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Public policy · PNMC

National Policy on Climate Change (PNMC), established by Law No. 12,187/2009, with the National Plan on Climate Change (Plano Clima) and the National Fund on Climate Change (Climate Fund, Law No. 12,114/2009)

Problem
Reduce anthropogenic greenhouse gas emissions and implement adaptation measures in the three spheres of the Federation, reconciling economic and social development with protection of the climate system.
Who it serves
The Union, states, the Federal District and municipalities, which must integrate their actions, and the sectors with mitigation and adaptation plans provided for in the law, such as electric power, transport, industry, mining, construction, health and agriculture and livestock.
How it works
Law No. 12,187/2009, approved by Congress and signed into law with vetoes, among them to the provision that barred budget freezes and to the guidelines on moving away from fossil fuels, sets out principles, objectives and instruments, such as the National Plan on Climate Change, the Climate Fund and the deforestation control plans, and set a voluntary commitment to reduce projected emissions by between 36.1% and 38.9% by 2020, detailed by decree. The National Plan, of December 2008, was published by the Interministerial Committee on Climate Change, created in 2007, with public consultations that included the 3rd National Environment Conference and the Brazilian Climate Change Forum; the Interministerial Commission on Global Climate Change, of 1999, is among the institutional instruments. The Climate Fund (Law No. 12,114/2009) has a steering committee linked to the MMA, with representatives of the federal Executive Branch and the nongovernmental sector, and the BNDES as financial agent.

EnvironmentInternational relations

Relation to the Lula governments

Created under Lula · Second term (2007 to 2010) · from November 2007 to 2010

According to the 2008 National Plan on Climate Change, in April 2007 the President of the Republic, accepting a suggestion from the Ministry of the Environment and the Executive Secretariat of the Brazilian Climate Change Forum, put on the government agenda the drawing up of a plan, initially called the National Action Plan for Confronting Climate Change; the Forum prepared a reference proposal delivered to the President.[1]

Decree No. 6,263 of November 21, 2007, signed by Luiz Inácio Lula da Silva, established the Interministerial Committee on Climate Change (CIM), on a permanent basis, to guide the drawing up, implementation, monitoring and evaluation of the National Plan on Climate Change, coordinated by the Casa Civil (Chief of Staff's Office) of the Presidency of the Republic.[2]

Decree No. 6,263/2007 established the Executive Group on Climate Change, coordinated by the Ministry of the Environment, tasked with drawing up, by January 11, 2008, a preliminary proposal of the general objectives, principles and guidelines of the National Policy on Climate Change and, by April 30, 2008, a preliminary version of the National Plan on Climate Change.[3]

The National Plan on Climate Change was published by the Interministerial Committee on Climate Change, established by Decree No. 6,263/2007, dated December 2008; according to the TCU, the Plan was established in December 2008, even before the PNMC.[4]

Shared implementation · Second term (2007 to 2010) · from 2007 to 2010

Law No. 12,187 of December 29, 2009, which establishes the National Policy on Climate Change, was signed into law with a partial veto by Luiz Inácio Lula da Silva (reasons in message No. 1,123/2009); the text approved by Congress originates in PL 18/2007.[5]

Law No. 12,114 of December 9, 2009, signed into law by Luiz Inácio Lula da Silva, created the National Fund on Climate Change (FNMC), of an accounting nature and linked to the Ministry of the Environment, to support mitigation and adaptation projects, studies and undertakings; its resources include up to 60% of the MMA's share of the special participation on oil, budget appropriations and donations.[6]

According to the 2008 National Plan on Climate Change, the 3rd National Environment Conference had climate change as its theme, mobilized more than 115,000 people in 566 municipal, 153 regional and 26 state conferences, and its national plenary had 1,104 delegates; its central objectives included offering proposals for drawing up the Plan.[7]

Reshaped under Lula · Third term (since 2023) · since June 2023

Under Decree No. 11,550/2023, the CIM is responsible for deliberating on the country's strategies for drawing up, implementing, financing, monitoring, evaluating and updating climate change policies, plans and actions, including defining the country's successive nationally determined contributions, and for coordinating the drawing up, implementation and monitoring of the sectoral mitigation and adaptation plans; the Executive Coordinator of the Brazilian Climate Change Forum and the Scientific Coordinator of the Rede Clima are permanent members of the CIM, without voting rights.[8]

Law No. 15,042 of December 11, 2024, signed by Luiz Inácio Lula da Silva, amended item VIII of art. 4 of Law No. 12,187/2009 to provide for encouraging the development of the Brazilian Greenhouse Gas Emissions Trading System (SBCE) and repealed art. 9 of that law, which dealt with the Brazilian Emissions Reduction Market.[9]

Expanded under Lula · Third term (since 2023) · since 2024

According to SIOP, action 00J4 (Reimbursable Financing of Projects for Climate Change Mitigation and Adaptation) had an authorized appropriation and amount paid in the fiscal year of R$444,105,542 in 2022 and R$634,395,655 in 2023; nominal values.[10]

According to SIOP, action 00J4, renamed Reimbursable Financial Support through Financing and other Financial Instruments for Climate Change Mitigation and Adaptation Projects, had in 2024 an authorized appropriation of R$13,592,986,061 and an amount paid in the fiscal year of R$10,456,421,543, and in 2025 an authorized appropriation of R$26,529,664,200, R$26,529,657,995 committed and an amount paid in the fiscal year of R$15,584,657,995; nominal values. The TCU describes action 00J4 as the portion of reimbursable resources of the Climate Fund, in official credit operations.[11]

According to the TCU, the amount of funds planned in climate-change-related programs reached R$45.7 billion in program 1158 (Confronting the Climate Emergency) of the 2024 to 2027 PPA; for 2024, the budget authorized in the LOA for program 1158 was R$10.493 billion, of which R$10.456 billion in action 00J4.[12]

Shared implementation · Third term (since 2023) · since 2024

Law No. 14,904 of June 27, 2024, signed into law by Luiz Inácio Lula da Silva, establishes guidelines for climate change adaptation plans on the basis of Law No. 12,187/2009, defines the national adaptation plan as part of the National Plan on Climate Change and allows FNMC funds to be used in municipal adaptation plans.[13]

Origin and precursors

Origin milestone: founding legal act, Second term (2007 to 2010).

Law No. 12,187 of December 29, 2009, which establishes the National Policy on Climate Change, was signed into law with a partial veto by Luiz Inácio Lula da Silva (reasons in message No. 1,123/2009); the text approved by Congress originates in PL 18/2007.[5]

Precursors

  • United Nations Framework Convention on Climate Change (1992) and Kyoto Protocol (1997) earlier legal basis According to the 2008 National Plan on Climate Change, the United Nations Framework Convention on Climate Change was the path chosen by the international community, in 1992, to create a regime on the problem, and the Kyoto Protocol, of 1997, establishes quantified obligations to limit or reduce emissions for the industrialized countries listed in Annex I of the Convention.[14]
  • Interministerial Commission on Global Climate Change (Decree of July 7, 1999) earlier technical basis The Interministerial Commission on Global Climate Change was established by the Decree of July 7, 1999, and its resolutions are listed by Law No. 12,187/2009 among the instruments of the PNMC.[15]
  • Brazilian Forum on Climate Change (Decree No. 3,515/2000) earlier technical basis The Brazilian Climate Change Forum was created by Decree No. 3,515 of June 20, 2000, with the aim of raising awareness and mobilizing society for discussion and decision-making on the impacts of gas emissions from human activities, according to the 2008 National Plan on Climate Change.[16]

Precursor investigation: new structure established (October 14, 2026).

