Greenhouse Gas Emission Reduction Pledges by Selected Countries: Nationally Determined Contributions and Net-Zero Legislation

October 26, 2021 – November 7, 2023 R46945

Greenhouse Gas Emission Reduction Pledges
November 7, 2023
by Selected Countries: Nationally Determined
Kezee Procita
Contributions and Net-Zero Legislation
Head Research and Library
Services Section
Human-related emissions of greenhouse gases (GHG) have increased globally over time.
These increasing emissions contribute to a changing climate. Many governments are
Claire M. Jordan
taking steps to reduce, or mitigate, GHG emissions in an effort to lessen the potential
Research Librarian
impacts of climate change. Governments commonly pair these mitigation efforts with

broad executive or parliamentary guidance setting future emissions targets or
trajectories. This report analyzes two types of such guidance: (1) emission reduction

targets reported in Nationally Determined Contributions (NDCs) to the Paris Agreement
(PA), and (2) domestic legislation aimed at achieving net-zero emissions, referred to as net-zero legislation. Net-
zero emissions or net-zero refers to situations where human-caused GHG emissions are balanced by removal of
GHG from the atmosphere, including by natural storage in forests and other ecosystems and technological
removal and storage.
NDCs are the primary communication of how Parties to the PA are seeking to achieve the agreement’s goals.
NDCs reflect countries’ own national climate objectives and plans, including emission reduction goals, climate
change adaptation plans, and other elements. All NDCs must address GHG emissions reductions and list
quantifiable GHG emission reduction targets, with flexibility for some countries as to when. Many countries
requesting financial assistance include two sets of targets: unconditional targets using a country’s own resources,
and additional, more ambitious targets that are conditional on international support.
Under the PA, Parties must submit subsequent NDCs every five years, with the next due in 2025. These
submissions are to reflect a progression to collectively increased ambition over time. Many countries submitted
updated NDCs in 2020 and 2021 in advance of the 26th United Nations Climate Change Conference (COP26),
held in November 2021 in Glasgow, UK. Increased ambition is reflected in some of the updated NDCs, which, in
many instances, identify countries’ actions by the year 2030. Nonetheless, in the COP26 Glasgow Climate
Compact, Parties asserted based on then-current NDCs that “the aggregate greenhouse gas emission level, taking
into account implementation of all submitted nationally determined contributions, is estimated to be 13.7 per cent
above the 2010 level in 2030.” The Parties also “recogniz[ed] that limiting global warming to 1.5°C requires
rapid, deep and sustained reductions in global greenhouse gas emissions, including reducing global carbon
dioxide emissions by 45 per cent by 2030 relative to the 2010 level and to net zero around mid-century as well as
deep reductions in other greenhouse gases.” The Glasgow Climate Compact consequently requested Parties “to
revisit and strengthen the 2030 targets in their nationally determined contributions as necessary to align with the
Paris Agreement temperature goal by the end of 2022, taking into account different national circumstances.”
The Congressional Research Service (CRS) selected to track herein the NDCs of 53 countries, including the
United States. CRS identified the countries using various criteria (e.g., G20 members, top 20 GHG emitters,
countries with enacted or introduced net-zero legislation). As of September 6, 2023, of the 53 countries, 47 have
submitted updated or second NDCs, 46 of these (including EU member states) clearly stated more ambitious
GHG emission reduction targets than their country’s first NDC. More generally, the PA asks countries to commit
to increasingly ambitious GHG mitigation efforts and encourages countries to submit long-term low GHG
emission development strategies. These strategies do not necessarily translate into clear pathways or concrete
domestic efforts to reach net-zero emissions. Some countries have proposed or enacted legislation aiming to
achieve net-zero emissions domestically, in addition to pledges in their NDCs. Other countries, like the United
States, have references to net-zero emissions in policy documents without having enacted legislation.
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Greenhouse Gas Emission Reduction Pledges by Selected Countries

Research by the Law Library of Congress indicates the EU, 11 of its member states, and 20 additional countries
have enacted net-zero legislation and 3 countries have proposed net-zero legislation. Most countries or regions
with enacted legislation have set a date for net-zero emissions, carbon neutrality, or climate neutrality by 2050.
Iceland set the most ambitious deadline; its legislation requires carbon neutrality by 2040. Germany and Sweden
both have set deadlines of net-zero emissions by 2045. Several bills proposing net-zero emissions goals for the
United States have been introduced in recent Congresses. Discussion of legislative proposals for U.S. net-zero
emissions is beyond the scope of this analysis.
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Greenhouse Gas Emission Reduction Pledges by Selected Countries

Introduction
Human-related emissions of greenhouse gases (GHG) have increased globally over time. These
increasing emissions contribute to a changing climate, which is a concern to governments,
organizations, and others. Many governments are taking steps to reduce, or mitigate, GHG
emissions in an effort to lessen the potential impacts of climate change. Such efforts are occurring
on multiple levels, including globally, nationally, and sub-nationally, as well as by civil society
and individuals. On the global and national scale, many countries are working toward the goals
laid out in Article 2 of the Paris Agreement (PA), which commits collectively to, “Holding the
increase in the global average temperature to well below 2⁰C above pre-industrial levels and
pursuing efforts to limit the temperature increase to 1.5⁰C above pre-industrial levels, recognizing
that this would significantly reduce the risks and impacts of climate change.”1
This report presents information about Nationally Determined Contributions (NDCs), which
communicate the primary targets and actions by which Parties to the PA are seeking to achieve
the agreement’s goals. NDCs report countries’ own national climate plans and include emission
reduction goals, climate change adaptation plans, and financing needs and provisions, among
other elements. Each country’s NDC is to reflect its capacity to contribute to the collective
reduction of global emissions, a principle described in the PA as “common but differentiated
responsibilities and respective capabilities, in the light of different national circumstances.”2
This report also lists selected countries’ enacted or proposed net-zero emissions legislation. Net-
zero emissions refers to a situation where human-caused GHG emissions are fully balanced by
removal of GHG from the atmosphere, including by natural storage in forests and other
ecosystems as well as by technological removal and storage.3
Background and Context
NDCs and legislation focused on achieving net-zero emissions are the main tools countries use to
guide their contributions to meeting the temperature goals of the PA and the broader objective of
the United Nations Framework Convention on Climate Change (UNFCCC). The UNFCCC was
adopted in 1992 with the objective of achieving:
[S]tabilization of greenhouse gas concentrations in the atmosphere at a level that would
prevent dangerous anthropogenic interference with the climate system. Such a level should
be achieved within a time-frame sufficient to allow ecosystems to adapt naturally to climate
change, to ensure that food production is not threatened and to enable economic
development to proceed in a sustainable manner.4
The PA is a subsidiary agreement under the UNFCCC and Article 4 of the PA expands on the
objectives of the UNFCCC:

1 United Nations Treaty Collection, Chapter XXVII Environment, 7.d. Paris Agreement, Paris, December 12, 2015, at
https://unfccc.int/sites/default/files/english_paris_agreement.pdf. (Hereinafter, Paris Agreement.) For more
information, see CRS Report R44609, Climate Change: Frequently Asked Questions About the 2015 Paris Agreement,
by Jane A. Leggett and Richard K. Lattanzio.
2 Paris Agreement, Article 2.
3 For more information, see CRS In Focus IF11821, Net-Zero Emissions Pledges: Background and Recent
Developments, by Michael I. Westphal.
4 United Nations Framework Convention on Climate Change (UNFCCC), agreed on May 9, 1992, entered into force
March 21, 1994, 1771 U.N.T.S. 107, United Nations, Treaty Series, vol. 1771, p. 107; and U.S. depositary notifications
C.N.148.1993, at https://treaties.un.org/doc/Publication/CN/1993/CN.148.1993-Eng.pdf.
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In order to achieve the long-term temperature goal set out in Article 2, Parties aim to reach
global peaking of greenhouse gas emissions as soon as possible, recognizing that peaking
will take longer for developing country Parties, and to undertake rapid reductions thereafter
in accordance with best available science, so as to achieve a balance between
anthropogenic emissions by sources and removals by sinks of greenhouse gases in the
second half of this century, on the basis of equity, and in the context of sustainable
development and efforts to eradicate poverty.5
Other ways in which countries individually and collectively work toward these goals include
developing long-term low emissions development scenarios (LT-LEDS)6 and implementing the
United Nations Sustainable Development Goals (SDG), in particular SDG 13, Climate Action.7
These latter efforts are outside of the scope of this report.
Congress has expressed interest in collective global efforts to reduce net GHG emissions for
numerous reasons. The potential impacts from a warming climate pose already-detected risks
globally, to varying degrees across countries and regions.8 The United States is vulnerable to
many potential impacts of climate change, including more variable water supplies, more extreme
weather events, shifting crop yields and declining livestock productivity, rising energy costs, and
coastal effects of sea level rise. The ability to stabilize climate change and avoid potential global
and domestic effects depends on the participation of countries that emit the highest amounts of
GHG.9
As a Party to the PA, the United States submitted an NDC in 2016 and again when it rejoined the
agreement in 2021.10 Members of Congress have expressed interest in countries’ relative
emissions reductions efforts, including how they compare with U.S. efforts. They have expressed
concerns about the relationships between efforts to mitigate GHG emissions, their fairness, and
effects on economic competitiveness. Members and their staff meet with representatives from
other nations to discuss potential needs and actions to address climate change; for example, they
may meet at the annual UNFCCC Conference of Parties (COP) meetings and other bilateral and
multilateral meetings. The United States helps build governance capacities and funds, including
via multilateral funding mechanisms and overseas climate mitigation and adaptation programs
that may be identified in NDCs.
Whereas most NDCs aim at the 2030 time frame, this report also lists a mid-century perspective
of countries’ enacted and proposed domestic laws that aim to reduce GHG emissions to net-zero
(Table 3). This report presents a series of tables and visualizations to facilitate comparison of
countries’ emission reduction targets, where available. Countries were selected for inclusion
because they meet one or more of the following criteria:
• among the top 20 emitters of GHGs globally;

