Excellencies, colleagues,

Since I last wrote in July, many parts of the world have experienced record temperatures and severe climate shocks. From the devastation of Derna to Lahaina, mounting climate impacts are destroying lives and livelihoods in every corner of our world. But as we continue to listen and engage with you and many others, there are strong signs of hope and optimism. From global to local, young to old, we recognize a renewed confidence around action, and a hunger for ambitious solutions. It is our collective responsibility to deliver for many across the globe who are imparting their trust upon us.

As COP President, I am asking you for your help to ensure that we can deliver a comprehensive plan of action at COP28 and meet the level of ambition the world needs. I therefore call for your partnership, your collaboration, and your leadership.

The latest science from the IPCC Sixth Assessment Report highlights that we are way off track from pathways consistent with keeping 1.5°C and the Paris Goals within reach. The report and real-world impacts underscore the need for us to turn ambition into action and to replace rhetoric with real results. We need to think bigger and implement quicker to reduce global emissions by 43% relative to 2019 levels by 2030, radically scale up climate financing, and engage in enhanced adaptation action to build resilience and avoid irreversible impacts.

The challenge we face is immense. While there is a rapidly closing window to course correct, there are key opportunities for the swift scale up of climate action and for climate-positive investments that catalyze a growth trajectory to achieve shared prosperity. We need to harness these opportunities to go after the 22 gigatons of GHG emissions that we need to cut in the next seven years and to accelerate the transition to new low-emission, high-growth, sustainable economic models in a way that is transformational and addresses the dual challenges of climate and development in a just and equitable way. That is why the Incoming Presidency laid out an ambitious agenda in July, focused on four paradigm shifts to guide our work under the negotiating mandates and the Presidency’s Action Agenda:

  • Fast-tracking the just, equitable and orderly energy transition and slashing emissions before 2030;
  • Transforming climate finance by delivering on old promises and setting the framework for a new deal on finance;
  • Putting nature, people, lives and livelihoods at the heart of climate action;
  • Mobilizing for an inclusive COP.

As we move closer to COP28, we are witnessing progress and growing political momentum from leaders and the climate community to pursue solutions across these priorities. At the Amazon Summit, countries in the Amazon mobilized around the Belém Declaration to protect the world’s biggest rainforest. In Kenya, African leaders agreed on an ambitious push to accelerate climate action in the Nairobi Declaration, including a strong call to land a comprehensive outcome on the GST at COP28 and to develop a Global Climate Finance Charter. In New Delhi, the G20 highlighted the importance of ambitious action on all pillars of the Paris Agreement, including the fulfilment of the $100 billion by developed countries, efforts to triple renewable energy capacity globally, a holistic approach that takes into account all technological solutions in accordance with the science, and a commitment to accelerate investment in climate-resilient food systems.

At UNGA, we heard the need to move beyond pledges and to tangible actions, policies, and plans. The Alliance of Small Island States called to urgently provide sufficient, new, predictable, and accessible financing for addressing loss and damage. The Ministerial on Loss and Damage underscored Parties’ commitment to COP28 delivering the operationalization of the fund and funding arrangements at speed and scale for the most climate vulnerable. We intend to build on this collective progress and ensure that COP28 becomes a defining milestone for Parties to accelerate action and deliver real results. As we head into the final 43 days before COP28, with preparations well underway for leaders and negotiators to convene at this most critical moment, we would like to share our vision on how we can work together over the two weeks of COP28 and our expectations for the negotiations and the World Climate Action Summit (WCAS).

We invite leaders to attend the World Climate Action Summit on December 1st and 2nd and to come prepared to respond to the existing gaps in climate action, with increased ambition and accelerated implementation, to enable material progress building on the outcomes of COP27. All leaders will be invited to make National Statements and outline their concrete commitments to bring the world on track. The Presidency will also host several events centered on our four paradigm shifts. Leaders with transformative actions focused on these priorities will be given the stage at thematic sessions. We encourage your sustained close engagement with the Incoming Presidency team to understand the contributions you are planning to make.

Following WCAS, each day at COP will be based on thematic areas, responding to extensive consultation with Parties and stakeholders. The program for December 3rd to 10th, which can be found on the COP28 website, reflects the topics that were repeatedly raised during consultations. These include annual features of the COP agenda such as energy, finance and youth, and new, essential topics like health, food systems, and the inclusion of children.

COP28/CMP18/CMA5 Negotiations

The negotiated outcomes at COP28 will mark an inflection point and a test of the international community to deliver for climate action. As Presidency, we stress upon the need for ambition across all outcomes and the need for implementation to be undertaken in light of equity and the best available science, as well as in light of national circumstances to ensure they can be implemented by all. In this context, we recognize the importance of the principles and provisions of the Convention and the Paris Agreement.

To support political engagement and gain a comprehensive understanding of Parties’ concerns and expectations across all negotiating tracks, I have sought the support of a group of experienced Ministers to undertake political consultations on the Global Stocktake, Means of Implementation, Adaptation and Mitigation. Their work aims to facilitate political engagement across the issues pertaining to the outcomes at COP28 and shall not duplicate ongoing technical negotiations but rather support their progress. These consultations will take place throughout October and at Pre-COP, with a view to ensuring a comprehensive understanding of the critical areas where Parties need to further collaborate to secure an ambitious and inclusive outcome.

Pre-COP will be a critical platform for Ministers to engage and narrow the gaps on issues across all mandated outcomes. The agenda for Pre-COP is designed to encourage live dialogue between Ministers. I will be looking to unlock progress and press Ministers on all challenging issues that are key to a high ambition outcome. I call on Ministers to come prepared to engage in the spirit of flexibility and unity that the world is expecting of us less than a month out from COP28. Ahead of Pre-COP, the Presidency will work with the Ministerial Pairs on a concept note to guide discussions. A Chair’s summary of the Pre-COP discussion will be provided to all Parties.