Scope: Law No. 12,187/2009 and veto message; Decrees 6,263/2007, 7,343/2010, 7,390/2010, 9,578/2018, 10,145/2019, 10,845/2021 and 11,550/2023 (original publications at the Chamber of Deputies); Laws 12,114/2009, 14,904/2024 and 15,042/2024; legislative tracking records of PLs 18/2007, 3,535/2008, 2,223/2007, 3,820/2008 and 4,129/2021 (Chamber of Deputies) and of PLC 283/2009 (Senate); 2008 National Plan on Climate Change (history of its drafting, UNFCCC, Kyoto, 1999 Interministerial Commission, 2000 FBMC, 2007 Joint Committee of Congress); TCU audit (Ruling 2201/2024).

Responsibilities

  • Ministry of the Environment and Climate Change (National Climate Change Secretariat; manager of the Climate Fund) federal management

    According to the MMA, the Climate Fund has two modalities: the reimbursable one, operated by the BNDES, and the non-reimbursable one, operated by the MMA, both subject to the guidelines of the Steering Committee.[17]

  • Brazilian Development Bank (BNDES) (financial agent of the Climate Fund) financial operation

    The FNMC is administered by a Steering Committee linked to the MMA, with 6 representatives of the federal Executive Branch and 5 of the nongovernmental sector, and has the BNDES as financial agent; the resources are applied in reimbursable loans, through the operating agent, and in non-reimbursable support to projects approved by the Steering Committee.[18]

  • Brazilian Forum on Climate Change and Social Participation Chamber of the CIM social participation

    According to an MMA page, the CIM is made up of 23 ministries at the political level and has three Advisory Chambers: for Social Participation, for Scientific Advice and for Interfederative Coordination.[19]

Timeline

Timeline of National Policy on Climate Change (PNMC), established by Law No. 12,187/2009, with the National Plan on Climate Change (Plano Clima) and the National Fund on Climate Change (Climate Fund, Law No. 12,114/2009)
DatePhaseWhat happened
April 2007AnnouncementDrawing up a national plan for confronting climate change enters the government agenda, at the suggestion of the MMA and the FBMC.[1]
November 2007Legal actDecree No. 6,263/2007 establishes the CIM and guides the drawing up of the National Plan on Climate Change.[2]
December 2008LaunchPublication of the National Plan on Climate Change by the CIM.[4]
December 2009Legal actLaw No. 12,114/2009 creates the National Fund on Climate Change.[6]
December 2009Legal actLaw No. 12,187/2009 establishes the PNMC, signed into law with partial vetoes.[5]
2016LaunchNational Adaptation Plan (MMA Ordinance 150/2016).[20]
November 2018Legal actDecree No. 9,578/2018 consolidates the regulation of the PNMC and the Climate Fund and repeals Decrees 7,343/2010 and 7,390/2010.[21]
October 2021Legal actDecree No. 10,845/2021 creates the Interministerial Committee on Climate Change and Green Growth.[22]
September 2023RelaunchCIM Resolution No. 3/2023 defines the structure of the new Plano Clima.[23]
June 2024Legal actLaw No. 14,904/2024 establishes guidelines for adaptation plans.[13]
November 2024AnnouncementNDC with a target of reducing net emissions by 59% to 67% below 2005 levels in 2035.[24]
December 2024Legal actLaw No. 15,042/2024 establishes the SBCE and amends Law No. 12,187/2009.[9]

How it works

Under Decree No. 6,263/2007, the National Plan on Climate Change would define mitigation and adaptation actions and would be structured around four thematic axes: mitigation; vulnerability, impact and adaptation; research and development; and capacity building and dissemination.[25]

The 2008 National Plan on Climate Change set as an objective reducing deforestation by 40% in the period 2006 to 2009, relative to the 1996 to 2005 average (the reference period of the Amazon Fund), and a further 30% in each of the two following four-year periods, making these reductions conditional on new and additional national and international resources.[26]

The 2008 Plan included the objectives of eliminating the net loss of forest cover area in Brazil by 2015 and of doubling the area of planted forests from 5.5 million to 11 million hectares in 2020, of which 2 million hectares with native species.[27]

Law No. 12,187/2009 establishes that the PNMC will observe the principles of precaution, prevention, citizen participation, sustainable development and that of common but differentiated responsibilities, the latter in the international sphere, and that national actions must consider and integrate state and municipal actions.[28]

Among the objectives of the PNMC are reconciling economic and social development with protection of the climate system, reducing anthropogenic greenhouse gas emissions and implementing adaptation measures by the three spheres of the Federation.[29]

The instruments of the PNMC include, among others, the National Plan on Climate Change, the National Fund on Climate Change, the Action Plans for the Prevention and Control of Deforestation in the biomes and Brazil's National Communication to the Framework Convention.[30]

The law determined that a decree of the Executive Branch establish sectoral mitigation and adaptation plans, in sectors such as electric power, transport, industry, mining, construction, health and agriculture and livestock, with gradual targets for quantifiable and verifiable emission reductions.[31]

Art. 12 of Law No. 12,187/2009 set as a voluntary national commitment mitigation actions to reduce projected emissions by between 36.1% and 38.9% by 2020, leaving the projection and the detailing of the actions to a decree, based on the second Brazilian Inventory of Emissions.[32]

Governance

Decree No. 6,263/2007 provided for public consultations for the views of social movements, scientific institutions and other interested parties, including the 3rd National Environment Conference, regional meetings and the meetings of the Brazilian Climate Change Forum.[33]

According to the 2008 Plan, the Executive Secretariat of the Brazilian Climate Change Forum held Sectoral Dialogues to collect contributions to the Plan, hearing sectors such as industry, forestry, finance, agriculture, forests and land-use change, the municipalist movement, civil society and NGOs.[34]

Law No. 12,187/2009 lists as institutional instruments the Interministerial Committee on Climate Change, the Interministerial Commission on Global Climate Change, the Brazilian Climate Change Forum, the Rede Clima and the Coordinating Commission for Meteorology, Climatology and Hydrology Activities.[35]

Decree No. 7,390/2010 provided for the publication, starting in 2012, of annual emissions estimates, prepared by a working group coordinated by the Ministry of Science and Technology, and for monitoring of the actions by the Brazilian Climate Change Forum.[36]

Changes

Item VI of art. 3 as approved by Congress was vetoed, under which public expenditure on actions to confront climate change would not be subject to budget freezes; Message No. 1,123/2009 alleged that the matter is one for a complementary law and runs counter to the Fiscal Responsibility Law's principle of defining priorities in the budget guidelines laws.[37]

Following a statement by the Ministry of Mines and Energy, item III of art. 4 (encouraging clean technologies and the gradual abandonment of fossil sources) and art. 10 (gradual replacement of fossil fuels) were vetoed; the veto message considered a guideline focused on abandoning fossil fuels inappropriate.[38]

Budget and spending

Figures are nominal unless stated otherwise. Announced, authorized, committed, liquidated and paid amounts are different things and appear with the type indicated. In SIOP lines, "paid" means paid within the same fiscal year (arrears settled later are not counted), and one budget action can fund more than one program: the text says when the action is only part of a program.