5 Paris Agreement, Article 4.
6 UNFCCC, Communication of long-term strategies, at https://unfccc.int/process/the-paris-agreement/long-term-
strategies.
7 United Nations, The 17 Sustainable Development Goals, at https://sdgs.un.org/goals.
8 Intergovernmental Panel on Climate Change (IPCC), “AR6 Climate Change 2021: The Physical Science Basis -
Summary for Policy Makers,” August 9, 2021, at https://www.ipcc.ch/report/ar6/wg1/.
9 In 2020, the top 10 greenhouse gas (GHG) emitters were (from highest to lowest): China, the United States, India,
Russia, Indonesia, Brazil, Japan, Iran, Canada, and Saudi Arabia. World Resources Institute, Climate Watch Data,
“Historical GHG Emissions,” 2023, available at https://www.climatewatchdata.org/ghg-emissions.
10 See CRS In Focus IF11746, United States Rejoins the Paris Agreement on Climate Change: Options for Congress,
by Jane A. Leggett.
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• a member of the Group of Seven (G7) or Group of 20 (G20) largest countries
plus the European Union (EU);
• among the top 50 emitters of GHGs globally and received over $10 million in
economic assistance from the U.S. Agency for International Development
(USAID) in 2020 or 2021;11
• among the top 50 emitters of GHGs globally and have received funding from the
Green Climate Fund;12
• have been of interest to Members of Congress engaging in international
congressional delegations; or
• introduced or enacted net-zero legislation.
This report is not comprehensive of data for all countries globally or all Parties to the PA. The
data in this report are current as of September 6, 2023, unless otherwise noted.
Nationally Determined Contributions
NDCs present countries’ own efforts, dependent on their circumstances, to reduce emissions and
adapt to the effects of climate change. Per Article 4 of the PA, “Each Party shall prepare,
communicate and maintain successive
nationally determined contributions that it
NDCs Timeline13
intends to achieve. Parties shall pursue
domestic mitigation measures, with the aim of
2015 – COP21: Signatories to the PA were required to
submit an Intended NDC (INDC); INDC becomes First
achieving the objectives of such
NDC upon ratification of PA.
contributions.”14
2020 (2021) – COP26: Parties to the PA are required
The UNFCCC divides Parties into three broad
to submit a new or updated NDC that includes the
time frame to 2025 and 2030. COP26, which was
groups with differing emissions reduction
scheduled to be held in 2020, was postponed until 2021
capacities and expectations. Annex I Parties
due to the COVID-19 pandemic.
(listed in Annex I of the UNFCCC) are
2025 – Next round of NDCs expected.
generally those countries that were considered
developed in 1992; non-Annex I Parties are all the others. The United Nations considers 49
Parties to be least developed countries; the UNFCCC recognizes these countries to have limited
capacity to respond and adapt to climate change, and therefore provides different treatment in
some provisions.15 The UNFCCC also refers to developed country Parties and developing country
Parties, but these categories are not defined.

11 These countries were identified using the foreignassistance.gov database to search for all U.S. Agency for
International Development economic (not military) obligations in 2020 and 2021 and totaling each countries’
obligations to identify those that received more than $10 million in either year and Climate Watch Data to identify the
top 50 emitters of GHG in 2020. Countries meeting both criteria were included in Table 1. This list is not
comprehensive of all aid recipients. It does not include aid awarded regionally or to multiple countries.
12 These countries were identified using the Green Climate Fund (GCF) Projects & Programs Countries website
available at https://www.greenclimate.fund/countries and Climate Watch Data to identify the top 50 emitters. GCF
recipient countries that were also among the top 50 emitters of GHG in 2020 are included in Table 1. This list should
not be considered comprehensive of all GCF recipients.
13 For more information, see UNFCCC, Nationally Determined Contributions (NDCs), at https://unfccc.int/process-
and-meetings/the-paris-agreement/nationally-determined-contributions-ndcs/nationally-determined-contributions-ndcs.
14 Paris Agreement, Article 4.
15 UNFCCC, Parties & Observers, at https://unfccc.int/parties-observers.
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The PA largely erased the bifurcation of responsibilities between Annex I and non-Annex I
Parties, such that all share the same mandatory requirements. It retains the UNFCCC principle of
common but differentiated responsibilities, and sometimes acknowledges that the pace of
implementation may vary by development status. Article 4 of the PA states the following:
Developed country Parties should continue taking the lead by undertaking economy-wide
absolute emission reduction targets. Developing country Parties should continue enhancing
their mitigation efforts, and are encouraged to move over time towards economy-wide
emission reduction or limitation targets in the light of different national circumstances.
The least developed countries and small island developing States may prepare and
communicate strategies, plans and actions for low greenhouse gas emissions development
reflecting their special circumstances.16
All NDCs must address GHG emission reductions. Most NDCs list quantifiable GHG emission
reduction targets. These targets appear in a variety of formats and include measurable reductions
for specific sectors or GHGs and a specified year to reach peak emissions prior to reducing
emissions. All Parties are required to include in their NDCs, “information necessary for clarity,
transparency, and understanding,”17 including a reference point (base year or scenario),
implementation time frame and sectors and GHGs included, among other details. Many countries
requesting financial assistance include two sets of targets: targets unconditional on international
support, and additional, more ambitious, targets that are conditional on international support.18
Countries’ NDCs may include additional goals; for example, efforts to improve adaptation
measures, increase forest coverage, or improve access to water.
Each Party that signed the PA was required to submit an Intended NDC at that time, and that
document became its First NDC upon ratification of the PA; otherwise, Parties must communicate
their NDCs upon joining the agreement.19 Parties are required to submit subsequent NDCs every
five years, with the next due in 2025. Subsequent NDCs are to reflect a progression of
contributions to collectively increase ambition20 over time. Article 4 of the PA states, “Each
Party’s successive nationally determined contribution will represent a progression beyond the
Party’s then current nationally determined contribution and reflect its highest possible ambition,
reflecting its common but differentiated responsibilities and respective capabilities, in the light of
different national circumstances.”21
Parties decided that those who submitted first NDCs that did not include 2030 goals were
required to submit new (second) NDCs by 2020. Others were asked to submit updated NDCs by
2020 that reflect increasing ambitions. The majority of countries met this deadline in advance of
the 26th United Nations Climate Change Conference (COP26), held in November 2021 in

16 Paris Agreement, Article 4.
17 Paris Agreement, Article 4.
18 UNFCCC, Nationally Determined Contributions Under the Paris Agreement, Synthesis Report by the Secretariat,
October 26, 2022, at https://unfccc.int/documents/619180 (Hereinafter, Synthesis Report, 2022); Center for Climate
and Energy Solutions, Q&A: Understanding Paris Agreement NDCs, at https://www.c2es.org/content/q-and-a-
understanding-paris-agreement-ndcs/.
19 UN Treaty Collection, “7.d Paris Agreement,” Status as at 26-8-2021, at https://treaties.un.org/pages/
ViewDetails.aspx?src=TREATY&mtdsg_no=XXVII-7-d&chapter=27&clang=_en.
20 Article 4 of the Paris Agreement uses the term “ambition” to describe countries’ emission reduction plans. The use of
“ambition” throughout this report reflects this language and does not imply judgment by CRS.
21 Paris Agreement, Article 4.
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Glasgow, UK.22 As of September 6, 2023, 176 of 195 Parties to the PA have submitted new,
updated, or second NDCs.23
Increased ambition is reflected in some of the new NDCs or updates submitted in 2020 or 2021,
which, in many instances, identify countries’ actions by the year 2030. Nonetheless, in the COP26
Glasgow Climate Compact, Parties noted analysis of then-current NDCs, finding that “the
aggregate greenhouse gas emission level, taking into account implementation of all submitted
nationally determined contributions, is estimated to be 13.7 per cent above the 2010 level in
2030.” The Parties also “recogniz[ed] that limiting global warming to 1.5 °C requires rapid, deep
and sustained reductions in global greenhouse gas emissions, including reducing global carbon
dioxide emissions by 45 per cent by 2030 relative to the 2010 level and to net zero around mid-
century as well as deep reductions in other greenhouse gases.” The Glasgow Climate Compact
consequently requested Parties “to revisit and strengthen the 2030 targets in their nationally
determined contributions as necessary to align with the Paris Agreement temperature goal by the
end of 2022, taking into account different national circumstances.”24 Twenty-nine Parties
submitted new or updated NDCs in calendar year 2022.25
The October 2022 Nationally Determined Contributions Under the Paris Agreement Synthesis
Report by the Secretariat (Synthesis Report) reviewed 166 NDCs, including 142 new or updated
NDCs communicated by 195 Parties that were available in the NDC registry as of September 23,
2022.26 The Synthesis Report estimates the Parties included in this review account for
approximately 95% of total global emissions in 2019.27 Selected observations in the Synthesis
Report include the following:
• “Most Parties (90 percent) provided quantified mitigation targets, expressed as
clear numerical targets, while the rest (10 per cent) included strategies, policies,
plans and actions for which there is no quantifiable information as components of
their NDCS”;
• “Most Parties (80 percent) communicated economy-wide targets, covering all or
almost all sectors defined in the 2006 IPCC Guidelines, with an increasing
number of Parties moving to absolute emission reduction targets in their new or
updated NDCs”;
• “In terms of GHGs, all NDCs cover CO2 [carbon dioxide] emissions; most cover
CH4 [methane] (91 percent), and N2O [nitrous oxide] (89 per cent) emissions,
many (53 per cent) cover HFC [hydrofluorocarbons] emissions and some cover
PFC [perfluorocarbons], SF6 [sulfur hexafluoride] (36 percent) and NF3 [nitrogen
trifluoride] (26 percent) emissions”;
• “Most of the Parties (74 percent) that submitted new or updated NDCs have
strengthened their commitment to reducing or limiting GHG emissions by 2025
and/or 2030”; and

