Opposition Leader Tony Abbott has rated the chance of other countries taking strong action on climate change as "almost non-existent".
The opposition has released a climate plan which would cut greenhouse gas emissions by five per cent. The government has left open the option of cutting emissions by up to 25 per cent if other countries take action too.
Mr Abbott told the Seven Network that was a "very, very, very big if".
"I think the chances of the rest of the world agreeing on the kind of binding schemes for enforceable reductions that people thought might happen at Copenhagen ... the chances are almost non-existent, I fear," he said.
The European Union already has emissions trading in place and has legislated to cut emissions by at least 20 per cent by 2020. Japan has promised to cut emissions by up to 25 per cent, Norway by up to 40 per cent, Russia by up to 25 per cent.
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China has promised to cut the emissions intensity of its economy by 40 to 45 per cent.
These pledges have been formally submitted to the UN in recent weeks in preparation for the next round of climate talks, due to take place in Germany in May.
More than 50 countries, including Australia, the US, India and Indonesia, have made a submission to the UN. Australia's target is a five to 25 per cent reduction in emissions by 2020.
Last year's Copenhagen summit failed, but the UN is hoping a climate deal can be struck at a major summit in Mexico in November.
