OPINION | Bridging Development and Climate Change Action in South Africa’s Municipalities

In South Africa, the impact of climate change is neither hypothetical nor distant—it is immediate and present. South African municipalities, particularly those in rural and economically vulnerable areas, are experiencing climate change’s stark realities firsthand. In municipalities such as Witzenberg and Karoo Hoogland, droughts, floods, and desertification threaten agriculture, food security, infrastructure, and water supplies, impacting every aspect of community life. Despite this urgency, however, climate action is often siloed from core development priorities because local governments are pressed to meet immediate socio-economic needs and treat climate change as a long-term challenge rather than an immediate priority.

Recent research conducted by KD Strategies, in partnership with INSPIRE and Democracy Works Foundation, underscores the need to bridge the gap between development and climate action in South Africa’s municipalities. This research initiative, focused on the Witzenberg and Karoo Hoogland municipalities, sought to answer two key questions: How can development priorities across sectors be harmonized to promote meaningful climate action? Second, how can engagement and coordination among municipalities, the private sector, and civil society organizations (CSOs) be strengthened to address climate challenges effectively? Through extensive community engagement, consultations, and analysis, the findings illuminate the importance of an integrated approach where climate resilience becomes a foundational aspect of development planning rather than an afterthought.

Legal and policy framework outlining roles and responsibilities of South African municipalities

South African municipalities are the first point of entry for communities and civil society organisations to engage with their elected representatives. Municipality’s key responsibilities relate to the provision of services. Municipalities are key in the country’s response to climate change. This is outlined in the laws governing municipalities and the Just Transition policy and the Climate Change Act.

The local government framework is established by the Constitution of South Africa, which is the highest law of the land. The principle of co-operative governance between national, provincial and local spheres is set out in Chapter 3, while the Chapter 7 outlines the roles of local government. The objects of local government mandate include the provision of services (in a sustainable manner); the promotion of social and economic development, the promotion of a health environment and to encourage the involvement of communities and community organisations in local government matters. (See section 152 (1)). The Constitution also spells out the executive authority of municipalities in Part B of Schedule 4 and Part B of Schedule 5. Schedule 4 sets out the concurrent functional areas of National and Provincial governments. Schedule 5 spells out the areas of provincial competence to the exclusion of the national sphere. Part B of both Schedule lists issues in which provincial governments must monitor and support local governments and promote municipal capacity to perform their functions and monitor their own affairs. The mandates of local governments under these Schedules include aspects strongly related to climate change: Air pollution, firefighting, health services, transport, water and aspects of water and sanitation services are included under Schedule 4. Municipal roads, beaches, local amenities and sports facilities, public places, refuse removal and street lighting are examples of mandates included.

The recently passed Climate Change Act (No 22 of 2024) recognises the need to transition to governance approaches that acknowledge the significant role of provincial and municipal governments. Their roles are spelt out in Chapter 3. The additional mandates require municipalities to plan for specific climate change responses and integrate these with their existing integrated development planning processes in terms of the Municipal Systems Act. 32 of 2000). The climate change response plans must identify particular climate change needs and risks, spatially map vulnerabilities, areas, ecosystems and communities and should include both adaptation and mitigation responses in line with their constitutional mandates.

Since both Schedules require municipalities to collaborate with provincial governments in delivering their mandates, local governments have to play a co-ordination role, where they act as conduits of information around context specific and geographically localised issues. To further the integration of climate change into local planning and with provincial planning platforms, the Act transforms district intergovernmental forums to include municipal climate change related matters ( Municipal forum of climate change). These forums serve as intergovernmental, consultative platforms to further cooperate governance and relations.

The interpretation of the Climate Change Act is guided by an interpretation of the Just Transition “towards low-carbon, climate-resilient andecologically sustainable economies and societies which contribute to the creation of decent work for all, social inclusion and the eradication of poverty” (See S3(d)).

