ocean ecosystems, food security, water resources and disaster risk management; and using indicators to monitor adaptation progress. Mitigation involving Indigenous Peoples and local communities include measures related to sustainable waste and forestry management, mangrove restoration, low-carbon maritime transport, solar-powered irrigation and clean cooking solutions.

Parties provided clearer and more detailed information than previously on ACE in their new NDCs.  All Parties provided information on using at least one ACE element to promote implementation of mitigation and adaptation activities, generally communicating more clearly, and in more detail, than in the previous NDCs on general principles, past achievements, future commitments, and needs and gaps in relation to ACE.

The new NDCs reflect a deepening and more structured engagement of non-Party stakeholders in climate action. An increasing number of Parties are involving subnational entities, the private sector and civil society in both the design and implementation of NDCs. Notably, 95 per cent of Parties reported engagement of non-Party stakeholders in NDC implementation, 20 per cent more than in their previous NDCs. Subnational entities are increasingly involved as partners in planning, implementing and monitoring climate action, helping to embed national goals into local plans for coherent implementation. The private sector is positioned as a co-implementer and financier, contributing through innovation, partnerships and investment mobilization. Civil society and academia play vital roles in shaping inclusive policies, advancing climate justice and providing scientific expertise. Parties are collaborating with non-Party stakeholders through voluntary efforts, initiatives and coalitions to mobilize resources and scale up climate action, and reported in the NDCs that enhanced enabling environments, such as appropriate incentives, sectoral road maps and knowledge platforms, are supporting stakeholder contributions. This shift from broad consultation to multi-stakeholder implementation underscores an increasing whole-of-society and whole-of-economy approach to climate action, thus signalling an alignment with the outcomes of the first GST and reinforcing the importance of collaborative climate governance.

Parties reaffirmed in their new NDCs their strong commitment to climate multilateralism under the Convention and the Paris Agreement, recognizing international cooperation as indispensable for strengthening climate action and achieving the Paris Agreement’s goals to avert the worst human and economic impacts of global warming. International cooperation was emphasized as critical for mobilizing resources and bridging the gap between NDC ambition and implementation by 97 per cent of Parties. In addition to fulfilling commitments under the Convention and the Paris Agreement, such as NDCs, Parties described their engagement with international partners to promote effective and inclusive climate action through voluntary cooperation initiatives, regional collaboration and sectoral activities such as energy transition.

Parties widely recognized and positively responded to the outcomes of the first GST in their NDCs. A total of 88 per cent of Parties indicated that their new NDCs were informed by the findings of and calls arising from the first GST, with 80 per cent of Parties providing information supporting that claim. In terms of considering the GST outcomes in their NDCs, Parties referenced enhanced ambition of mitigation (77 per cent), adaptation (38 per cent), means of implementation (33 per cent), loss and damage (14 per cent), response measures (13 per cent) and international cooperation (17 per cent), as well as cross-cutting elements such as just transition, stakeholder engagement and gender-responsiveness. Some Parties indicated how the targets, commitments and actions in their NDCs will contribute to global efforts in relation to tripling renewable energy capacity globally and doubling the global average annual rate of energy efficiency improvement by 2030; transitioning away from fossil fuels in energy systems; conserving, protecting and restoring nature and ecosystems; promoting sustainable lifestyles and sustainable patterns of consumption and production; and enhancing adaptation efforts towards achieving the global goal on adaptation.

Shares of Parties that referred to elements of the outcomes of the first global stocktake in their nationally determined contributions

Credit: UN Climate Change

A total of 70 per cent of Parties considered just transition in preparing their new NDCs and the majority of those Parties plan to integrate consideration of just transition into NDC implementation. It is also evident that Parties considered just transition across all aspects of their NDCs, including mitigation, adaptation and means of implementation, and for a variety of sectors and stakeholders, which points to a whole-of-economy and -society approach to considering just transition. Some Parties contextualized just transition as helping to ensure that the shift to low-carbon, climate-resilient economies does not exacerbate existing or create new inequalities in societies, thus enabling climate action that is socially inclusive and economically empowering. Plans to monitor or track just transition as part of NDC implementation were explicitly indicated by 8 per cent of Parties.