According to SIOP, in 2011 action 00J4 (reimbursable financing of the Climate Fund) had an authorized appropriation and amount paid in the fiscal year of R$200,000,000, and action 20G4 (non-reimbursable funding) had an authorized appropriation of R$34,167,463, R$32,129,698 committed and R$1,863,267 paid in the fiscal year; nominal values, without carryover payables.[39]

According to SIOP, action 20G4 (non-reimbursable funding for mitigation and adaptation studies and projects) had an amount paid in the fiscal year of R$3,434,707 in 2023 and R$3,959,999 in 2025, with an authorized appropriation of R$4,160,000 in 2025; nominal values.[40]

Audits

The TCU concluded that the PNMC itself is outdated in relation to the international commitments undertaken after Law No. 12,187/2009, such as the Paris Agreement of 2015.[41]

Limitations

The PNMC target for 2020 was defined relative to emissions projected for that year (3,236 million tons of CO2eq, according to Decree No. 7,390/2010), and not relative to emissions verified in a base year.[42]

Context

According to the 2008 National Plan on Climate Change, the Special Joint Committee on Climate Change of the National Congress was created by Joint Act No. 1/2007 to monitor, track and oversee actions relating to global climate change, and the recommendations in its Final Report were, as far as possible, taken into account in the Plan.[43]

The 2024 NDC records that Brazil adopted an absolute economy-wide target since its iNDC, in 2015, and has a commitment to climate neutrality by 2050.[44]

Related indicators

A change in an indicator during a term does not, by itself, prove an effect of the program.

Sources and evidence

Excerpts are quoted in the original language of the source.

  1. 1. According to the 2008 National Plan on Climate Change, in April 2007 the President of the Republic, accepting a suggestion from the Ministry of the Environment and the Executive Secretariat of the Brazilian Climate Change Forum, put on the government agenda the drawing up of a plan, initially called the National Action Plan for Confronting Climate Change; the Forum prepared a reference proposal delivered to the President.

    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: ch. I, section Brazilian Climate Change Forum, p. 18. Accessed October 14, 2026.
      “Em abril de 2007, o Presidente da República, acatando sugestão do Ministério de Meio Ambiente (MMA) e da Secretaria Executiva do Fórum Brasileiro de Mudanças Climáticas (FBMC), colocou na pauta de atividades de governo a elaboração de um plano, inicialmente denominado “Plano de Ação Nacional de Enfretamento das Mudanças Climáticas”, orientado a estruturar e coordenar as ações de governo concernentes às repercussões do aquecimento global advindo das atividades antropogênicas.”
    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: ch. I, p. 18. Accessed October 14, 2026.
      “Como forma de atender a essa demanda, o FBMC promoveu diversas reuniões que culminaram na elaboração de um documento de referência intitulado “Proposta do FBMC para o Plano de Ação Nacional de Enfrentamento das Mudanças Climáticas”, sendo este entregue ao Presidente da República.”

  2. 2. Decree No. 6,263 of November 21, 2007, signed by Luiz Inácio Lula da Silva, established the Interministerial Committee on Climate Change (CIM), on a permanent basis, to guide the drawing up, implementation, monitoring and evaluation of the National Plan on Climate Change, coordinated by the Casa Civil (Chief of Staff's Office) of the Presidency of the Republic.

    • Decreto nº 6.263, de 21 de novembro de 2007 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: summary and art. 1, item I. Accessed October 14, 2026.
      “Art. 1º Fica instituído o Comitê Interministerial sobre Mudança do Clima - CIM, de caráter permanente, para: I - orientar a elaboração, a implementação, o monitoramento e a avaliação do Plano Nacional sobre Mudança do Clima;”
    • Decreto nº 6.263, de 21 de novembro de 2007 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 2, item I. Accessed October 14, 2026.
      “Art. 2º O CIM será integrado por um representante, titular e suplente, de cada órgão a seguir indicado: I - Casa Civil da Presidência da República, que o coordenará;”
    • Decreto nº 6.263, de 21 de novembro de 2007 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: signature. Accessed October 14, 2026.
      “Brasília, 21 de novembro de 2007; 186º da Independência e 119º da República. LUIZ INÁCIO LULA DA SILVA”

  3. 3. Decree No. 6,263/2007 established the Executive Group on Climate Change, coordinated by the Ministry of the Environment, tasked with drawing up, by January 11, 2008, a preliminary proposal of the general objectives, principles and guidelines of the National Policy on Climate Change and, by April 30, 2008, a preliminary version of the National Plan on Climate Change.

    • Decreto nº 6.263, de 21 de novembro de 2007 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 3, items I and II. Accessed October 14, 2026.
      “I - elaborar, até 11 de janeiro de 2008, proposta preliminar dos objetivos gerais, princípios e diretrizes da Política Nacional sobre Mudança do Clima: II - elaborar, até 30 de abril de 2008, versão preliminar do Plano Nacional sobre Mudança do Clima, sob a orientação do CIM;”
    • Decreto nº 6.263, de 21 de novembro de 2007 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 4, item I. Accessed October 14, 2026.
      “Art. 4º O Grupo Executivo sobre Mudança do Clima será integrado por um representante, titular e suplente, de cada órgão e entidade a seguir indicados: I - Ministério do Meio Ambiente, que o coordenará;”

  4. 4. The National Plan on Climate Change was published by the Interministerial Committee on Climate Change, established by Decree No. 6,263/2007, dated December 2008; according to the TCU, the Plan was established in December 2008, even before the PNMC.

  5. 5. Law No. 12,187 of December 29, 2009, which establishes the National Policy on Climate Change, was signed into law with a partial veto by Luiz Inácio Lula da Silva (reasons in message No. 1,123/2009); the text approved by Congress originates in PL 18/2007.

    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: summary and art. 1. Accessed October 14, 2026.
      “Art. 1º Esta Lei institui a Política Nacional sobre Mudança do Clima - PNMC e estabelece seus princípios, objetivos, diretrizes e instrumentos.”
    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: signature. Accessed October 14, 2026.
      “Brasília, 29 de dezembro de 2009; 188º da Independência e 121º da República. LUIZ INÁCIO LULA DA SILVA”
    • PL 18/2007, ficha de tramitação · Chamber of Deputies Official record
      Where: proceedings, December 29, 2009. Accessed October 14, 2026.
      “Transformado na Lei Ordinária 12187/2009. DOU 29 12 09 PÁG 109 COL 02. Vetado parcialmente. Razões do veto: MSC 1.123/09 -PE DOU 29 12 09 PÁG 159 COL 01. Ed.ex.”

  6. 6. Law No. 12,114 of December 9, 2009, signed into law by Luiz Inácio Lula da Silva, created the National Fund on Climate Change (FNMC), of an accounting nature and linked to the Ministry of the Environment, to support mitigation and adaptation projects, studies and undertakings; its resources include up to 60% of the MMA's share of the special participation on oil, budget appropriations and donations.

