Climate Blog
2025-06-18
2025 Bonn Climate Conference Special Feature: The Just Transition Work Programme
The concept of Just Transition originated in the labour movements of the United States during the 1970s and 1980s. At the time, stricter environmental regulations led to the closure of polluting industries, and Just Transition was introduced as a way to ensure that workers and communities affected by these changes were protected, making the economic transition fair and equitable. Over time, the concept expanded beyond labour rights to encompass broader issues of social justice, aiming to shield all vulnerable groups from the adverse impacts of energy and economic transitions.
In 2015, the Paris Agreement formally incorporated Just Transition into the framework of United Nations climate governance, highlighting the importance of balancing economic development, social equity, and environmental protection in climate actions. Since then, Just Transition has become a core issue in climate discussions, particularly in the context of energy transitions. Policymakers face critical challenges in ensuring the protection of vulnerable groups, creating decent job opportunities, and fostering social cohesion while advancing climate goals.
From COP28 to COP29: Controversies and Stalemates in the Just Transition Work Programme
The Just Transition Work Programme (JTWP), first proposed during COP27 in 2022, was officially launched at COP28 in 2023 as a key platform for promoting social justice and economic inclusion in climate actions. However, the JTWP encountered significant setbacks at COP29, as deep divisions between developed and developing countries caused progress to stall.
Developed countries advocated for directly linking the JTWP to the 1.5°C global warming target, emphasising technological innovation and economic opportunities. Their approach sought to focus Just Transition on energy and workforce transitions. In contrast, developing countries called for a broader, cross-sectoral approach, framing Just Transition as part of a comprehensive economic and social transformation. This perspective included not only energy issues but also adaptation, financing, and technology transfer. They stressed the principle of Common but Differentiated Responsibilities (CBDR), demanding increased financial and technical support from developed countries.
Developing countries also criticised the narrow focus of developed countries, accusing them of limiting Just Transition to mitigation efforts while neglecting the broader impacts of climate change on vulnerable communities. This included insufficient support for adaptation and financing needs. Furthermore, the lack of clear guidance from the COP29 presidency shifted attention to other contentious issues, such as climate finance, leaving the JTWP sidelined once again.
The Key Role of the Bonn Conference: Bridging Divides and Advancing Consensus
The future of the Just Transition Work Programme (JTWP) is a critical focus of the Bonn Climate Conference. The COP30 presidency has made it clear that it expects negotiators to reach an agreement on the JTWP draft during this meeting, with the aim of submitting it for approval at COP30 later this year. This provides a fresh opportunity to advance the programme.
The year 2025 is pivotal for the JTWP, as it is set to undergo a comprehensive evaluation in 2026 to determine its future direction and effectiveness. The Bonn Conference must ensure that the JTWP not only continues to serve multilateral processes but also addresses the specific needs and implementation challenges of individual countries. Negotiators must strike a balance in the programme’s scope and focus: it must neither be too narrow to meet the demands of developing countries nor so broad that it fails to achieve meaningful outcomes.
Additionally, the progress of the JTWP needs to be closely linked with the Global Stocktake (GST) process. As GST-2 begins, a thorough assessment of Just Transition progress will help provide countries with a basis for recalibrating their strategies. The Bonn Conference also offers a valuable platform for countries to share experiences and best practices, fostering mutual trust and collaboration. For instance, the “mutirão” model proposed by the COP30 presidency is designed to create a bottom-up, multilateral cooperation framework that aligns national development priorities with climate action needs. If successfully implemented, the JTWP could become a vital bridge between climate action and socioeconomic development.
Localising Just Transition in Practice
As a city with significant income inequality, Hong Kong faces the challenge of ensuring that vulnerable communities are not disproportionately affected by the energy transition. The principles of Just Transition outlined in the JTWP and the Paris Agreement provide an essential framework, reminding policymakers to protect the most vulnerable populations while balancing social equity and economic development during the shift to a low-carbon economy.
CCIL has made a submission to the JTWP, echoing the findings of an earlier publication, the Hong Kong Just Transition Report. This report outlines strategies for implementing Just Transition in Hong Kong, including strengthening civil society participation and promoting fairness and sustainability in energy transition policies.
As Hong Kong prepares to review its Climate Action Plan 2050, CCIL has called on the government to launch a public consultation process to invite residents to participate in the formulation of Just Transition policies. This approach would help position Hong Kong as a model low-carbon city that prioritises equity and inclusivity in its climate strategies.