The increase in Parties indicating their intention to participate in voluntary cooperation under Article 6 of the Paris Agreement to contribute to reaching their climate targets continued in the new NDCs. 89 per cent of Parties indicated that they plan to or may use at least one of the scopes of voluntary cooperation under Article 6, in comparison with 64 per cent in the previous NDCs; with 17 per cent of Parties mentioning the general use of voluntary cooperation under Article 6, 72 per cent referring to the use of internationally transferred mitigation outcomes under Article 6, paragraphs 2 and 4, and 20 per cent expressing interest in non-market approaches under Article 6, paragraph 8. Following the completion of the negotiations on the implementation of Article 6 at COP 29, more Parties are beginning to define their approach to voluntary cooperation and establish the legal, regulatory and institutional frameworks needed to implement and benefit from Article 6.

Shares of Parties indicating in their nationally determined contributions the intention to use or possibility of using specific scopes of voluntary cooperation under Article 6 of the Paris Agreement

Credit: UN Climate Change

Shares of Parties referring to areas of international cooperation in their nationally determined contributions

Acknowledging the fundamental role of forests in keeping 1.5 °C within reach, Parties have integrated forest measures into economy-wide mitigation targets and mentioned forest-specific contributions and indicators in their new NDCs. Parties highlighted international collaboration and REDD+ results-based payments as key to mitigation in the forest sector, while noting synergies with achieving adaptation and biodiversity objectives. Developing country Parties referenced their national REDD+ strategies and safeguards, and ongoing implementation of REDD+ as central to their climate responses. More Parties than previously included in their NDCs a broader range of forest actions, covering reducing deforestation and forest degradation, afforestation and reforestation, sustainable forest management, policy frameworks and risk management measures addressing wildfire, pests and diseases, often with indicative costings and financing needs, and thus constituting coherent climate action packages. Persistent funding gaps remain, with Parties stressing that predictable domestic and international finance, including REDD+ results-based payments, is essential for turning ambition into durable outcomes, supported by inclusive governance and national systems.

Comparison of the shares of Parties that referred to forest-related climate action in their previous and new nationally determined contributions

Credit: UN Climate Change

Parties reported a significant increase in ocean-based climate action compared with the previous NDCs, with 78 per cent of Parties including in the new NDCs at least one explicit reference to the ocean – an increase of 39 per cent. Of the 48 per cent of Parties that reported finance-related needs for ocean-based action, 46 per cent have made conditional commitments, which were mostly identified by small island developing States to implement ocean-related climate measures. Ocean-based adaptation remains prominent, with measures relating to coastal resilience-building through integrated coastal zone management, marine spatial planning, strengthening the resilience of coastal and marine tourism and responding to sea level rise, conservation and restoration of blue carbon ecosystems through nature-based solutions and marine protected areas, and fisheries and aquaculture. Though fewer in number, reported ocean-based mitigation measures show increasing innovation and sectoral diversity, spanning renewable energy deployment, blue carbon sequestration, fisheries and aquaculture, and decarbonization of maritime transport.

Number of ocean-based adaptation, mitigation and cross-cutting measures reported in Parties’ nationally determined contributions, by area of measure

Credit: UN Climate Change

A total of 73 per cent of Parties included an adaptation component in their new NDCs, focusing on the adaptation priority areas of food security and nutrition, water resources, health, terrestrial ecosystems, key economic sectors, disaster risk management, urban and rural areas, ocean ecosystems, coastal and low-lying regions, poverty and livelihoods, and education. Parties demonstrated progress across several areas of adaptation, including strengthening adaptation-relevant research, data and monitoring to support evidence-based action; developing and implementing adaptation-related policy frameworks; formulating and advancing NAPs; aligning adaptation strategies with the United Arab Emirates Framework for Global Climate Resilience; defining time-bound adaptation targets and indicators for tracking progress; and identifying synergies between adaptation and mitigation efforts, and linkages between adaptation action and efforts towards achieving the SDGs. A total of 94 per cent of Parties with an adaptation component in their new NDCs, compared with 68 per cent in their previous NDCs, referred to loss and damage, outlining observed and projected loss and damage in various key sectors and describing planned or implemented measures to avert, minimize or address loss and damage.