    • Lei nº 12.114, de 9 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 2. Accessed October 14, 2026.
      “Art. 2º Fica criado o Fundo Nacional sobre Mudança do Clima - FNMC, de natureza contábil, vinculado ao Ministério do Meio Ambiente, com a finalidade de assegurar recursos para apoio a projetos ou estudos e financiamento de empreendimentos que visem à mitigação da mudança do clima e à adaptação à mudança do clima e aos seus efeitos.”
    • Lei nº 12.114, de 9 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 3, items I, II and IV. Accessed October 14, 2026.
      “Art. 3º Constituem recursos do FNMC: I - até 60% (sessenta por cento) dos recursos de que trata o inciso II do § 2º do art. 50 da Lei nº 9.478, de 6 de agosto de 1997; II - dotações consignadas na lei orçamentária anual da União e em seus créditos adicionais;”
    • Lei nº 12.114, de 9 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 3, item IV. Accessed October 14, 2026.
      “IV - doações realizadas por entidades nacionais e internacionais, públicas ou privadas;”
    • Lei nº 12.114, de 9 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: signature. Accessed October 14, 2026.
      “Brasília, 9 de dezembro de 2009; 188º da Independência e 121º da República. LUIZ INÁCIO LULA DA SILVA”

  7. 7. According to the 2008 National Plan on Climate Change, the 3rd National Environment Conference had climate change as its theme, mobilized more than 115,000 people in 566 municipal, 153 regional and 26 state conferences, and its national plenary had 1,104 delegates; its central objectives included offering proposals for drawing up the Plan.

    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: ch. I, section 3rd National Environment Conference, p. 18. Accessed October 14, 2026.
      “A III Conferência Nacional do Meio Ambiente (III CNMA) teve como tema as Mudanças Climáticas. Foram mobilizadas mais de 115.000 pessoas em todo o País por meio da realização de 566 conferências municipais, 153 regionais e 26 estaduais. A plenária nacional contou com a participação de 1.104 delegados.”
    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: ch. I, p. 18. Accessed October 14, 2026.
      “Os objetivos centrais da III CNMA foram promover o debate sobre o tema mudanças climáticas e oferecer propostas para a formulação do Plano Nacional sobre Mudança do Clima.”

  8. 8. Under Decree No. 11,550/2023, the CIM is responsible for deliberating on the country's strategies for drawing up, implementing, financing, monitoring, evaluating and updating climate change policies, plans and actions, including defining the country's successive nationally determined contributions, and for coordinating the drawing up, implementation and monitoring of the sectoral mitigation and adaptation plans; the Executive Coordinator of the Brazilian Climate Change Forum and the Scientific Coordinator of the Rede Clima are permanent members of the CIM, without voting rights.

    • Decreto nº 11.550, de 5 de junho de 2023 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 2, item IV. Accessed October 14, 2026.
      “IV - deliberar sobre as estratégias do País para a elaboração, a implementação, o financiamento, o monitoramento, a avaliação e a atualização das políticas, dos planos e das ações relativos à mudança do clima, dentre os quais a definição das sucessivas contribuições nacionalmente determinadas do País,”
    • Decreto nº 11.550, de 5 de junho de 2023 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 2, item VI. Accessed October 14, 2026.
      “VI - coordenar a elaboração, a implementação e o acompanhamento dos planos setoriais de mitigação e de adaptação no âmbito da PNMC, das contribuições nacionalmente determinadas,”
    • Decreto nº 11.550, de 5 de junho de 2023 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 3, § 2. Accessed October 14, 2026.
      “§ 2º São membros permanentes do CIM, sem direito a voto: I - o Coordenador-Executivo do Fórum Brasileiro de Mudança do Clima - FBMC; e II - o Coordenador-Científico da Rede Brasileira de Pesquisas sobre Mudanças Climáticas Globais - Rede Clima.”

  9. 9. Law No. 15,042 of December 11, 2024, signed by Luiz Inácio Lula da Silva, amended item VIII of art. 4 of Law No. 12,187/2009 to provide for encouraging the development of the Brazilian Greenhouse Gas Emissions Trading System (SBCE) and repealed art. 9 of that law, which dealt with the Brazilian Emissions Reduction Market.

    • Lei nº 15.042, de 11 de dezembro de 2024 (publicação) · Federal Senate (Legislation) Official legal act
      Where: art. 52. Accessed October 14, 2026.
      “Art. 52. O inciso VIII do caput do art. 4º da Lei nº 12.187, de 29 de dezembro de 2009 , passa a vigorar com a seguinte redação: “ Art. 4º ..................................................... .......................................................... VIII – ao estímulo ao desenvolvimento do Sistema Brasileiro de Comércio de Emissões de Gases de Efeito Estufa (SBCE).”
    • Lei nº 15.042, de 11 de dezembro de 2024 (publicação) · Federal Senate (Legislation) Official legal act
      Where: art. 57. Accessed October 14, 2026.
      “Art. 57. Fica revogado o art. 9º da Lei nº 12.187, de 29 de dezembro de 2009 .”
    • Lei nº 15.042, de 11 de dezembro de 2024 (publicação) · Federal Senate (Legislation) Official legal act
      Where: signature. Accessed October 14, 2026.
      “Brasília, 11 de dezembro de 2024; 203º da Independência e 136º da República. LUIZ INÁCIO LULA DA SILVA”
    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 9 (original wording). Accessed October 14, 2026.
      “Art. 9º O Mercado Brasileiro de Redução de Emissões - MBRE será operacionalizado em bolsas de mercadorias e futuros, bolsas de valores e entidades de balcão organizado,”

  10. 10. According to SIOP, action 00J4 (Reimbursable Financing of Projects for Climate Change Mitigation and Adaptation) had an authorized appropriation and amount paid in the fiscal year of R$444,105,542 in 2022 and R$634,395,655 in 2023; nominal values.

  11. 11. According to SIOP, action 00J4, renamed Reimbursable Financial Support through Financing and other Financial Instruments for Climate Change Mitigation and Adaptation Projects, had in 2024 an authorized appropriation of R$13,592,986,061 and an amount paid in the fiscal year of R$10,456,421,543, and in 2025 an authorized appropriation of R$26,529,664,200, R$26,529,657,995 committed and an amount paid in the fiscal year of R$15,584,657,995; nominal values. The TCU describes action 00J4 as the portion of reimbursable resources of the Climate Fund, in official credit operations.

  12. 12. According to the TCU, the amount of funds planned in climate-change-related programs reached R$45.7 billion in program 1158 (Confronting the Climate Emergency) of the 2024 to 2027 PPA; for 2024, the budget authorized in the LOA for program 1158 was R$10.493 billion, of which R$10.456 billion in action 00J4.

  13. 13. Law No. 14,904 of June 27, 2024, signed into law by Luiz Inácio Lula da Silva, establishes guidelines for climate change adaptation plans on the basis of Law No. 12,187/2009, defines the national adaptation plan as part of the National Plan on Climate Change and allows FNMC funds to be used in municipal adaptation plans.

