How to Create a Climate Council
A practical toolkit to strengthening climate governance
Governments urgently need to implement policies grounded in evidence to secure a path to a sustainable future. Improving subnational, national and international climate governance through effective climate councils will be critical to making that possible. This practical guide contains lessons from the ICCN’s members and leading researchers on how to design an impactful climate advisory body.
Watch this short introductory video from Emma Pinchbeck, CEO, Climate Change Committee, United Kingdom.
This toolkit provides global insights on establishing a climate council and strengthening climate governance – for governments, academics, business and civil society.
What is a climate council?
MANDATE: Climate councils (sometimes called “authorities,” “committees” or “commissions”) are bodies officially mandated by the government to advise them on climate change policy. Many councils are written into law, through a climate framework law. Others are set up by ministerial decree or long-term contracts. Some councils have the dual mandate to engage the public on climate change.
ROLES: The exact role of each council varies, but academic research pinpoints three main governance roles for councils:
- “Advisor”: improving policy through a dedicated advisory role, give long-term policy advice, freeing them from the constraints of short political cycles
- “Watchdog”: monitoring policy impacts and holding governments to account
- “Convenor”: undertaking stakeholder engagement, including public participation in policymaking. This role can also involve trans-departmental government and/or sub-national government co-ordination.
- A new development: In some instances, councils may also play an “implementation” role, whether that be administering regulations or supporting the delivery of climate finance funds.
Climate councils advise on different aspects of climate change policy, including mitigation, adaptation, the just transition, or some combination of the three.
To retain focus on the complexities of climate change, ICCN councils’ primary role is to advise on climate issues rather than wider environmental or economic policy. However, due to the expansive nature of climate policy, councils sometimes cover other issues within their remit.
EXPERTISE: Councils are made up of independent experts from a wide range of disciplines. Some councils have a stronger emphasis on scientific expertise and are made up solely of academics. Other councils may be chaired by government ministers (or even Presidents) and have wider stakeholder groups represented, like business, organised labour, faith groups, and civil society.
SECRETARIAT: Councils are usually supported by a secretariat. The secretariat is often funded via a sponsor government ministry but may also be funded by other donors. The secretariats are usually independent and contain a mix of analytical, communications and administrative expertise.
Read on to learn more about how to design and implement an effective council, according to your existing governance landscape and local needs.
Why are climate councils important?
Councils help effective climate action because they:
- Create political space for ambitious policy: Climate councils’ expert, science-backed advice helps governments build consensus and make political space for the right long-term decisions, including novel policy proposals.
- Create transparency and accountability: Their position in national climate governance (often in law) ensures they are credible and can hold governments to account
- Provide investor certainty: Councils offer certainty on long-term policy direction, as councils are established to endure beyond the usual 4–5-year cycles of government.
- Show leadership: Strong climate governance (both domestically and internationally) can influence others to follow suit.
- Build consensus through dialogue: Councils promote participatory democracy through their consultative, whole-of-society approach with scientists, indigenous peoples, civil society, the private sector and government.
Council shapes and sizes
A two-part structure is the most common model among ICCN members:
- Council: In many countries, the council is composed of experts from different disciplines (e.g. climate science, economics, public policy). In other countries [e.g. South Africa, Nigeria], the council is chaired by the President of the country with Ministers, business and civil society also represented. Some countries have two councils with different remits (Guatemala, Canada, Sweden)
- Secretariat: Most councils are supported by Secretariats that undertake a wide range of expert functions, including: programme management; analysis; report writing; and communications. Secretariats are usually sponsored by a government ministry and are either hosted within the ministry or established as a separate entity.
Council Size
Council sizes vary significantly depending on national context and remit:
Larger councils may reflect a broader mandate or a need for cross-sectoral stakeholder consensus, while smaller councils tend to focus more tightly on technical analysis and advice to government. Step 8 of the toolkit provides more information on methods for making appointments to councils.
Example: The German Council of Experts on Climate Change is a small expert body with 5 members, whereas South Africa’s Presidential Climate Commission has over 35 members, including ministers, trade unions and civil society.
Secretariat Size: A Key Enabler of Influence
The size of the supporting secretariat can significantly impact a council’s ability to produce robust analysis, respond to government requests, and engage stakeholders. The most common secretariat size is 10–30 staff. Other councils operate with smaller or larger teams depending on how broad their mandate is and level of resources available.
A well-staffed secretariat enables councils to contribute meaningfully to NDCs, national adaptation planning, just transition strategies, and more. Steps 9 and 10 of the toolkit provide case studies on establishing a strong Secretariat and securing funding.
Drawing on case studies from experienced members and expert advice from leading researchers,
the toolkit outlines three key phrases in the journey to creating a climate council:
CASE STUDY
Stakeholder Engagement in South Africa
The South African Presidential Climate Commission (PCC) was created in 2020 by President Cyril Ramaphosa, who Chairs the diverse Commission, made up of representatives from government, business, civil society, and organised labour.
In this video case study, you’ll hear from Commissioner Louise Naudé, Executive Director Dorah Modise, and other members of the Secretariat about why stakeholder representation and engagement is so critical to the work of the PCC.
Recognising every geography is unique in terms of its politics, natural resources, economy and culture – this toolkit allows you to select the most relevant lessons for you.