Evidence shows that gender inequality undermines climate resilience. Disproportionate impact on women, girls and other marginalized groups coupled with structural barriers that limit their access to land, finance, technology, and decision-making spaces, increasing their vulnerability to climate risks Therefore, gender-responsive climate action improves adaptation outcomes, strengthen community resilience, and enhances sustainable development. Women and girls are key agents of change, contributing local knowledge, innovation, and leadership in climate action.
Recognizing this, Parties to the United Nations Framework Convention on Climate Change (UNFCCC) adopted the first Gender Action Plan (GAP) in 2014 at COP23 to systematically integrate gender equality into climate policy, planning, and implementation. Gender within the UNFCCC has evolved over time, leading to the adoption of the Belem GAP at COP30representing a shift to a more implementation focused action plan.
The Emergence of Gender in Global Climate Governance
Gender considerations within global climate governance have evolved gradually over time. Early UNFCCC negotiations paid limited attention to gender, with discussions largely framed around mitigation targets and technological solutions. However, advocacy from civil society, women-led groups, and developing countries including the AGN group increasingly highlighted the gendered dimensions of climate change and its impacts.
A major turning point came with the adoption of the Lima Work Programme on Gender (LWPG) in 2014, which formally recognized the need to promote gender balance and enhance gender-sensitive climate policy. This marked the beginning of a more structured approach to integrating gender within the UNFCCC process.
Subsequent negotiations reinforced this trajectory. There was growing recognition of the importance of women’s leadership, participation, and knowledge systems in climate decision-making. Gender equality began to be framed not only as a social issue, but as a prerequisite for effective climate action. This evolution culminated in the adoption of the Belem Gender Action Plan at COP30 in Brazil.
The Adoption and Structure of the Gender Action Plan
The first UNFCCC Gender Action Plan was adopted at COP23 in 2017 under the Fiji Presidency and later enhanced at COP25 in 2019. It provided a comprehensive framework to guide Parties in integrating gender considerations across all aspects of climate policy and action.
The Belem GAP is structured around five priority areas:
- Priority area A: Capacity-building and knowledge management and communication,
- Priority area B: Gender balance, participation and women’s leadership
- Priority area C: Coherence
- Priority area D: Gender-responsive implementation and means of implementation.
- Priority area E: Monitoring, and reporting Africa and the Belem Gender Action Plan
Africa has made notable progress in advancing the objectives of the Gender Action Plan, particularly in aligning gender considerations with its broader climate priorities. The continent’s strong focus on adaptation and resilience has created an entry point for integrating gender-responsive approaches, given that adaptation interventions are often community-based and livelihood-focused.
Several African countries have incorporated gender considerations into their Nationally Determined Contributions (NDCs) and National Adaptation Plans (NAPs). These include commitments to enhance women’s access to climate-resilient agriculture, improve participation in natural resource management, and strengthen gender-responsive climate governance frameworks.
At the community level, women are already leading adaptation efforts. Across rural Africa, women’s groups are engaged in climate-smart agriculture, water resource management, and ecosystem restoration. These initiatives demonstrate the value of local knowledge systems and collective action in building resilience.
There has also been gradual progress in increasing the participation of African women in international climate negotiations. While gaps remain, more women are taking on roles as negotiators, technical experts, and advisors, contributing to shaping global climate policy from an African perspective.
Importantly, Africa’s approach to climate governance increasingly recognizes that sustainable solutions must be inclusive, locally grounded, and responsive to social realities. This creates a strong foundation for advancing the Gender Action Plan.
Persistent Challenges and Gaps.
Despite this progress, significant challenges continue to limit the effective implementation of Gender-responsive climate action across the continent. Discussing at the PreSB64 AGNES strategy meeting, the gender team highlighted the following as persistent gaps in the implementation:
Institutional and coordination capacity remains a major constraint. Many countries lack the institutional mechanisms required to mainstream gender systematically within climate policies and programme. Gender is often treated as a cross-cutting issue without clear operational guidelines or accountability mechanisms.
Data gaps for further complicated implementation. The absence of gender-disaggregated climate data limits the ability of policymakers to design targeted interventions and measure impact. Without robust data systems, gender considerations risk being based on assumptions rather than evidence.
Climate finance also remains largely gender blind. While global frameworks emphasize gender-responsive finance, few funding mechanisms at the national level explicitly prioritize gender outcomes. Women-led initiatives, particularly at the grassroots level, continue to face barriers in accessing climate finance.
In many cases, gender is addressed theoretically rather than structurally. Policies may reference gender equality, but lack concrete actions, budgets, or monitoring frameworks to support implementation. This disconnects between policy commitments and practical outcomes remains a critical gap.
Opportunities for Strengthening Implementation of Gender-Responsive Climate Action in Africa
There are opportunities for Africa to strengthen the implementation of gender-responsive climate action and position itself as a leader in mainstreaming gender in climate governance. The ongoing development of NDC 3.0 presents a strategic entry point. Countries that are still preparing for their NDC3.0, can integrate gender more explicitly into climate targets, indicators, and implementation strategies, ensuring that gender considerations are bedded within national climate commitments.
Strengthening gender-responsive climate finance is equally critical. This includes finance mechanisms developing funding criteria that prioritize gender outcomes, designing gender-responsive projects and programs, and improving access to finance for grassroots initiatives.
Improving data and monitoring systems is essential. Investments in gender-disaggregated data, impact tracking, and reporting frameworks can enhance accountability and enable evidence-based policymaking.
There is also significant potential to support women-led climate innovation. Across Africa, women are driving solutions in agriculture, energy and natural resource management. Scaling these innovations requires targeted support, including capacity building, financing, and policy recognition.
Finally, strengthening the capacity of negotiators, policymakers, and practitioners is key. Institutions such as AGNES and partners play a critical role by providing technical training, policy support, and knowledge platforms to strengthen gender-responsive climate governance across the continent.
Conclusion
The Belem Gender Action Plan provides a clear global framework for integrating gender into climate governance. However, its success ultimately depends on how effectively it is implemented at the national and local levels and strengthening the regions’ collective implementation through structured guidance and cross-learning among countries. The transition from commitments to transformative action will define the future of gender and climate governance in Africa.