Just Transition Framework - The Just Transition Framework

The three pillars set out the elements that must be addressed to ensure a truly just transition is planned for. The pillars align to the five ways of working as outlined in the WFG Act, which supports the belief that a just transition will not be achieved without action against all three. 

The pillars are:

Analysing Impacts and Opportunities 

Analysing potential negative impacts and opportunities and how the impacts and opportunities are interconnected. For example, how opportunities related to transitioning to low carbon heating may provide opportunities for alleviation of fuel poverty and to diversify the workforce.

Mobilising Stakeholders and Coordinating a Collective Response

Recognising that involving those most affected within a multi-sectoral and coherent approach is required if we are to maximise the opportunities for a just transition. For example, by carrying out deliberative engagement with targeted communities.

Integrating the Just Transition into Decision-making

Planning for a Just Transition in different contexts by embedding the Framework’s Guiding Principles into decision-making processes. For example, when setting an organisation’s decarbonisation plan.

Many organisations will already operate in line with the pillars in various forms – the purpose of the Framework is to highlight the importance of these areas in relation to achieving a just transition. The below table provides sets of questions against each of the pillars, demonstrating the alignment with the five ways of working, and aiding policy developers and decision makers in their transition planning.

Question Sets for the Three Pillars

Analysing Impacts and Opportunities

• How have the long-term social, environmental, economic, and cultural opportunities and impacts of this policy been analysed, and is there a strong evidence base?
• How can the transition prevent further inequalities and drive a more positive future for Wales’ communities, workforce, businesses and the environment?
• How will the distribution of the policy impacts and opportunities be considered through an intersectional lens to prevent exacerbated inequality?
• How does this policy integrate multiple well-being goals (e.g. health, climate, economy)?
• Can integration across sectors provide wider benefits and opportunities?

Mobilising Stakeholders and Coordinating a Collective Response

• How have the long-term needs and aspirations of affected communities been considered?
• What insights can we use to help us prevent future inequalities, including from those with lived experiences?
• Are we involving stakeholders from different sectors to identify integrated, cross-cutting benefits?
• Can a collaborative approach build trust and shared ownership with delivery partners?
• How have those most affected by the policy been involved from the outset?
• How have we ensured the collaboration and involvement has been inclusive, accessible, and representative?    

Integrating the Just Transition into Decision-making

• How is long-term thinking embedded in our decision-making processes?
• How does the policy integrate decisions that help dismantle the systemic barriers that disproportionately affect different groups of people, e.g. Black, Asian and Minority Ethnic communities?
• How are we monitoring and evaluating the effectiveness of preventative measures?
• How are decisions being made with an integrated, whole-system perspective?
• How are collaborative approaches embedded in decision-making structures?
• What is the process for involving stakeholders throughout the policy cycle?
• Are communities involved in influencing decisions, not just responding to them?

To help enable a consistent approach we have developed guiding principles, which are intended to help actors plan and integrate a just transition in a way that complements the sustainable development principle in the WFG Act. These are based on international best practice identified from research [WCPP.ORG.UK], examples submitted from our Call for Evidence, and feedback from the consultation process. 

Question Sets for the Seven Guiding Principles

Well-being Goal: A Prosperous Wales

Just Transition Principle   

Invest in Education, Skills and a Low-Carbon Economy 

Key questions

• What economic opportunities can be unlocked by this planned change or policy?
• Are the skills required for the transition available? If not, are there opportunities or support you can provide to help meet future needs?
• How will the transition drive investment in existing or new businesses, our workforce and in skills?
• How will the transition support the creation of high-quality jobs that are secure, fairly paid, and offer opportunities for progression and development?
• What behaviours is the transition encouraging and discouraging?
• How will the transition support the local economy and mitigate potential negative impacts?

Well-being Goal: A Resilient Wales

Just Transition Principle   

Adapt to Climate Change and Enhance the Natural Environment

Key questions

• Have the environmental impacts and opportunities of the transition been assessed using reliable sources of evidence?
• How will the transition impact biodiversity and the health of ecosystems?
• How will the transition contribute to mitigating the effects of, and making adaptions to the impacts of climate change?
• How will the transition promote a circular economy, encouraging resource efficiency and minimising waste?