Given the urgency and heavy workload in Dubai, it is essential that we start work immediately and have a smooth adoption of the agenda on day one. With a view to ensuring that all Parties’ concerns are understood and addressed, we will also be holding consultations at Pre-COP on this matter. It is my expectation that Ministers can arrive at a preliminary understanding regarding the adoption of the agenda for the Governing and Subsidiary Bodies under an umbrella of trust and mutual understanding to launch work at the opening of the Conference.


This year marks a pivotal moment in the implementation of the Paris Agreement as we conclude the first ever GST.

On the sidelines of UNGA, we hosted an informal Ministerial consultation on the GST where ministers outlined their views and expectations for its outcome. More recently, negotiators engaged constructively under the mandated workshop on the elements for the outcome of the GST in Abu Dhabi. The High-Level Committee also shared an update on the High-Level events on the GST that will take place at WCAS.

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The increasing risks and impacts, including those we have seen this summer, make adaptation a priority for the success of COP28. The GST outcome must position a clear high-level political signal for adaptation. Further to this, the delivery of a robust framework for the Global Goal on Adaptation (GGA) is fundamental to launch an era of climate action that truly gets behind delivering enhanced resilience and reduced vulnerability, including by making available the adequate support in the form of substantially scaled adaptation finance.

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Mitigation is central to the COP28 outcome and to keeping 1.5°C within reach. The elements for a just energy transition will be an important signal coming out of COP28 to tackle necessary emissions reductions, course correct and cut emissions in line with Paris compatible pathways by 2030. At the same time, we must consider how to build the energy system of tomorrow and work towards a future energy system that is free of unabated fossil fuels by mid-century including by scaling the deployment of all available solutions and technologies.

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On loss and damage, we need to ensure the new fund for addressing Loss and Damage and funding arrangements are up and running as soon as possible, as a priority. We cannot delay this by having a multi-year process to agree on governance. I have been clear with my expectations for the Loss & Damage Transitional Committee to deliver clean recommendations out of the fourth meeting later this week. I also encourage early pledges and request your support in being pragmatic to get money flowing to impacted communities at the scale and speed required.


Means of implementation, including finance and finance flows, technology and capacity building for developing countries, are critical to supporting climate action . There is an urgent need to scale up financing, in responding the needs and priorities of developing countries, improving access affordability and availability of finance.

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The presidency's action agenda

The WCAS and our two-week thematic programme will mirror the COP28 Presidency priorities in line with the four paradigm shifts. Building on the vision from my last Letter to Parties, the COP28 Presidency has put forward several initiatives informed by our consultations to build ambition and momentum to support the process and create space for a balanced negotiated outcome. These will be spotlighted in the WCAS sessions and countries are invited to contribute:


I have made it clear that the phasing down demand for and supply of all fossil fuels is inevitable and essential. We need to collectively cut 22 gigatons of GHG emissions in the next 7 years to keep 1.5°C within reach. That means working towards an energy system free of unabated fossil fuels by mid-century, with action on coal being a priority. We must do this while further ensuring energy security, affordability and accessibility to support broader development objectives. This transition requires scaling up investments in clean energy supply and much more efficient use of energy. At the WCAS, I invite leaders to reflect on the series of high-level dialogues I convened with the IEA, supported by IRENA and UNFCCC in Goa, Nairobi, New York and Madrid, which focused on laying out 1.5°C-compatible energy transition pathways, including how to decarbonize today’s energy system while rapidly phasing up zero carbon alternatives, as part of a just, equitable and orderly energy transition. We will convene countries and industry leaders at COP28 to respond to the conclusions from these dialogues, as well as the policy recommendations from the recent Breakthrough Agenda Report, with ambitious commitments.

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We know that the current climate finance system is not fit for purpose. We are facing an investment gap in the USD trillions in developing countries, while those that contributed least to the problem suffer the greatest impacts and receive the least finance. As I have emphasized, climate finance must be affordable, available and accessible to developing countries to enable a radical scale up of climate action.

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Lives and livelihoods are changing in the face of climate change. In my consultations, many communities have made it clear that they expect to see both political visibility and new finance for resilience, adaptation, and prevention of loss and damage at COP28, especially through real-world applications in underpinning sectors like nature, food, water, and health. Our presidency has therefore designed COP28’s agenda to elevate these themes and put them at the core of leaders’ engagements in the UAE.

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Inclusion is the foundation of the COP28 Presidency and must continue to be our collective guiding star. The COP28 Presidency set out an early and clear aspiration to elevate, profile and support the leadership, decision-making, and resourcing of women, Indigenous Peoples, youth, people of determination, subnational actors, and faith-based organizations, among others. 
The WCAS will profile and elevate their voice set out an early and clear aspiration to elevate, profile and support the leadership, decision-making, and resourcing of women, Indigenous Peoples, youth, people of determination, subnational actors, and faith-based organizations, among others.

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We will be sharing further logistical information on the WCAS, including the Gala Dinner and UAE National Day through diplomatic channels. Texts for the aforementioned COP28 Action Agenda declarations and pledges will also be circulated by October 20th.

I believe that our ambitious action agenda can bring hope, sharpen focus, and accelerate change. I call on all leaders to come to COP28 with optimism and with the will to deliver real results. Together, let us turn pledges into projects and let us turn ambition into action. 

Let us unite, act and deliver.



15 Nov


Download Letter to Parties Volume 4, 15 November 2023
9 Nov


Download Letter to Parties Volume 3, 09 November 2023
17 Oct


Download Letter to Parties Volume 2, 17 October 2023