    • Lei nº 14.904, de 27 de junho de 2024 (publicação) · Federal Senate (Legislation) Official legal act
      Where: art. 1. Accessed October 14, 2026.
      “Art. 1º Esta Lei estabelece diretrizes para a elaboração de planos de adaptação à mudança do clima, com o objetivo de implementar medidas para reduzir a vulnerabilidade e a exposição a riscos dos sistemas ambiental, social, econômico e de infraestrutura diante dos efeitos adversos atuais e esperados da mudança do clima, com fundamento na Lei nº 12.187, de 29 de dezembro de 2009 , que institui a Política Nacional sobre Mudança do Clima (PNMC).”
    • Lei nº 14.904, de 27 de junho de 2024 (publicação) · Federal Senate (Legislation) Official legal act
      Where: art. 5, § 1. Accessed October 14, 2026.
      “§ 1º O plano nacional de adaptação à mudança do clima é parte integrante do Plano Nacional sobre Mudança do Clima, nos termos da Lei nº 12.187, de 29 de dezembro de 2009 .”
    • Lei nº 14.904, de 27 de junho de 2024 (publicação) · Federal Senate (Legislation) Official legal act
      Where: art. 11. Accessed October 14, 2026.
      “§ 5º Poderão ser utilizados recursos do FNMC para o financiamento da elaboração e da implementação de planos municipais de adaptação à mudança do clima ou de planos municipais de mudança do clima que incluam o componente adaptação.””
    • Lei nº 14.904, de 27 de junho de 2024 (publicação) · Federal Senate (Legislation) Official legal act
      Where: signature. Accessed October 14, 2026.
      “Brasília, 27 de junho de 2024; 203º da Independência e 136º da República. LUIZ INÁCIO LULA DA SILVA”

  14. 14. According to the 2008 National Plan on Climate Change, the United Nations Framework Convention on Climate Change was the path chosen by the international community, in 1992, to create a regime on the problem, and the Kyoto Protocol, of 1997, establishes quantified obligations to limit or reduce emissions for the industrialized countries listed in Annex I of the Convention.

    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: ch. I, History and drafting process, p. 15. Accessed October 14, 2026.
      “A Convenção-Quadro das Nações Unidas sobre Mudança do Clima (CQNUMC) foi o caminho escolhido pela comunidade internacional, em 1992, para criar um regime que busca combinar eficiência no combate às causas do problema e eqüidade na distribuição do ônus decorrente das medidas que devem ser tomadas para mitigá-lo.”
    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: ch. I, p. 15. Accessed October 14, 2026.
      “O Protocolo de Quioto, de 1997, estabelece, por sua vez, obrigações quantificadas de limitação ou redução de emissões para os países industrializados, relacionados no Anexo I da Convenção.”

  15. 15. The Interministerial Commission on Global Climate Change was established by the Decree of July 7, 1999, and its resolutions are listed by Law No. 12,187/2009 among the instruments of the PNMC.

  16. 16. The Brazilian Climate Change Forum was created by Decree No. 3,515 of June 20, 2000, with the aim of raising awareness and mobilizing society for discussion and decision-making on the impacts of gas emissions from human activities, according to the 2008 National Plan on Climate Change.

    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: ch. I, section Brazilian Climate Change Forum, p. 18. Accessed October 14, 2026.
      “Para trazer o tema ao seio da sociedade, foi criado o Fórum Brasileiro de Mudanças Climáticas (FBMC) pelo Decreto nº 3.515 de 20 de junho de 2000, tendo como objetivo ”conscientizar e mobilizar a sociedade para a discussão e tomada de decisão” sobre os impactos das emissões de gases, por atividades humanas, que intensificam o efeito estufa.”

  17. 17. According to the MMA, the Climate Fund has two modalities: the reimbursable one, operated by the BNDES, and the non-reimbursable one, operated by the MMA, both subject to the guidelines of the Steering Committee.

    • Fundo Nacional sobre Mudança do Clima (Fundo Clima), página do MMA · Ministry of Environment and Climate Change Government communication
      Where: text of the page. Accessed October 14, 2026.
      “O Fundo é dividido em duas modalidades: reembolsável (operacionalizado pelo BNDES) e não-reembolsável (operacionalizado pelo MMA) – ambas as modalidades devem seguir as diretrizes estabelecidas pelo Comitê Gestor do Fundo.”

  18. 18. The FNMC is administered by a Steering Committee linked to the MMA, with 6 representatives of the federal Executive Branch and 5 of the nongovernmental sector, and has the BNDES as financial agent; the resources are applied in reimbursable loans, through the operating agent, and in non-reimbursable support to projects approved by the Steering Committee.

    • Lei nº 12.114, de 9 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 4. Accessed October 14, 2026.
      “Art. 4º O FNMC será administrado por um Comitê Gestor vinculado ao Ministério do Meio Ambiente, que o coordenará, cuja competência e composição serão estabelecidos em regulamento, assegurada a participação de 6 (seis) representantes do Poder Executivo federal e 5 (cinco) representantes do setor não governamental.”
    • Lei nº 12.114, de 9 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 5, items I and II. Accessed October 14, 2026.
      “Art. 5º Os recursos do FNMC serão aplicados: I - em apoio financeiro reembolsável mediante concessão de empréstimo, por intermédio do agente operador; II - em apoio financeiro, não reembolsável, a projetos relativos à mitigação da mudança do clima ou à adaptação à mudança do clima e aos seus efeitos, aprovados pelo Comitê Gestor do FNMC, conforme diretrizes previamente estabelecidas pelo Comitê.”
    • Lei nº 12.114, de 9 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 7. Accessed October 14, 2026.
      “Art. 7º O FNMC terá como agente financeiro o Banco Nacional de Desenvolvimento Econômico e Social - BNDES.”

  19. 19. According to an MMA page, the CIM is made up of 23 ministries at the political level and has three Advisory Chambers: for Social Participation, for Scientific Advice and for Interfederative Coordination.

    • Comitê Interministerial sobre Mudança do Clima (CIM), página do MMA · Ministry of Environment and Climate Change Government communication
      Where: text of the page. Accessed October 14, 2026.
      “No âmbito político, o CIM é composto por 23 ministérios, que deliberam e definem as políticas, programas e ações nacionais sobre mudança do clima.”
    • Comitê Interministerial sobre Mudança do Clima (CIM), página do MMA · Ministry of Environment and Climate Change Government communication
      Where: text of the page. Accessed October 14, 2026.
      “No nível consultivo, o CIM conta com três Câmaras Consultivas: a de Participação Social (CPS), a de Assessoramento Científico (CAC) e a de Articulação Interfederativa (CAI).”

  20. 20. According to the TCU, the National Adaptation Plan was launched in 2016 by MMA Ordinance 150/2016, which also established the Adaptation Technical Group; at the end of the first cycle, in 2020, the PNA was not revised and had no new targets.

  21. 21. Decree No. 9,578 of November 22, 2018, signed by Michel Temer, consolidated the normative acts on the FNMC and the PNMC, repealed Decrees No. 7,343/2010 and No. 7,390/2010 and kept the projection of 3,236 million tons of CO2eq for 2020.

    • Decreto nº 9.578, de 22 de novembro de 2018 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 1. Accessed October 14, 2026.
      “Art. 1º Este Decreto consolida os atos normativos editados pelo Poder Executivo federal que dispõem sobre o Fundo Nacional sobre Mudança do Clima, de que trata a Lei nº 12.114, de 9 de dezembro de 2009, e a Política Nacional sobre Mudança do Clima, de que trata a Lei nº 12.187, de 29 de dezembro de 2009,”
    • Decreto nº 9.578, de 22 de novembro de 2018 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 18. Accessed October 14, 2026.
      “Art. 18. A projeção das emissões nacionais de gases do efeito estufa para o ano de 2020, de que trata o parágrafo único do art. 12 da Lei nº 12.187, de 2009, será de 3.236 milhões tonCO2eq,”
    • Decreto nº 9.578, de 22 de novembro de 2018 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 25 and signature. Accessed October 14, 2026.
      “Art. 25. Ficam revogados: I - o Decreto nº 7.343, 26 de outubro de 2010; e II - o Decreto nº 7.390, de 9 de dezembro de 2010. Art. 26. Este Decreto entra em vigor na data de sua publicação. Brasília, 22 de novembro de 2018; 197º da Independência e 130º da República. MICHEL TEMER”

  22. 22. Decree No. 10,845 of October 25, 2021, signed by Jair Messias Bolsonaro, provides for the Interministerial Committee on Climate Change and Green Growth (CIMV), on a permanent basis, with responsibilities tied to the National Green Growth Program, and repealed Decree No. 10,145 of November 28, 2019.

