New report by ActionAid calls for International Monetary Fund to be replaced by new UN convention on debt, highlighting that unpaid debts owed to Africa far exceed the external debts that African nations are forced to pay

Ahead of major African Union summit, a new report from ActionAid warns that a shocking 75.3% of all lower-income countries are spending more on foreign debt than on health and education, as a result of deeply unjust and colonial global economic system. Forcing African countries to forego essential public services such as health, education, and climate action in order to service foreign debts owed to rich countries, private creditors, and global financial institutions.

The report titled, ‘Who Owes Who? External debts, climate debts and reparations in the Jubilee year’ published in the week leading up to the AU Summit in Addis Ababa.

The research also calls for tax reform globally and debt cancellation as part-payment of the climate debt and other reparations owed by rich countries.

The report outlines that:
  • More than three quarters (75.3%) of all lower-income countries spend more on foreign debt than health care and more than half (51%) spend more on debt servicing than education.
  • Based on systematic studies, rich polluting countries owe low- and lower-middle-income countries US$107 trillion in climate debt. This is more than 70 times greater than the total foreign debt of US$ 1.45 trillion the lower-income countries collectively owe.
  • This includes rich countries not paying the climate debt of at least US$36trillion that they owe to Africa.  The report reveals that in 2024,lower-income countries in Africa paid US$ 60 billion in debt repayments sacrificing health, education, people’s rights, and sustainable national development. This is having a devastating impact on the majority of people on the continent, particularly women, young people, and those on low incomes. 
According to the report:
  • There is an unjust global credit rating system that is driving the debt crisis in most African countries. For instance, Africa is charged extortionate interest rates on loans compared to rich countries at an average of 9.8% in Africa, compared to the average of 0.8% for Germany. 
  • This unjust economic structure facilitates multinational corporations shifting on average US$ 1.13 trillion worth of profit into tax havens causing governments around the world to lose urgently needed tax revenue. The EU Tax Observatory estimates that Ireland remains the destination of approximately $120-140bn of shifted corporate profits annually.
  • The severe global debt crisis requires a fundamental overhaul of the global financial architecture that shifts the power over debt away from the International Monetary Fund (IMF) to a more representative and inclusive UN body. Governments in Africa and across the Global South must prioritise the establishment of a new UN Framework Convention on Debt to replace the present unfair, colonial architecture centred on the IMF.
ActionAid Ireland CEO, Karol Balfe, said:

“It is a travesty that African nations are being crushed under the weight of foreign debt, while the world’s richest countries continue to look the other way, evading their responsibility to pay for the climate crisis and reparations related to the slave trade and unfair economic practices.” 

 “By forcing countries to prioritise debt repayment over essential services such as health and education, or responding to the runaway climate crisis, the rich countries are pushing Africa to the brink.”

 She added: “Servicing external debts, and complying with conditions attached to IMF loans, is undermining spending on health, education, and climate action, particularly impacting women and girls. But rich countries get away without paying their debts to Africa. How is that fair?” 

“The reality is that for African countries to overcome the debt crisis and the impacts of climate change there must be debt cancellation and a complete move away from colonial debt architecture that has burdened the continent for decades. In this year of reparations, the African Union must ensure both debt cancellation and a new United Nations Framework Convention on Debt are agreed.” 

Ireland has a critical role to play. Firstly we should support the Global South’s call for reform and debt cancellation. Secondly, while our tax policy has undoubtedly played a significant role in our economic growth, we have to acknowledge the fact that corporate profit shifting directly impacts on the ability of developing countries to address poverty and provide public services, with a particular impact on women’s rights.”

The African Union’s declaration is that 2025 is the Year of Reparations and presents an opportunity to stand up to both historical injustices and the continuing injustices that arise from the colonial international financial architecture. 

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