22 COP26, which was scheduled to be held in 2020, was postponed until 2021 due to the COVID-19 pandemic.
23 Climate Watch Data, NDC Enhancement Tracker, at https://www.climatewatchdata.org/2020-ndc-tracker.
24 UNFCCC, Report of the Conference of the Parties serving as the meeting of the Parties to the Paris Agreement on its
third session, held in Glasgow from 31 October to 13 November 2021, March 8, 2022, at https://unfccc.int/sites/default/
files/resource/cma2021_10_add1_adv.pdf.
25 UNFCCC, NDC Registry, at https://unfccc.int/NDCREG.
26 Synthesis Report, 2022.
27 Synthesis Report, 2022.
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• “Almost all Parties (93 percent) provided quantified information on their
mitigation targets and reference points. Of the Parties that submitted new or
updated NDCs, most (84 percent) updated the basis for defining their targets,
including reference points and/or ‘business as usual’ scenarios. Such updates lead
to higher-quality NDCs and, for some Parties, to significant changes in the
estimated emission levels for 2025 and 2030.”28
The September 2023 UNFCCC Technical Dialogue of the First Global Stocktake Synthesis
Report (Technical Dialogue) provides an “assessment of the collective progress towards
achieving the purpose and long-term goals of the Paris Agreement”29 and includes among its
findings observations on Parties’ NDC pledges and the potential collective effects of their
implementation.30 The Technical Dialogue posits that both NDC pledges and the implementation
of measures by which to achieve these pledges are insufficient to meet the goals of the PA. It
states that “new and updated NDCs submitted before COP26 indicate an increase in mitigation
ambition compared with previous INDCs; however, this increase only partly offsets emissions
growth.”31 The global stocktake is intended to “inform Parties in updating and enhancing, in a
nationally determined manner, their actions and support in accordance with the relevant
provisions of this Agreement.”32 The Technical Dialogue also notes, regarding the anticipated
2025 NDC updates:
Although mitigation measures communicated in current NDCs are not collectively
sufficiently ambitious, the Paris Agreement provides for progression, including by stating
the expectation that each Party’s successive NDCs will represent its highest possible
ambition, reflecting its common but differentiated responsibilities and respective
capabilities, in the light of different national circumstances, and will be informed by the
outcomes of the GST [global stocktake].33
Observations of Selected NDCs
NDC Submission Status
Table 1 contains the NDC submission status for the 53 countries selected for inclusion in this
report. All of the top 20 GHG emitters submitted updated NDCs in 2021, 2022, or 2023 (as of
September 6, 2023).34 The United States submitted its new first NDC after rejoining the PA in
2021. The United Kingdom submitted its own First NDC in 2020, reflecting an increased
ambition over the European Union’s 2016 First NDC. Of the countries selected for inclusion in
this report, Algeria, Iraq, the Philippines, Russia, and Turkmenistan have not submitted second or
updated NDCs. Iran has not submitted an NDC.

28 Synthesis Report, 2022.
29 The “global stocktake” is described in Article 14 of the PA which states that “Parties to this Agreement shall
periodically take stock of the implementation of this Agreement to assess the collective progress towards achieving the
purpose of this Agreement and its long-term goals (referred to as the ‘global stocktake’).”
30 UNFCCC, Technical Dialogue of the First Global Stocktake – Synthesis Report, September 8, 2023, at
https://unfccc.int/sites/default/files/resource/sb2023_09_adv.pdf. (Hereinafter, Technical Dialogue, 2023.)
31 Technical Dialogue, 2023.
32 Paris Agreement, Article 14.
33 Technical Dialogue, 2023.
34 Based on 2020 Climate Watch Data.
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Table 1. Nationally Determined Contribution (NDC) Submission Status for Selected
Countries
(as of September 6, 2023)
Most Recent NDC
Countries
No. of Countries
First NDC
Algeria, Iraq, Philippines, Russia, Turkmenistan
5
First NDC, updated
Angola, Australia, Bangladesh, Bolivia, Brazil, Cameroon,
44
Canada, Chile, China, Colombia, Democratic Republic of the
Congo, Egypt, Ethiopia, European Union, France, Germany,
Ghana, India, Indonesia, Italy, Japan, Kazakhstan, Kenya,
Malaysia, Mexico, Morocco, Myanmar, Nigeria, Pakistan, Peru,
Poland, Saudi Arabia, South Africa, South Korea, Spain, Sudan,
Tanzania, Turkey, Ukraine, Uzbekistan, United Kingdom,
United States, Venezuela, Vietnam
Second NDC, updated
Argentina, Thailand, United Arab Emirates
3
No NDC
Iran
1
Source: United Nations Framework Convention on Climate Change (UNFCCC), Nationally Determined
Contributions (NDCs) Registry, at https://unfccc.int/NDCREG.
Comparison of First NDCs to Updated or Second NDCs
In most instances, countries’ updated or second NDCs reflect greater emissions reduction
intentions—often referred to as enhanced ambition—when compared with their first NDCs.
Additionally, many updated NDCs include specific emission reduction targets for 2030. Table 2
compares GHG mitigation targets between each country’s first and updated or second NDC,
where available. 35
Table 2. Greenhouse Gas (GHG) Reduction Targets in First and Updated
or Second NDCs from Selected Countries
Mitigation commitments are extracted from NDC text and expressed as either percent reductions from
“business-as-usual” (BAU) as defined by each country, where available, or as GHG emissions estimates
expressed in million metric tons (Mt) of carbon dioxide-equivalents (CO2e), including land use and
forestry changes, unless otherwise noted.
(as of September 6, 2023)
First NDC (INDC) Mitigation
Second or Updateda NDC Mitigation
Country
Commitments
Commitments
Algeria
7% reduction from BAU (BAU not available)
Not submitted
(unconditional); 22% reduction from BAU
(conditional)
Angola
35% reduction from BAU (BAU = 193 in
14% reduction from BAU (BAU = 108 in
2030) by 2030 (unconditional);
2025) by 2025 (unconditional);
50% reduction from BAU (BAU = 193 in
24% reduction from BAU (BAU = 108 in
2030) by 2030 (unconditional + conditional)
2025) by 2025 (unconditional + conditional)
Argentina
Shall not exceed 483 in 2030
Shall not exceed 359 in 2030
Australia
26%-28% below 2005 levels by 2030
43% below 2005 levels by 2030;
Net zero emissions by 2030