    • Decreto nº 10.845, de 25 de outubro de 2021 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 1. Accessed October 14, 2026.
      “Art. 1º O Comitê Interministerial sobre a Mudança do Clima e o Crescimento Verde - CIMV, de caráter permanente, tem a finalidade de estabelecer diretrizes, articular e coordenar a implementação das ações e políticas públicas do País relativas à mudança do clima.”
    • Decreto nº 10.845, de 25 de outubro de 2021 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 2, item IX. Accessed October 14, 2026.
      “IX - estabelecer as diretrizes específicas do Programa Nacional de Crescimento Verde, instituído pelo Decreto nº 10.846, de 25 de outubro de 2021, além da elaboração e da governança das ações necessárias à sua implementação; e”
    • Decreto nº 10.845, de 25 de outubro de 2021 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: arts. 20 and 21 and signature. Accessed October 14, 2026.
      “Art. 20. Fica revogado o Decreto nº 10.145, de 28 de novembro de 2019. Art. 21. Este Decreto entra em vigor na data de sua publicação. Brasília, 25 de outubro de 2021; 200º da Independência e 133º da República. JAIR MESSIAS BOLSONARO”

  23. 23. According to Brazil's NDC, the CIM defined, by Resolution No. 3 of September 14, 2023, that the new Plano Clima will include the National Adaptation Strategy, with sixteen sectoral adaptation plans, the National Mitigation Strategy, with seven sectoral mitigation plans, and a Cross-cutting Strategy.

    • A NDC do Brasil: determinação nacional em contribuir e transformar (versão em português) · Federal Government (Ministry of Environment and Climate Change) Official record
      Where: section on the Plano Clima. Accessed October 14, 2026.
      “Definido pelo Comitê Interministerial sobre Mudança do Clima – CIM -, a mais alta instância de governança climática brasileira, via Resolução nº 3, de 14 de setembro de 2023, o novo Plano Clima incluirá: a “Estratégia Nacional de Adaptação”, com dezesseis planos setoriais de adaptação; a “Estratégia Nacional de Mitigação”, com sete planos setoriais de mitigação; e uma “Estratégia Transversal”,”

  24. 24. In Brazil's NDC, after consulting the federal ministries within the CIM, Brazil is defining an economy-wide target of reducing its net greenhouse gas emissions by 59 to 67 percent below 2005 levels in 2035, consistent with an emission of 1.05 to 0.85 GtCO2e; to implement its NDC, Brazil will rely on the national process of updating the Plano Clima.

    • A NDC do Brasil: determinação nacional em contribuir e transformar (versão em português) · Federal Government (Ministry of Environment and Climate Change) Official record
      Where: section on information for clarity, transparency and understanding. Accessed October 14, 2026.
      “Após processo cuidadoso que envolveu análise e consulta aos ministérios federais no âmbito do Comitê Interministerial de Mudança do Clima (CIM), o Brasil está definindo uma meta para toda a economia de reduzir suas emissões líquidas de gases de efeito estufa em 59 a 67 por cento abaixo dos níveis de 2005 em 2035, o que é consistente, em termos absolutos, com uma emissão de 1,05 a 0,85 GtCO2e, de acordo com os dados mais recentes do inventário.”
    • A NDC do Brasil: determinação nacional em contribuir e transformar (versão em português) · Federal Government (Ministry of Environment and Climate Change) Official record
      Where: section on implementation. Accessed October 14, 2026.
      “Para implementar sua NDC, o Brasil se baseará no seu processo nacional de atualização do Plano Nacional sobre Mudança do Clima (Plano Clima).”

  25. 25. Under Decree No. 6,263/2007, the National Plan on Climate Change would define mitigation and adaptation actions and would be structured around four thematic axes: mitigation; vulnerability, impact and adaptation; research and development; and capacity building and dissemination.

    • Decreto nº 6.263, de 21 de novembro de 2007 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 5. Accessed October 14, 2026.
      “Art. 5º O Plano Nacional sobre Mudança do Clima definirá ações e medidas que visem à mitigação da mudança do clima, bem como à adaptação à mudança do clima. Parágrafo único. O Plano Nacional sobre Mudança do Clima será estruturado em quatro eixos temáticos: I - mitigação; II - vulnerabilidade, impacto e adaptação; III - pesquisa e desenvolvimento; e IV - capacitação e divulgação.”

  26. 26. The 2008 National Plan on Climate Change set as an objective reducing deforestation by 40% in the period 2006 to 2009, relative to the 1996 to 2005 average (the reference period of the Amazon Fund), and a further 30% in each of the two following four-year periods, making these reductions conditional on new and additional national and international resources.

    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: Introduction, specific objective on deforestation, p. 11. Accessed October 14, 2026.
      “O objetivo é reduzir o desmatamento em 40% no período 2006-2009, relativamente à média dos dez anos do período de referência do Fundo Amazônia (1996-2005), e 30% a mais em cada um dos dois quadriênios seguintes, relativamente aos quadriênios anteriores.”
    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: Introduction, p. 11. Accessed October 14, 2026.
      “A consecução dessas reduções dependerá necessariamente de recursos nacionais e internacionais, novos e adicionais, incluindo os captados pelo Fundo Amazônia, em níveis correspondentes à dimensão do problema.”

  27. 27. The 2008 Plan included the objectives of eliminating the net loss of forest cover area in Brazil by 2015 and of doubling the area of planted forests from 5.5 million to 11 million hectares in 2020, of which 2 million hectares with native species.

    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: Introduction, specific objective, p. 12. Accessed October 14, 2026.
      “Eliminar a perda líquida da área de cobertura florestal no Brasil, até 2015.”
    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: Introduction, p. 12. Accessed October 14, 2026.
      “O intuito é dobrar a área de florestas plantadas no Brasil dos atuais 5,5 milhões de ha para 11 milhões de ha em 2020, sendo 2 milhões de ha com espécies nativas, promovendo o plantio prioritariamente em áreas de pastos degradados, visando à recuperação econômica e ambiental destas.”

  28. 28. Law No. 12,187/2009 establishes that the PNMC will observe the principles of precaution, prevention, citizen participation, sustainable development and that of common but differentiated responsibilities, the latter in the international sphere, and that national actions must consider and integrate state and municipal actions.

    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 3, caput. Accessed October 14, 2026.
      “Art. 3º A PNMC e as ações dela decorrentes, executadas sob a responsabilidade dos entes políticos e dos órgãos da administração pública, observarão os princípios da precaução, da prevenção, da participação cidadã, do desenvolvimento sustentável e o das responsabilidades comuns, porém diferenciadas, este último no âmbito internacional,”
    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 3, item V. Accessed October 14, 2026.
      “V - as ações de âmbito nacional para o enfrentamento das alterações climáticas, atuais, presentes e futuras, devem considerar e integrar as ações promovidas no âmbito estadual e municipal por entidades públicas e privadas;”

  29. 29. Among the objectives of the PNMC are reconciling economic and social development with protection of the climate system, reducing anthropogenic greenhouse gas emissions and implementing adaptation measures by the three spheres of the Federation.