The Just Transitition Framework (Presidential Climate Change Commission, 2022) spells out the governance requirements and the roles of municipalities (Chapter 6). The Framework recognises the crucial role that municipalities have in coordinating and responding to climate change impacts, while also being responsible for the delivery of basic services. Many municipalities already struggle to give effect to their current mandates, before the Act. The framework recognises that local governments will need support to improve their capacity (financial and technical). Their mandates must be clearly defined, owned and resourced to avoid overlap and weakening of ownership.

The Framework casts the net of municipal mandates wide: They must integrate climate change needs and responses into their Integrated Development Plans, implement and manage adaptation, provide essential infrastructure, land management, economic diversification, and importantly engage all stakeholders in Just Transition related discussions and incorporating this input into their decision making processes.

The Disconnect Between Development and Climate Action

At the municipal level currently, development goals typically centre around infrastructure improvement, job creation, poverty alleviation, and social services. These are viewed as immediate needs and, understandably, take precedence given the high levels of poverty and unemployment in many rural areas. In Witzenberg, for instance, the economy is heavily dependent on agriculture, making job creation and agricultural productivity urgent priorities. Similarly, access to essential services, such as water, sanitation, and healthcare, is critical in the arid Karoo Hoogland municipality. As a result, municipalities focus their resources and planning on these pressing socio-economic issues.

Climate change, on the other hand, is often categorized as an environmental issue to be managed by separate departments or external organizations. It is seen as a long-term problem, with many municipalities assuming that addressing it can be delayed or believing it falls outside their immediate concerns’ purview. However, this separation is unsustainable and needs to be reviewed in terms of the climate change mandates of municipalities outlined above. Climate change impact the majority of services that municipalities have to provide and are exacerbating existing social and economic challenges. This creates a vicious cycle where developmental deficits make communities more vulnerable to climate impacts, and climate impacts, in turn, make it harder to achieve development goals.

For example, in the Witzenberg municipality, unpredictable weather patterns and floods affect crop yields, threatening farmers’ livelihoods and food security. These are not abstract environmental issues but direct threats to economic stability. In Karoo Hoogland, desertification degrades land and reduces agricultural productivity, forcing communities to adapt to new, less predictable agricultural conditions. These changes have far-reaching social impacts, including job losses and migration, that increase the strain on social services and local economies.

The Urgent Need for Integrated Planning

Since climate change impacts the mandates of municipalities in cross cutting and complex ways, the responses have to be coordinated across departments and functions. The findings from the KD Strategies research confirms that municipalities must integrate climate action into their Integrated Development and other Plans to build resilient, sustainable communities. Regions like Witzenberg and Karoo Hoogland illustrate why treating climate change as a secondary or standalone issue is ineffective and counterproductive. Development initiatives that do not consider the impact of climate change risk a short-lived impact because changing environmental conditions will inevitably undermine their effectiveness.

Integrated planning means that climate change impacts and responses are considered across infrastructure projects, economic initiatives, and social services. For instance, road networks should be built to withstand extreme weather events, water management systems should be adapted to cope with droughts, and agricultural projects should incorporate sustainable practices to conserve soil and water resources. Municipal planning in the context of a Just Transition means that municipalities aim to address both immediate socio-economic needs and long-term environmental challenges by embedding climate resilience into development projects.

One successful example highlighted by the research is the promotion of sustainable farming practices in Witzenberg, where local farmers are encouraged to adopt water-efficient irrigation methods and climate-resilient crop varieties. These practices not only help to mitigate the impacts of climate change on agriculture but also contribute to long-term economic stability by protecting the region’s primary economic asset. Through stakeholder partnerships, municipalities should consider climate change when identifying projects in line with their development goals. Integrating Climate Change Needs Assessments and Response plans across the municipal planning and decision making processes can help build more resilient communities that are better prepared for the future.