35 Table 2 includes a subset of countries from those selected for inclusion in this report.
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First NDC (INDC) Mitigation
Second or Updateda NDC Mitigation
Country
Commitments
Commitments
Bangladesh
5% reduction from BAU by 2030 in the
6.73% reduction from BAU (BAU = 409 in
power, transport, and industry sectors
2030) by 2030 (unconditional);
(unconditional);
21.85% reduction from BAU (BAU = 409 in
20% reduction from BAU by 2030 in the
2030) by 2030 (unconditional + conditional)
power, transport, and industry sectors
(unconditional + conditional)
Brazil
Reduce greenhouse gas emissions by 37%
Reduce greenhouse gas emissions by 37%
below 2005 levels in 2025;
below 2005 levels in 2025;
Reduce greenhouse gas emissions by 43%
Reduce greenhouse gas emissions by 50%
below 2005 levels in 2030
below 2005 levels in 2030
Cameroon
32% reduction from baseline (104) in 2035
12% reduction from 2010 levels by 2030
(conditional)
(unconditional)
35% reduction from 2010 levels by 2030
(unconditional + conditional)
Canada
30% reduction from 2005 levels by 2030
40%-45% reduction from 2005 levels by 2030
Chile
30% reduction of CO2 emissions/GDP from
Peak emissions by 2025;
2007 levels by 2030;
Maximum annual emissions up to 95 by 2030;
35%-45% reduction of CO2 emissions/GDP
Accumulated emissions between 2020 and
from 2007 levels by 2030 (conditional and
2030 shall not exceed 1,100
considering economic growth)
China
Peak CO2 emissions around 2030;
Peak CO2 emissions before 2030;
Reduce CO2 emissions per unit GDP from
Achieve carbon neutrality before 2060;
2005 levels by 60%-65%;
Lower CO2 emissions per unit of GDP by
Increase share of nonfossil fuels in primary
over 65% from the 2005 level;
energy consumption to around 20%;
Increase share of non-fossil fuels in primary
Increase forest stock by 4.5 billion cubic
energy consumption to around 25%;
meters from 2005 level
Increase the forest stock volume by 6 bil ion
cubic meters from the 2005 level;
Bring total installed capacity of wind and solar
power to over 1.2 bil ion kilowatts by 2030
Colombia
20% reduction from BAU by 2030
Emit a maximum of 169.44 in 2030 (equivalent
(unconditional);
to a 51% reduction compared with emissions
30% reduction from BAU by 2030
projection in 2030 reference scenario)
(unconditional + conditional)
Democratic
17% reduction from BAU (BAU = 430) by
2% reduction from BAU by 2030
Republic of the 2030
(unconditional);
Congo
21% reduction from BAU by 2030
(unconditional + conditional)
Egypt
First NDC did not include quantified GHG
Reduction of electricity emissions by 37%; oil
reduction targets.
and gas emissions by 65%; and transport
emissions by 7% by 2030 relative to BAU
(BAU = 215 in 2030)
Ethiopia
64% reduction from BAU by 2030
14% reduction from BAU (BAU = 403.5 in
2030) by 2030 (unconditional);
68.8% reduction from BAU (BAU = 403.5 in
2030) by 2030 (unconditional + conditional)
EUb
At least a 40% reduction from 1990 levels by
At least a 55% reduction from 1990 levels by
2030
2030
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First NDC (INDC) Mitigation
Second or Updateda NDC Mitigation
Country
Commitments
Commitments
Ghana
15% reduction relative to BAU (BAU = 74 in
Reduction of 8.5 total emissions by 2025 and
2030) by 2030 (unconditional)
24.6 total emissions by 2030 (unconditional)
45% reduction relative to BAU (BAU =74 in
Reduction of 16.7 total emissions by 2025 and
2030) by 2030 (unconditional + conditional)
39.4 total emissions by 2030 (unconditional +
conditional)
India
33% to 35% reduction in emissions intensity of 45% reduction in emissions intensity by 2030
GDP by 2030
compared to 2005 levels
Indonesia
26% reduction from BAU (BAU = 2869 in
31.89% reduction from BAU (BAU = 2869 in
2030) by 2030 (unconditional);
2030) by 2030 (unconditional);
41% reduction from BAU (BAU = 2869 in
43.20% reduction from BAU (BAU = 2869 in
2030) by 2030 (unconditional + conditional)
2030) by 2030 (unconditional + conditional)
Iran
Not submitted
Not submitted
Iraq
First NDC did not include quantifiable targets.
Not submitted
Japan
26% reduction from FY2013 levels by FY2030;
46% reduction from FY2013 levels by FY2030;
(25.4% reduction compared with FY2005)
Net zero by 2050
Kenya
30% reduction from BAU (BAU = 143) by
32% reduction from BAU (BAU = 143) by
2030
2030
Malaysia
35% reduction of GHG emissions intensity of
45% reduction of economy-wide carbon
GDP by 2030 (unconditional);
intensity (per unit of GDP) from 2005 level by
45% reduction of GHG emissions intensity of
2030
GDP by 2030 (unconditional + conditional)
Mexico
25% reduction of GHG and short-lived climate 35% of GHG emissions and 51% reduction of
pol utants from BAU by 2030 including a 22%
black carbon emissions from BAU (BAU = 991
reduction of GHG and a 51% reduction of
in 2030) by 2030 (unconditional);
black carbon (unconditional);
40% reduction of GHG from BAU (BAU =
Up to a 40% reduction of GHG and short-
991 in 2030) by 2030 including a 70%
lived climate pol utants from BAU by 2030
reduction of black carbon by 2030
including a 70% reduction of black carbon by
(unconditional + conditional)
2030 (unconditional + conditional)
Morocco
17% reduction below BAU (BAU = 171 in
18.3% reduction compared to BAU (BAU =
2030) by 2030 (unconditional);
142 in 2030) by 2030 (unconditional);
42% reduction below BAU (BAU = 171 in
45.5% reduction compared to BAU (BAU =
2030) by 2030 (unconditional + conditional)
142 in 2030) by 2030 (unconditional +
conditional)
Myanmar
First NDC did not include quantified GHG
244.52 reduction by 2030 (unconditional);
reduction targets.
414.75 reduction by 2030 (unconditional +
conditional)
Nigeria
20% reduction from BAU by 2030
20% reduction from BAU by 2030
(unconditional);
(unconditional);
45% reduction from BAU by 2030
47% reduction from BAU by 2030
(unconditional + conditional)
(unconditional + conditional)
Pakistan
First NDC did not include quantified GHG
15% reduction from BAU (BAU = 1603 in
reduction targets.
2030) by 2030 (unconditional);
50% reduction from BAU (BAU = 1603 in
2030) by 2030 (unconditional + conditional)
Peru
20% reduction from BAU (BAU = 298 in
Not to exceed 208.8 in 2030 (unconditional);
2030) by 2030 (unconditional);
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First NDC (INDC) Mitigation
Second or Updateda NDC Mitigation
Country
Commitments
Commitments
30% reduction from BAU (BAU = 298 in
Not to exceed 179 in 2030 (unconditional +
2030) by 2030 (unconditional + conditional)
conditional)
Philippines
2.71% reduction from BAU (3.3 Gt cumulative Not submitted
emissions) for the period 2020-2030
(unconditional)
75% reduction from BAU (3.3 Gt cumulative
emissions) for the period 2020-2030
(unconditional + conditional)
Russia
70% reduction relative to 1990 levels by 2030
Not submitted
Saudi Arabia
First NDC did not include quantified GHG
Reduce and avoid GHG emissions by 278
reduction targets.
annually by 2030
South Africa
398-614 total emissions in 2025-2030
398-510 total emissions by 2025, and 350-420
total emissions by 2030
South Korea
37% reduction from BAU (BAU = 850.6 in
40% reduction from 2018 emission levels
2030) by 2030
(727.6) by 2030
Sudan
First NDC did not include quantified GHG
Sector-specific emission reductions in 2030
reduction targets.
relative to BAU in 2030, including: 12.5
(energy); 13 (forestry); and 1.3 (waste)
Tanzania
10%-20% reduction from BAU (BAU =138-
30%-35% reduction from BAU by 2030,
153 in 2030) by 2030
whereby about 138-153 gross emissions is
expected to be reduced
Thailand
20% reduction from BAU (BAU = 555 in
30% reduction from BAU (BAU = 555 in
2030) by 2030 (unconditional);
2030) by 2030 (unconditional);
Up to a 25% reduction from BAU (BAU = 555 Up to a 40% reduction from BAU (BAU = 555
in 2030) by 2030 (unconditional + conditional)
in 2030) by 2030 (unconditional + conditional)
Turkey
Up to 21% reduction from BAU (BAU = 1175
41% reduction from BAU (BAU = 1175 in
in 2030) by 2030
2030) by 2030
Turkmenistan
First NDC did not include quantified GHG
20% reduction from BAU (relative to 2010
reduction targets.
emissions levels) by 2030
Ukraine
Not to exceed 60% of 1990 levels (883) by
65% reduction from 1990 levels (883) by
2030
2030;
“Carbon neutrality” by 2060
United Arab
First NDC did not include quantified GHG
19% reduction from 2019 levels (225) by
Emirates
reduction targets.
2030; Net zero by 2050
United
At least a 40% reduction from 1990 levels by
At least 68% reduction compared to reference
Kingdom
2030 (per EU First NDC)
years by 2030
United States
26%-28% below 2005 levels by 2025
50%-52% reduction below 2005 levels by 2030
Uzbekistan
10% reduction of specific emissions of GHG
35% reduction of specific GHG emissions per
per unit GDP from 2010 levels by 2030
unit GDP from 2010 levels by 2030
Venezuela
At least 20% reduction relative to baseline
20% reduction compared to BAU by 2030
scenario by 2030 (conditional)
(conditional)
Vietnam
8% reduction from BAU (BAU = 787 in 2030)
15.8% reduction from BAU (BAU = 928 in
by 2030 (unconditional);
2030) by 2030 (unconditional);
25% reduction from BAU (BAU = 787 in
43.5% reduction from BAU (BAU = 928 in
2030) by 2030 (unconditional + conditional)
2030) by 2030 (unconditional + conditional)
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Greenhouse Gas Emission Reduction Pledges by Selected Countries

Sources: Compiled by the Congressional Research Service (CRS) using data from UNFCCC, NDCs, at
https://unfccc.int/process-and-meetings/the-paris-agreement/nationally-determined-contributions-ndcs/nationally-
determined-contributions-ndcs; and World Resources Institute, Climate Watch Data, “NDC Enhancement
Tracker,” 2023, at https://www.climatewatchdata.org/2020-ndc-tracker.
Notes: This table only includes emission reduction targets listed in NDCs and does not include other elements
of NDCs, such as supporting information that may have been updated. Please see individual NDC documents for
a complete description of GHGs, sectors, and other data and elements associated with each countries’ targets.
a. In some instances, countries have submitted multiple updates to their NDCs. This table compares the initial
NDC to the most recent NDC.
b. European Union (EU) member states included among the countries CRS selected for review for this report
are France, Germany, Italy, Poland, and Spain.

