REPUBLIC OF SOUTH AFRICA

CLIMATE CHANGE BILL

(As introduced in the National Assembly (proposed section 76); explanatory summary of
Bill and prior notice of its introduction published in Government Gazette No. 45299 of
11 October 2021)
(The English text is the offıcial text of the Bill)

(MINISTER OF FORESTRY, FISHERIES AND THE ENVIRONMENT)

[B 9—2022] ISBN 978-1-4850-0773-9

No. of copies printed .........................................250

GENERAL EXPLANATORY NOTE:
Words underlined with a solid line indicate insertions in
existing enactments.

BILL
To enable the development of an effective climate change response and a long-term,
just transition to a low-carbon and climate-resilient economy and society for South
Africa in the context of sustainable development; and to provide for matters
connected therewith.

PREAMBLE

WHEREAS everyone has the Constitutional right to an environment that is not harmful
to their health and well-being, and to have the environment protected for the benefit of
present and future generations through reasonable legislative and other measures that
secure ecologically sustainable development and the use of natural resources while
promoting justifiable economic and social development;

AND WHEREAS anthropogenic climate change represents an urgent threat to human

societies and the planet and requires an effective, progressive and incremental response;

AND WHEREAS the Republic—

(a) has a role to play in the global effort to reduce the greenhouse gas emissions
identified by the international community as the primary drivers of
anthropogenic climate change, and for which the implementation of appro-
priate mitigation responses is urgently required;
(b) is especially vulnerable to those impacts of climate change which require
urgent and appropriate adaptation responses; and
(c) has made international commitments and obligations, including to communi-
cate and implement an effective nationally determined climate change
response, encompassing mitigation and adaptation actions, that represents the
Republic’s fair contribution to the global climate change response;

AND WHEREAS climate variability in the Republic, including the increased

frequency and intensity of extreme weather events, will affect, amongst other things,
human health, access to food and water, biodiversity, habitats and ecosystems, the coast
and coastal infrastructure and human settlements;

AND WHEREAS anticipated impacts arising as a result of climate change have the
potential to undermine achieving the Republic’s developmental goals;

AND WHEREAS implementing an effective climate change response is a national

sustainable development priority as set out in the National Climate Change Response
White Paper, while the Republic’s Nationally Determined Contribution under the Paris
Agreement, as may be varied from time to time, anticipates—
(a) the realisation of significant socio-economic and environmental benefits in a
manner that is driven and customised in the light of national circumstances,
developmental, transformational, empowering and participatory, dynamic and
evidence-based, balanced, cost-effective, integrated and aligned; and
3

(b) supports a just transition to a climate-resilient, equitable and internationally

competitive low-carbon economy and society, that takes into account the risks
and opportunities that are expected to arise as a consequence of implementing
the national climate change response;

AND WHEREAS responding to climate change raises unique challenges to effective

governance as its impact transcends and challenges traditionally sectoral governance
approaches, which require a nationally driven, coordinated and cooperative legal and
administrative response that acknowledges the significant role of the provincial and
municipal spheres taking into account the Intergovernmental Relations Framework Act,
2005 (Act No. 13 of 2005);

AND WHEREAS climate change policy needs to be implemented in the context of

sustainable development objectives and the achievement of national development goals,
it is desirable to develop a legal and institutional framework for the implementation of
the Republic’s national climate change response, in order to address these matters,

B E IT THEREFORE ENACTED by the Parliament of the Republic of South Africa,

as follows:—

ARRANGEMENT OF SECTIONS

CHAPTER 1

INTERPRETATION, OBJECTS AND APPLICATION 5

1. Definitions
2. Objects of Act
3. Principles
4. Application of Act
5. Application of National Environmental Management Act 10
6. Conflict with other legislation

CHAPTER 2

POLICY ALIGNMENT AND INSTITUTIONAL ARRANGEMENTS

7. Alignment of policies
8 Provincial Forums on Climate Change 15
9. Municipal Forums on Climate Change
10. Presidential Climate Commission
11. Functions of Presidential Climate Commission
12. Process of appointment
13. Reporting to government 20
14. Administrative and secretariat support

CHAPTER 3

CLIMATE CHANGE RESPONSE: PROVINCES AND MUNICIPALITIES

15. Climate change response

CHAPTER 4 25

NATIONAL ADAPTATION TO IMPACTS OF CLIMATE CHANGE

16. Adaptation objectives

17. Adaptation scenarios
18. National Adaptation Strategy and Plan
19. Sector Adaptation Strategy and Plan 30
20. Adaptation Information and Synthesis Adaptation Report
4

CHAPTER 5

GREENHOUSE GAS EMISSIONS AND REMOVALS

21. National greenhouse gas emissions trajectory

22. Sectoral emissions targets
23. Listed greenhouse gases and activities 5
24. Carbon budgets
25. Phase-down and phase-out of synthetic greenhouse gas emissions and
declaration
26. National Greenhouse Gas Inventory

CHAPTER 6 10

GENERAL MATTERS AND TRANSITIONAL ARRANGEMENTS

27. Regulations
28. Consultation
29. Public participation
30. Delegation 15
31. Access to information
32. Offences and penalties
33. Appeals
34. Savings, transitional provisions and amendment of laws
35. Short title and commencement 20

SCHEDULE 1

Functions relevant to the development of Sectoral Emissions Targets

SCHEDULE 2

National Departments and State-Owned Entities responsible for certain functions

required to develop a Sector Adaptation Strategy and Plan 25

SCHEDULE 3

Interim National Greenhouse Gas Emissions Trajectory

SCHEDULE 4

Amendment of laws

CHAPTER 1 30

INTERPRETATION, OBJECTS AND APPLICATION

Definitions

1. In this Act, unless the context indicates otherwise—

‘‘adaptation’’ means any adjustment in natural or human systems in response to
actual or expected climatic stimuli or their effects which moderates harm or 35
exploits beneficial opportunities;
‘‘adaptive capacity’’ means the ability of systems, institutions, humans and other
organisms to adjust to potential damage, to take advantage of opportunities, or to
respond to consequences;
‘‘carbon budget’’ means an assigned amount of greenhouse gas emissions 40
allocated to a person in terms of section 25 for direct emissions arising from the
operations of that person over a defined time period;
‘‘Carbon dioxide equivalent or CO2e’’ means the number of metric tons of
carbon dioxide emissions with the same global warming potential as one metric ton
of another greenhouse gas; 45
5

‘‘carbon sink’’ means any process, activity or mechanism which removes a

greenhouse gas, an aerosol or a precursor of a greenhouse gas from the atmosphere;
‘‘Carbon Tax Act’’ means the Carbon Tax Act, 2019 (Act No. 15 of 2019);
‘‘climate change’’ means a change of climate that is attributed directly or
indirectly to human activity that alters the composition of the global atmosphere 5
and that is in addition to natural climate variability observed over comparable time
periods;
‘‘Department’’ means the national department responsible for environmental
affairs;
‘‘direct greenhouse gas emissions’’ means greenhouse gas emissions from 10
sources that are owned or controlled by a person;
‘‘Disaster Management Act’’ means the Disaster Management Act, 2002 (Act No.
57 of 2002);
‘‘district municipality’’ means a district municipality established in terms of the
Local Government: Municipal Structures Act, 1998 (Act No. 117 of 1998); 15
‘‘ecosystem’’ means a dynamic system of plant, animal and micro-organism
communities and their non-living environment, interacting as a functional unit;
‘‘environment’’ has the meaning assigned to it in section 1 of the National
Environmental Management Act;
‘‘Gazette’’, when used in relation to— 20
(a) a Minister, means the Government Gazette;
(b) an MEC, means the Provincial Gazette of the province concerned; and
(c) a municipality, means the Provincial Gazette of the province in which the
municipality is situated;
‘‘greenhouse gas’’ means gaseous constituents of the atmosphere, both natural and 25
anthropogenic, that absorb and re-emit infrared radiation;
‘‘greenhouse gas mitigation plan’’ means the mitigation plan contemplated in
section 24(4) which contains mitigation measures prepared specifically for the
mitigation of greenhouse gas emissions;
‘‘indirect greenhouse gas emissions’’ means emissions that are a consequence of 30
the activities of a person, but occur at sources owned or controlled by another
person;
‘‘Intergovernmental Relations Framework Act’’ means the Intergovernmental
Relations Framework Act, 2005 (Act No. 13 of 2005);
‘‘just transition’’ means a shift towards a low-carbon, climate-resilient economy 35
and society and ecologically sustainable economies and societies which contribute
toward the creation of decent work for all, social inclusion and the eradication of
poverty;
‘‘mayor’’, in respect of the different types of municipalities, means a mayor elected
in terms of section 48 of the Local Government: Municipal Structures Act, 1998 40
(Act No. 117 of 1998), and may include—
(a) an executive mayor elected in terms of section 55 of the Local Government:
Municipal Structures Act, 1998 (Act No. 117 of 1998); or
(b) a speaker who is called a mayor elected in terms of section 36(5) of the Local
Government: Municipal Structures Act, 1998 (Act No. 117 of 1998); 45
‘‘MEC’’ means the member of the Executive Council to whom a Premier has
assigned responsibility for the environment;
‘‘metropolitan municipality’’ means a metropolitan municipality established in
terms of the Local Government: Municipal Structures Act, 1998 (Act No. 117 of
1998); 50
‘‘Minister’’ means the Cabinet Minister responsible for environmental affairs;
‘‘mitigation’’ means a human intervention to reduce the sources or enhance the
carbon sinks of greenhouse gases;
‘‘Municipal Forum on Climate Change’’ means a Municipal Forum on Climate
Change contemplated in section 9; 55
‘‘National Climate Change Response White Paper’’ means the White Paper on
the National Climate Change Response published under Government Notice No.
757 in Gazette No. 34695 of 19 October 2011;
‘‘national department’’ means a department listed in Schedule 1 to the Public
Service Act, 1994 (Proclamation No. 103 of 1994); 60
‘‘Nationally Determined Contribution’’ means the Nationally Determined
Contribution, as amended from time to time, prepared in terms of Article 4(2) of the
Paris Agreement and submitted by the Republic to the Secretariat of the United
6

