Policy Update
Amrutha Lahari Kolluru
Introduction
It’s been ten years since the Paris Agreement and the Presidency at COP30 in Belem launched the Global Mutirao as a part of its Belem political package that came along with matters on global stocktake, adaptation fund, reports and mitigation programmes (Belem Political Package, UNFCCC, 2025). The Global Mutirao, a key element in the package, was signed on by all the 195 participating countries. It is a commitment that seeks international cooperation to accelerate climate action and shows that the Paris Agreement is working, but it needs to do more and faster. (UNEP, 2025)
While the other elements in the political package included Just Transition Mechanism (JTM), Global Goal on Adaptation (GGA), Unilateral Trade Measures (UTM) and mitigation programmes, the mandate stood united in implementation and divided in finance. This divide challenges the Mutirao mandate, particularly in ensuring that implementation is equitable and that transition is well-funded. India’s statement at Belem, spoke of gratitude for the Mutirao initiative and other goals of the Belem Package like the, but held its stance at a more justified international cooperation.
Background
Mutirao translates to collective effort, community action and shared consensus. Originated from the Tupi-Guarani Language, the mobilisation effort calls on all actors to work together to significantly accelerate and scale up climate action worldwide, to enhance international cooperation and implementation during this critical decade. In accordance with the principles and provisions of the Paris Agreement, it ascertains a view to keep 1.5 °C within reach, build resilience and mobilise finance, technology, and capacity-building. (Decision 1/CMA.6) Embodying these targets, the national commitments, particularly from the developing countries, play a pivotal role in translating global consensus into measurable progress.
Although the current projections are not sufficient in achieving the global temperature goals, the mandate acknowledges that the latest Nationally Determined Contributions (NDCs) have the potential to reduce the expected global temperature increase from 4oC to 2.3-2.5 oC. India’s NDCs and renewable energy investments have brought the country closer to the goal and transformed the energy landscape in the country.
Table 1: Evolution & Progress across India’s NDC Targets and Key Climate Commitments
| NDC Target | NDC 1.0 (2015) | NDC 2.0 (2021–22) | NDC 3.0 (2026) | Progress |
| Reduction in emissions intensity of GDP | 33–35% reduction from 2005 level by 2030 | 45% reduction from 2005 level by 2030 | 47% reduction from 2005 level by 2035 | 45% reduction (2005–22) |
| Installed power capacity from non-fossil fuel sources | 40% by 2030 | 50% by 2030 | 60% by 2035 | 52.57% achieved in 2025 |
| Expansion of carbon sinks through forest and tree cover | 2.5–3 billion tonnes of CO₂ equivalent by 2035 | 2.5–3 billion tonnes of CO₂ equivalent by 2035 | 3.5–4 billion tonnes of CO₂ equivalent by 2035 | 2.44 billion tonnes of CO₂ equivalent created (2005–22) |
Source: https://www.downtoearth.org.in/climate-change/measured-targets, India’s first BTR, 2026
Functioning
The main theme of the Mutirao agreement is to transition from negotiation to implementation. As an overarching political cover decision, it envelopes the implementation programmes like the Global Goal on Adaptation (GGA), UAE Just Transitions Work Programme (JTWP) and its Belem Action Mechanism (BAM) in the Belem Political Package.
The UAE-JTWP aims to increase alignment with the Paris Agreement by accounting for equity, poverty eradication and national circumstances. It developed a Just Transition Mechanism, commonly referred to as the Belem Action Mechanism (BAM), which enhances international cooperation, technical assistance, capacity-building and knowledge sharing. (Just Transitions Work Programme, UNFCCC Decision, 2025) Thus, a ‘one-size-fits-all’ model is eliminated to more justly and comprehensively scope the transitions through a broad and inclusive people-centred mechanism.
Under the same umbrella, the GGA provides resilience and framework to the global goal by the adoption of Adaptation indicators. Through this, the participating countries are encouraged to test and integrate these indicators into their national plans and reporting process, which according to the Mutirao mandate are Biennial Transparency Reports (BTRs), NDCs and National Action Plans (NAPs).
India’s submission of its BTR to the United Nations Framework Convention on Climate Change (UNFCCC), which stated its NDC target achievements of 45% reduction in emissions intensity, 52% renewable energy share in the installed power capacity and 2.44 billion tonnes of sequestered tree cover.
