From Dialogue to Delivery: How South Africa’s Provinces Are Shaping the 2035 Climate Agenda

By Elisha Lindo and Thyla-Jay Quickfall

South Africa’s climate ambitions are entering a critical phase. As the country prepares to update its 2035 Nationally Determined Contributions (NDCs), a recent national-provincial dialogue led by the Presidential Climate Commission (PCC) and the Under2 Coalition offered a glimpse into how climate policy is being shaped not just in Pretoria, but across the provinces. 

In May 2025, the Presidential Climate Commission (PCC), in partnership with the Under2 Coalition, held a pivotal consultation to strengthen provincial integration into South Africa’s 2035 Nationally Determined Contribution (NDC). The session brought together provincial leaders, technical experts, and national stakeholders to ensure that the next iteration of South Africa’s NDC reflects the realities and the potential of its provinces. 

The consultation reflects a growing consensus that subnational governments are not just implementers of national policy, they are essential partners in designing and delivering it. This approach aligns with the Under2 Coalition’s priorities and echoes the global momentum for multilevel climate action, as seen in initiatives like the Coalition for High Ambition Multilevel Partnerships (CHAMP) launched at COP28. 

With provinces ready to lead and national frameworks evolving to support them, South Africa has a unique opportunity to turn climate ambition into meaningful and measurable progress. 

Mitigation: A Just Transition Anchored in Local Realities 

South Africa’s proposed 2035 mitigation target of 278–330 Mt CO₂e represents a significant step toward a well-below 2°C pathway. The target is informed by robust modelling and supported by the Climate Change Act, which introduces legally binding emissions trajectories and sectoral carbon budgets. 

But the real strength of this approach lies in its emphasis on a just transition. The PCC framed mitigation not only as an environmental imperative but as a lever for economic transformation, job creation, and social equity, particularly in vulnerable regions. 

 

“We’re designing our economy, not just our emissions targets.” 
— Presidential Climate Commission 

 

Provinces are already stepping up. Three Under2 Coalition member provinces, Western Cape, Gauteng, and KwaZulu-Natal, used the platform to showcase their climate strategies and call for deeper integration into national planning. Western Cape’s Climate Change Response Strategy and Just Transition Framework outlines a net-zero, climate-resilient vision by 2050. Gauteng is advancing green economy initiatives, such as waste-to-energy projects to reduce methane, and KwaZulu-Natal is linking climate action to inclusive growth and poverty reduction, calling for people-centred approaches. All governments advocate for stronger vertical integration to support role of provinces in the NDC process.  

These efforts align with the Under2 Coalition’s key strategic areas, which call for subnational leadership in phasing out fossil fuels, reducing methane emissions, raising climate finance and institutionalising subnational leadership in NDCs. The challenge now is to ensure that all provinces, regardless of capacity, can contribute meaningfully to national goals. 

Adaptation: Building Resilience Where It’s Needed Most 

Adaptation emerged as a central theme throughout the consultation. Provinces are already experiencing the impacts of climate change, from extreme weather to water stress, and are calling for urgent, people-centred responses. 

“Adaptation is not a luxury; it’s a survival imperative for our communities.” 
— Presidential Climate Commission 

Eastern Cape emphasised the need to integrate climate resilience into infrastructure and service delivery. Limpopo highlighted the importance of climate-smart agriculture and youth engagement. KwaZulu-Natal stressed the role of adaptation in rebuilding local economies and improving quality of life. 

The PCC’s proposal for a Just Adaptation and Resilience Investment Platform offers a promising mechanism to mobilise funding from public, private, and philanthropic sources. If designed with provincial needs in mind, it could help unlock the resources needed to scale local adaptation efforts. 

Finance: Unlocking Investment for Local Climate Action 

Finance remains a key enabler of climate action and a top priority for provinces. While national frameworks are evolving, many provinces face budget constraints and limited access to funding. 

“We need to move from policy to practice. Implementation is where we are falling short.” 
— Provincial government 

Gauteng noted that most of its climate funding is domestically sourced, underscoring the need for strategic partnerships. North West highlighted the importance of technical assistance, particularly at the municipal level. Mpumalanga called for investment in economic diversification to support a just transition away from coal. 

Provinces are also exploring innovative financing mechanisms, including carbon markets, green bonds, and public-private partnerships. These tools, combined with clearer implementation pathways, could help translate climate plans into investable, scalable solutions. 

The Under2 Coalition’s advocacy for sector-specific implementation plans and investment-ready subnational strategies is particularly relevant here. With the right support, provinces can become powerful engines of climate finance mobilisation. 

Two key projects to support the Under2 Coalition goal of highlighting subnational leadership and progress, is the Subnational Transition Plans project and The Subnational Solutions Bank.  Subnational Transition Plans, refers to economy wide plans with a GHG emissions target and demonstrable progress which aims to elevate subnational leadership by demonstrating your critical role in achieving the goals of the Paris Agreement and secure long-term recognition of subnational value. The Subnational Solutions Bank is a planned resource which aims to provide concrete, scalable solutions, and investment opportunities. This resource will feed into the official local government and municipal authority position going into COP30  

Governance: Strengthening Coordination and Clarity 

South Africa’s climate governance landscape is evolving, with the Climate Change Act 2024 providing a legal foundation for coordinated action. Provinces are calling for greater clarity on roles, responsibilities, and reporting mechanisms.. 

“Climate change is not an add-on. It must be mainstreamed into service delivery.”  — Western Cape Government 

The PCC emphasised the need for institutional alignment, cross-departmental coordination, and robust monitoring systems. Provinces echoed this, stressing that effective implementation requires not only collaboration but also clear guidance and support. 

Dr. Brian Mantlana, PCC Commissioner, underscored the importance of tailored engagement. “We must not leave any province behind,” he said. “When we think about NDC engagement and implementation, we should be tailoring our responses to that particular province, not just having a blanket approach.” 

 

Recommendations and Next Steps 

The consultation concluded with a set of clear, actionable recommendations: 

  • Clarify provincial roles and contributions within the national NDC framework.
  • Strengthen intergovernmental coordination and vertical integration.
  • Prioritize adaptation finance and ensure equitable distribution of resources.
  • Build local capacity through technical support and knowledge sharing.
  • Accelerate implementation with measurable, time-bound actions. 

The PCC will now integrate these insights into its final recommendations to the national government. Public consultations and thematic webinars are expected to follow, offering further opportunities for engagement. 

A Collaborative Path Forward 

The 2035 NDC consultation made one thing clear: South Africa’s provinces are not just stakeholders; they are strategic partners. Their diverse contexts, challenges, and innovations must be reflected in the national climate strategy if it is to succeed. 

The path to 1.5°C runs through Limpopo’s farms, Mpumalanga’s coalfields, and Gauteng’s urban centres. With continued collaboration, tailored support, and sustained investment, South Africa can turn its climate commitments into a blueprint for just, resilient, and inclusive development.