Nations Framework Convention on Climate Change in terms of Article 4(12) of the

Paris Agreement;
‘‘National Environmental Management Act’’ means the National Environmental
Management Act, 1998 (Act No. 107 of 1998);
‘‘national greenhouse gas emissions trajectory’’ means the national greenhouse 5
gas emissions trajectory contemplated in section 21;
‘‘National Greenhouse Gas Inventory’’ means the National Greenhouse Gas
Inventory contemplated in section 26;
‘‘organ of state’’ means an organ of state as defined in section 239 of the
Constitution of the Republic of South Africa, 1996; 10
‘‘Paris Agreement’’ means the Paris Agreement adopted by the Twenty-First
Conference of the Parties to the United Nations Framework Convention on Climate
Change in Paris, France, on 12 December 2015, and ratified by the Republic on 1
November 2016;
‘‘policies and measures’’ means the manner in which an organ of state exercises 15
a power or performs a function in response to climate change through
implementing planning instruments, policies and programmes to mitigate emis-
sions relating to the requirements stipulated by the United Nations Framework
Convention on Climate Change, the Paris Agreement or any other global climate
change agreement under the United Nations Framework Convention on Climate 20
Change;
‘‘prescribe’’ means prescribe by regulation;
‘‘Presidential Climate Commission’’ means the Presidential Climate Commis-
sion established in terms of section 10;
‘‘Provincial Forum on Climate Change’’ means a Provincial Forum on Climate 25
Change contemplated in section 8;
‘‘regulation’’ means a regulation made, and includes a notice issued, under this
Act;
‘‘sector’’ means a collective term for a group of activities with similar
characteristics which either emit greenhouse gases or are vulnerable to climate 30
change;
‘‘sectoral emissions targets’’ means quantitative or qualitative goals informed by
sectoral policies and measures that may lead to greenhouse gas emission
reductions, for the sector or sub-sector, over a defined time period as determined in
terms of section 22; 35
‘‘sub-sector’’ means, in respect of mitigation, a further subdivision of a group of
greenhouse gas emitting activities as defined by the latest version of the guidelines
of the Intergovernmental Panel on Climate Change, established by the World
Meteorological Organisation and the United Nations Environment Programme in
1988; 40
‘‘sustainable development’’ has the meaning assigned to it in section 1 of the
National Environmental Management Act;
‘‘synthetic greenhouse gas’’ means an artificial greenhouse gas as declared by the
Minister in terms of section 25;
‘‘this Act’’ includes the Schedules to this Act and any regulations or notices issued 45
under this Act;
‘‘United Nations Framework Convention on Climate Change’’ means the
United Nations Framework Convention on Climate Change adopted by the United
Nations General Assembly in New York in 1992, and ratified by the Republic on 29
August 1997; and 50
‘‘vulnerability’’ means the degree to which a system is susceptible to, or unable to
cope with, adverse effects of climate change, including climate variability and
extremes.

Objects of Act

2. The objects of this Act are to— 55

(a) provide for a coordinated and integrated response by the economy and society
to climate change and its impacts in accordance with the principles of
cooperative governance;
7

(b) provide for the effective management of inevitable climate change impacts by
enhancing adaptive capacity, strengthening resilience and reducing vulner-
ability to climate change, with a view to building social, economic and
environmental resilience and an adequate national adaptation response in the
context of the global climate change response; 5
(c) make a fair contribution to the global effort to stabilise greenhouse gas
concentrations in the atmosphere at a level that avoids dangerous
anthropogenic interference with the climate system;
(d) to ensure a just transition towards a low carbon economy and society
considering national circumstances; 10
(e) give effect to the Republic’s international commitments and obligations in
relation to climate change; and
(f) protect and preserve the planet for the benefit of present and future
generations of humankind.

Principles 15

3. The interpretation and application of this Act must be guided by—

(a) the national environmental management principles set out in section 2 of the
National Environmental Management Act where applicable in this Act;
(b) the principle that the climate system should be protected for the benefit of
present and future generations of humankind; 20
(c) the principle that acknowledges international equity and each country’s
common but differentiated responsibilities and respective capabilities, in light
of different national circumstances;
(d) a contribution to a just transition towards low-carbon, climate-resilient and
ecologically sustainable economies and societies which contribute to the 25
creation of decent work for all, social inclusion and the eradication of poverty;
(e) the need for integrated management, in the context of climate change, which
requires climate change considerations to be integrated into the making of
decisions which may have a significant effect on the Republic’s ability to
mitigate or which exacerbate its vulnerability to climate change; 30
(f) the need for decision-making to consider the special needs and circumstance
of localities and people that are particularly vulnerable to the adverse effects
of climate change, including vulnerable workers and groups such as women,
especially poor and rural women, children, especially infants and child-
headed families, the aged, the poor, the sick and the physically challenged; 35
(g) the need for a risk-averse and cautious approach to be adopted, which takes
into account the limits of current knowledge about causes and effects of
climate change and the consequences of decisions and actions in relation
thereto;
(h) the need for climate change mitigation and adaptation responses to be 40
informed by evolving climate change scientific knowledge and decisions
which should be based on the best available science, evidence and
information;
(i) an effective climate change response which requires preventative measures to
mitigate the causes of climate change and to strengthen resilience through the 45
adoption of adaptation measures;
(j) the costs of responding to the adverse impacts of climate change and of
mitigation which must be paid for by those responsible for causing the adverse
impact;
(k) an integrated climate change response which requires the enhancement of 50
public awareness of climate change causes and impacts and the promotion of
participation and action at all levels; and
(l) a recognition that a robust and sustainable economy and a healthy society
depends on the services that well-functioning ecosystems provide, and that
enhancing the sustainability of the economic, social and ecological services is 55
an integral component of an effective and efficient climate change response.
8

Application of Act

4. (1) This Act applies to the Republic, including—

(a) its internal waters, territorial waters, exclusive economic zone and continental
shelf of the Republic as referred to in sections 3, 4, 7 and 8 of the Maritime
Zones Act, 1994 (Act No.15 of 1994), respectively; and 5
(b) the Prince Edward Islands referred to in the Prince Edward Islands Act, 1948
(Act No. 43 of 1948).
(2) This Act binds all organs of state.

Application of National Environmental Management Act

5. (1) This Act must, in relation to climate change, be read, interpreted and applied in 10
conjunction with the National Environmental Management Act.
(2) This Act must be regarded as a specific environmental management Act as defined
in section 1 of the National Environmental Management Act.

Conflict with other legislation

6. In the event of any conflict between a provision of this Act and other legislation 15
specifically relating to climate change, this Act prevails.