    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 4, items I and II. Accessed October 14, 2026.
      “Art. 4º A Política Nacional sobre Mudança do Clima - PNMC visará: I - à compatibilização do desenvolvimento econômico-social com a proteção do sistema climático; II - à redução das emissões antrópicas de gases de efeito estufa em relação às suas diferentes fontes;”
    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 4, item V. Accessed October 14, 2026.
      “V - à implementação de medidas para promover a adaptação à mudança do clima pelas 3 (três) esferas da Federação,”

  30. 30. The instruments of the PNMC include, among others, the National Plan on Climate Change, the National Fund on Climate Change, the Action Plans for the Prevention and Control of Deforestation in the biomes and Brazil's National Communication to the Framework Convention.

    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 6, items I to IV. Accessed October 14, 2026.
      “Art. 6º São instrumentos da Política Nacional sobre Mudança do Clima: I - o Plano Nacional sobre Mudança do Clima; II - o Fundo Nacional sobre Mudança do Clima; III - os Planos de Ação para a Prevenção e Controle do Desmatamento nos biomas; IV - a Comunicação Nacional do Brasil à Convenção-Quadro das Nações Unidas sobre Mudança do Clima,”

  31. 31. The law determined that a decree of the Executive Branch establish sectoral mitigation and adaptation plans, in sectors such as electric power, transport, industry, mining, construction, health and agriculture and livestock, with gradual targets for quantifiable and verifiable emission reductions.

    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 11, sole paragraph. Accessed October 14, 2026.
      “Parágrafo único. Decreto do Poder Executivo estabelecerá, em consonância com a Política Nacional sobre Mudança do Clima, os Planos setoriais de mitigação e de adaptação às mudanças climáticas visando à consolidação de uma economia de baixo consumo de carbono, na geração e distribuição de energia elétrica, no transporte público urbano e nos sistemas modais de transporte interestadual de cargas e passageiros, na indústria de transformação e na de bens de consumo duráveis, nas indústrias químicas fina e de base, na indústria de papel e celulose, na mineração, na indústria da construção civil, nos serviços de saúde e na agropecuária, com vistas em atender metas gradativas de redução de emissões antrópicas quantificáveis e verificáveis,”

  32. 32. Art. 12 of Law No. 12,187/2009 set as a voluntary national commitment mitigation actions to reduce projected emissions by between 36.1% and 38.9% by 2020, leaving the projection and the detailing of the actions to a decree, based on the second Brazilian Inventory of Emissions.

    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 12. Accessed October 14, 2026.
      “Art. 12. Para alcançar os objetivos da PNMC, o País adotará, como compromisso nacional voluntário, ações de mitigação das emissões de gases de efeito estufa, com vistas em reduzir entre 36,1% (trinta e seis inteiros e um décimo por cento) e 38,9% (trinta e oito inteiros e nove décimos por cento) suas emissões projetadas até 2020. Parágrafo único. A projeção das emissões para 2020 assim como o detalhamento das ações para alcançar o objetivo expresso no caput serão dispostos por decreto, tendo por base o segundo Inventário Brasileiro de Emissões e Remoções Antrópicas de Gases de Efeito Estufa não Controlados pelo Protocolo de Montreal, a ser concluído em 2010.”

  33. 33. Decree No. 6,263/2007 provided for public consultations for the views of social movements, scientific institutions and other interested parties, including the 3rd National Environment Conference, regional meetings and the meetings of the Brazilian Climate Change Forum.

    • Decreto nº 6.263, de 21 de novembro de 2007 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 6, caput and § 1. Accessed October 14, 2026.
      “Art. 6º A estratégia de elaboração do Plano Nacional sobre Mudança do Clima deverá prever a realização de consultas públicas, para manifestação dos movimentos sociais, das instituições científicas e de todos os demais agentes interessados no tema, com a finalidade de promover a transparência do processo de elaboração e de implementação do Plano. § 1º O Grupo Executivo sobre Mudança do Clima definirá o processo de consultas publicas, do qual farão parte a III Conferência Nacional do Meio Ambiente, reuniões regionais e as reuniões do Fórum Brasileiro de Mudanças Climáticas, entre outros.”

  34. 34. According to the 2008 Plan, the Executive Secretariat of the Brazilian Climate Change Forum held Sectoral Dialogues to collect contributions to the Plan, hearing sectors such as industry, forestry, finance, agriculture, forests and land-use change, the municipalist movement, civil society and NGOs.

    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: ch. I, p. 19. Accessed October 14, 2026.
      “Para a consecução desses objetivos, a Secretaria Executiva do FBMC realizou Diálogos Setoriais visando coletar contribuições à construção do PNMC.”
    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: ch. I, p. 19. Accessed October 14, 2026.
      “Nos diálogos setoriais e consultas públicas realizados, foram ouvidos diversos setores da sociedade, a exemplo da indústria, silvicultura, financeiro, agricultura, floresta e mudança de uso da terra, movimento municipalista, além da sociedade civil e ONGs.”

  35. 35. Law No. 12,187/2009 lists as institutional instruments the Interministerial Committee on Climate Change, the Interministerial Commission on Global Climate Change, the Brazilian Climate Change Forum, the Rede Clima and the Coordinating Commission for Meteorology, Climatology and Hydrology Activities.

    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 7. Accessed October 14, 2026.
      “Art. 7º Os instrumentos institucionais para a atuação da Política Nacional de Mudança do Clima incluem: I - o Comitê Interministerial sobre Mudança do Clima; II - a Comissão Interministerial de Mudança Global do Clima; III - o Fórum Brasileiro de Mudança do Clima; IV - a Rede Brasileira de Pesquisas sobre Mudanças Climáticas Globais - Rede Clima; V - a Comissão de Coordenação das Atividades de Meteorologia, Climatologia e Hidrologia.”

  36. 36. Decree No. 7,390/2010 provided for the publication, starting in 2012, of annual emissions estimates, prepared by a working group coordinated by the Ministry of Science and Technology, and for monitoring of the actions by the Brazilian Climate Change Forum.

    • Decreto nº 7.390, de 9 de dezembro de 2010 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 11. Accessed October 14, 2026.
      “Art. 11. Para fins de acompanhamento do cumprimento do previsto nos arts. 5º e 6º deste Decreto, serão publicadas, a partir de 2012, estimativas anuais de emissões de gases de efeito estufa no Brasil em formato apropriado para facilitar o entendimento por parte dos segmentos da sociedade interessados. Parágrafo único. O Ministério da Ciência e Tecnologia coordenará grupo de trabalho responsável por elaborar as estimativas”
    • Decreto nº 7.390, de 9 de dezembro de 2010 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 8. Accessed October 14, 2026.
      “Art. 8º A implementação das ações de trata o art. 6º será acompanhada pelo Fórum Brasileiro de Mudanças Climáticas, por meio de representantes dos setores que o compõem.”

  37. 37. Item VI of art. 3 as approved by Congress was vetoed, under which public expenditure on actions to confront climate change would not be subject to budget freezes; Message No. 1,123/2009 alleged that the matter is one for a complementary law and runs counter to the Fiscal Responsibility Law's principle of defining priorities in the budget guidelines laws.

