Fragmentation in the Implementation of Indonesia's 2030 Nationally Determined Contribution: A Whole-of-Government Perspective

Abstract

The implementation of Nationally Determined Contributions (NDCs) presents a significant challenge for climate change governance, particularly as the 2030 target deadline approaches. Although Indonesia has strengthened its commitment through an Enhanced NDC and formulated various supporting policies, implementation on the ground continues to face obstacles that reveal fragmentation within government governance. This study aims to analyze the fragmentation of 2030 NDC implementation in Indonesia using a "Whole of Government" perspective. It employs a qualitative approach involving document analysis of various national and international policy documents including the Enhanced NDC, the First Biennial Transparency Report, the 2025–2029 National Medium-Term Development Plan (RPJMN), OECD reports, and other supporting materials. The findings indicate that NDC implementation is still hampered by three primary forms of fragmentation: suboptimal horizontal integration among ministries and agencies, weak vertical integration between central and regional governments, and disparities in institutional capacity across regions. These factors result in policy implementation that is sectoral and inconsistent, failing to fully support the achievement of the 2030 Enhanced NDC targets. This study contributes to the field of public administration by demonstrating that climate change policy implementation within a multilevel governance system must be understood through the lens of government integration (Whole of Government) rather than merely as an issue of interagency coordination.