JUST TRANSITION, FROM PARIS TO BELÉM

The just transition is one of the main topics of discussion at the interim negotiations in Bonn ahead of COP30. But where does it come from? And where are we now?

The concept of just transition originated in 1980 from the struggle of the US trade union movement to protect workers from the impacts of new regulations on air and water pollution. Thanks to their effective advocacy, just transition also reached the UNFCCC negotiating tables, receiving increasing attention over time, until it became an integral part of the Paris Agreement. The COP21 text includes the concept of just transition in the preamble with the wording “taking into account the imperative of a just transition of the workforce and the creation of decent and quality jobs, in accordance with national priorities”.

Let us analyse the various parts:

“just transition of the workforce”: the issue of just transition is here limited to the workforce, whose needs and concerns should be taken into account. The text does not define the two extremes from which and to which the transition is taking place, nor what the transition in progress is.
‘…and the creation of decent, quality jobs’: the just transition must provide workers with the opportunity to choose decent, quality jobs if they have to leave their original ones.
‘…in accordance with national priorities’: on the one hand, it is emphasised that there is no “one size fits all” transition and that each state must have a wide margin of discretion in determining its own, while on the other hand, a transnational approach is implicitly ruled out. According to this consideration, the just transition therefore deviates from the concepts of justice in the UNFCCC system, based on equity and common but differentiated responsibilities (CBDR-RC), but applies considerations of justice to specific social groups within states.
The meaning of just transition and its implications under the Paris Agreement has changed in subsequent COPs. The Glasgow Climate Pact, reached at COP26 in 2021, for the first time decoupled the concept of just transition from direct reference to workers. In particular, paragraph 20 calls on parties to “accelerate the transition to low-emission energy systems […] by providing support to the poorest and most vulnerable, in line with national circumstances and recognising the need for support towards a just transition”. In this decision, just transition becomes one that supports the poor and most vulnerable, in line with national circumstances. Furthermore, paragraph 52 “recognises the need to ensure just transitions that promote sustainable development and poverty eradication, and the creation of decent and quality jobs, including through the provision of financial flows consistent with low-carbon and climate-resilient development, the development and transfer of technologies, and support to developing countries”.
The language used expands the scope of just transition within climate justice, based on the consideration that communities that are already poor and excluded from the benefits of the global economy suffer the greatest impacts of climate change, even though they are not responsible for it. Fair transition measures include directing technical and financial support towards developing countries, linking this to the concepts of equity and CBDR and determining the responsibility of developed countries towards developing countries in this area as well.

To summarise, the Glasgow Climate Pact introduces the following points:

To summarise, the Glasgow Climate Pact introduces the following points:

• the transition is towards low-emission energy systems;
• the just transition promotes sustainable development, poverty eradication and the creation of decent, quality jobs;
• the just transition provides support to the poorest and most vulnerable;
• developed countries must provide support to developing countries for the implementation of just transitions;
• just transitions must take place in line with national circumstances.

One year later, at COP27, in the Sharm el-Sheikh Implementation Plan, the Parties decide, in paragraph 6, “to implement ambitious, just, equitable and inclusive transitions towards low-emission and resilient development, in line with the principles and objectives of the Convention, the Kyoto Protocol and the Paris Agreement”. Furthermore, paragraph 29 states that “just and equitable transitions involve trajectories that include energy, socio-economic, labour force and other dimensions, all based on national priorities, and must include social protection systems to mitigate the potential impacts associated with the transition”. The decision therefore allows for a broader contextualisation of just transition measures and demonstrates the centrality of social protection in distributing the potential harms of the transition. The concept of just transition is also further linked to equity.

The same decision then states that just transitions ‘must be based on effective and meaningful dialogue and participation of all stakeholders’.

In the COP27 decision, therefore, the transition:

• moves towards low-emission and resilient development, in line with the principles of the Paris Agreement;
• if fair and equitable, concerns trajectories that include the energy, socio-economic, workforce and other dimensions;
• is based on national priorities;
• must include social protection systems;
• must be based on effective and meaningful dialogue and the participation of all stakeholders.

In 2023, at COP28 in Dubai, a specific work programme on just transition is created, the UAE Just Transition Work Programme, whose objective is to “discuss trajectories that enable the achievement of the objectives outlined in Article 2.1 of the Paris Agreement, in the context of Article 2.2”.

Just transition is therefore presented as the principle through which the Paris goals can be achieved, in line with the principle of equity and common but differentiated responsibilities and respective capabilities. In addition, the text refers to previous COP decisions, including the Sharm el-Sheikh definition that just transition is part of sustainable development and poverty eradication, and the creation of decent and quality jobs.

The obligation of developed countries to provide support to developing countries is recognised, taking into account their special needs and circumstances, but it is also recognised that just transitions concern all states.

In 2024, COP29 in Baku did not lead to the adoption of a decision on the issue of just transition, and now, at the interim negotiations in Bonn, we are monitoring the work to see how the issue will evolve towards COP30.

Article by Claudia Concaro, Italian Climate Network delegate at June Climate Meetings in Bonn.

Cover image: photo by Claudia Concaro