Progress of major emitters towards climate targets

2025 update

This report by NewClimate Institute, PBL Netherlands Environmental Assessment Agency, and the International Institute for Applied Systems Analysis (IIASA), provides an overview of projected greenhouse gas (GHG) emissions in 25 major emitting economies up to 2030 and 2035 under currently implemented policies. Based on our projections, fifteen countries are likely on track to meet their 2030 unconditional NDC targets, and six are likely on track to meet their 2035 targets. Emissions could peak before 2030, but this is not enough to meet the climate goals of the Paris Agreement.

Our analysis shows that emission projections under current policies could peak by 2026. The lower end of the aggregated emissions of the 25 countries is approximately 1.5 GtCO2e higher than in our last year’s report – mostly because of policy rollbacks in the USA. This range, of -6% to +4% compared to 2019 levels, remains insufficient to limit global warming to 1.5°C, which requires 43% emission reductions over the same period. By 2035, however, while the upper range of our projections sees only a modest decline in emissions, our lower end of projections declines at a much higher rate. 

Projections remain on a downwards trend, despite a decrease in the US emission reduction rate

Emissions are projected to decrease or stabilise by 2035 in 15 out of the 25 countries analysed. The EU, Japan, the Republic of Korea and Australia show a significant decline in this period. For China, emissions are projected to decrease, following a peak around 2025 and a period of stabilization up to 2030. In the United States, rollbacks on almost all Inflation Reduction Act (IRA) programs and several Environmental Protection Agency (EPA) regulations have led to higher emissions projections compared to last year.

Progress towards NDC targets needs to be improved

Fifteen countries are likely on track to meet their 2030 unconditional NDC targets. The remaining nine countries with an unconditional NDC need to expand policy adoption to meet their announced targets. From the countries with a submitted or announced 2035 NDC target, only six are likely on track to reach it under current policies.

NB: Unfortunately the current PDF document does not meet the  Accessibility-guidelines of the PBL yet. It will be replaced as soon as possible by an improved version

Authors

PBL Authors
Ioannis Dafnomilis Elena Hooijschuur Michel den Elzen Astrid Bos
Other authors
Jan-Luka Scheewel, Takeshi Kuramochi, Gustavo De Vivero, Maria Jose de Villafranca Casas, Rory Geary, Chetna Hareesh Kumar, Judit Hecke, Finn Hossfeld, Ana Missirliu, Mia Moisio, Natalie Pelekh, Nabila Putri Salsabila, Santiago Woollands, Jamie Wong,
Norah Zhang (New Climate Institute)
Analysis Zuelclady MF Araujo Gutiérrez, Mykola Gusti, Dejana Golic (International Institute for Applied Systems)

Specifications

Publication date
7 November 2025
Publication type
Report
Page count
92
Publication language
English
Product number
5842