Share of adaptation components of nationally determined contributions referring to specific adaptation priority areas and sectors

Credit: UN Climate Change

Synergies between efforts in adaptation priority sectors and efforts towards the Sustainable Development Goals identified in nationally determined contributions 

Credit: UN Climate Change

Nearly all Parties (98 per cent) communicated domestic mitigation measures in their new NDCs, with 80 per cent reporting measures for at least one of the six low-cost mitigation options with the highest mitigation potential (more than 2 Gt CO2 eq/year) for up to 2035. Among such options, afforestation and reforestation, solar energy and reducing deforestation are identified as the options with the greater need for support. Quantitative targets relevant to at least one of the global efforts or mitigation options covered in recent CMA decisions were reported by 75 per cent of Parties, of which 47 per cent made direct references to specific efforts or options. In addition to the information in the NDCs, some Parties have announced domestic pledges and projects relevant to the above-mentioned global efforts, including in relation to tripling global renewable energy capacity by 2030, enhancing low-carbon hydrogen production and expanding CCUS capacity. The combined effects of these pledges and projects are projected to significantly exceed the aggregated targets based on the NDCs for the same global efforts, indicating that submitted NDCs do not cover all domestically announced pledges and projects. Some Parties may nationally determine that progress in these areas, along with other contributing factors such as enhanced international cooperation and support, contributes to potential for accelerated implementation and more ambition.

An increasing trend in NDCs mentioning mitigation co-benefits resulting from adaptation action and/or economic diversification plans can be observed. NDCs are also increasingly mentioning plans to address impacts arising from mitigation actions by embedding consideration of just transition in the NDCs, thus indicating growing recognition of the importance of just transition.

Share of Parties referring to domestic mitigation measures for specific priority areas and mitigation options with high mitigation potential costing USD 200/t CO2 eq or less in 2035 in nationally determined contributions

Credit: UN Climate Change

Shares of Parties referring to synergies between efforts in mitigation priority areas and efforts towards the Sustainable Development Goals in nationally determined contributions

Credit: UN Climate Change

Information on climate finance was included in their new NDCs by 75 per cent of Parties, most often in terms of support needed for NDC implementation, with fewer referencing their role as finance providers. Costed needs were presented by 21 per cent more Parties in their new NDCs than previously, particularly for adaptation, reflecting their increased ambition, broader sectoral coverage and efforts to integrate climate finance into national budgeting and policy frameworks. Nearly 63 per cent of Parties referenced efforts to develop climate financing strategies or investment plans to support NDC implementation. Parties reporting financial needs provided cost estimates ranging from aggregate totals to sector-specific breakdowns, amounting to USD 1,970.8–1,975.0 billion overall. Mitigation finance needs, estimated at USD 1,339 billion, are concentrated in the energy, AFOLU, IPPU and waste sectors; while adaptation finance needs, estimated at USD 560.5–564.6 billion, are focused in agriculture, water, infrastructure, health, biodiversity and disaster risk management sectors. A total of 84 per cent of the Parties that reported costed needs identified a mix of international and domestic sources of finance needed, including public and private sources. Parties noted that international support is sought through bilateral finance, multilateral climate funds, multilateral development banks and private sector investment. Parties also reported that they are exploring use of sovereign instruments such as green bonds and social and sustainability bond instruments as well as innovative finance such as maritime levies, de-risking instruments like credit guarantees, and green credit lines.

With regard to technology development and transfer and innovation, 97 per cent of Parties provided information, at varying levels of detail, on technology priorities and/or needs in their new NDCs, 45 per cent of which include both qualitative and quantitative aspects. Around 75 per cent mentioned specific information on technology-related measures, often from a sectoral perspective, while others mentioned technology more generally. A total of 92 per cent of Parties outlined technology priorities and/or needs in support of mitigation and 72 per cent in support of adaptation. The predominant share of these needs and priorities for mitigation are related to the energy, transport and AFOLU sectors, which were cited by a majority of Parties (more than 50 per cent). For adaptation, in addition to agrifood systems and the water sector, which were among the most frequently cited priorities in previous NDCs, a majority of Parties (more than 50 per cent) referred to technology measures related to climate monitoring and observations in their new NDCs, often combined with geospatial tools and digital solutions, including use of artificial intelligence. The share of Parties (73 per cent) that referred to measures related to technology innovation, research and demonstration for achieving their climate targets has more than doubled since their previous NDCs.

Capacity-building and institutional strengthening are increasingly being recognized as important for NDC implementation. Of the 84 per cent of Parties that referenced capacity-building in their new NDCs, 66 per cent indicated that NDC implementation is contingent upon receiving capacity-building support. Needs were identified across adaptation, mitigation and cross-cutting areas, including transparency, technology deployment and access to climate finance. A total of 25 per cent of Parties highlighted capacity needs related to addressing loss and damage and accessing related funds, which were not reflected in their previous NDCs. Parties referred to institutional arrangements and stakeholder engagement as part of their capacity-building efforts.