Loss and damage fund outcome at COP27 is a victory for people living on the front lines of climate disasters 

The decision at COP27 to establish a loss and damage fund for communities living on the front lines of climate disasters has been hailed a victory by ActionAid. 

The issue of loss and damage was on the agenda at this year’s UN climate talks in Egypt, following three decades of campaigning. With recognition that funding is urgently needed to help communities rebuild and recover in the aftermath of climate disasters.  

Two weeks of negotiations resulted in an agreement between countries to establish a loss and damage fund. A transitional committee will be set up to work out the finer details. Details including who will be eligible to receive funds, who will pay, and how much money there will be. 

Comments on the final outcome

Teresa Anderson, Global Lead on Climate Justice, at ActionAid, said:  “After so many years of calling for the UN to agree to establish a fund to help countries being pushed deeper into poverty, this is a real pinch-me moment. We can give credit to the collective pressure from civil society, combined with unprecedented unity among developing countries, for forcing rich countries to finally say “Yes – we are in this together”.   

“This loss and damage fund is long overdue, and it’s truly shocking that it has taken rich countries so long to finally agree to help those harmed by climate impacts. For people on the front lines of the climate crisis, this offers hope that there will be a fund to help them recover and rebuild in the aftermath of disasters. There are still battles ahead to address key unanswered questions, but for now this is a crucial starting point. 

“But the polluters have been let off the hook with COP27’s weak language on fossil fuels. Climate-vulnerable communities who have been given hope through the establishing of a loss and damage fund are still being harmed by the actions of big polluters, and the underlying cause of the climate crisis has not been addressed.” 

What will the loss and damage fund do?

The fund will support with recovery in the aftermath of destructive climate impacts. This will include both sudden-onset disasters like cyclones and floods or slow-onset impacts like drought or desertification. It will ensure farmers are compensated if they lose their livelihoods, homes are rebuilt and traditions saved. 

This year, climate emergencies destroyed the lives and livelihoods of people living in the Global South on a scale not witnessed before. Including by droughts, heatwaves, wildfires, flooding, and hurricanes. In East Africa, crops have failed, livestock have died, and water sources have dried up after five failed rainy seasons. 

Susan Otieno, Executive Director at ActionAid Kenya, said: “There were high hopes that COP27 would deliver for Africa – and on the issue of loss and damage it has. For the millions of people across East Africa who are at risk of starvation after endless drought; for the girls who are being taken out of school to walk miles for water; and for the families in Nigeria who have been displaced from their homes from extreme flooding, they will now know that the world stands in solidarity with them. 

Susan added, “All of these people have done the least to cause climate change but they are paying the highest price. But this is only the first step, and the negotiations next year must address the many questions still hanging on how it will work in practice.” 

Protesters holding End Fossil Fuels banner at a climate demonstration, advocating for renewable energy solutions.

Protestors at COP 28 in Dubai. Photo: Konrad Skotnicki.

Climate protest with diverse crowd holding signs about environmental action in a city square.

Belfast Climate Change March, 2019. Photo: Trócaire.

The Profit Driving the Crisis

Despite their overwhelming contribution to global emissions, fossil fuel companies continue to attract significant financial backing—driven by their enduring profitability. This is starkly illustrated by the case of ExxonMobil, the top fossil fuel investment held by asset managers based in Ireland. In 2023, ExxonMobil reported €33.63 billion ($36 billion) in profit. That is almost twice the GDP of Botswana (€18.1 billion) and nearly three times Namibia’s GDP (€11.5 billion).

Ireland plays a hugely disproportionate role in facilitating investments into fossil fuel companies like ExxonMobil. In 2023, the investments made into fossil fuel companies by investment managers based in Ireland generated an estimated 72.5 million tons of CO2e. This is more than the CO2e emissions for the entire country of Ireland—and more than ten times that generated by Sierra Leone.

The Global Human Impact

The climate crisis is here, now, and it is causing disproportionate harm in the Global South. In Bangladesh, rising sea levels and increasingly severe cyclones are displacing coastal communities, with projections indicating that 17% of the entire country could be underwater by 2050. The legally binding Paris Agreement on climate change explicitly acknowledges the importance of tackling private finance. Its three overarching goals are: keeping below 1.5C of warming; increasing adaptation and making finance flows consistent with low emissions and resilience.

This gives a clear mandate for action:  both tax reform and corporate regulation are needed to tackle financial flows, and both nationally in Ireland and at EU level, ‘polluter pays’ taxes are lacking and regulation of the financial sector remains weak and fragmented. While EU regulation exists, it is designed more to nudge investors toward more sustainable investment practices by increasing transparency and reporting levels than to enforce strict standards. And it is moving in the wrong direction: the recently passed EU Corporate Sustainability Due Diligence Directive excluded investments; and now the EU Commission’s Omnibus legislative proposal threatens to undo the limited gains made on climate plans, as well as blocking future attempts for stronger action at national level.

The Risk of Inaction

Fossil fuel investment is too profitable to remain weakly regulated. If Ireland continues with its current strategy of encouraging FDI at all costs, and relying on weak EU regulation, we are headed for catastrophe. The Inter-governmental Panel on Climate Change has repeatedly warned that every fraction of a degree beyond 1.5°C brings irreversible consequences: collapsed ice sheets, vanishing coral reefs, and extreme weather events that will make vast regions of the planet uninhabitable. And yet, companies are developing oil and gas fields that could push global warming beyond 2°C.

Our research found that 91% of the investments made into fossil fuel companies by investment managers based in Ireland were to companies that have plans for fossil fuel expansion like these. Ireland cannot afford inaction on this issue.

About This Research

The figures in this report regarding investment from Ireland are based on new research commissioned by ActionAid Ireland and Trócaire. In the paper, we uncover the scale of fossil fuel investment through Ireland, who the investors are, and in which fossil fuel companies they are investing.  We analyse the current regulatory framework and explain why it is inadequate—and moving in the wrong direction. And we make specific recommendations for change, which are summarised below.

Summary of Recommendations

Regulate the private financial sector
Ireland must end its outsized role as an enabler of destructive fossil fuel investment. Ireland should introduce a strong gender-responsive national human rights and environmental due diligence framework which includes the regulation of investors with respect to human rights and the environment and climate. The transposition of the EU Corporate Sustainability Due Diligence Directive could achieve this if downstream activities are included and the Omnibus proposal is rejected. Ireland should prohibit investments in fossil fuel expansion and require investors to implement climate transition plans consistent with a 1.5°C climate limit.

Endorse the Fossil Fuel Non-Proliferation Treaty
Ireland should endorse developing a Fossil Fuel Non-Proliferation Treaty to curb fossil fuel expansion and commit to a fair and funded phase out of fossil fuels.

Support tax justice
Ireland should support bold and fair new global tax rules through the UN Framework Convention on Tax, should adopt all OECD BEPS measures, and should conduct an updated and comprehensive spillover analysis of its tax policy. Ireland should take coordinated action globally, at the EU level and domestically to introduce a range of new taxes to mobilise finance needed for climate justice, based on ‘polluter pays’ and social equity principles such as wealth taxes for the highest earners, climate damages tax on investors, fossil fuel production taxes and levies on aviation and shipping.

Finance a just transition
Ireland must also meet its fair share climate finance obligations under Article 9.1 of the Paris Agreement, and pay our ecological debt to the Global South. Ireland should support conditionality-free debt cancellation for countries on the front lines of the climate crisis, commit to a new UN Framework Convention on Sovereign Debt, moving debt negotiations from the IMF to the UN, and to a debt workout mechanism that is fully representative and fair.

Further reading