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Emission Reduction Targets and 2030 Projected Emissions
As described above, this report summarizes NDCs from selected countries. Table A-1 in the
Appendix provides GHG emissions and NDC data—including quantified targets and projected
emissions for 2030—for all selected countries, where available. The majority of the selected
countries’ NDCs contain quantifiable emission reduction targets, but not all of these provide the
data needed to calculate projected 2030 emissions. Angola, for example, provides a target for
2025 but not for 2030. Bolivia and Egypt provide emission reduction targets for specific sectors
only. Myanmar and Algeria provide a percentage of emission reduction but no reference scenario.
India and Malaysia provide targets to reduce emissions intensity and carbon intensity,
respectively. In addition, China’s updated NDC states that the country pledges to peak emissions
before 2030 (versus peak emissions around 2030 from its first NDC), among other sector- and
gas-specific pledges that do not allow for calculating a projected 2030 emissions target.
Countries that provide quantifiable 2030 targets do so in a number of different ways. Some
countries (e.g., Democratic Republic of Congo and Japan) provide a single target; others (e.g.,
Indonesia, Nigeria, and Mexico) list targets conditional upon receiving foreign financial
assistance in addition to not conditional targets; the EU and its member states present a “not to
exceed” target; and the United States and Canada, for example, present a range of emissions
reductions for 2030. Additional data presented in Table A-1 include 2020 emissions, emissions
per capita, emissions per gross domestic product (GDP), and emissions reductions targets
included in each country’s NDC, if available.
G20 Countries
G20 countries are responsible for the majority of annual GHG emissions globally,36 and many
stakeholders are invested in the emission reduction commitments of G20 members.37 As of
September 6, 2023, all members of the G20 have submitted new or updated NDCs all of which
include plans for greater emissions reductions beyond their initial NDC (including the EU, Italy,
Germany, and France).
Figure 1 shows the percentage of global GHG emissions each G20 member was responsible for
in 1990, 2005, and 2020 and each member’s 2030 NDC target, where available. China, India, and
Saudi Arabia’s 2030 projections are not quantifiable with the information available in each
country’s NDC.

36 G20 countries are Argentina, Australia, Brazil, Canada, China, France, Germany, Japan, India, Indonesia, Italy,
Mexico, Russia, Saudi Arabia, South Africa, South Korea, Turkey, the United Kingdom, the United States, and the
European Union. Spain is invited as a permanent guest. See G20, About the G20, at https://www.g20.org/about-the-
g20/#participants.
37 For additional analyses on G20 countries’ NDCs and other climate-related activities as well as analyses on potential
progress toward meeting the Paris Agreement’s goals, see Synthesis Report, 2022; World Resources Institute, Closing
the Gap: The Impact of G20 Climate Commitments on Limiting Global Temperature Rise to 1.5oC, September 16,
2021, at https://www.wri.org/research/closing-the-gap-g20-climate-commitments-limiting-global-temperature-rise; and
Climate Action Tracker, at https://climateactiontracker.org/.
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Figure 1. G20 Countries: Historical GHG Emissions and 2030 Emissions Projections
as of September 6, 2023

Sources: CRS using data from UNFCCC, NDCs, at https://unfccc.int/NDCREG; and World Resources Institute, Climate Watch Data, “Historical GHG Emissions,”
at https://www.climatewatchdata.org/ghg-emissions. Estimates for the EU-27 Member States (France, Germany, Italy, Poland, and Spain) were calculated using member
state targets adopted in accordance with the EU Effort Sharing Regulation, which creates binding minimum targets for emissions reductions by member states. See
https://climate.ec.europa.eu/eu-action/effort-sharing-member-states-emission-targets/effort-sharing-2021-2030-targets-and-flexibilities_en.
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Net-Zero Legislation
In addition to working toward meeting 2030 emission reduction targets identified in their NDCs,
some countries are seeking to achieve net-zero emissions within the next several decades, in
conformance with the Article 4 provision to “achieve a balance between anthropogenic emissions
by sources and removals by sinks of greenhouse gases in the second half of this century.” Net-
zero emissions refers to a situation where any continued human-caused GHG emissions are
balanced by any removal of GHG from the atmosphere, including carbon storage in forests and
other ecosystems as well as technological removal and storage.38 Multiple terms can refer to net-
zero emissions, including climate neutrality or carbon neutrality, depending on whether the scope
is all GHG or just CO2. Carbon neutrality refers specifically to net-zero carbon emissions
whereas other terms generally include all greenhouse gases. Although they have distinct
meanings, some stakeholders or observers at times use the terms interchangeably or with
ambiguity.39 Figure 2 shows countries with enacted net-zero legislation, including the specific
terminology used in each law.
The PA asks countries to commit to increasingly ambitious GHG mitigation efforts and
encourages countries to submit long-term low GHG emission development strategies (LT-LEDS).
Article 4 of the PA states, “All Parties should strive to formulate and communicate long-term low
greenhouse gas emission development strategies, mindful of Article 2 taking into account their
common but differentiated responsibilities and respective capabilities, in the light of different
national circumstances.”40
Many countries have submitted LT-LEDS,41 but these strategies do not necessarily translate into
clear pathways or concrete domestic efforts to reach net-zero emissions. Some countries,
however, have introduced or enacted legislation aimed at reducing domestic emissions to net
zero. Other countries may refer to net-zero in policy documents without having enacted
legislation. Table 3 provides a list of countries with enacted or proposed domestic net-zero or
climate neutrality legislation, as of July 2023 unless otherwise noted.42 The table does not include
countries that have announced net-zero policies or intentions but not taken action to embody them
in law. The table is not a comprehensive list of enacted legislation.

38 For more information, see CRS In Focus IF11821, Net-Zero Emissions Pledges: Background and Recent
Developments, by Michael I. Westphal.
39 For more information, see CRS In Focus IF11821, Net-Zero Emissions Pledges: Background and Recent
Developments, by Michael I. Westphal.
40 Paris Agreement, Article 4.
41 As of October 18, 2022, 53 countries had submitted long-term low GHG emission development strategies to the
UNFCCC, see https://unfccc.int/process/the-paris-agreement/long-term-strategies. As of October 18, 2022, 53 Parties
had made submissions.
42 Table 3 includes only legislation that explicitly proposes net-zero emissions. Other climate-related legislation is not
included.
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Figure 2. Countries with Net-Zero Legislation
as of July 2023

Source: CRS using data from Law Library of Congress, Global Legal Research Directorate, Net Zero Emissions Legislation Around the World: 2022 Update, at
https://www.loc.gov/item/2022666110/; Kilmaatwet (The Climate Act), at https://wetten.overheid.nl/BWBR0042394/2020-01-01, at https://www.government.nl/topics/
climate-change/climate-policy; at Climate Change Act, 2021, at https://nials.edu.ng/dgs-update-climate-change-act-2021/; and Climate Change Response Act, at
https://law.moj.gov.tw/ENG/LawClass/LawAll.aspx?pcode=O0020098.
CRS-15

Notes: Multiple terms can refer to net-zero emissions, including climate neutrality or carbon neutrality, depending on whether the scope is all GHG or just CO2. The
color-based distinctions in this figure reflect the language in each country’s net-zero legislation. Gabon’s 2021 law allows the country to trade carbon credits and retain
its status as a “carbon positive” country through 2050. EU member states are shaded on the map only if they have domestic net-zero legislation in addition to the EU-
wide law included.
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Observations of Net-Zero Legislation
Table 3 is derived from the 2022 report published by the Global Legal Research Directorate at
the Law Library of Congress, Net Zero Emissions Legislation Around the World: 2022 Update,
unless otherwise noted.43 The Law Library identified 57 jurisdictions with enacted or proposed
net-zero legislation. Of these 57, the EU, 11 of its member states, and 20 additional countries
have enacted net-zero legislation. Three countries have proposed net-zero legislation. The
remaining jurisdictions are sub-national. Laws have been enacted and legislation has been
proposed at the state and regional level in a number of countries and these are outside of the
scope of this report. The Law Library of Congress report does not include analysis of proposed
net-zero emission legislation in the United States. Several bills proposing net-zero emissions
goals for the United States have been introduced in recent Congresses. Because analysis of U.S.
net-zero legislative proposals is beyond the scope of this CRS report, Table 3 does not include the
United States.
The EU’s European Climate Law, which establishes the framework for achieving climate
neutrality by 2050, applies to all 27 of its member states. Twelve EU member states (Denmark,
Finland, France, Germany, Greece, Hungary, Ireland, Luxembourg, Malta, The Netherlands,
Spain, and Sweden) have enacted net-zero legislation in addition to the EU law. Two member
states—Germany and Sweden—have set 2045 target dates, versus the EU’s 2050 target date. Nine
of the G20 members (Australia, Canada, the EU, France, Germany, Japan, South Korea, Spain,
and the UK) have enacted net-zero legislation.
Most jurisdictions with enacted legislation have set a date of net-zero emissions, carbon
neutrality, or climate neutrality by 2050. The most ambitious deadline is set by Iceland, which has
enacted legislation requiring carbon neutrality by 2040. Four countries (Ecuador, Slovenia, Malta,
and Finland) do not specify dates, according to the Law Library of Congress report.44
Table 3. Net-Zero Emissions Legislation for Selected Countries and Regions
(as of October 2022)
Enacted Legislation
Country
(goal and date, if available)
Proposed Legislation
Argentina

Senate Bil 682/21 Amending Law
27.520 (on Minimum Standards for
Global Climate Change Adaptation
and Mitigation), on Carbon Neutrality
by 2050, art. 1
Australia
Climate Change Act 2022 (Cth) s 10(1)(b)

(came into effect Sept. 13, 2022), (net zero by
2050)
Canada
Canadian Net-Zero Emissions Accountability

Act, S.C. 2021, c.22, Royal Assent, June 29,
2031(net zero by 2050)
Chile
Ley 21445 Ley Marco de Cambio Climático,

Diario Oficial June 13, 2022, art. 1, (net zero by
2050)

43 Law Library of Congress, Global Legal Research Directorate, Net Zero Emissions Legislation Around the World:
2022 Update, at https://www.loc.gov/item/2022666110/.
44 Law Library of Congress, Global Legal Research Directorate, Net Zero Emissions Legislation Around the World:
2022 Update, at https://www.loc.gov/item/2022666110/.
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Greenhouse Gas Emission Reduction Pledges by Selected Countries

Enacted Legislation
Country
(goal and date, if available)
Proposed Legislation
Colombia
Ley 2169, por Medio de la Cual se Impulsa el

Desarrol o Bajo en Carbono del País Mediante el
Establecimiento de Metas y Medidas Mínimas en
Materia de Carbono Neutralidad y Resiliencia
Climática y se Dictan otras Disposiciones, art.
5.2, Diario Oficial Dec. 22, 2021, (carbon
neutrality by 2050)
Denmark
Climate Act (No. 965 of June 26, 2020) art.