To align with the GGA, India operationalises the National Action Plan on Climate Change (NAPCC) which comprises eight key missions on solar energy, enhanced energy efficiency, sustainable habitat, water, sustaining Himalayan ecosystems, greening India, sustainable agriculture, human health, and strategic knowledge for climate change. At the sub-national level, State Action Plans on Climate Change (SAPCCs) translate these global resilience targets into region-specific interventions.
34 States and Union Territories of India have formulated SAPCCs aligned with India’s NDCs and are revising them to reflect updated climate goals, local priorities and meeting the Sustainable Development Goals (SDGs). These frameworks mainstream climate action into development policies, focusing on adaptation, mitigation, and resilience building. They are supported by the National Adaptation Fund for Climate Change (NAFCC).
Simultaneously, mitigation and energy security targets are operationalized on the ground through flagship schemes such as PM-Surya Ghar (rooftop solar), PM-KUSUM (decentralized agricultural solar), and the National Green Hydrogen Mission. This dual-track architecture ensures that domestic implementation bridges the gap between global transition commitments and local adaptation needs. (India’s First BTR, MoEFCC, 2026)
Performance
India’s domestic delivery to the global targets and the Mutirao is increasingly yielding significance as it is moving towards becoming a leader to the Global South in terms of climate actions. Its multi-pronged strategy combining mitigation, adaptation and sustainable development is anchored through the NAPCC and its state wise performance.
Table 2: Flagship Initiatives and Strategic Impact Targets across Action Pillars
| Action Pillar | Sector/ Primary Focus | Flagship Initiatives | Key Strategic Focus |
| Mitigation | Power Sector & Renewable Energy | PM-Surya Ghar, PM-KUSUM, National Green Hydrogen Mission | Decentralised solar, Green hydrogen capacity, and grid decarbonisation |
| Industry | Perform, Achieve, Trade (PAT) Scheme | Energy efficiency trading in energy-intensive sectors | |
| Transport | FAME Scheme, CAFE Standards | EV Adoption, fleet efficiency, and transport electrification | |
| Buildings | Energy Conservation Building Code (ECBC), UJALA | Energy efficient architecture and appliance transformation | |
| Forestry | MISHTI, Green India Mission (GIM) | Mangrove restoration and carbon sink expansion | |
| Adaptation | Agriculture & Water | NICRA, PMKSY, Jal Jeevan Mission | Climate-resilient farming, irrigation efficiency, and water security |
| Disaster Risk Reduction & Resilient Infrastructure | Coalition for Disaster Resilient Infrastructure (CDRI), Aapda Mitra | Local resilience, early warning, and infrastructure protection |
Source: Compiled from India’s BRT-1, 2026
It can therefore, be emphasised that there is a collective action across the states, ministries and communities and the spirit of Mutirao is withheld in their implementation of these key initiatives. The operational success of these schemes proves that India is building the domestic institutional capacity required to absorb global adaptation and transition funds effectively as mechanisms like the Belem Action Mechanism (BAM) mature.
Emerging Issues
- Big 4 strife: Four key issues : NDCs and ambition, financial regulations under Article 9 of the Paris Agreement, BTRs and transparency and climate-related trade measures, were addressed in the Global Mutirao. However, the outcomes of these issues were left with no party wholly satisfied. (Morton & Millar, 2025)
- Indicator adoption: The Global Goal on Adaptation’s set of indicators is still a work in progress, with countries divided over whether to pursue a standardised global framework or retain flexibility for national circumstances. (IISD, 2025)
- Financial Polarity: Article 9 of the Paris Agreement mandates that developed nations provide financial assistance to help developing countries fund climate action. The stance on this by the parties however, remains highly contentious as they debate over pushing for grants or concessional support. This is the weakest link in the Mutirao architecture, which undermines the trust in building towards an ideal implementation plan. (IISD, 2025)
- Gaps and loopholes in SAPCC implementation: There is a lack of integration, scalable design, and direct access to mobilisation of climate finance in the state action plans. These hinder the collective goal and the outcomes of the greater climate adaptation and change mitigation plans. This also highlights the weak institutional capacity and poor strategic alignment between the centre and the state. (Down to Earth, 2019)
- Global political tensions: The ongoing geopolitical scenario is bleak and contentious. The trade tariffs make the world more unequal and poorer, and this increasing polarity leads to further degradation of the climate environment. Such fragmentation also risks diverting diplomatic capital away from cooperative mechanisms like the BAM & GGA, precisely when collective momentum, or Mutirao, is most needed.
