Pakistan's climate action: overcoming systemic hurdles

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Many developed nations have established their climate change sectors to a limited extent. It's easy to question why we should care about a country with slow governance, except for some emergency measures. It's a common problem for developing countries. But some countries, like Pakistan, have a reputation for poor governance. So, progress on climate change governance here is slow, and there's no quick fix. Meaningful action is rare and often only taken in response to immediate crises.

But, also true that developed nations have strong systems in place. When they need to expand in a certain area, they don't have to start from scratch. They allocate funds, pass laws, and set up a regulator. Then, they leave implementation to that regulator. The regulator can establish the necessary enforcement and support with effectiveness. Their systems are transparent and accountable. This allows operations to begin in a short amount of time.

In developing countries, particularly in Pakistan, new sectors often emerge gradually. Consider the environmental sector, which began in the early 1980s following the introduction of environmental protection ordinance. The establishment of a federal ministry proceeded slowly, taking nearly fifteen years to fully develop its structure after the passage of Pakistan's first comprehensive environmental law, the Pakistan Environmental Protection Act of 1997. Prior to this, provincial environmental protection directorates were largely ineffective, operating as small, under-resourced units attached to other departments. Growing concerns about environmental degradation, coupled with judicial intervention in response to violations, ultimately led to increased regulatory powers and enforcement of environmental laws.

Following the 2015 Paris Agreement, it took Pakistan nearly nine years to establish its Climate Change Authority. This delay wasn't due to a lack of will from any particular ruling party or government officials, but rather because of ingrained bureaucratic hurdles and a general reluctance to take initiative within the government. Despite being staffed largely by non-technical personnel, the Ministry of Climate Change performed admirably, particularly under a few dynamic ministers. Their focus was on policy development and representing Pakistan on the global stage, especially at the Conferences of the Parties, where their efforts earned international recognition.

However, progress at lower levels of government was hampered by a shortage of qualified climate change professionals. This is largely due to a lack of relevant programmes in local universities. Consequently, most self-proclaimed climate experts in Pakistan have either studied abroad or obtained doctorates after completing master's degrees in environmental science or related fields.

Pakistan's climate change sector, while drawing on expertise from various fields, lacks alignment with government policies and strategies. It's common practice for general administrative officers, though highly competent, to draft the initial policy framework, even for technical subjects. This initial draft becomes the foundation, and subsequent input from experts serves only to augment it, without fundamentally altering the original structure. Essentially, these generalist officers typically establish the core of any policy, which is then expanded upon with technical contributions. In the case of climate change policy, it's likely that generalist input has been dominant, otherwise the process wouldn't be so meticulously structured, with each new document requiring extensive further development through additional rules and guidelines.

Climate change mitigation and adaptation efforts in Pakistan are still developing. Mitigation efforts are getting more attention than the urgent need for adaptation and resilience, despite our greater vulnerability to climate disasters. This is largely because business interests find mitigation more straightforward and appealing. Investors recognise the long-term potential of renewable energy and electric vehicles as replacements for fossil fuels. This drives investment in mitigation, often without significant government intervention. As the energy landscape shifts, the broader economy will inevitably transition, likely creating a new "transition sector" focused on adapting the entire economic structure to sustainable practices.

Many businesses, recognising the inevitability of this trend, have already begun exploring the market mechanisms of the mitigation sector to fully capitalise on it from the supply side. For instance, while renewable energy certificates (RECs) haven't been formally introduced in Pakistan, they are already being traded on a very small scale in a voluntary market. This demonstrates the power of market forces, which, even without a regulatory framework, can find innovative ways to operate within a voluntary market.

In the government sector, where job security and fixed salaries are the norm, there's a lack of incentive to innovate and excel. This is largely due to a promotion system based solely on years of service and easily attainable "satisfactory" performance reviews. Consequently, while progress is being made and many senior officials are dedicated, the middle and lower ranks often lack vision and suffer from the stereotypical lethargy associated with government employees, which remains a significant concern. This is one of the main reasons why the pace of work in the government climate change sector is exactly the same as in other departments.

This issue is solvable. Given the seriousness of climate change and our national climate pledges, we need some innovative solutions. First, we must develop a skilled workforce in this sector, hiring through a transparent process. Second, we should digitise most regulatory and facilitation aspects to monitor performance effectively. Finally, we must abandon the common misconception that this sector can only be managed to a certain degree due to its complexity. We need to understand that it's the most critical area, and without addressing it, our very survival is at risk.