1(climate neutrality by 2050)
Ecuador
Acuerdo Ministerial 018-2021 on Ecuador

Carbon Neutral Program, Ministerio del
Ambiente y Agua, Registro Oficial Aug. 18, 2021,
(establishes Zero Carbon Ecuador program that
provides incentives to achieve carbon neutrality)
European Union
Regulation (EU) 2021/1119 (European Climate

(EU)
Law), art. 2, 2021 O.J. (L 243) 1 (climate
neutrality by 2050)
Fiji
Climate Change Act 2021(Act No. 43 of 2021) s

6(5), (net zero by 2050)
Finland
Klimatlag (FFS 609/2015), §6

France
Code de l’énergie, art. L100-4, as amended by

Loi n° 2019-1147 du 8 novembre 2019 relative à
l'énergie et au climat, art. 1, Nov. 8, 2019
(net zero by 2050)
Gabon
Ordonnance N° 019/2021 du 13 septembre 021

relative aux changements climatiques, Sept. 13,
2021, (Gabon’s status as carbon positive country
wil be maintained through 2050)
Germany
Bundes-Klimaschutzgesetz [KSG], Dec. 12, 2019,
Bundesgesetzblatt [BGBl.] I at 2513, as amended,
art. 3, para. 2 (climate neutrality by 2045)
Gibraltar
Climate Change Act 2019, No. 29/2019, ss 8, 25,
(100% lower net emissions by 2045 from 1990
or 1995 baselines)
Greece
National Climate Law, Law 4936/2022, E.K.E.D.

2022, A:105, (climate neutrality by 2050)
Hungary
Law on Climate Policy: On the Declaration of a

Climate Emergency, on Climate Protection,
(T/7021), adopted on May 14, 2020, art. 3, §4
(climate neutrality by 2050)
Iceland
Climate Act (Lög um loftslagsmál, 2012 nr. 70

29. Júní, (Legally binding emissions reductions
for 2030; specifies that the government can issue
further legally binding targets. Current policy is
carbon neutrality by 2040.)
Ireland
Climate Action and Low Carbon Development

Act 2015, No. 46/2015, s 3(1), as amended by
the Climate Action and Low Carbon
Development (Amendment) Act 2021, No.
32/2021 (climate neutrality by 2050)
Isle of Man
Climate Change Act 2021, AT 20/2021, s 9(1),

(net zero emissions by 2050)
Israel

Climate Law Bil 5782-2022
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Enacted Legislation
Country
(goal and date, if available)
Proposed Legislation
(Government Bil No. 1551,
p. 1042, S48B-M76S (net zero by
2050)
Japan
Amendment (Act No. 54 of 2021) of Act on

Promotion of Global Warming
Countermeasures, Act No. 117 of 1998, art. 2-2
(net zero by 2050)
Liechtenstein
Emissionshandelsgesetz [EHG], Sept. 19, 2012,

Landesgesetzblatt-Nummer [LGBl.-Nr.] 012.346,
as amended, art. 4, para. 4, (climate neutrality by
2050)
Luxembourg
Loi du 15 décembre 2020 relative au climat et

modifiant la loi modifiée du 31 mai 1999 portant
institution d’un fonds pour la protection de
l’environnement, art. 4, Dec. 15, 2020 (net zero
by 2050)
Maldives
Climate Emergency Act, Law No. 9/2021 (net

zero by 2030)
Malta
Climate Action Act, cap. 543

The Netherlands
Climate Act, May 28, 2019 (carbon neutral

electricity production by 2050; reduce emissions
by 95% compared with 1990 by 2050)a
New Zealand
Climate Change Response Act 2002 s 5Q,

inserted by Climate Change Response (Zero
Carbon) Amendment Act 2019 s 8 (net zero by
2050; except biogenic methane)
Nigeria
Climate Change Act, 2021. November 18, 2021,

(net-zero emissions by 2050-2070)b
Norway
Lov om klimamål (klimaloven) (LOV-2017-06-

16-60) §4 (reduce emissions by 90%-95%
compared with 1990 by 2050)
Slovenia
Resolution on Slovenia’s Long-Term Climate

Strategy Until 2050, No. 801-08/21-5/, adopted
by National Assembly on July 13, 2021
South Korea
Framework Act on Carbon Neutral and Green

Growth to Respond to Climate Crisis, Act No.
18469, Sept. 24, 2021, art. 7(1) (carbon
neutrality by 2050)
Spain
Ley 7/2021, de 20 de mayo, de cambio climático

y transición energética, art. 3-2, Boletin Oficial
del Estado, May 21, 2021(climate neutrality by
2050)
Sweden
Klimatlag (SFS 2017:720), §3 (Does not set

specific timelines for emissions reductions, but
government must review and set targets every
four years. Official policy as of March 2021 is
net-zero emissions by 2045; 85% reduction
compared with 1990.)
Switzerland
Bundesgesetz über die Ziele im Klimaschutz, die

Innovation und die Stärkung der
Energiesicherheit [KlG], Sept. 30, 2022,
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Enacted Legislation
Country
(goal and date, if available)
Proposed Legislation
Bundesblatt [BBl.] 2022, 2403, art. 3, para. 2,
(climate neutrality by 2050)
Taiwan
On February 15, 2023, Presidential Order Hua-

Tsung-Yi-Yi-Tzu No. 11200010681 amended and
promulgated the revision of the Greenhouse
Gas Reduction and Management Act. The
revision renames the act to “Climate Change
Response Act” and incorporates the goal of net-
zero greenhouse gas emissions by 2050.c
Ukraine
Law of Ukraine on the Principles of Monitoring,

Reporting, and Verification of Greenhouse Gas
Emissions, No. 377-IX, adopted Dec. 12, 2019,
in force since Jan. 1, 2021, (ВВР), 2020, No. 22,
p. 150, pmbl. (harmonizes Ukrainian legislation
with standards of EU law [an obligation for
Ukraine under the EU-Ukraine Association
Agreement] and implements the provisions of
Directives No. 2003/87/ЕС and No. 004/101/ЕС)
United Kingdom of
United Kingdom:

Great Britain and
Climate Change Act 2008, c.27, s
Northern Ireland
1(1),https://perma.cc/2HJ4-KNRJ, as amended by
theClimate Change Act 2008(2050 Target
Amendment)Order 2019, SI 2019/1056, (net
zero by 2050)
Northern Ireland:
Climate Change Act (Northern Ireland) 2022, c.
31, (Northern Ireland to have 100% lower
emissions by 2050 from 1990 or 1995 baselines)
Scotland:
Climate Change (Scotland) Act 2009, asp 12,
https://perma.cc/748L-CXP8, as amended by
Climate Change (Emissions Reduction Targets)
(Scotland) Act 2019, asp 15, (Scotland to achieve
net zero by 2045)
Source: Law Library of Congress, Global Legal Research Directorate, Net Zero Emissions Legislation Around the
World: 2022 Update, at https://www.loc.gov/item/2022666110/.
Notes: This table includes all countries listed in the Law Library of Congress report and is not limited to the set
of selected countries as described earlier in this report. EU member countries are listed only in their own row if
they have domestic net-zero legislation in addition to the EU-wide law included. Links to legislation (including
links to English translations) available in the referenced Law Library of Congress report.
a. Kilmaatwet (The Climate Act), at https://wetten.overheid.nl/BWBR0042394/2020-01-01;
https://www.government.nl/topics/climate-change/climate-policy.
b. Climate Change Act, 2021, at https://nials.edu.ng/dgs-update-climate-change-act-2021/.
c. Climate Change Response Act, at https://law.moj.gov.tw/ENG/LawClass/LawAll.aspx?pcode=O0020098.
This law was enacted in February, 2023.
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Appendix. Table of GHG Emissions and NDC Data
for Selected Countries
Table A-1 provides GHG emissions data and NDC information for all of the selected countries
discussed in this report. The emissions data, including net GHG emissions, emissions per capita,
and emissions per GDP are the most recent year available (2020) from Climate Watch Data.45
NDC targets are as reported in Parties’ NDCs. The Congressional Research Service calculated
2030 emissions targets using data available via Climate Watch Data and stated NDC targets (e.g.,
a percentage reduction from a base year), unless otherwise noted. This table is not comprehensive
of all Parties’ NDC targets, emissions, and projections.

