Strengthening Indonesia’s Climate Diplomacy Through Subnational Approaches

Indonesia’s efforts to implement greenhouse gas (GHG) emission reduction targets at the subnational level, as stated by Priyanto Rohmattullah, Director of Environment at the Ministry of National Development Planning (Bappenas), during the 29th UN Climate Change Conference (COP29) in Azerbaijan, demonstrate a serious commitment to climate action (Priyanto Rohmattullah, 2025). In the context of climate diplomacy, this represents a strategic opportunity to enhance Indonesia’s global position while accelerating domestic climate goals.

The subnational approach adopted by Indonesia is a relevant strategy for decarbonization efforts. Local governments play a critical role in implementing policies that are contextual and need-based. Empowering these regions enables Indonesia to act as a catalyst for expediting the transition toward low-carbon development. This approach also strengthens Indonesia’s climate diplomacy in two key aspects. First, through domestic sustainability efforts, Indonesia demonstrates to the global community that its commitment to the Paris Agreement is not merely formal but an integrated part of its Long-Term National Development Plan (RPJPN). Second, by adopting a progressive global stance, Indonesia conveys that it is not dependent on aid but instead seeks mutually beneficial partnerships, enhancing international trust in its climate commitments.

However, this initiative is not without significant challenges. The uneven capacity of regional governments remains a major issue. Many provinces and municipalities in Indonesia still face limitations in technical expertise, financial resources, and human capacity, potentially creating gaps between ambitious targets and real implementation. Moreover, transparency and monitoring need strengthening. Without accurate and transparent monitoring systems, there is a high risk of data discrepancies and non-credible reporting. The ambition for carbon neutrality by 2060—or sooner—also warrants critique. With abundant renewable energy potential, Indonesia has the opportunity to be more progressive by setting a more ambitious target, such as 2050.

At COP29, Minister of Environment and Forestry Hanif Faisol Nurofiq emphasized the importance of carbon trading, including a Mutual Recognition Arrangement (MRA) with Japan under Article 6.2 of the Paris Agreement (Hanif Faisol Nurofiq, 2025). Carbon trading can serve as an effective tool for diplomacy. However, risks such as greenwashing must be anticipated. Without strict regulations, carbon trading could be used to shift domestic responsibilities to international markets, resulting in no actual emissions reductions. Therefore, transparency is a key element. Rigorous standards, such as Indonesia’s Emission Reduction Certificate (SPEI), need continuous development to maintain credibility.

The “Two-Level Games” concept by Robert Putnam offers a relevant lens to analyze this initiative. This concept illustrates how international negotiations (level 1) and domestic dynamics (level 2) are interdependent. In this case, Indonesia’s decision to integrate climate targets at the subnational level reflects an effort to balance domestic pressures—such as regional economic development needs and local political resistance—with its international commitments. By bringing climate targets to the local level, the central government seeks to accommodate local actors in the decision-making process, ultimately bolstering Indonesia’s position in global negotiations.

Nonetheless, complex domestic dynamics can also pose challenges at the international level. If local governments fail to meet targets or provide credible data, this could weaken Indonesia’s stance in international forums. Conversely, successful subnational implementation would enhance credibility in global negotiations, particularly in influencing developed countries to raise their commitments.

In addition to “Two-Level Games,” the concept of “Multilevel Governance” also provides a framework for analyzing this strategy. This approach involves collaboration among actors across various levels of government—local, national, and international—to achieve interconnected climate goals (Hooghe & Marks, 2001). Multilevel governance is evident in the central government’s initiatives to empower local governments to contribute to national climate targets, while simultaneously enabling these regions to benefit from international funding or partnerships with global organizations. For instance, the participation of major Indonesian cities in the C40 Cities network demonstrates how cross-level coordination can expedite climate policy implementation. However, the effectiveness of multilevel governance depends heavily on how well communication, role distribution, and responsibilities are managed among these actors.

Addressing these challenges requires a robust capacity-building strategy for local governments. The central government must allocate dedicated funds for technical training and capacity enhancement at the regional level. Partnerships with international organizations can accelerate this process. Furthermore, increasing the ambition of targets by expediting the energy transition should be encouraged. Investment incentives and energy policy reforms will be key elements in achieving more ambitious targets. Indonesia must also be more vocal in advocating for “loss and damage” issues as a climate-vulnerable nation. This approach can strengthen Indonesia’s position in international negotiations. Lastly, the development of an independent, data-driven reporting and monitoring system for subnational climate achievements is essential to ensure transparency and accountability.

Indonesia has made positive strides in strengthening its climate commitment through subnational approaches and carbon diplomacy. However, the success of this strategy depends significantly on how challenges are addressed and opportunities are leveraged. With a more ambitious, transparent, and collaborative approach, Indonesia can not only achieve its domestic targets but also play a greater role in leading global climate diplomacy.

References

1. Hooghe, L., & Marks, G. (2001). Multi-Level Governance and European Integration. Rowman & Littlefield Publishers.
2. Nurofiq, H. F. (2025). Statement on carbon trading and MRA discussions at COP29. 29th UN Climate Change Conference (COP29). Azerbaijan: United Nations Framework Convention on Climate Change (UNFCCC).
3. Priyanto Rohmattullah. (2025). Indonesia’s commitment to subnational approaches for GHG targets. 29th UN Climate Change Conference (COP29). Azerbaijan: United Nations Framework Convention on Climate Change (UNFCCC).
4. Putnam, R. D. (1988). Diplomacy and domestic politics: The logic of two-level games. International Organization, 42(3), 427–460.