Abstract
The recent climatic disasters experienced globally are a testament to the need for climate change governance, particularly mitigation, to prevent the cumulative impacts of climate change on the environment. The translation of climate change legislation to actionable local goals is at a critical juncture in governance. In South Africa, this attention has focused on large metropolitan and not peri-urban municipalities. This study explores the West Rand District Municipality's (WRDM) governance obligations to mitigate climate change in light of the district's main sources of greenhouse gas (GHG) emissions. This research employed a mixed methods approach. Firstly, GHG emissions of the WRDM were calculated from publicly available data. Secondly, national, provincial and local government policies and plans were analysed with reference to their mandate on GHG emissions reduction in the WRDM. Finally, semi-structured interviews were conducted with representatives of various levels of government in order to determine the application of climate governance at the WRDM.
Total GHG emissions for the WRDM in 2019 were 6.7 Mt CO2-eq, with electricity consumption by the mining sector contributing the most with a 64% share of total GHG emissions. In the WRDM, electricity is primarily generated by coal-fired power plants in the Mpumalanga province, and it is distributed by the local municipalities for residential, commercial and some industrial use. It is the second largest emitting sector (20%), followed by the transport sector (14%). The residential sector and direct emissions from mines account for the least emissions, with a 1% contribution from each sector.
The national climate-related policy framework requires the WRDM to have response plans and strategies for mitigating climate change. The Gauteng provincial government has set its own mitigation target for 2025 and 2030 in the Gauteng Overarching Climate Change Response Strategy and Action Plan based on South Africa’s initial National Determined Contribution (NDC) set in 2015. The provincial target is crudely calculated and is 1,1% higher than the actual GHG emissions in 2007. The WRDM Integrated Development Plan 2022/23 to 2026/27 sets priorities relating to the coordination of efficient energy supply, sustainable transportation and renewable energy generation. There are no climate change mitigation plans in the WRDM other than the 2014 Mogale City Local Municipality Climate Change Framework and Operational Strategy. The WRDM legislative framework lacks climate change mitigation imperatives and no GHG targets have been set for the district municipality.
The majority (around 65%) of the WRDM’s GHG emissions are from mining operations, but the WRDM and local municipalities do not have oversight of GHG emissions from mines. The post- 2015 National Energy Efficiency Strategy (NEES) proposes a 16% reduction in energy intensity in the industry and mining by 2030. Previously, the 2005 NEES set an initial target of a 15% reduction
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in energy intensity by 2015. Between 2000 and 2012, energy intensity on the basis of economic output reduced by 34% in the industry and mining sector, but was more uniform between 2010 and 2012 when measured on the basis of physical production. Replacing coal generation with renewables is the most effective way of reducing GHG emissions associated with electricity use (84% of GHG emissions in the WRDM), but there are currently no initiatives from the government to encourage renewable energy development in the WRDM. The WRDM has developed an Integrated Transport Plan that was not available for analysis in fulfilment of National Land Transport Act No. 5 of 2009, and the Mogale City Climate Change Framework and Operational Climate Change Strategy specifies measures on non-motorised infrastructure. Details and documentation of the implementation of sustainable transport measures in the local municipality are lacking.
Based on the interviews conducted with the four government officials, the WRDM has partially fulfilled its legislative climate responsibilities relating to climate change. There are challenges related to the lack of municipal policy measures, capacity constraints and coordination as barriers to implementing mitigation imperatives.
It is recommended that the WRDM develops a GHG emission inventory at regular intervals, incorporates climate mitigation imperatives in its Integrated Development Plan, develops codes, standards and strategies for decarbonisation and mitigating climate change, and investigates funding mechanisms to limit barriers to translating the NDC and provincial climate strategy to local targets, plans and action.