45 Climate Watch Data integrates emissions inventories from the UNFCCC and other sources, then it provides access to
the most complete annual emissions data across all countries. Article 12 of the UNFCCC requires that all Parties to
Annex I countries submit annual emissions inventories (the most recent of which is for emissions in 2020). Non-Annex
I countries submit emissions inventories less frequently. CRS relies on countries’ own emissions inventory data, as
available via Climate Watch Data, wherever possible. In instances where countries have not provided 2020 emissions
data, CRS relies on data from CAIT, as available via Climate Watch Data. (See Climate Watch, “About,” at
https://www.climatewatchdata.org/about/faq/ghg).
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Table A-1. GHG Emissions Data and NDC Information for Selected Countries
Emissions data, including 2020 emissions, NDC targets and references, and 2030 projections are carbon dioxide-equivalent (CO2e) and are shown as million
metric tons (Mt) CO2e, unless otherwise noted, and emissions per capita and per million $ GDP are shown as metric tons (t).
Change in Net
Change in
GHG
GHG
Projected 2030
2020 Net
GHG
Net GHG
Emissions/
Emissions/
GHG Emissions
GHG
Emissions
Emissions
Capita in
Million $ GDP
Per NDC
Country (date)
Emissions
1990-2020
2005-2020
2020
in 2020
NDC Targetsa
Targetsb
Algeriac (First
267
+144
+79
6.09t
1,841t 7% reduction from BAU (BAU
not available
NDC, 2016)
not available) by 2030
(unconditional);
Up to 22% reduction from BAU
(BAU not available) by 2030
(unconditional + conditional)
Angolac
119
+51
+0.5
3.63t
2,227t 14% reduction from BAU (BAU
not available
(First NDC,
= 108 in 2025) by 2025
updated 2021)
(unconditional);
24% reduction from BAU (BAU
= 108 in 2025) by 2025
(unconditional + conditional)
Argentinac
395
+98
-29
8.70t
1013t Shall not exceed 359 in 2030
No more than 359
(Second NDC,
(from NDC)
updated 2021)
Australia
488
-138
-121
18.99t
368t 43% below 2005 levels by 2030
347
(First NDC,
updated 2022)
Bangladeshc
224
+114
+77
1.36t
600t 6.73% reduction from BAU
320-381
(First NDC,
(BAU = 409 in 2030) by 2030
updated 2021)
(unconditional);
21.85% reduction from BAU
(BAU = 409 in 2030) by 2030
(unconditional + conditional)
Boliviac (First
131
+18
+29
11.26t
3588t Sector-specific targets for
not available
NDC, updated
energy and forests.
2022)
CRS-22

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Change in Net
Change in
GHG
GHG
Projected 2030
2020 Net
GHG
Net GHG
Emissions/
Emissions/
GHG Emissions
GHG
Emissions
Emissions
Capita in
Million $ GDP
Per NDC
Country (date)
Emissions
1990-2020
2005-2020
2020
in 2020
NDC Targetsa
Targetsb
Brazilc
1,470
-170
-532
6.91t
1015t Reduce greenhouse gas
970 (from NDC)
(First NDC,
emissions by 48.4% below
updated 2023)
2005 levels in 2025;
Reduce greenhouse gas
emissions by 53.1% below
2005 levels in 2030
Cameroonc
128
+52
-0.48
4.84t
3,147t 12% reduction by 2030 from
112
(First NDC,
2010 levels (unconditional)
(unconditional);
updated 2021)
35% reduction by 2030 from
83 (unconditional
2010 levels (unconditional +
+ conditional)
conditional)
Canada
666
+134
-71
17.50t
405t 40%-45% reduction from 2005
405-442
(First NDC,
levels by 2030
updated 2021)
Chilec
50
+21
+7
2.60t
197t Peak emissions by 2025;
No more than 95
(First NDC,
Maximum annual emissions up
(from NDC)
updated 2020)
to 95 by 2030;
Accumulated emissions
between 2020 and 2030 shall
not exceed 1,100
Chinac
12,300
+9,410
+5,370
8.71t
837t Peak CO2 emissions before
not available
(First NDC,
2030;
updated 2021)
Achieve carbon neutrality
before 2060;
Lower CO2 emissions per unit
of GDP by over 65% from the
2005 level;
Increase share of non-fossil fuels
in primary energy consumption
to around 25%;
CRS-23

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Change in Net
Change in
GHG
GHG
Projected 2030
2020 Net
GHG
Net GHG
Emissions/
Emissions/
GHG Emissions
GHG
Emissions
Emissions
Capita in
Million $ GDP
Per NDC
Country (date)
Emissions
1990-2020
2005-2020
2020
in 2020
NDC Targetsa
Targetsb
Increase the forest stock
volume by 6 bil ion cubic meters
from the 2005 level;
Bring total installed capacity of
wind and solar power to over
1.2 bil ion kilowatts by 2030
Colombiac
270
+53
+44
5.31t
1,000t Emit a maximum of 169.44 in
169.44
(First NDC,
2030; equivalent to a 51%
(from NDC)
updated 2020)
reduction in emissions
compared to the projection of
emissions in 2030 in the
reference scenario
Democratic
688
+252
+240
7.68t
14,124t 2% reduction from BAU
not available
Republic of the
(unconditional); 21% reduction
Congoc
from BAU by 2030
(First NDC,
(unconditional + conditional);
updated 2021)
equivalent to an estimated
mitigation level of up to 650 by
2030
Egyptc
300
+162
+55
2.93t
821t Reduction of electricity
not available
(First NDC,
emissions by 37%; oil and gas
updated 2023)
emissions by 65%; and transport
emissions by 7% by 2030
relative to BAU for each sector
by 2030
Ethiopiac
199
+106
+79
1.73t
1,851t 14% reduction from BAU (BAU
347
(First NDC,
= 403.5 in 2030) by 2030
(unconditional);
updated 2021)
(unconditional);
126 (conditional +
68.8% reduction from BAU
unconditional)
(BAU = 403.5 in 2030) by 2030
(unconditional + conditional)
CRS-24

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Change in Net
Change in
GHG
GHG
Projected 2030
2020 Net
GHG
Net GHG
Emissions/
Emissions/
GHG Emissions
GHG
Emissions
Emissions
Capita in
Million $ GDP
Per NDC
Country (date)
Emissions
1990-2020
2005-2020
2020
in 2020
NDC Targetsa
Targetsb
European Union-
3,083
-1,560
-1,153
6.89t
202t At least a 55% reduction from
No more than
27d
1990 levels by 2030
2,088
(First NDC,
updated 2023)
France
385
-139
-124
5.71t
146t EU target (at least a 55%
267
(EU First NDC,
reduction from 1990 levels by
updated 2020)
2030)
EU Member State targetb is
47.5% reduction compared to
2005 levels (509)
Germany
717
-553
-274
8.63t
187t EU target (at least a 55%
496
(EU First NDC,
reduction from 1990 levels by
updated 2020)
2030)
EU Member State targetb is
50% reduction compared to
2005 levels (991)
Ghanac (First
14
-7
-51
.46t
206t Implement 34 mitigation
not available
NDC, updated
measures to achieve absolute
2021)
emission reductions of 64 by
2030. Nine unconditional
measures are expected to lead
to a 24.6 reduction. An
additional 25 conditional
measures can be implemented
to further achieve an
additional 39.4 reduction.
Indiac
3,166
+2,146
+1,196
2.29t
1,187t 45% reduction in emissions
not available
(First NDC,
intensity by 2030 compared to
updated 2022)
2005 levels
CRS-25

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Change in Net
Change in
GHG
GHG
Projected 2030
2020 Net
GHG
Net GHG
Emissions/
Emissions/
GHG Emissions
GHG
Emissions
Emissions
Capita in
Million $ GDP
Per NDC
Country (date)
Emissions
1990-2020
2005-2020
2020
in 2020
NDC Targetsa
Targetsb
Indonesiac
1,476
+336
+286
5.40t
1,394t 31.89% reduction from BAU
1954
(First NDC,
(BAU = 2869 in 2030) by 2030
(unconditional);
updated 2022)
(unconditional);
1,630 (conditional
43.20% reduction from BAU
+ unconditional)
(BAU = 2869 in 2030) by 2030
(unconditional + conditional)
Iranc
845
+544
+236
10.06t
3,648t No NDC communicated to
not available
UNFCCC
Iraqc (First NDC,
262
+158
+131
6.51t
1,420t not available
not available
2021)
Italy
349
-167
-207
5.87t
184t EU target (at least a 55%
313
(EU First NDC,
reduction from 1990 levels by
updated
2030)
12/18/2020)
EU Member State targetb is
43.7% reduction compared to
2005 levels (556)
Japan
1,100
-52
-190
8.68t
217t 46% reduction from FY2013
760 (from NDC)
(First NDC,
levels by FY2030; Net zero by
updated 2021)
2050
Kazakhstan
351
-30
-40
18.73t
2,053t 15% reduction from 1990 levels
324
(First NDC,
by 2030 (unconditional);
(unconditional);
updated 2023)
25% reduction from 1990 levels
286 (conditional)
by 2030 (unconditional +
conditional)
Kenyac (First
73
+42
+18
1.35t
721t 32% reduction from BAU (BAU
97
NDC, updated
= 143) by 2030
2020)
Malaysiac (First
368
+180
+50
11.36t
1,091t 45% reduction of economy-wide
not available
NDC, updated
carbon intensity (against GDP)
2021)
from 2005 level by 2030
CRS-26