Well-being Goal: A Healthier Wales

Just Transition Principle   

Improve Health and Well-being through Climate Action 

Key questions

• How will the transition, directly or indirectly, impact the wider determinants of health and well-being?
• How will the transition contribute to healthy behaviours and lifestyles?
• How will the transition ease pressure on future health and social care?

Well-being Goal: A More Equal Wales

Just Transition Principle   

 Champion Equality and Rights and Share the Costs and Benefits Fairly

Key questions

• What groups of people are likely to be positively and negatively impacted by the transition and what could be done to mitigate the negative impacts?
• How will the transition address poverty and promote equality of opportunity, including for people from marginalised backgrounds?
• How are intersectional impacts (e.g. gender and ethnicity) considered?

Well-being Goal: A Globally Responsible Wales

Just Transition Principle   

Consider the Global Impacts on People and Planet

Key questions

• Will the transition have any environmental and/or social impacts overseas, for example deforestation or poor working conditions? If so, can any negative impacts be mitigated, and are there opportunities to have a positive impact?
• How does the transition affect Wales’ global footprint or supply chain emissions?
• How will the transition contribute to global good practice and shared knowledge?
• Can lessons be learned from other similar transitions across the world?

Well-being Goal: A Wales of Vibrant Culture and Thriving Welsh language

Just Transition Principle   

Support and Enhance the Culture of Wales and the Welsh Language

Key questions

• How have local groups and communities been engaged on the transition, ensuring strengthened community identity and traditions?
• How does transition promote or protect Welsh cultural heritage and identity and the Welsh language?
• How will the transition support access to, and diversity of, culture?
• Are traditional practices or local knowledge systems integrated into the policy?

Well-being Goal: A Wales of Cohesive Communities

Just Transition Principle

Involve Communities at the Earliest Stages and Throughout

Key questions

• How will impacted stakeholders be engaged with throughout planning and decision-making processes?
• What mechanisms exist for ongoing participation, feedback, and co-design, i.e. designing solutions to problems with people who are affected, rather than for them?
• Are marginalised or underrepresented groups actively included in decision-making?
• How will the transition support safe, attractive, and connected communities?

Definitions within the question sets

Intersectionality

The complex, cumulative way in which the effects of multiple forms of discrimination (such as racism, sexism, and classism) combine, overlap, or intersect especially in the experiences of marginalized individuals or groups. Merriam-Webster definition.

Marginalised

Relegated to an unimportant or powerless position within a society or group. Merriam-Webster definition.

Underrepresented

If a type of person or thing is under-represented in a group or organisation, there are not enough of them in it. Cambridge Dictionary definition. 

We are asking all actors – the wider public sector, private sector, third sector and communities – to use the Framework in their policy development and decision making. The Just Transition Framework can be used by climate actors and decision-makers at any level to help ensure the impacts and opportunities of climate action are distributed fairly across society. Action must be taken against each of the three pillars to understand where the risks and opportunities are, and how public bodies, businesses and communities can be involved, to better inform the decisions that are made. The guiding principles should be followed throughout the process to ensure organisations contribute to Wales’ well-being goals. The Framework should be used in conjunction with current organisational processes so that it adds value to choices and is embedded into decision making practices.

The Welsh Government will use the Just Transition Framework in developing policy in support of our net zero targets. It will be central to the development our Carbon Budget 3 (2026-2030) plan. Implementing the Framework will involve collaborating with Welsh Government policy areas, public sector bodies, private sector businesses and community groups, to test the application of the framework in those contexts. This testing will strengthen the development of more targeted guidance and support. 

The following actions outline how Welsh Government will use the framework to inform its work on the journey to a Net Zero Wales. The actions demonstrate how, as a government, we will strengthen each of the three pillars to support a just transition to Net Zero. It will be central to the development of our next statutory plan for Carbon Budget 3 (2026-2030).