CHAPTER 2

POLICY ALIGNMENT AND INSTITUTIONAL ARRANGEMENTS

Alignment of policies

7. (1) Every organ of state that exercises a power or performs a function that is 20
affected by climate change, or is entrusted with powers and duties aimed at the
achievement, promotion and protection of a sustainable environment, must review and
if necessary revise, amend, coordinate and harmonise their policies and measures,
programmes and decisions in order to—
(a) ensure that the risks of climate change impacts and associated vulnerabilities 25
are taken into consideration; and
(b) give effect to the principles and objects set out in this Act.
(2) In order to give effect to the principles and objects set out in this Act, organised
labour, civil society and business may advise on the Republic’s climate change response,
the mitigation of climate change impacts and adaptation to the effects of climate change 30
towards the attainment of the just transition to a climate resilient and low carbon
economy and society.

Provincial Forums on Climate Change

8. (1) Every Premier’s intergovernmental forum, established in terms of section 16 of

the Intergovernmental Relations Framework Act, also serves as a Provincial Forum on 35
Climate Change.
(2) Sections 17 and 19 of the Intergovernmental Relations Framework Act apply to a
Provincial Forum on Climate Change.
(3) A Provincial Forum on Climate Change must—
(a) coordinate climate change response actions in the relevant province in 40
accordance with this Act; and
(b) provide a report to the President’s Coordinating Council in terms of section
20(a) of the Intergovernmental Relations Framework Act, which report must
include climate change considerations.
(4) A Provincial Forum on Climate Change may establish an intergovernmental 45
technical support structure in terms of section 30 of the Intergovernmental Relations
Framework Act if there is a need for formal technical support to the Provincial Forum on
Climate Change.
9

Municipal Forums on Climate Change

9. (1) Every district intergovernmental forum, established in terms of section 24 of the

Intergovernmental Relations Framework Act, also serves as a Municipal Forum on
Climate Change.
(2) Sections 25 and 27 of the Intergovernmental Relations Framework Act apply to a 5
Municipal Forum on Climate Change.
(3) A Municipal Forum on Climate Change must—
(a) coordinate climate change response actions for those activities within its
operational control of the relevant municipality in accordance with this Act;
and 10
(b) provide a report on such actions to the relevant Provincial Forum on Climate
Change.
(4) A Municipal Forum on Climate Change may establish an intergovernmental
technical support structure in terms of section 30 of the Intergovernmental Relations
Framework Act if there is a need for formal technical support to the Municipal Forum on 15
Climate Change.

Presidential Climate Commission

10. (1) The President may establish a Presidential Climate Commission and appoint
not more than 30 members comprising representatives of government, organised labour,
civil society and business to advise on the Republic’s climate change response, the 20
mitigation of climate change impacts and adaptation to the effects of climate change
towards the attainment of the just transition to a low-carbon and climate-resilient
economy and society.
(2) The members of the Presidential Climate Commission may be appointed for a
period determined by the President. 25
(3) The Presidential Climate Commission is chaired by the President.
(4) The Department is responsible for providing administrative and secretariat
support services to the Commission.
(5) The Presidential Climate Commission may determine its own procedures to be
followed at its meetings. 30

Functions of Presidential Climate Commission

11. The functions of the Presidential Climate Commission are to—

(a) advise on the Republic’s climate change response to ensure realisation of the
vision for effective climate change response and the long-term just transition
to a low-carbon and climate-resilient-economy and society; 35
(b) advise government on the mitigation of climate change impacts, including
through the reduction of emissions of greenhouse gases, and adapting to the
effects of climate change; and
(c) provide monitoring and evaluation of progress towards government’s
emissions reduction and adaptation goals. 40

Process of appointment

12. (1) The President will appoint representatives from civil society, business,
government and organised labour to serve on the Presidential Climate Commission for
a period determined by the President.
(2) The composition of the Presidential Climate Commission must— 45
(a) broadly reflect the demographics and gender composition of the Republic; and
(b) be appropriately qualified and have expertise in the socio-economic,
environmental and broader sustainability field.

Reporting to government

13. The President may require the Presidential Climate Commission to provide a 50
report on any advice it provided to government in terms of section 11(b).
10

Administrative and secretariat support

14. The administrative and secretariat support contemplated in section 10(4) will
consist of—
(a) the management of the administrative affairs of the Presidential Climate
Commission and assist in performing the duties assigned to the Presidential 5
Climate Commission; and
(b) the preparation of meetings and the running of the day-to-day operations,
communications and research of the Presidential Climate Commission.

CHAPTER 3

CLIMATE CHANGE RESPONSE: PROVINCES AND MUNICIPALITIES 10

Climate change response

15. (1) An MEC and a mayor of a metropolitan or district municipality, as the case
may be, must—
(a) within one year of the publication of the National Adaptation Strategy and
Plan contemplated in section 18, undertake a climate change needs and 15
response assessment for the province, metropolitan or district municipality, as
the case may be;
(b) for the purposes of paragraph (c), assess the extent to which its constitution-
ally mandated functions are affected by climate change and formulate steps to
address these effects in the performance of its functions; 20
(c) review and, to the extent necessary, amend the climate change needs and
response assessment at least once every five years;
(d) within two years of undertaking the climate change needs and response
assessment contemplated in paragraph (a), develop and implement a climate
change response implementation plan as a component of, and in conjunction 25
with, provincial, metropolitan or district municipal planning instruments,
policies and programmes; and
(e) review and, to the extent necessary, amend the climate change response
implementation plan at least once every five years.
(2) The climate change needs and response assessment, contemplated in subsection 30
(1)(a), must—
(a) identify climate change response considerations and options;
(b) analyse the nature and characteristics of the province or metropolitan or
district municipality, as the case may be, and the particular and unique climate
change needs and risks that arise as a result of such nature and characteristics; 35
(c) identify and spatially map, within the sphere of operations of the province,
district or metropolitan municipality, as the case may be, risks, vulnerabilities,
areas, ecosystems and communities that will arise, or that are vulnerable to the
impacts of climate change;
(d) be based on the best available science, evidence and information; and 40
(e) identify and determine measures and mechanisms to manage and implement
the required climate change response.
(3) A climate change response implementation plan, contemplated in subsection
(1)(d), must—
(a) be informed by the climate change needs and response assessment contem- 45
plated in subsection (1)(a);
(b) include measures or programmes relating to both adaptation and mitigation in
line with the constitutional mandate of the province, or the metropolitan or
district municipality; and
(c) comply with any requirements as may be prescribed by the Minister inclusive 50
of the relevant technical guidelines.
(4) A provincial climate change response implementation plan, contemplated in
subsection (1)(d), must form a component of the province’s environmental implemen-
tation plan developed in terms of section 11(1) of the National Environmental
Management Act. 55
11

(5) A metropolitan or district municipal climate change response implementation

plan, contemplated in subsection (1)(d), must form a component of the relevant
municipality’s integrated development plan adopted in terms of section 25 of the Local
Government: Municipal Systems Act, 2000 (Act No. 32 of 2000).

CHAPTER 4 5

NATIONAL ADAPTATION TO IMPACTS OF CLIMATE CHANGE

Adaptation objectives

16. (1) The Minister must, within one year of the coming into operation of this Act,
determine by notice in the Gazette—
(a) national adaptation objectives which will guide the Republic’s adaptation to 10
climate change impacts, the development of resilience and sustainable
development;
(b) indicators for measuring progress towards achieving the national adaptation
objectives; and
(c) a date by which the national adaptation objectives should be incorporated into 15
all relevant national planning instruments, policies and programmes which
address, or are affected by, the actual and potential impacts of climate change.
(2) The Minister may, periodically, review and amend the national adaptation
objectives contemplated in subsection (1)(a).

Adaptation scenarios 20

17. (1) The Minister must, within one year of the coming into operation of this Act,
develop adaptation scenarios which anticipate the likely impacts of climate change in
the Republic and associated vulnerabilities over the short, medium and longer term.
(2) The adaptation scenarios must—
(a) be based on best available science, evidence and information; 25
(b) include a systematic observation of the climate system and early warning
systems;
(c) include a consideration of the potential impacts of climate change on the
environment of the Republic and associated vulnerabilities; and
(d) contain available adaptation response options to reduce identified vulnerabili- 30
ties by building adaptive capacity and resilience, in the context of actual or
anticipated social, economic and environmental costs.
(3) The Minister may, periodically, review and amend the national adaptation
scenarios contemplated in subsection (1).