    • Mensagem nº 1.123, de 29 de dezembro de 2009 (veto parcial à Lei nº 12.187/2009) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: veto of item VI of art. 3. Accessed October 14, 2026.
      “VI - o dispêndio público com as ações de enfrentamento das alterações climáticas não sofrerá contingenciamento de nenhuma espécie durante a execução orçamentária.”
    • Mensagem nº 1.123, de 29 de dezembro de 2009 (veto parcial à Lei nº 12.187/2009) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: reasons for the veto of item VI of art. 3. Accessed October 14, 2026.
      “O dispositivo carreia comando com mandamentos genéricos sobre finanças públicas, matéria afeta a Lei Complementar, conforme previsto no art. 163, I, da Constituição Federal. Ademais, o dispositivo contraria o princípio presente na Lei de Responsabilidade Fiscal de que as prioridades de cada exercício devam ser definidas por meio das leis de diretrizes orçamentárias.”

  38. 38. Following a statement by the Ministry of Mines and Energy, item III of art. 4 (encouraging clean technologies and the gradual abandonment of fossil sources) and art. 10 (gradual replacement of fossil fuels) were vetoed; the veto message considered a guideline focused on abandoning fossil fuels inappropriate.

    • Mensagem nº 1.123, de 29 de dezembro de 2009 (veto parcial à Lei nº 12.187/2009) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: vetoes of item III of art. 4 and of art. 10. Accessed October 14, 2026.
      “Ouvido, também, o Ministério de Minas e Energia manifestou- se pelo veto aos seguintes dispositivos: Inciso III do art. 4º”
    • Mensagem nº 1.123, de 29 de dezembro de 2009 (veto parcial à Lei nº 12.187/2009) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: vetoed text of item III of art. 4. Accessed October 14, 2026.
      “III - ao estímulo ao desenvolvimento e ao uso de tecnologias limpas e ao paulatino abandono do uso de fontes energéticas que utilizem combustíveis fósseis;”
    • Mensagem nº 1.123, de 29 de dezembro de 2009 (veto parcial à Lei nº 12.187/2009) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: reasons for the veto. Accessed October 14, 2026.
      “A atual política energética do Pais já tem priorizado a utilização de fontes de energia renováveis em sua matriz e obtido avanços amplamente reconhecidos no uso de tecnologias limpas. Uma das balizas dessa política é o aproveitamento racional dos vários recursos energéticos disponíveis, o que torna inadequada uma diretriz focada no abandono do uso de combustíveis fósseis.”
    • Mensagem nº 1.123, de 29 de dezembro de 2009 (veto parcial à Lei nº 12.187/2009) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: vetoed text of art. 10. Accessed October 14, 2026.
      “Art. 10. A substituição gradativa dos combustíveis fósseis, como instrumento de ação governamental no âmbito da PNMC, consiste no incentivo ao desenvolvimento de energias renováveis e no aumento progressivo de sua participação na matriz energética brasileira, em substituição aos combustíveis fósseis.”

  39. 39. According to SIOP, in 2011 action 00J4 (reimbursable financing of the Climate Fund) had an authorized appropriation and amount paid in the fiscal year of R$200,000,000, and action 20G4 (non-reimbursable funding) had an authorized appropriation of R$34,167,463, R$32,129,698 committed and R$1,863,267 paid in the fiscal year; nominal values, without carryover payables.

    • SIOP, consulta SPARQL de execução orçamentária, exercício 2011, ação 00J4 · Federal Budget Secretariat (SIOP) Budget and spending
      Where: CSV row (fiscal year 2011, action 00J4); columns: exercicio, codAcao, descAcao, loa, lei_mais_credito, empenhado, liquidado, pago. Accessed October 14, 2026.
      “2011,"00J4","Financiamento de Projetos para Mitigação e Adaptação à Mudança do Clima",200000000,200000000,200000000,200000000,200000000”
    • SIOP, consulta SPARQL de execução orçamentária, exercício 2011, ação 20G4 · Federal Budget Secretariat (SIOP) Budget and spending
      Where: CSV row (fiscal year 2011, action 20G4); columns: exercicio, codAcao, descAcao, loa, lei_mais_credito, empenhado, liquidado, pago. Accessed October 14, 2026.
      “2011,"20G4","Fomento a Projetos para Mitigação e Adaptação à Mudança do Clima",29167463,34167463,32129698,32129698,1863267”

  40. 40. According to SIOP, action 20G4 (non-reimbursable funding for mitigation and adaptation studies and projects) had an amount paid in the fiscal year of R$3,434,707 in 2023 and R$3,959,999 in 2025, with an authorized appropriation of R$4,160,000 in 2025; nominal values.

  41. 41. The TCU concluded that the PNMC itself is outdated in relation to the international commitments undertaken after Law No. 12,187/2009, such as the Paris Agreement of 2015.

  42. 42. The PNMC target for 2020 was defined relative to emissions projected for that year (3,236 million tons of CO2eq, according to Decree No. 7,390/2010), and not relative to emissions verified in a base year.

    • Lei nº 12.187, de 29 de dezembro de 2009 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 12. Accessed October 14, 2026.
      “com vistas em reduzir entre 36,1% (trinta e seis inteiros e um décimo por cento) e 38,9% (trinta e oito inteiros e nove décimos por cento) suas emissões projetadas até 2020.”
    • Decreto nº 7.390, de 9 de dezembro de 2010 (publicação original) · Chamber of Deputies (Computerized Legislation) Official legal act
      Where: art. 5. Accessed October 14, 2026.
      “Art. 5º A projeção das emissões nacionais de gases do efeito estufa para o ano de 2020 de que trata o parágrafo único do art. 12 da Lei nº 12.187, de 2009, é de 3.236 milhões tonCO2eq de acordo com detalhamento metodológico descrito no Anexo deste Decreto,”

  43. 43. According to the 2008 National Plan on Climate Change, the Special Joint Committee on Climate Change of the National Congress was created by Joint Act No. 1/2007 to monitor, track and oversee actions relating to global climate change, and the recommendations in its Final Report were, as far as possible, taken into account in the Plan.

    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: ch. I, section Special Joint Committee, p. 17. Accessed October 14, 2026.
      “A Comissão Mista Especial de Mudanças Climáticas do Congresso Nacional foi criada, por meio do Ato Conjunto nº 1/2007, com o objetivo de acompanhar, monitorar e fiscalizar as ações referentes à mudança global do clima no Brasil.”
    • Plano Nacional sobre Mudança do Clima (PNMC), Brasília, dezembro de 2008 · Interministerial Committee on Climate Change (Federal Government) Official record
      Where: ch. I, p. 17. Accessed October 14, 2026.
      “As recomendações constantes do Relatório Final foram, na medida do possível, levadas em consideração neste Plano Nacional.”

  44. 44. The 2024 NDC records that Brazil adopted an absolute economy-wide target since its iNDC, in 2015, and has a commitment to climate neutrality by 2050.

    • A NDC do Brasil: determinação nacional em contribuir e transformar (versão em português) · Federal Government (Ministry of Environment and Climate Change) Official record
      Where: section on article 4, paragraph 4, of the Paris Agreement. Accessed October 14, 2026.
      “Apesar de ser um país em desenvolvimento, o Brasil adotou uma meta absoluta cobrindo toda a economia desde sua iNDC, em 2015. O Brasil também conta com compromisso de neutralidade climática até 2050.”

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