Aligning Stakeholders for Effective Collaboration

The Just Transition Framework calls for collective action in response to climate change and spells out the role of stakeholders. Achieving integrated planning is no small task, especially when stakeholders have competing priorities and limited resources. The KD Strategies research underscores the importance of bringing together the public sector, private companies, and CSOs to align on development and climate goals. Each of these stakeholders plays a unique role in building resilient communities, and by working together, they can create more effective and sustainable solutions than if they worked in isolation.

The private sector, particularly companies involved in agriculture, energy, and infrastructure, can make a significant impact by incorporating climate resilience into their operations and investments. For instance, Independent Power Producers (IPPs) in the renewable energy sector can promote sustainable solutions that reduce carbon emissions, create jobs, and improve energy access in rural areas. The Just Transition Framework calls for “stakeholder capitalism”. In reality, these projects often face resistance from local communities who feel excluded from decision-making processes. By involving community representatives and aligning projects with local needs, the private sector can foster greater trust and collaboration, ultimately making their projects more successful and better aligned with development and climate objectives.

CSOs, on the other hand, are often the closest to the communities affected by climate impacts and can provide valuable insights into local needs and priorities. Organizations working on food security, water access, and health issues are uniquely positioned to advocate for climate-resilient development solutions that address immediate community concerns. Organised around specific development/ social justice needs, they often represent people being marginalised. Their role includes continuing to represent their needs within climate change responses, By partnering with municipal governments and private companies, CSOs can help ensure that climate action initiatives are responsive to the specific vulnerabilities within their communities.

Rethinking Municipal Priorities: Climate Resilience as a Development Imperative

The research findings call for a shift in how municipalities define and prioritize development. Rather than viewing climate resilience as a secondary issue, municipalities should recognize it as an essential component of sustainable development. This recognition requires a re-evaluation of current priorities, where climate considerations are embedded across all aspects of municipal planning—from infrastructure and service delivery to economic development and social welfare.

The shift also requires a cultural change within municipal governance. Local officials need training and capacity-building to understand and incorporate climate issues into development planning. Additionally, municipalities should establish dedicated roles or teams focused on integrating climate resilience into their operations. Such efforts would enable municipalities to move beyond short-term fixes and towards sustainable, long-term solutions that strengthen both development outcomes and climate resilience.

Overcoming Barriers to Integrated Development and Climate Action

One of the significant barriers to integrated planning is the lack of financial resources and technical expertise at the municipal level. Many municipalities in South Africa struggle with limited budgets and high demands on their resources, which makes it challenging to invest in climate-resilient infrastructure or new technologies. To address this, national and provincial governments and international donors must provide targeted funding and support for municipalities prioritizing climate resilience.

Furthermore, bureaucratic processes and rigid procurement systems can hinder municipalities’ abilities to adopt innovative climate solutions. For instance, municipalities may find implementing new water management technologies or renewable energy systems challenging due to procurement regulations prioritizing cost over sustainability. Revisiting these regulations to allow for greater flexibility in adopting climate-smart technologies is essential if municipalities are to build resilience.

Looking Ahead: A Call to Action

The findings from the KD Strategies research, in line with the national policy repose, present a clear call to action: South African municipalities must be equipped to take a proactive, integrated approach to development and climate action. By embedding climate resilience into development planning, municipalities can create communities that are more resilient to climate impacts and better able to thrive in a rapidly changing world.

This approach will require municipalities to break down the silos between development and climate action, align with stakeholders across sectors, and secure the necessary resources to implement sustainable solutions. It is a challenging task, but one that is both necessary and achievable. South Africa’s municipalities stand at a critical crossroads and a large chunk of the responsibility for the success of the country’s climate change response resting firmly on their shoulders. To achieve this municipalities need technical, financial, capacity, network and governance support in building a resilient, inclusive future.

As climate impacts continue to intensify, municipalities that adopt integrated planning will be better equipped to protect their communities, ensure economic stability, and meet the needs of the most vulnerable. By bridging the gap between development and climate action, South Africa can pave the way for a new era of sustainable growth that values resilience as a fundamental pillar of prosperity.