National Adaptation Strategy and Plan 35

18. (1) Climate change adaptation within the Republic must be managed in a coherent
and coordinated manner and in accordance with a National Adaptation Strategy and
Plan.
(2) The Minister must, in consultation with the Ministers responsible for the functions
listed in Schedule 2, develop and publish a National Adaptation Strategy and Plan by 40
notice in the Gazette within two years of the coming into operation of this Act.
(3) The Minister may review and amend the National Adaptation Strategy and Plan at
a five-yearly interval to take into account—
(a) monitoring and evaluation results;
(b) technological advances; 45
(c) the best available science, evidence or information; or
(d) the Republic’s international commitments and obligations.
(4) The purpose of the National Adaptation Strategy and Plan is to—
(a) achieve a reduction in the vulnerability of society, the economy and the
environment to the effects of climate change, strengthen the resilience of the 50
socio-economic and environmental system and enhance the adaptive capacity
of society, the environment and economy to the impacts of climate change;
(b) reduce the risk and vulnerabilities to current and future climate scenarios;
(c) achieve the national adaptation objectives contemplated in section 16;
12

(d) provide a strategic and policy directive for adaptation to the impacts of
climate change; and
(e) provide an integrated and coordinated approach to the management of
adaptation measures in response to the impacts of climate change by organs of
state in all spheres of government, and where relevant it should also include 5
non-governmental organisations, the private sector and local communities.
(5) The National Adaptation Strategy and Plan must include—
(a) the national adaptation objectives contemplated in section 16;
(b) a consideration of the Republic’s climate change scenarios as informed by the
adaptation scenarios contemplated in section 17; 10
(c) an assessment of the Republic’s vulnerability to climate change and related
risks at sectoral, cross-sectoral and geographic levels, including a consider-
ation of relevant disaster risk assessments in terms of the Disaster
Management Act;
(d) available adaptation response options to reduce identified vulnerabilities by 15
building adaptive capacity and resilience, in the context of actual or
anticipated social, economic and environmental costs; and
(e) a plan that details the implementation of adaptation responses informed by the
objectives and indicators contemplated in section 16.

Sector Adaptation Strategy and Plan 20

19. (1) A Minister responsible for functions listed in Schedule 2 must—

(a) within one year of the publication of the National Adaptation Strategy and
Plan, and in alignment with such National Adaptation Strategy and Plan,
conduct an assessment of the functions under the Minister’s operational
control which— 25
(i) identifies and spatially maps risks and vulnerabilities, areas, ecosystems
and communities that will arise and that are vulnerable to the impacts of
climate change; and
(ii) determines measures and mechanisms to manage and implement the
required adaptation response; 30
(b) within two years of the publication of the National Adaptation Strategy and
Plan, develop and implement a Sector Adaptation Strategy and Plan which
must be informed by the assessment undertaken in terms of paragraph (a)(i)
and serve to implement the measures and mechanisms determined in terms of
paragraph (a)(ii); and 35
(c) every five years, review a Sector Adaptation Strategy and Plan and, if
required, amend the Sector Adaptation Strategy and Plan to take into
account—
(i) monitoring and evaluation results;
(ii) technological advances; 40
(iii) the best available science, evidence or information; and
(iv) the Republic’s international commitments and obligations.
(2) A Minister responsible for functions listed in Schedule 2, within five years of the
publication of a Sector Adaptation Strategy and Plan, and at five-yearly intervals
thereafter, submit reports to the Minister on the progress made in relation to the 45
implementation of the relevant Sector Adaptation Strategy and Plan.

Adaptation Information and Synthesis Adaptation Report

20. (1) The Minister may by notice in the Gazette, or in writing, require any person to
provide, within a reasonable time or on a regular basis, data, information, documents,
samples or materials to the Minister that are reasonably required for the purposes of the 50
National Climate Change Response White Paper.
(2) A notice under subsection (1) must indicate the manner and time-frames in which
the information must be furnished and, if required, how the information must be
verified.
(3) The Minister must collate, compile and synthesise information relevant to the 55
achievement of the national adaptation objectives and the objectives of this Act and
thereafter publish a Synthesis Adaptation Report for consideration by Cabinet and to be
used in the Republic’s national and international reporting processes.
13

CHAPTER 5

GREENHOUSE GAS EMISSIONS AND REMOVALS

National greenhouse gas emissions trajectory

21. (1) The Minister must, in consultation with Cabinet, by notice in the Gazette
determine a national greenhouse gas emissions trajectory for the Republic. 5
(2) The national greenhouse gas emissions trajectory must—
(a) specify a national greenhouse gas emissions reduction objective represented
by a quantitative description of the total amount of greenhouse gas emissions
projected to be emitted during a specified period in the Republic;
(b) be informed by relevant and up to date information regarding the total current 10
and projected amounts of greenhouse gas emissions in the Republic; and
(c) be consistent with the principles and objectives of this Act and the Republic’s
international obligations.
(3) Until such time as the Minister publishes the national greenhouse gas emissions
trajectory in terms of subsection (1), the trajectory in Schedule 3 serves as the national 15
greenhouse gas emissions trajectory for the Republic.
(4) The Minister, in consultation with Cabinet—
(a) must review the national greenhouse gas emissions trajectory every five years
from the coming into operation of this Act; and
(b) may periodically review the national greenhouse gas emissions trajectory 20
when national circumstances require such a review, including when such
requirement is demonstrated by—
(i) monitoring and evaluation results;
(ii) technological advances;
(iii) the best available science, evidence or information; 25
(iv) the Republic’s international commitments and obligations; or
(v) constraints and opportunities to implementation of policies and mea-
sures.

Sectoral emissions targets

22. (1) The Minister must, within one year of the coming into operation of this Act, 30
by notice in the Gazette, list the greenhouse gas emitting sectors and sub-sectors that are
subject to sectoral emissions targets.
(2) The Minister may vary the list of sectors and sub-sectors that are subject to
sectoral emissions targets.
(3) The Minister must, in consultation with the Ministers responsible for each sector 35
and sub-sector listed in terms of subsections (1) and (2), determine by notice in the
Gazette the prescribed framework and the sectoral emissions targets for sectors and
sub-sectors.
(4) Sectoral emissions targets must—
(a) be implemented by the Ministers responsible for the administration of sectors 40
or sub-sectors listed in terms of subsections (1) and (2) through the relevant
planning instruments, policies and programmes;
(b) be aligned with the national greenhouse gas emissions trajectory, noting that
the cumulative amount of greenhouse gas emissions which the sectoral
emissions targets represent are not equivalent thereto; and 45
(c) include quantitative and qualitative greenhouse gas emission reduction goals
for the first five years, the subsequent five to 10 years and for a 10- to 15-year
period thereafter.
(5) When determining the sectoral emissions targets, the Minister must take all
relevant considerations into account, including, amongst others— 50
(a) the socio-economic impacts of introducing the sectoral emissions targets; and
(b) the best available science, evidence and information.
(6) The Minister responsible for each sector or sub-sector for which sectoral
emissions targets have been determined, in accordance with subsection (3), must adopt
policies and measures towards the achievement of the sectoral emissions targets. 55
(7) The Minister must, in consultation with the Ministers responsible for each sector
and sub-sector listed in terms of subsections (1) and (2), must, every five years, review
the sectoral emissions targets and, when the outcome of the review or national
14

circumstances require it, revise and amend the sectoral emissions targets, including
when the need for such revision and amendment is demonstrated by—
(a) monitoring and evaluation results;
(b) technological advances;
(c) the best available science, evidence or information; 5
(d) the Republic’s international commitments and obligations;
(e) the strategic importance of the sector or sub-sector as a catalyst for growth and
job creation in the economy; or
(f) the agreed approach to the just transition.
(8) An amended sectoral emissions target must contain quantitative and qualitative 10
mitigation targets for the first five years, for the subsequent five to 10 years and for a 10-
to 15-year period thereafter.
(9) The Minister responsible for each sector and sub-sector for which sectoral
emissions targets have been determined, within one year of the publication of the
sectoral emissions targets, must— 15
(a) develop or amend the relevant sectoral and sub-sectoral policies and measures
for which that Minister is responsible in terms of the achievement of the
sectoral emissions targets;
(b) publish such amendment in the Gazette;
(c) implement the policies and measures within the relevant sectors and 20
sub-sectors; and
(d) monitor the effectiveness of implementing such policies and measures in
achieving the relevant sectoral emissions target.
(10) The Minister responsible for each sector and sub-sector for which sectoral
emissions targets have been revised and amended in terms of subsection (7) must— 25
(a) within six months of the publication of the revised and amended sectoral
emissions targets and to the extent required by such revision and amendment,
revise and amend the policies and measures provided for in subsection (9);
(b) publish such revisions and amendments by notice in the Gazette; and
(c) ensure that the duly revised and amended policies and measures are 30
implemented and monitored for effectiveness.
(11) The Minister responsible for each sector and sub-sector for which sectoral
emissions targets have been determined in terms of subsection (3), or for which revised
and amended sectoral emissions targets have been determined in terms of subsection (7),
must annually report to The Presidency on progress towards the achievement of the 35
relevant sectoral emissions targets.
(12) The Minister must collate, compile and synthesise the reports provided in terms
of subsection (11) and submit progress reports on the implementation of the sectoral
emissions targets to Cabinet on an annual basis.