Way Forward
- It is important to create more ambitious commitments to reduce GHG emissions and accelerate actions towards target implementation as indicated by the UN Global Stocktaking Report. This could be achieved by reducing GHG emissions while also raising funds to finance mitigation and adaptation that strengthen carbon pricing mechanisms.
- Integrating indigenous and traditional, local knowledge and a gender responsive approach in the NAP process is essential. This could also include the potential of nature-based solutions and ecosystem based adaptation. Embedding these approaches would strengthen the legitimacy and durability of adaptation measures while ensuring local communities become active participants rather than passive recipients of climate action. (Gupta, 2026).
- Parties are expected to report their response plans and actions in lieu of the Belem Mission 1.5 by COP 31, being held in Turkiye, under the Australian presidency _ a unique joint/ split model.
- At the national level, it is important to analyse the performance metrics and adopt a uniform standard of adaptation indicators across the states in their action plans. A unified performance report can add to the future significance of transparency and accountability, as advocated by the Mutirao mandate.
- Most imperatively, diversifying the investment sources for climate finance in India will reduce significant risks. This could be achieved by strengthening domestic carbon pricing mechanisms, expanding sovereign green bonds, and leveraging blended finance.
References
Carbon Direct. (n.d.). COP30 reflections: A global Mutirão facilitates collective action. Carbon Direct
Climate and Society Institute. (n.d.). The Mutirão for the success of COP30. iCS
Down To Earth. (2019, September 13). State Action Plans on climate change need upscaling and capacity enhancement. Down To Earth
Government of India. (2025). National policy document on climate action [PDF file]. S3WaaS
International Institute for Sustainable Development. (n.d.). COP 30 outcome: What it means and what’s next. IISD
Lexology. (n.d.). Legal update on COP30 outcome. Lexology
Press Information Bureau. (2022, February 15). Cabinet approves India’s updated Nationally Determined Contribution (NDC). Ministry of Environment, Forest and Climate Change, Government of India. PIB
Press Information Bureau. (n.d.). Press release on climate action and initiatives. Ministry of Environment, Forest and Climate Change, Government of India. PIB
UNEP Finance Initiative. (n.d.). The COP30 Mutirão decision and what it means for the global finance sector. UNEP FI
United Nations Framework Convention on Climate Change. (2025). Decision -/CMA.6: Proposal by the President [PDF file]. UNFCCC
United Nations Framework Convention on Climate Change. (2025). Decision -/CMA.6: Work programme matters [PDF file]. UNFCCC
United Nations Framework Convention on Climate Change. (2025). First Biennial Transparency Report of India (BTR1) [PDF file]. UNFCCC
United Nations Framework Convention on Climate Change. (2026). India’s Nationally Determined Contribution (2031–2035) [PDF file]. UNFCCC
United Nations Framework Convention on Climate Change. (2025). Belém political package. UNFCCC
United Nations Framework Convention on Climate Change. (2025). Mutirão decision document [PDF file]. UNFCCC
Gupta, A. K. (2026). Disaster risk reduction, climate change adaptation, and local knowledge integration [Webinar lecture]. In IMPRI WebPolicyLearning Annual Cohort Certificate Programme: Understanding the Nuances of Climate Change in the Indian Subcontinent. Impact and Policy Research Institute (IMPRI). https://www.impriindia.com/event/understanding-climate-change-nuances/
About the Contributor
Amrutha Lahari Kolluru is a graduate in M. A. Environmental Economics from Madras School of Economics. Passionate about policy analysis, climate research, sustainability and their integration, she aspires to create evidence-based solutions for environmental challenges.
Reviewers
Anushree Khare- This is a well-formulated article and with just some minor revisions. It is a very robust and compelling analysis ready for final publication.
Ambika Sharma – It is a well – written article which needs few changes and doing those changes would help make the article stand out. It is ready-for publication type article.
Acknowledgement
The author extends her sincere gratitude to the IMPRI team for their invaluable guidance throughout the process.
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