Spatial Planning And Climate Adaptation In South Africa: A Path Towards Inclusive Resilience Through the Case Study Of The Loss And Damage Fund

By Esihle Mihlali Dube

One cannot look on the bright side of planning, its modern achievements without looking at the same time on its dark side of domination. The management of the social has produced modern subjects who are not only dependent on professionals for their needs, but also ordered into realities that can be governed by the state through planning. Planning inevitably requires the normalisation and standardisation of reality, which in turn entails injustice and the erasure of difference and diversity

-Arturo Escobar (2010: 147)

Introduction

One of the key developments of the 2023 United Nations Climate Change Conference of the Parties, also commonly known as COP28 was the formal agreement of establishing the Loss and Damage Fund. This fund was designed to support vulnerable countries in coping with the severe impacts of climate change. This was a very important development particularly because developing nations that have contributed the least to the climate crisis have been bearing the brunt of its effects. South Africa specifically has increasingly witnessed severe climate events from floods in Cape Town, Durban, and the Eastern Cape to heatwaves in the Northern Cape and droughts in the North West. These events have highlighted the pressing need for a robust policy framework to mitigate loss and damage. Thus, the Department of Forestry, Fisheries and the Environment hosted a number of stakeholder engagement policy sessions where it engaged on the policy to understand what are the policy measures that we have, how they proportionally contribute to Loss and Damage and what do we need to do to ensure that the implementation of this fund is a success. One of the most important outcomes from these policy discussions was that the institutionalisation of this fund provides an opportunity to not only address the immediate effects of climate change but also to tackle the deep-seated spatial inequalities that continue to render certain communities particularly vulnerable to the negative impacts of climate change. Meaning that integrating spatial planning into the implementation of the Loss and Damage Fund is important for its success to ensure that climate adaptation efforts are both equitable and effective.

The Legacy Of Spatial Planning In South Africa

To understand the significance of integrating spatial planning with the Loss and Damage Fund, it is important to recognise South Africa's historical context. The country’s spatial landscape is deeply rooted in its apartheid past, where spatial planning was deliberately used to segregate and marginalise non-white populations. This apartheid spatial arrangement placed black communities in peripheral areas, far from economic opportunities and essential services. Despite efforts to dismantle apartheid's spatial legacy at the dawn of democracy, the layout of South African cities continues to reflect this history, with socio-spatial inequalities persisting across the country. These inequalities are not just historical artifacts but continue to actively shape the vulnerability of communities to climate change. Marginalised communities, often located in flood-prone or drought-affected areas, lack the infrastructure and resources necessary to cope with extreme weather events. Therefore, addressing spatial inequalities through the institutionalisation of the Loss and Damage Fund is important. By directing resources towards improving the spatial resilience of these communities, the fund can help mitigate the risks they face and ensure that they are not disproportionately affected by climate impacts.

Spatial Planning And The Loss And Damage Fund

The connection between spatial planning and the Loss and Damage Fund is not merely coincidental but an important one for the fund's success. This is particularly because effective climate adaptation requires a comprehensive approach that integrates spatial planning with broader resilience-building measures. Thus, spatial planning plays an important role in this process by enabling the development of infrastructure and services that can withstand climate impacts, particularly in vulnerable areas.

For instance, the integration of climate adaptation into spatial planning can help create resilient settlements that are better equipped to cope with extreme weather events. Local governments, which are responsible for service delivery, infrastructure investment, and disaster management, are important in this process. However, their role in climate adaptation has often been under-resourced and inadequately mandated. The Loss and Damage Fund can address this gap by providing the necessary resources and policy support to local governments that will enable them to integrate climate adaptation into their planning instruments, such as Spatial Development Frameworks (SDFs) and Integrated Development Plans (IDPs).

By aligning spatial planning with the objectives of the Loss and Damage Fund, South Africa can ensure that adaptation efforts are not only effective but also equitable. This  will help protect cities against anticipated climate impacts while simultaneously addressing the immediate development challenges posed by spatial inequalities. In this way, the fund can contribute to redressing the legacy of apartheid's spatial planning, to ensure that all communities have the infrastructure and resources needed to adapt to climate change.

Batho Pele- Addressing Vulnerabilities Through Inclusive Planning

At the core of both spatial planning and the Loss and Damage Fund is the need to put people first, particularly those who are most vulnerable. Climate change exacerbates existing inequalities, disproportionately affecting marginalised communities who often lack the resources and infrastructure to cope with its impacts. In South Africa, this reality is starkly evident in the continued marginalisation of black communities in vulnerable areas. To address these vulnerabilities, spatial planning must be inclusive and participatory to recognise the diverse needs and realities of different communities. The institutionalisation of the Loss and Damage Fund provides an opportunity to operationalise this inclusive approach. By directing resources towards improving the spatial resilience of marginalised communities, the fund can help reduce their vulnerability to climate impacts and ensure that they are not left behind in the adaptation process.

Furthermore, spatial planning must prioritise the protection of development gains and the promotion of sustainable development pathways. This requires a commitment to sustainable adaptation planning that not only addresses the immediate impacts of climate change but also builds long-term resilience. The Loss and Damage Fund can play a critical role in supporting this process by providing the financial and policy support necessary to implement climate-smart planning practices. By doing so, the fund can help mitigate the risk of maladaptive development pathways that increase vulnerability in cities.

The Way Forward

The successful institutionalisation of the Loss and Damage Fund hinges on its ability to integrate spatial planning into its framework. National and provincial governments have a key role to play in providing overarching policy and legislative direction, as well as financial and capacity support to local governments. This support is important for empowering local governments to effectively integrate climate adaptation into their planning instruments and processes. The institutionalisation of the Loss and Damage Fund should be accompanied by a strong focus on capacity building and resource allocation. Local governments must be equipped with the necessary tools, knowledge, and resources to implement climate-smart planning practices. This includes enhancing their ability to identify and address vulnerabilities, engage with communities, and develop context-specific adaptation strategies. By doing so, the fund can ensure that spatial planning contributes meaningfully to the success of climate adaptation efforts in South Africa.

Moreover, the alignment of spatial planning with the Loss and Damage Fund will help ensure that adaptation efforts are not only effective but also equitable. This alignment will contribute to redressing the legacy of apartheid's spatial planning to ensure that all communities, particularly those most vulnerable to climate impacts, have the infrastructure and resources needed to adapt to climate change.

Conclusion

South Africa's approach to spatial planning is at a critical juncture. The challenges posed by climate change, coupled with the enduring legacy of apartheid's spatial configuration, demand a bold and inclusive approach to planning. The establishment of the Loss and Damage Fund provides a unique opportunity to integrate spatial planning into climate adaptation efforts to ensure that these efforts are both effective and equitable. By prioritising people, addressing vulnerabilities, and institutionalising the Loss and Damage Fund, South Africa can pave the way for a more resilient and equitable future. The success of the fund will however depend on its ability to integrate spatial planning into its framework, to ensure that all communities, particularly those most vulnerable to climate impacts, are equipped to adapt to the changing climate. As the nation moves forward, it is important to embrace a planning paradigm that is not only climate-smart but also socially just. This is particularly because addressing the deep-seated spatial inequalities that continue to shape our cities is crucial for building a climate-resilient society that leaves no one behind.

Esihle Mihlali Dube is a Development Studies Masters candidate with a keen interest in politics and development. She writes this in her capacity as a Climate Action & Coordination Intern at the Climate Action Network South Africa (SACAN).