Listed greenhouse gases and activities 40

23. (1) The Minister must, by notice in the Gazette, publish a list of greenhouse gases
which the Minister reasonably believes cause or are likely to cause or exacerbate climate
change.
(2) The Minister must, by notice in the Gazette, publish a list of activities which emit
one or more of the greenhouse gases listed in terms of subsection (1) and which the 45
Minister reasonably believes cause or are likely to cause or exacerbate climate change.
(3) A notice published in terms of subsection (2)—
(a) must apply to greenhouse gas emitting activities which have already
commenced and new greenhouse gas emitting activities;
(b) must determine quantitative greenhouse gas emission thresholds expressed in 50
carbon dioxide equivalent to identify persons to be assigned a carbon budget,
in terms of section 24(1), and who are required, in terms of section 24(4), to
submit greenhouse gas mitigation plans to the Minister;
(c) must specify that the notice does not apply to listed activities which emit
quantities of greenhouse gases below the quantitative greenhouse gas 55
emission thresholds determined in terms of paragraph (b);
(d) may contain transitional provisions and other special arrangements in respect
of the activities contemplated in paragraph (a); and
(e) must determine the date on which the notice takes effect.
15

(4) The thresholds contemplated in subsection (3)(b)—

(a) must be expressed in carbon dioxide equivalents for carbon budgets and
greenhouse gas mitigation plans and shall be applicable at company level
based on operational control;
(b) must be based on the availability of feasible mitigation technology; and 5
(c) must take into account any opportunities and constraints to implementation of
policies and measures.
(5) The Minister may review the lists published in terms of subsections (1) and (2) in
line with the requirements of national and international mitigation goals for the purposes
of determining whether such lists require revision and amendment, including when the 10
need for such review is demonstrated by—
(a) monitoring and evaluation results;
(b) technological advances;
(c) the best available science, evidence or information;
(d) the Republic’s international commitments and obligations; or 15
(e) opportunities and constraints to implementation of policies and measures.
(6) In the event that a review undertaken in terms of subsection (5) indicates the need
for revision and amendment of one or both of the lists, the Minister may, by notice in the
Gazette, revise and amend the relevant list, by—
(a) adding or removing greenhouse gases from the greenhouse gases list; 20
(b) adding or removing activities from the activities list; or
(c) making other changes to the particulars on the list, such as the applicability of
greenhouse gases to certain activities.

Carbon budgets

24. (1) The Minister must allocate a carbon budget to any person that conducts an 25
activity listed in terms of section 23(2).
(2) When allocating carbon budgets, the Minister must take all relevant consider-
ations into account, including, amongst others—
(a) the socio-economic impacts of imposing the carbon budget;
(b) the best available science, evidence and information; 30
(c) the best practicable environmental options available and alternatives that
could be taken to mitigate the emission of greenhouse gases;
(d) national strategic priorities;
(e) the alignment of the carbon budgets with the national greenhouse gas
emissions trajectory, noting that the cumulative amount of greenhouse gas 35
emissions which the carbon budgets represent are not equivalent thereto; and
(f) progress on the implementation of the greenhouse gas mitigation plans.
(3) A carbon budget—
(a) must have a duration of at least three successive five-year periods; and
(b) must specify the maximum amount of greenhouse gas emissions that may be 40
emitted during the first five-year period.
(4) (a) A person to whom a carbon budget has been allocated in terms of sub-
section (1) must prepare and submit to the Minister, for approval, a greenhouse gas
mitigation plan.
(b) A greenhouse gas mitigation plan must— 45
(i) describe the mitigation measures that the person, to whom a carbon
budget is allocated, proposes to implement in order to remain within the
person’s allocated carbon budget; and
(ii) comply with the content requirements of such plans as may be prescribed
by the Minister in terms of section 27, including requirements pertaining 50
to processes, procedures and reporting.
(5) At the time when the carbon budget is assigned for the first mandatory carbon
budget cycle, all approved pollution prevention plans as contemplated in section 29 of
the National Environmental Management: Air Quality Act, 2004 (Act No. 39 of 2004),
and the National Pollution Prevention Plans Regulations, 2017, published under 55
Government Notice No. 712 of 21 July 2017, must be deemed to be greenhouse gas
mitigation plans.
(6) A person to whom a carbon budget has been allocated must—
(a) implement the approved greenhouse gas mitigation plan;
(b) monitor annual implementation of the greenhouse gas mitigation plan in 60
accordance with the prescribed methodology;
16

(c) evaluate progress on the allocated carbon budget;

(d) annually report on the progress against the allocated carbon budget to the
Minister in the manner prescribed; and
(e) in the event that such reporting indicates that the person has failed, is failing
or will fail to comply with the allocated carbon budget, provide a description 5
of measures the person will implement in order to remain within the allocated
carbon budget.
(7) (a) The Minister must review a carbon budget allocated to a person in terms of
subsection (1) at the end of the five-year carbon budget commitment period, or upon
request by a person subject to a carbon budget. 10
(b) A person to whom a carbon budget has been allocated may apply for a revision or
cancellation of the budget under prescribed circumstances.
(c) The factors listed in subsection (2) must be taken into consideration when a carbon
budget is reviewed.
(8) The Minister must, within a reasonable time of the review provided for in 15
subsection (7), revise a carbon budget—
(a) to ensure that it always has a duration of at least three successive five-year
periods; and
(b) if the National Greenhouse Gas Inventory demonstrates an increase in
national greenhouse gas emissions above the national and international 20
climate change mitigation commitments and obligations.
(9) An allocated carbon budget may be amended if the activity for which the carbon
budget has been issued is transferred or acquired in part or fully and the affected person
must request a reallocation of a carbon budget from the Minister in the prescribed
manner. 25

Phase-down and phase-out of synthetic greenhouse gas emissions and declaration

25. (1) The Minister, in consultation with the Ministers responsible for the greenhouse
gas emitting sectors and sub-sectors contemplated in section 22, must by notice in the
Gazette—
(a) declare certain greenhouse gases to be synthetic greenhouse gases; 30
(b) specify, in respect of each of the gases listed in the declaration contemplated
in paragraph (a), whether such gases are required to be phased out or phased
down;
(c) prescribe thresholds for the use of synthetic greenhouse gases in terms of
section 23(3)(b); and 35
(d) contain timeframes for the phase-down or phase-out of synthetic greenhouse
gases.
(2) The Minister, in consultation with the Ministers responsible for the greenhouse
gas emitting sectors and sub-sectors contemplated in section 22, and any affected party,
in the prescribed manner, must— 40
(a) develop a plan to phase down or phase out synthetic greenhouse gases
declared in terms of subsection (1); and
(b) review and update the plan provided for in paragraph (a) every five years.
(3) A plan developed in accordance with subsection (2)(a) must—
(a) address how importers and exporters of synthetic greenhouse gases must 45
account for their emissions of synthetic greenhouse gases;
(b) contain measures that facilitate the phase-down or phase-out of synthetic
greenhouse gases; and
(c) be consistent with the Republic’s international obligations.
(4) The Minister may allocate a carbon budget to persons undertaking activities that 50
give rise to emissions of the synthetic greenhouse gases declared pursuant to subsection
(1), in which event the Minister must follow the process for the allocation of carbon
budgets provided for in section 24.
17

National Greenhouse Gas Inventory

26. (1) The Minister must establish an institutional arrangement to facilitate a national
system of data collection for the creation of a National Greenhouse Gas Inventory and
the annual compilation of the National Greenhouse Gas Inventory Report.
(2) The National Greenhouse Gas Inventory Report contemplated in subsection (1) 5
must—
(a) set out and analyse emissions trends, including detailed reports on changes in
the greenhouse gas emissions intensity in the economy; and
(b) compare actual greenhouse gas emissions against the national greenhouse gas
emissions trajectory and national and international climate change mitigation 10
commitments and obligations.
(3) The Minister may by notice in the Gazette or in writing identify a list of activities
and thresholds for which measurements or estimations of greenhouse gas emissions and
carbon sinks from stationary, mobile, fugitive, process, agriculture, land use and waste
sources must be carried out. 15
(4) The thresholds stipulated in subsection (3) must be expressed as a function of
activity for greenhouse gas emissions reporting and may be different for different
activities, taking into account the significance of the contribution of these activities to
total national greenhouse gas emissions as well as its completeness.
(5) A notice under subsection (3) must indicate the manner in which the information 20
must be furnished and, if required, how the information must be verified.

