Leadership for the institutionalisation of climate change considerations in local government

Abstract

The climate crisis presents a unique and complex challenge for climate change leadership and governance and broader developmental challenges, particularly in cities (Meijerink & Stiller, 2013; Dewulf et al., 2015). With nation-states largely failing to meet the ambition required to avert the climate crisis, cities have emerged as climate leaders. The role of individual actors within city governments in driving such change is, however, not well understood. How are these leaders able to motivate climate change to be a key policy issue? What kind of leadership might be best suited to champion the institutional reforms needed to embed climate change considerations into city planning and decision-making effectively? How do the governance systems enable leaders, and what barriers do they encounter? With the recognition of the dualistic interaction between leaders and the formal government institution, the research seeks to uncover how leadership behaviours are shaped by formal governance and government institutions and the strategies leaders employ to influence the process of institutional change within the context of climate change response in South African cities. A deeper understanding of these interactions can support climate leadership development, strengthen climate governance, and help overcome the significant barriers to implementation that currently exist within cities (Parnell & Robinson, 2012). As cities are major contributors to climate change, highly exposed to its impacts, and have a proven track record of taking action, they serve as an interesting site of study to explore the leadership implications of climate change institutionalisation. To answer these questions, this study drew on leadership and institutional change theories and adopted a critical realist approach that sought to uncover deeper insights, with a particular focus on examining the structures and systems that shape the political and governance realities of South African cities. Fifteen semi-structured, theory-led interviews were conducted with government officials, practitioners, and researchers, all with direct experience working in or with city governments. The interviews were analysed using thematic analysis. The research revealed that successful climate change governance required ‘champions’ that possess technical knowledge, multidisciplinary, interconnected thinking, and political astuteness. Technical expertise alone is, however, insufficient and leaders must navigate bureaucratic complexities, communicate effectively, and engage in broad, meaningful collaborations. The study emphasises the importance of leaders being able to position climate change as a developmental issue intertwined with socio-economic priorities rather than only engaged with as an environmental concern. The study sheds light on the complex and often fraught relationship between political leaders and technocrats. Given the organisational constraints inherent in local government, the default approach to institutional change is often incremental. A compelling finding from the study is that incremental approaches, if targeted strategically, can drive more transformative change, known as continuous transformation. To examine such dimensions the conceptual model used for the study, the Three Spheres of Transformation Model, proved useful in guiding the research and organising the findings but required adaptation to reflect the complexities of South African city governments. The model was redrawn to capture the intersectionality that emerged from the research findings. Building on these insights, the recommendations aim to support city officials, politicians, and climate change practitioners to drive continuous climate change transformation.