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Change in Net
Change in
GHG
GHG
Projected 2030
2020 Net
GHG
Net GHG
Emissions/
Emissions/
GHG Emissions
GHG
Emissions
Emissions
Capita in
Million $ GDP
Per NDC
Country (date)
Emissions
1990-2020
2005-2020
2020
in 2020
NDC Targetsa
Targetsb
Mexicoc
609
+175
+66
4.72t
560t 35% of GHG emissions and 51%
644
(First NDC,
reduction of black carbon
(unconditional);
updated 2022)
emissions from BAU (BAU =
595 (conditional +
991 in 2030) by 2030
unconditional)
(unconditional);
40% reduction of GHG from
BAU (BAU = 991 in 2030) by
2030 including a 70% reduction
of black carbon by 2030
(unconditional + conditional)
Moroccoc
86
+54
+28
2.33t
750t 18.3% reduction compared to
77-116 (from
(First NDC,
BAU (BAU = 142 in 2030) by
NDC)
updated 2021)
2030 (unconditional);
45.5% reduction compared to
BAU (BAU = 142 in 2030) by
2030 (unconditional +
conditional)
Myanmarc
247
+41
+33
4.53t
3,125t 244.5 reduction by 2030
not available
(First NDC,
(unconditional);
updated 2021)
414.8 reduction by 2030
(unconditional + conditional)
Nigeriac
369
+87
+49
1.79t
854t 20% reduction from BAU (BAU
362
(First NDC,
= 453) by 2030 (unconditional);
(unconditional);
updated 2021)
47% reduction from BAU (BAU
244 (conditional +
= 453) by 2030 (unconditional +
unconditional;
conditional)
from NDC)
Pakistanc
444
+275
+157
2.01t
1,477t 15% reduction from BAU (BAU
1363
(First NDC,
= 1603 in 2030) by 2030
(unconditional);
updated 2021)
(unconditional);
802 (unconditional
50% reduction from BAU (BAU
+ conditional)
= 1603 in 2030) by 2030
(unconditional + conditional)
CRS-27

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Change in Net
Change in
GHG
GHG
Projected 2030
2020 Net
GHG
Net GHG
Emissions/
Emissions/
GHG Emissions
GHG
Emissions
Emissions
Capita in
Million $ GDP
Per NDC
Country (date)
Emissions
1990-2020
2005-2020
2020
in 2020
NDC Targetsa
Targetsb
Peruc
180
+76
+47
5.45t
891t Not to exceed 208.8 in 2030
No more than
(First NDC,
(unconditional);
208.8
updated 2020)
Not to exceed 179 in 2030
(unconditional)
(conditional)
; no more than
179
(conditional)
(from NDC)
Philippinesc (First
228
+130
+78
2.08t
629t 2.71% reduction from BAU (3.3
not available
NDC, 2021)
Gt cumulative emissions) for
the period 2020-2030
(unconditional)
75% reduction from BAU (3.3
Gt cumulative emissions) for
the period 2020-2030
(unconditional + conditional)
Poland
358
-90
-0.23
9.44t
600t EU target (at least a 55%
201
(EU First NDC,
reduction from 1990 levels by
updated 2020)
2030)
EU Member State targetb is
17.7% reduction compared to
2005 levels (358)
Russia
1,482
-1608
+42
10.29t
996t 70% reduction relative to 1990
930
(First NDC,
levels by 2030
2020)
Saudi Arabiac
713
+473
+287
20.47t
1,013t Reduce and avoid GHG
not available
(First NDC,
emissions by 278 annually by
updated 2021)
2030
South Africac
508
+174
+32
8.57t
1,516t 398-510 by 2025,
350-420
(First NDC,
implementation period of 2021-
(from NDC)
updated 2021)
2025;
CRS-28

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Change in Net
Change in
GHG
GHG
Projected 2030
2020 Net
GHG
Net GHG
Emissions/
Emissions/
GHG Emissions
GHG
Emissions
Emissions
Capita in
Million $ GDP
Per NDC
Country (date)
Emissions
1990-2020
2005-2020
2020
in 2020
NDC Targetsa
Targetsb
350-420 by 2030,
implementation period 2026-
2030
South Koreac
614
+375
+126
11.841t
375t 40% reduction from 2018
437
(First NDC,
emission levels (727.6) by 2030
updated 2021)
Carbon neutrality by 2050
Spain
239
-15
-165
5.05t
187t EU target (at least a 55%
246
(EU First NDC,
reduction from 1990 levels by
updated 2020)
2030)
EU Member State targetb is
37.7% reduction compared to
2005 levels (394)
Sudanc (First
128
+58
+17
2.92t
4,748t Sector-specific targets for
not available
NDC, updated
energy, forests, and waste.
2021)
Tanzaniac
159
+61
+35
2.66t
2,545t 30%-35% reduction from BAU
not available
(First NDC,
by 2030, whereby about 138-
updated 2021)
153 gross emissions is expected
to be reduced
Thailandc (Second
451
+279
+162
6.47t
903t 30% reduction from BAU (BAU
333-389
NDC, updated
= 555) by 2030 (unconditional);
2022)
Up to 40% reduction from BAU
(BAU = 555) by 2030
(unconditional + conditional)
Carbon neutrality by 2050 and
net-zero GHG emissions by
2065
Turkey (First
467
+303
+205
5.54t
649t 41% reduction from BAU (BAU
693
NDC, updated
= 1,175 in 2030) by 2030
2023)
CRS-29

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Change in Net
Change in
GHG
GHG
Projected 2030
2020 Net
GHG
Net GHG
Emissions/
Emissions/
GHG Emissions
GHG
Emissions
Emissions
Capita in
Million $ GDP
Per NDC
Country (date)
Emissions
1990-2020
2005-2020
2020
in 2020
NDC Targetsa
Targetsb
Turkmenistan
194
+41
+37
32.18t
not available 20% reduction under the BAU
not available
(First NDC,
scenario, relative to 2010
updated 2023)
emissions
Ukraine
316
-595
-117
7.16t
2,017t 65% reduction from 1990 levels
309
(First NDC,
(883) by 2030;
updated 2021)
Carbon neutrality by 2060
United Arab
250
+171
+94
25.27t
696t 19% reduction from 2019 levels
182 (from NDC)
Emiratesc (Second
(225) by 2030
NDC, updated
Net-zero emissions by 2050
2023)
United Kingdom
410
-401
-287
6.10t
149t At least 68% reduction from
No more than 262
(First NDC,
1990 levels by 2030
updated 2022)
United States
5,222
-368
-1428
15.75t
250t 50%-52% reduction from 2005
3,214-3,348
(First NDC after
emissions levels by 2030
rejoining the Paris
Agreement, 2021)
Uzbekistanc
184
+17
+19
5.38t
3,075t 35% reduction of specific GHG
not available
(First NDC,
emissions per unit GDP from
updated 2021)
2010 levels by 2030
Venezuelac
238
-199
-257
8.36t
not available 20% reduction compared to
not available
(First NDC,
BAU by 2030
updated 2021)
Vietnamc
458
+458
+251
4.71t
1,335t 15.8% reduction from BAU
524-781
(First NDC,
(BAU = 928 in 2030) by 2030
updated 2022)
(unconditional);
43.5% reduction from BAU
(BAU = 928 in 2030) by 2030
(unconditional + conditional)
CRS-30

Sources: World Resources Institute, Climate Watch Data “Country Profiles,” at https://www.climatewatchdata.org/countries; and UNFCCC NDC Registry, at
https://www4.unfccc.int/sites/NDCStaging/Pages/All.aspx.
Notes: GHG emissions data from 2019, 2005, and 1990 and GHG emissions per capita and per GDP data are from countries’ reported submissions to the UNFCCC as
available from Climate Watch Data, except where noted (see table note c). CO2e is the tons of CO2 that would have the equivalent effect of the GHG on forcing global
average temperature (positive or negative) as one ton of the GHG in question. Emissions data include those emissions from land use, land use change, and forestry
(LULUCF). Also, t = metric tons; and Gt (gigatons) = 1 bil ion metric tons. BAU = “business-as-usual.”
a. NDC targets extracted from most recently submitted NDCs available in the UNFCCC NDC Registry.
b. Year 2030 emissions targets calculated using NDC 2030 target reductions and base year emissions as reported by each country to the UNFCCC, where available.
Estimates for the EU-27 Member States (France, Germany, Italy, Poland, and Spain) were calculated using member state targets adopted in accordance with the EU
Effort Sharing Regulation, which creates binding minimum targets for emissions reductions by member states., See https://climate.ec.europa.eu/eu-action/effort-
sharing-member-states-emission-targets/effort-sharing-2021-2030-targets-and-flexibilities_en.
c. Because certain countries submitted GHG emissions data to the UNFCCC for intermittent years only, some emissions data are from CAIT (formerly known as the
Climate Analysis Indicators Tool), as available from Climate Watch Data. CAIT compiles emissions data from nongovernmental sources to supplement countries’
intermittent emissions reporting (see https://cait.wri.org/faq.html).
d. EU-27 emissions data for all years exclude emissions from the UK.

CRS-31

Greenhouse Gas Emission Reduction Pledges by Selected Countries

Author Information

Kezee Procita
Claire M. Jordan
Head Research and Library Services Section
Research Librarian

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