CHAPTER 6

GENERAL MATTERS AND TRANSITIONAL ARRANGEMENTS

Regulations

27. (1) The Minister may make regulations— 25

(a) in relation to any matter necessary to give effect to the Republic’s
international climate change commitments and obligations;
(b) in relation to the management of climate change response including incentives
and disincentives to encourage a change in behaviour towards the generation
of greenhouse gases amongst all sectors of society; 30
(c) that will promote effective monitoring, evaluation and the assessment of
national progress in relation to climate change mitigation and adaptation
matters, including—
(i) in relation to the progress made by national departments, provinces and
municipalities with the development and implementation of Sector 35
Adaptation Strategy and Plans, climate change needs and response
assessments and climate change response implementation plans;
(ii) in relation to the performance of the departments responsible for the
functions contemplated in Schedule 2, as well as provinces and
municipalities, in respect of the national adaptation objectives; and 40
(iii) in relation to the consequences for the failure of the departments
responsible for functions listed in Schedule 2 as well as provinces and
municipalities, to report in the prescribed manner;
(d) that will promote the effective monitoring, evaluation and assessment of
national progress in relation to climate change matters and climate change 45
data and information, including information necessary to determine climate
change vulnerability and to foster resilience; and
(e) in relation to the administration and operation of any committee established in
terms of this Act, to ensure the achievement of its purpose, functions and
responsibilities. 50
(2) The Minister must make regulations—
(a) in relation to the management of climate change response, including—
(i) the determination, review, revision, compliance with and enforcement of
an allocated carbon budget, amendment and cancellation of a carbon
budget allocation, the content, implementation and operation of a 55
greenhouse gas mitigation plan, and all matters related thereto; and
18

(ii) the phasing down or phasing out of synthetic greenhouse gases,

including the development of timeframes, inventories and mechanisms
for reporting;
(b) that will promote the effective monitoring, evaluation and assessment of
national progress in relation to climate change matters and climate change 5
data and information, including information relating to direct and indirect
greenhouse gas emissions, for the purposes of planning, analysis and
monitoring and the compilation of the National Greenhouse Gas Inventory,
and that will inform how the Republic may comply with any international
obligations; and 10
(c) in relation to any other matter which the Minister must prescribe in terms of
this Act.
(3) A regulation made in terms of this Act may provide that any person who
contravenes or fails to comply with a provision thereof commits an offence and will be
liable, upon conviction, to the penalties contemplated in section 49B(2) of the National 15
Environmental Management Act.

Consultation

28. (1) Before exercising a power in terms of section 15(1), 16, 17, 18(2), 18(3),
19(1)(b), 19(1)(c), 20(1), 21(1), 21(4), 22(1), 22(2), 22(3), 22(7), 22(9), 22(10), 23(1),
23(2), 23(5), 23(6), 24(2), 24(7), 24(8), 24(9), 25, 26(3) or 27, the Minister, MEC or 20
mayor must follow such consultative processes as may be appropriate in the
circumstances.
(2) When conducting a consultation contemplated in subsection (1), the Minister
must—
(a) consult all Cabinet members whose areas of responsibility will be affected by 25
the exercise of the power; and
(b) in accordance with the principles of cooperative governance as set out in
Chapter 3 of the Constitution, consult the MEC in each province that will be
affected by the exercise of the power.
(3) When conducting a consultation contemplated in subsection (1), an MEC must— 30
(a) consult all members of the Executive Council whose areas of responsibility
will be affected by the exercise of the power; and
(b) in accordance with the principles of cooperative governance as set out in
Chapter 3 of the Constitution, consult the Minister and all other national
organs of state that will be affected by the exercise of the power. 35
(4) In respect of the carbon budgets issued in terms of section 24, the Minister must
follow a fair procedure prior to the issue of the carbon budget including consultation
with the person to whom a carbon budget is allocated.
(5) When conducting a consultation contemplated in subsection (1), a Mayor must
follow such consultative processes in accordance with the principles of cooperative 40
governance as set out in Chapter 3 of the Constitution.

Public participation

29. (1) Before exercising a power in terms of section 15(1), 16(1), 16(2), 17(1), 17(2),
18(2), 19(1)(b), 19(1)(c), 20(1), 20(3), 21(1), 21(4), 22(1), 22(2), 22(3), 22(7), 22(9),
22(10), 23(1), 23(2), 23(5), 23(6), 25 or 27, the Minister, MEC or mayor must give 45
notice of the proposed exercise of the relevant power—
(a) in the Gazette; and
(b) in at least one newspaper distributed nationally or, if the exercise of the power
will affect only a specific area, in at least one newspaper distributed in that
area. 50
(2) The notice must—
(a) invite members of the public to submit to the Minister, MEC or mayor, as the
case may be, within 30 days of publication of the notice in the Gazette, written
representations on or objections to the proposed exercise of the power; and
(b) contain sufficient information to enable members of the public to submit 55
meaningful representations or objections.
(3) The Minister, MEC or mayor may in appropriate circumstances allow any
interested person or community to present oral representations or objections to the
Minister, MEC or mayor, or to a person designated by the Minister or MEC or mayor.
19

(4) The Minister, MEC or mayor must give due consideration to all representations
and objections received or presented before exercising the power concerned.

Delegation

30. (1) The Minister may delegate a power or duty vested in him or her, excluding the
power to make regulations in terms of section 27, in accordance with section 42 of the 5
National Environmental Management Act.
(2) An MEC may delegate a power or duty vested in or delegated to him or her in
terms of this Act in accordance with section 42A of the National Environmental
Management Act.

Access to information 10

31. Information provided to the Minister or the Department in terms of this Act must
be made available by the Minister subject to the provisions of the Promotion of Access
to Information Act, 2000 (Act No. 2 of 2000), and the Protection of Personal
Information Act, 2013 (Act No. 4 of 2013).

Offences and penalties 15

32. (1) A person commits an offence if that person fails to prepare and submit a
greenhouse gas mitigation plan to the Minister in terms of section 24(4).
(2) A person convicted of an offence in terms of subsection (1) is liable to the penalties
contemplated in section 49B(2) of the National Environmental Management Act.

Appeals 20

33. (1) Any person may appeal to the Minister against a decision taken by any person
acting under a power delegated by the Minister under this Act.
(2) Any person may appeal to an MEC against a decision taken by any person acting
under a power delegated by that MEC under this Act.
(3) An appeal lodged in terms of subsection (1) or (2) must be noted and dealt with in 25
terms of section 43(4) of the National Environmental Management Act.

Savings, transitional provisions and amendment of laws

34. (1) The notice relating to the Declaration of Greenhouse Gases as Priority Air
Pollutants, 2017, published under Government Notice No. 710 of 21 July 2017, the
National Pollution Prevention Plans Regulations, 2017, published under Government 30
Notice No. 712 of 21 July 2017, and the National Greenhouse Gas Emissions Reporting
Regulations, 2016, published under General Notice No. 275 of 3 April 2017, made in
terms of the National Environmental Management: Air Quality Act, 2004 (Act No. 39 of
2004), will serve as regulations and notices published in terms of this Act, as soon as this
Act comes into operation and will remain in force and effect until they are amended, 35
replaced or repealed in terms of this Act.
(2) The National Environmental Management Act is hereby amended to the extent
reflected in Schedule 4.

