Context

Despite broad recognition of the existential threat posed by climate change, the global community has been slow to move to curb its progression. Intensifying climate change has led to ever-worsening damage to ecosystems, livelihoods, and global health security with the world's most vulnerable among the hardest hit. The global community has an important role to play in supporting these communities as they are forced to adapt to the dangerous realities of our changing climate.

Donor funding for climate change adaptation and mitigation is an essential complement to increase the capacity and investments of LMICs to respond to the climate crisis. In 2021, OECD DAC countries delivered US$34.5 billion in climate finance, lower than the US$100 billion annual climate finance goal they were meant to deliver each year, from 2020-2025. Having agreed to scale up funding to support climate change adaptation in LMICs, donors continue to fall short of their own promises.

Funding Trends

How is ODA to climate projects evolving?

After years of incremental increases in bilateral allocable climate-related ODA, 2021 has seen a significant decrease in funding – both when looking at absolute numbers and also when looking at the share of total bilateral allocable ODA that donors are committing to climate change adaptation and mitigation. In 2021, funding stood at US$34.5 billion – a 16% decrease compared to US$41.3 billion in 2020. This includes funding for projects with climate both as a principal and significant objective.

US$22.9 billion went to adaptation-related projects, while US$17.7 billion went to mitigation-related projects. Of these, US$6.1 billion went to projects related to both adaptation and mitigation. In general, US$13.7 billion (11%) went to projects with climate as a principal objective, while US$20.9 billion (17%) of projects had climate as a significant objective.

Top Donors & Sectors

Who are the top donors to climate issues?

In 2021, the largest donors of climate-related ODA (including both principal and significant funding) were Japan, Germany, and France. Collectively, commitments from these three donors account for 71% of total bilateral climate change adaptation and mitigation funding from all DAC countries.

Donors’ prioritization of climate-related projects varies widely, as indicated by relative funding of climate projects compared to total bilateral ODA. The DAC average is 24%.

Japan remains the largest DAC donor in absolute and relative terms for climate-related ODA, with 71% of its total bilateral allocable ODA in support of climate projects. Japan is followed by France which is among the top 3 donors to prioritize climate change in relative and absolute terms. The third best performing DAC donor in relative terms is Iceland, with 39% of its bilateral allocable in support of climate change in 2021 despite being only the 23th largest DAC donor in absolute terms - a clear indicator of strong prioritization of climate-related projects. The Netherlands (39% of bilateral allocable ODA), Australia (39%), and the Korea (35%) also show a strong commitment to using their bilateral ODA to invest in climate change-related projects.

What are the top climate ODA sectors?

42% of donor countries' climate-related commitments in 2021 are focused on projects in three sectors: infrastructure, agriculture, and energy. The high funding for infrastructure is strongly influenced by Japan as a donor country. It provides the majority of its climate funding to infrastructure and accounts for 55% of the total funding from all DAC donor countries in this sector.

Adaptation

The Paris Agreement recognizes that adaptation is an integral part of the global response to climate change but despite the increase in global financing for adaptation, it remains far below the levels required. Climate Policy Initiative tracked only US$46 billion of annual financing for adaptation globally on average in 2019/20, compared to US$571 billion for climate mitigation. The vast majority of this funding came from public actors and was invested domestically (especially in Asia).

In 2021, HICs made the commitment to help vulnerable countries adapt to climate change by agreeing to double their assistance to adaptation to reach US$40 billion by 2025. Without a much greater focus and funding for climate adaptation in LMICs, the expected increase in natural disasters and humanitarian crises is likely to roll back progress in key development sectors.

Bilateral donor funding makes up an important part of the funding for adaptation for LMICs. The advantage of directly channeled funding is that it more often takes the form of grants, lessening the debt burdens of LMICs. It can also better support current adaptation programming which is often not well-suited to debt financing yet with most projects estimated to not yet provide a clear financial return on investment.

What are the important trends of climate adaptation ODA?

In 2021, bilateral ODA commitments to climate change adaptation from OECD DAC donor countries stood at US$22.9 billion. This represents a 16% decrease from US$27.3 billion in 2020. When comparing this to the US$40 billion goal, it should be noted that this includes funding for projects with climate adaptation both as a principal and as a significant component.

Funding for climate change adaptation has increased more than in many other development sectors, with 66% of total bilateral ODA funding in 2021 dedicated to climate change adaptation projects.

Who are the top donors to climate adaptation?

In 2021, the largest donors of climate adaptation-related ODA (including both principal and significant funding) were Germany, France and Japan. Collectively, commitments from these three donors account for 71% of total bilateral climate change adaptation funding from all DAC countries.

Japan has the highest focus on climate change adaptation of all DAC donor countries, with 42% of its bilateral allocable ODA committed to climate change adaptation. The overall DAC average is 29%.

What are the top sectors in climate adaptation?

Donors‘ climate adaption-related commitments in 2021 focused on projects in three sectors: agriculture (US$3.7 billion), water supply and sanitation (US$3.6 billion) and environmental protection (US$2.8 billion).

What are the key debates and topics surrounding climate adaptation?

In 2024, climate finance took center stage at COP29 with parties adopting the NCQG, agreeing to provide US$300 billion annually to “developing countries” to support their obligations under the Paris Agreement and respond to their needs in the face of rising temperatures. The NCQG replaces the US$100 billion goal, dating back to COP15 in 2009, when developed countries agreed to provide this amount annually to developing countries by 2020. The Paris Agreement reiterated the goal and paved the way for a new goal to be established before 2025, resulting in the NCQG.

While the NCQG marks a key step in global climate ambition, it fell far short of the US$1.3 trillion annual figure sought by many emerging economies. The final negotiations were marred by the uncertainty posed by the re-election of Donald Trump, and the potential consequences of the US exiting the Paris Agreement, casting doubts on overall flows of climate finance.

Unless otherwise indicated, all data in this section is based on commitments. For more information, see our Donor Tracker Codebook.