Globally, governments, intergovernmental organisations, and civil society organizations recognise the impact that climate change is having around the world. The Intergovernmental Panel on Climate Change (IPCC) reports have elevated the urgency to act, as global warming is projected to rise by 1.5 to 2 degrees Celsius within this century, resulting in catastrophic implications worldwide. Pakistan is among the world's top 10 countries most affected by climate change devastation. The impact is visible across all spheres of life, including increased heat waves, shifting cropping patterns, reduced agricultural yields, prolonged droughts in southern Pakistan, water shortages, and declining snowfall in northern regions. Pakistan’s glaciers, numbering 7,253, are melting at an alarming rate, and the country faces a severe water crisis due to unsustainable groundwater usage and inadequate rainfall patterns. Unplanned urban expansion, growing at 3.3% annually, is rapidly consuming agricultural land, further worsening climate vulnerabilities.
Despite these challenges, Pakistan’s local government system has always operated in a bottom-up approach with minimal authority, restricting its role in climate change strategies. Additionally, five-year national plans do not fully integrate the local government’s role in driving economic shifts and addressing climate change challenges. This results in a lack of ownership at the grassroots level, with many local communities unaware of the unfolding climate crisis and its future consequences.
Globally, successful local governments play a critical role in climate resilience by implementing policies that contribute to national economies, social welfare, and environmental sustainability. I argue that local and sub-national governments serve as the foundation for tackling climate change challenges. By empowering them with financial and human resources, Pakistan can achieve meaningful progress in climate adaptation and mitigation.
Articles 132 and 140A of Pakistan’s Constitution encourage the local government system as a means to deliver essential services and drive economic sustainability through a bottom-up approach. However, in practice, the system has been manipulated to concentrate power at federal and provincial levels. Historically, local governments in Pakistan have been introduced primarily to legitimise military rule, rather than to empower communities. The Basic Democracies system under Ayub Khan (1960s), the modifications under General Zia-ul-Haq (1980s), and the Local Government Ordinance under General Musharraf (2000s) all followed a top-down approach, creating a political elite rather than strengthening grassroots governance.
Under the 2001 Local Government Ordinance, District Nazims were given authority over Deputy Commissioners, financial allocations were regulated through the National Finance Commission, 33% of seats were reserved for women, and Citizen Community Boards were established to engage local communities in development. However, many saw this as an attempt to bypass provincial authorities and weaken political parties.
Citizen engagement and local knowledge are vital for developing community-based early warning systems and adaptation measures
Despite these frameworks, local governance in Pakistan remains hindered by inconsistent and ad-hoc approaches to service delivery. The reluctance of provincial governments to transfer power and resources to local levels further exacerbates governance inefficiencies. Following the 18th Amendment, 15 ministries were devolved from the federal to provincial governments, including key climate-relevant ones such as environment, forestry, agriculture, and disaster management. While this marked a significant step towards decentralisation, local governments still lack the necessary coordination, resources, and strategic frameworks to implement effective climate mitigation initiatives.
With 129 city district councils, 619 urban councils, 4 metropolitan corporations, 13 municipal corporations, 96 municipal committees, 148 town councils, 360 urban union councils, and 1,925 rural councils, Pakistan’s local government system has the potential to engage citizens in climate action. Citizen engagement and local knowledge are vital for developing community-based early warning systems and adaptation measures. Major cities like Karachi, Lahore, Peshawar, Quetta, Faisalabad, and Rawalpindi can initiate climate resilience programs modelled after global best practices. However, without political will, local governments cannot contribute effectively to climate action and economic sustainability. A national emergency plan is needed to empower local governments with the financial and human resources required to address these challenges.
"In times of crisis, successful nations make difficult but necessary decisions in the country's interest, even if it means relinquishing centralised power. For Pakistan to achieve climate resilience and sustainable development, local governments must be empowered."
A successful example of municipal climate action is Cape Town, South Africa. The city government raises climate bonds and green bonds to finance climate-resilient projects and implements zoning regulations for sustainable urban development. In Cape Town, land use is strictly regulated, with designated residential, commercial, industrial, and agricultural zones. This prevents urban sprawl and ensures sustainable city planning.
Cape Town’s municipal government has implemented a 20-year climate action plan that includes carbon taxation, green transport strategies, and net-zero carbon buildings that adhere to sustainable urban planning standards. The private sector is actively engaged in climate-friendly projects, while urban greening initiatives help mitigate the impact of rising temperatures. Water scarcity solutions have been integrated into infrastructure planning, and flood risk mapping ensures better disaster preparedness. Riverbed restoration projects have further strengthened resilience against climate-induced disasters.
By enforcing stringent property regulations and involving the private sector in green energy projects, Cape Town has enhanced urban resilience. Citizen participation is ensured through public forums, digital engagement, and academic collaboration.
Pakistan can develop its action plans, empowering local governments to lead climate resilience efforts while fostering public-private partnerships. Structural reforms are necessary to enable local governments to act, a transformation that has been delayed due to political inertia. However, in times of national urgency, extraordinary measures are required to ensure long-term sustainability.
Empowering local governments is not just an administrative change—it is an essential step toward a climate-resilient and sustainable future
To build a climate-resilient Pakistan, an overhaul of the local government system is critical. Governance structures must be aligned with contemporary challenges, and financial, human, and institutional capacities need to be strengthened. Decision-making power must be transferred to local levels, ensuring that citizens are actively engaged in shaping climate action. Climate-responsive plans should be developed by each metropolitan and municipal corporation, with federal and provincial support to enhance district-level agricultural and industrial productivity.
Land use zoning and sustainable infrastructure planning must be prioritised to designate areas for residential, industrial, educational, and health purposes. Waste treatment facilities and clean water supply systems should be developed to combat environmental degradation. Urban greening initiatives, including large-scale tree plantations suited to regional climates, should be expanded. Educational institutions should incorporate tree plantation as part of students’ academic achievements, fostering a culture of sustainability from an early age.
Governance must undergo a digital transformation to integrate technology-driven service delivery models. Public forums and digital platforms should be used to incorporate citizen feedback and enhance accountability. Capacity-building programs must be introduced to strengthen local government officials’ ability to respond to climate challenges. In parallel, public-private partnerships should be encouraged, allowing private-sector investments to drive district-level industrial and agricultural growth. Regulatory frameworks should be supportive of business expansion without imposing excessive restrictions.
Pakistan’s local government system lacks the authority and resources to address climate change effectively. Structural reforms are necessary to decentralise power and enable grassroots governance. Political will at the highest levels is essential to drive climate adaptation and resilience initiatives. Historically, local governments in Pakistan have been imposed through a top-down approach, but true transformation requires citizen involvement and a shift toward inclusive decision-making.
In times of crisis, nations must take bold steps to ensure survival and prosperity. For Pakistan, empowering local governments is not just an administrative change—it is an essential step toward a climate-resilient and sustainable future.