Short title and commencement

35. This Act is called the Climate Change Act, 2022, and comes into operation on a 40
date fixed by the President by proclamation in the Gazette.
20

SCHEDULE 1

Functions relevant to the development of Sectoral Emissions Targets

Agriculture;
Forestry;
Fisheries;
Cooperative Governance;
Traditional Affairs;
Economic Development;
Energy;
Environment;
Health;
Human Settlements;
International Relations;
Mineral Resources;
National Treasury;
Public Enterprises;
Public Works;
Rural Development;
Land Reform;
Science;
Technology;
Trade;
Industry;
Transport;
Water Affairs; and
Sanitation.

SCHEDULE 2

National Departments and State-Owned Entities responsible for certain functions

required to develop a Sector Adaptation Strategy and Plan
Agriculture;
Forestry;
Fisheries;
Disaster Risk Reduction;
Energy;
Environment;
Health;
Human Settlements;
Manufacturing;
Public Enterprises;
Rural Development;
Land Reform;
Science;
Technology;
Transport;
Water Affairs; and
Sanitation.
21

SCHEDULE 3

Interim National Greenhouse Gas Emissions Trajectory

The Republic’s greenhouse gas emissions will—

(a) peak in the period 2020 to 2025 in a range with a lower limit of 398
Megatonnes (109kg) (Mt) CO2-eq and upper limits of 583 Mt CO2-eq and
614 Mt CO2-eq for 2020 and 2025, respectively;
(b) plateau for up to 10 years after the peak within the range with a lower limit of
398 Mt CO2-eq and an upper limit of 614 Mt CO2-eq.; and
(c) from 2036 onwards, decline in absolute terms to a range with a lower limit of
212 Mt CO2-eq and an upper limit of 428 Mt CO2-eq by 2050.

SCHEDULE 4

Amendment of laws: Section 34

Act no. Year Title Extent of amendment or

repeal
107 1998 National Environmental Man- 1. The National Environ-
agement Act mental Management Act is
hereby amended by the addi-
tion in section 1 to the defini-
tion of ‘‘specific environmen-
tal management Act’’ of the
following paragraph:
‘‘(i) the Climate Change
Act, 2022.’’.
22

MEMORANDUM ON THE OBJECTS OF THE CLIMATE CHANGE

BILL, 2022

1. PURPOSE OF BILL

The purpose of the Bill is to craft and implement an effective national climate
change response, including mitigation and adaptation actions, that represents the
Republic’s fair contribution to the global climate change response.

2. OBJECTS OF BILL

The main object of the Bill is to enable the development of an effective climate
change response and the long-term, just transition to a climate-resilient and
lower-carbon economy and society, and to provide for matters connected therewith.

3. LEGISLATIVE ANALYSIS

3.1 Clause 1

Clause 1 provides for the definition of certain words, terms and expressions
used in the Bill.

3.2 Clause 2

Clause 2 sets out the objectives of the Bill.

3.3 Clause 3

Clause 3 sets out the principles that will guide the interpretation and
application of the Act.

3.4 Clause 4

Clause 4 provides that the Bill is applicable within the borders of the Republic
and that it binds all organs of state as defined in section 239 of the Constitution
of the Republic of South Africa, 1996 (‘‘Constitution’’).

3.5 Clause 5

Clause 5 renders the Bill a specific environmental management Act, as defined

in the National Environmental Management Act, 1998 (Act No. 107 of 1998)
(‘‘NEMA’’), and requires the Bill to be read, interpreted and applied in
conjunction with that Act.

3.6 Clause 6

Clause 6 regulates conflicts with other legislation. In the event of any conflict
between a section of the envisaged Act and other legislation specifically
relating to climate change, the section of the envisaged Act prevails.

3.7 Clause 7

Clause 7 places a legal obligation on every organ of state to coordinate and

harmonise their various policies, plans, programmes, decisions and decision-
making processes relating to climate change, in order to ensure that the risks
of climate change impacts and associated vulnerabilities are taken into
consideration and give effect to the principles and objectives set out in the
envisaged Act.

3.8 Clause 8

Clause 8 requires the existing Premier intergovernmental forums established

in terms of the Intergovernmental Relations Framework Act, 2005 (Act No. 13
23

of 2005) (‘‘IGRFA’’), to also serve as Provincial Forums on Climate Change.

A Provincial Forum on Climate Change is charged with coordinating climate
change actions in the relevant province and reports to the President’s
Coordinating Council in terms of section 20(a) of the IGRFA.

3.9 Clause 9

Clause 9 provides for all district intergovernmental forums, established in

terms of the IGRFA, to also serve as Municipal Forums on Climate Change.
A Municipal Forum on Climate Change is charged with coordinating climate
change actions in the relevant municipality and reports to the relevant
Provincial Forum on Climate Change.

3.10 Clause 10

Clause 10 provides for the establishment of the Presidential Climate

Commission for organised labour, civil society and business to advise on the
Republic’s climate change response.

3.11 Clause 11

Clause 11 provides the functions of the Presidential Climate Commission,

which includes providing advice on the Republic’s climate change response to
ensure the realisation of the vision for effective climate change response and
the long-term just transition to a climate resilient and low carbon economy
and society.

3.12 Clause 12

Clause 12 provides for the process for the appointment of members of the
Presidential Climate Commission.

3.13 Clause 13

Clause 13 provides that the President may require that the Presidential
Climate Commission report on matters relating to reducing the emission of
greenhouse gases and adapting to the effects of climate change.

3.14 Clause 14

Clause 14 provides for the administrative and secretariat support for the
Presidential Climate Commission.

3.15 Clause 15

Clause 15 requires an MEC responsible for the environment, or a Mayor of a

District or Metropolitan municipality, as the case may be, to undertake a
climate change needs and response assessment within one year of the
publication of the National Adaptation Strategy and Plan. It further requires a
climate change response implementation plan to be developed within two
years of undertaking the climate change needs and response assessment. The
clause sets out the prescribed content of a climate change needs and response
assessment and a climate change response implementation plan. It further
requires a climate change response implementation plan to be integrated into
the relevant environmental implementation plan of the Province or the
relevant integrated development plan of the District or Metropolitan
Municipality.

3.16 Clause 16

Clause 16 provides for the establishment of adaptation objectives in the

Republic. The objective is to guide the adaptation response which is to be
accompanied by indicators for measuring progress. The Minister is also
24

required to determine the date by which the objectives must be incorporated

into national planning instruments, policies and programmes.

3.17 Clause 17

Clause 17 requires the Minister to develop adaptation scenarios which

anticipate the likely impacts of climate change in the Republic over the short,
medium and longer term. The scenarios must be developed within one year of
the envisaged Act coming into operation. It prescribes relevant considerations
and the minimum content of the adaptation scenarios.

3.18 Clause 18

Clause 18 provides that the Minister, in consultation with the Ministers

responsible for the functions listed in Schedule 2 to the envisaged Act, and is
required to establish a National Adaptation Strategy and Plan in terms of this
clause. The clause sets out the purpose of the National Adaptation Strategy
and Plan and its contents.

3.19 Clause 19

Clause 19 provides that within one year of the publication of the National
Adaptation Strategy and Plan, a Minister responsible for a function listed in
Schedule 2 must undertake an assessment of its vulnerabilities to climate
change and determine measures to respond thereto. The relevant Minister
must then develop and implement a Sector Adaptation Strategy and Plan
which is based on the vulnerability assessment. The relevant Minister is also
responsible for the submission of progress reports on the implementation of
the Section Adaptation Strategy and Plan to the Minister. This clause further
provides for the periodic review, and amendment if required, of the Sector
Adaptation Strategy and Plan.

3.20 Clause 20

Clause 20 empowers the Minister to request and obtain data and other
information held by any person which is required for the purposes of the
National Climate Change Response White Paper. The Minister is also
responsible for the compilation and publication of a Synthesis Adaptation
Report.

3.21 Clause 21

Clause 21 empowers the Minister, in consultation with Cabinet, to determine,

by notice in the Gazette, a national greenhouse gas emissions trajectory for the
Republic. Until such time as the Minister publishes a national greenhouse gas
emissions trajectory, the trajectory in Schedule 3 will serve as an interim
national greenhouse gas emissions trajectory for the Republic. The clause
provides for the mandatory review of the trajectory every five years as well as
for a review at any other time should the circumstances require.