Analysing Impacts and Opportunities

We will build our evidence base and continue to share information on the impacts and opportunities across our emission sectors in order to support others to prioritise the actions needed to improve just transition planning.

Our work to deliver a just transition will be informed by Wales’ progress against its national indicators and milestones, as well as insights from the Future Trends Report. Alongside these tools, insight will be brought together from the Welsh Government’s Integrated Impact Assessments and engagement sessions with stakeholders, such as through initiatives such as Wales Climate Week and the climate conversations.  

Continuing our work with international partners will help learn lessons from their experiences of transitions.

Mobilising Stakeholders and Coordinating a Response

We will collaborate with stakeholders to develop more targeted guidance or tools for use in different contexts, to enable others to prepare for a just transition.

We will explore options to support effective dialogue between trade unions, businesses and Government, ensuring workers understand the opportunities and risks of a just transition.

Working with public sector colleagues will be key to sharing knowledge on planning and implementing a just transition. We will use existing structures to continue this important discussion.

We will work with communities and build on initiatives such as the climate conversations [CLIMATEACTION.GOV.WALES] to ensure fair involvement of the public on matters of climate change.

Integrating the Just Transition into Decision Making

We will be embedding the Just Transition Guiding Principles into Welsh Government policies through integrated impact assessments of policies. All assessments will apply an intersectional lens, considering the different protected characteristics such as race, disability, age, gender identity, sexual orientation, religion or belief, and socio-economic status, alongside one another. If policies are anticipated to have a significant impact on greenhouse gas emissions through the integrated impact assessment screening, they will also be required to undertake a full carbon impact assessment alongside the just transition impact assessment. 

We will test the Framework to support policy-makers and decision-makers through the development of more targeted guidance or tools.

Public sector bodies and regional decision-making bodies are key actors in ensuring the success of a just transition due to their local knowledge. When developing transition plans or updating organisation-level plans such as decarbonisation plans, public bodies should include just transition considerations using the Framework’s three pillars and the seven guiding principles. This will help with direction-setting and understanding the wider impacts and opportunities relating to the organisation’s work.

When developing policies that will help to achieve our net zero ambitions, public bodies should use the framework at the earliest stages and alongside their current policy-making processes. The three pillars will: help gather the evidence required; drive a collaborative approach; and ensure a just transition is considered throughout the policy decision-making process. Using the seven guiding principles will help public bodies consider their activities in the context of the seven well-being goals.

Implementing the Just Transition Framework through climate action will allow public bodies to meet their legal obligations within the relevant legislation, including the Well-being of Future Generations (Wales) Act 2015, the Environment (Wales) Act 2016, the Equality Act 2010, and the Social Partnership and Public Procurement (Wales) Act 2023.

Businesses, like public bodies, can use the Just Transition Framework when developing plans and policies. When developing transition plans or updating current organisation-level plans, the Framework should be used in the early stages to help inform how plans are developed and then referred to when carrying out actions in relation to the plans. More details on specific actions businesses can take, relevant to their sector, can be found in the Welsh Government’s Business Decarbonisation Guidance document.  

Following the guiding principles and ensuring action is taken against each of the three pillars – wherever relevant to organisational processes – will help ensure a fairer transition.

Achieving a Just Transition is a journey—a collective, evolving process of moving from an extractive past to a regenerative future, guided by fairness, participation, and care for people and the planet. This Just Transition Framework is a tool that can help guide that evolving process. As a living tool, the Framework will be iterated and improved through feedback from stakeholders, ensuring that the Framework and the transition to net zero remains responsive, equitable, and effective over time.  We continue to further our understanding of what a just transition means in practice. Through Wales’ national indicators, and the data and evidence that underpins Welsh Government policymaking, progress towards a just transition can be monitored and evaluated, addressing gaps and adapting strategies over time. Feedback on the Framework will support its continuous improvement and we hope that it will serve as a platform for discussions on how we can collectively become a more sustainable and resilient country.