3.22 Clause 22

Clause 22 empowers the Minister to list the sectors and subsectors which are
subject to the allocation of a sectoral emissions target. After having published
such a list, the Minister must determine sectoral emissions targets for the
listed sectors and subsectors. The sectoral emissions targets must be aligned
with the national greenhouse gas emissions trajectory. The sectoral emissions
targets are reviewable every five years from their initial publication. The
clause further requires the relevant Ministers to annually report to the
Presidency on the progress in achieving the relevant sectoral emissions
targets. The Minister must synthesise these reports and submit annual
progress reports on the sectoral emissions targets to Cabinet.
25

3.23 Clause 23

Clause 23 provides that the Minister must publish a list of greenhouse gases
which the Minister reasonably believes cause or are likely to cause or
exacerbate climate change. The Minister must further publish a list of
activities which emit one or more of the listed greenhouse gases and which the
Minister reasonably believes cause or are likely to cause or exacerbate climate
change.

3.24 Clause 24

Clause 24 requires the Minister to allocate a carbon budget to every person

undertaking a listed activity. The clause specifies the minimum requirements
to be taken into account when allocating a carbon budget and its prescribed
content. A person who has been allocated a carbon budget is required to
prepare and submit to the Minister a greenhouse gas mitigation plan. A
greenhouse gas mitigation plan must comply with all the requirements set out
in this clause and as may be prescribed by the Minister.

3.25 Clause 25

Clause 25 requires the Minister to identify synthetic greenhouse gases which

must either be phased out or phased down. This clause empowers the Minister,
in consultation with the relevant Ministers and any affected person, to develop
a plan for the phase down or phase out of the synthetic greenhouse gas. The
plan must comply with the requirements set out in the clause and must be
reviewed and updated on a five-year basis. The clause also empowers the
Minister to allocate carbon budgets to persons who undertake activities which
give rise to the emission of synthetic greenhouse gases.

3.26 Clause 26

Clause 26 provides for the development of the National Greenhouse Gas

Inventory and the compilation of the National Greenhouse Inventory Report
on an annual basis.

3.27 Clause 27

Clause 27 empowers the Minister to develop regulations relating to the

implementation of the envisaged Act.

3.28 Clause 28

Clause 28 is concerned with the consultation process that the Minister, the
MEC or a Mayor must follow when exercising a power in terms of the
envisaged Act. This consultation must be appropriate for the circumstances
and in the case of the Minister it includes consultation with all Ministers
whose areas of responsibility will be affected by the exercise of the power and
the relevant MEC in each province that will be affected by the exercise of the
power. In the case of an MEC, it includes consultation with the members of
the Executive Council whose areas of responsibility will be affected by the
exercise of the power and the Minister and all other national organs of state
that will be affected by the exercise of the power.

3.29 Clause 29

Clause 29 sets out the public participation process that the Minister, an MEC
or a mayor must follow when exercising the powers listed in the clause.
26

3.30 Clause 30

Clause 30 empowers the Minister and an MEC to delegate powers vested in

terms of the envisaged Act in accordance with the relevant provisions of the
NEMA.

3.31 Clause 31

Clause 31 concerns the right of access to information and provides that

information must be provided subject to the provisions of the Promotion of
Access to Information Act, 2000 (Act No. 2 of 2000), and the Protection of
Personal Information Act, 2013 (Act No. 4 of 2013).

3.32 Clause 32

Clause 32 provides for the offences and penalties under the envisaged Act.

3.33 Clause 33

Clause 33 provides that any person may appeal to the Minister or an MEC
against a decision taken by any person acting under a power delegated by the
Minister or that MEC and further provides that such an appeal must be
processed in terms of section 43 of NEMA.

3.34 Clause 34

Clause 34 deals with the savings and transitional provisions relating to the
Declaration of Greenhouse Gases as Priority Air Pollutants, the National
Pollution Prevention Plans Regulations and the National Greenhouse Gas
Emissions Reporting Regulations published in terms of the National
Environmental Management: Air Quality Act, 2004 (Act No. 39 of 2004). The
aforementioned subordinate legislation will remain in force and effect and
serve as regulations under the envisaged Act until they are amended, replaced
or repealed. This clause further provides for an amendment to NEMA in
accordance with Schedule 4 to the envisaged Act.

3.35 Clause 35

Clause 35 provides the short title and commencement of the envisaged Act.

4. DEPARTMENTS CONSULTED

The national and provincial departments responsible for the following functions
were consulted:

• Human Settlements, Water and Sanitation;

• Higher Education, Science and Technology;
• Agriculture, Land Reform and Rural Development;
• Trade, Industry and Competition;
• International Relations and Cooperation;
• Cooperative Governance and Traditional Affairs;
• Forestry, Fisheries and the Environment;
• Mineral Resources and Energy;
• Public Enterprises;
• Small Business Development;
• Health;
• Transport;
• Tourism;
• Treasury;
27

• all provincial departments responsible for environmental affairs through the

Ministers and Members of Executive Councils Meeting (MINMEC) and pro-
vincial stakeholder workshops; and
• all municipalities through provincial stakeholder workshops and the South
African Local Government Association.

5. FINANCIAL IMPLICATIONS FOR STATE

The Bill will create financial liability for the State in the form of implementation
costs*relating to the following:

• Development of climate change response and implementation plans by

spheres of Government; Sector Adaptation Strategy and Plan by relevant Min-
isters and the amendment of existing policies and plans to take sectoral emis-
sions targets into account;
• development of a National Adaptation Strategy and Plan;
• human resource capacity for supporting the development and implementation
of all plans, strategies and frameworks under the Bill; and
• human resource capacity for compliance monitoring and enforcement.

6. PARLIAMENTARY PROCEDURE

6.1 The State Law Advisers and the Department are of the opinion that the Bill
must be dealt with in accordance with the procedure established in section 76
of the Constitution.

6.2 Chapter 4 of the Constitution specifies the manner in which legislation must
be enacted by Parliament. It prescribes different procedures for Bills,
including ordinary Bills not affecting provinces (section 75 procedure), and
ordinary Bills affecting provinces (section 76 procedure). The determination
of the procedure to be followed in processing the Bill is referred to as tagging.

6.3 In terms of section 76(3) of the Constitution, a Bill must be dealt with in
accordance with section 76 if it falls within a functional area listed in
Schedule 4. Schedule 4 to the Constitution lists functional areas of concurrent
national and provincial legislative competence. In the Constitutional Court
judgment of Ex-Parte President of the Republic of South Africa In Re:
Constitutionality of the Liquor Bill1 (‘‘Liquor Bill judgment’’), Cameron AJ
held the following:

‘‘[27] It must be borne in mind that section 76 is headed ‘ordinary Bills

affecting provinces’. This is my view, a strong textual indication that section
76(3) must be understood as requiring that any Bill whose provisions in
substantial measure fall within a functional area listed in Schedule 4 be dealt
with under section 76.
...
[29] Once a Bill falls within a functional area listed in Schedule 4, it must be
dealt with not in terms of section 75, but by either the section 76 (1) or the
section 76(2) procedure. . .’’.

6.4 Following the Liquor Bill judgment, the Constitutional Court in the judgment
of Tongoane and Others vs Minister for Agriculture and Land Affairs and
Others2 (‘‘Tongoane judgment’’) confirmed the following:

‘‘[59] . . . the tagging test focuses on all the provisions of the Bill in order to
determine the extent to which they substantially affect functional areas listed
in Schedule 4, and not on whether any of its provisions are incidental to its
substance.’’.

1. (CCT/12/99) [1999] ZACC 15.

2. 2010 (8) BCLR 741 (CC).
28

6.5 Furthermore, the Constitutional Court held that:

‘‘[66] . . . procedural safeguards are designed to give more weight to the voice
of the provinces in legislation substantially affecting them. . .they are
fundamental to the role of the NCOP in ensuring that provincial interests are
taken into account in the national sphere of government. . .’’.

6.6 As the Court held in the Tongoane judgment, a Bill must be tagged as a section
76 Bill if its provisions in substantial measure deal with a Schedule 4
functional area. We are therefore of the view that the Bill should be classified
as a section 76 Bill, which is an ordinary Bill affecting province, as its
provisions in a substantial measure fall within a functional area listed in
Schedule 4 to the Constitution, namely ‘‘Environment’’.

6.7 The State Law Advisers are of the opinion that it is not necessary to refer the
Bill to the National House of Traditional and Khoi-San Leaders in terms of
section 39(1)(a)(i) of the Traditional and Khoi-San Leadership Act, 2019 (Act
No. 3 of 2019), as it does not contain any provisions which directly affect
traditional or Khoi-San communities or provisions which pertain to custom-
ary law or customs of traditional or Khoi-San communities.

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