Advancing Green Human Capital: A framework for policy analysis and guidance

Advancing Green
Human Capital
A FRAMEWORK FOR POLICY ANALYSIS AND GUIDANCE

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Guidance on using this document
This is a publication from the Platform for Advancing Green Human Capital (PAGHC), an international
arena to debate the implications of the ecological transition for the labour market, training and
education policies and tap important synergies between the green economy and human capital.

This paper has been prepared with the intent to provide a set of general considerations that can help
guide the process of designing and implementing such policies. This paper is an invitation addressed
to all policy-makers and economic actors to gather forces around the issue of greening human capital
as an intrinsic, crucial part of their efforts to set up a new development model.

The Platform for Advancing Green Human Capital invites all policy representatives and other
stakeholders involved in such efforts to provide feedback on their own incremental progress within
the policy framework and on the usefulness of this framework in guiding this progress.

UNESCO-UNEVOC is going to open a dedicated feedback consultation thread on the UNESCO-

UNEVOC TVeT Forum starting 1st December 2017 to facilitate collecting feedback and perspectives
on the framework. To take part in this consultation process, please log on to: http://www.unevoc.
unesco.org/go.php?q=e-Forum%20-%20Message%20Board

Based on your feedback and inputs, PAGHC will be able to improve the framework and provide further
tools and initiatives to serve the global momentum towards a truly inclusive, sustainable society.
Table of Contents
Tables, Figures and Boxes 4

Glossary 5

Acronyms and abbreviations 6

Summary 7

Introduction: an international context for greening jobs and skills 8

I. Why advance green human capital? 9

I.1. Impacts of the ecological transition on employment 9

I.2. The role of technical and vocational education and training (TVET) 11

I.3. Towards a coordinated, multi-stakeholder engagement 12

II. Policy framework for decent jobs and skills in the green economy 15

II.1. Policy area A: Market analysis and policy orientation 17

II.2. Policy area B: Stakeholder awareness and ownership 18

II.3. Policy area C: Integrated governance 19

III. References of guides for further action 20

III.1. Guidelines for a Just Transition towards Environmentally Sustainable

Economies and Societies for All (ILO, 2015b) 20

III.2. Comparative Analysis of Methods of Identification of Skill Needs on the

Labour Market in Transition to the Low Carbon Economy (ILO and European Union, 2011) 21

III.3. Anticipating Skill Needs for Green Jobs: A Practical Guide (ILO, 2015a) 22

III.4. Greening the Global Economy: The Skills Challenge (ILO, 2011b) 23

III.5. Meeting Skill Needs for Green Jobs: Policy Recommendations (ILO et al., 2013) 23

III.6. Unleashing the Potential: Transforming Technical and Vocational Education

and Training (Marope et al., 2015) 24

III.7. Facilitating Green Skills and Jobs in Developing Countries (Rademaekers et al., 2017) 24

III.8. Methodological Kit for Accompanying Professional Transitions in Industrial

Sectors Impacted by the Ecological and Energy Transition (France, 2016) 24

Conclusion: an invitation to move forward 26

References 27
Advancing Green Human Capital: A framework for policy analysis and guidance

Tables, Figures and Boxes

Table 1 Sectors most impacted by the ecological transition

Table 2 Skill research questions and appropriate types of methodology

Table 3 Structure of a qualitative whole-economy overview

Table 4 Stakeholders in the greening skills process by specialist group

Table 5 Recommendations to support green jobs and skills at different levels

Figure 1 Synthetic policy framework for decent jobs and skills in the green economy

Figure 2 Components of a plan to accompany professional transitions

Box 1 Lessons from previous coal transitions

Box 2 Messages from the COP21 policy dialogues on advancing green human capital

Box 3 Boosting renewable energy in Africa: the skill challenge

Box 4 Policy measures for an enabling business environment

Box 5 The observatory of jobs and skills in the green economy led by the French Ministry of Environment

Box 6 Greening teacher education in Nigeria

Box 7 Decentralized training systems in Denmark

Box 8 ILO guidelines on skill development policies

Box 9 Policy checklist in addressing the greening skills challenge

Box 10 Policy recommendations to address the challenges of meeting skill needs for green jobs

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 Advancing Green Human Capital: A framework for policy analysis and guidance

Glossary
Decent jobs: jobs that help meets the aspiration of workers, without discrimination, in terms of income,
rights, voice, recognition, family stability and personal development.

Ecological transition: the process of transformation of a social and economic system towards
environmental sustainability.

Green economy: an economic system that is efficient in its use of natural resources, characterized
by limited polluting and resource-intensive activities, flourishing activities aiming at environmental
preservation, and environmentally responsible business practices.

Green human capital: the set of green skills shown by a society’s workforce.

Green jobs: jobs aiming to preserve or restore environmental quality.

Green skills: the professional knowledge, abilities, values and attitudes needed in the transition to a
green economy.

Greening jobs: the process of adapting existing occupations to the needs of the green economy.

Greening skills: the process of developing new green skills in the workforce and/or adapting current
skills to the needs of the green economy.

Inclusive development: a society’s economic and social pathway that ensures reduction in poverty,
promotes solidarity between its members and allows the participation of all its members in economic,
social and decision-making processes.

Portable skills: skills that are needed in a variety of sectors and groups of occupations, facilitating
professional transitions.

Professional transition: the process, for an individual, of moving from one occupation to another
occupation, most of the time based on the assertion of portable skills, but also requiring retraining for the
acquisition of skills adapted to the new occupation.

Sustainable development: a society’s economic and social pathway that strives to meet the material and
non-material needs of all its members while ensuring the preservation of natural resources so as to stay
within the planetary boundaries.

TVET (technical and vocational education and training): a system of initial and continuing education
and training that imparts the skills required for employment in a particular occupation, or group of
related occupations.

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Advancing Green Human Capital: A framework for policy analysis and guidance

Acronyms and abbreviations

AFD Agence française de développement (French development agency)

Cedefop European Centre for the Development of Vocational Training

CETVETAR Centre for Technical and Vocational Education, Training and Research (Nigeria)

CVET continuing vocational education and training

IDDRI Institute for Sustainable Development and International Relations

ILO International Labour Organization

IRENA International Renewable Energy Agency

IVET initial vocation education and training

NGO non-governmental organization

OECD Organisation for Economic Co-operation and Development

Onemev National Observatory of Jobs and Skills in the Green Economy (France)

PAGHC Platform for Advancing Green Human Capital

SDG Sustainable Development Goals

SME small and medium-sized enterprise

TVET technical and vocational education and training

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 Advancing Green Human Capital: A framework for policy analysis and guidance

Summary
A well-managed ecological transition can become a strong driver for job creation
and social justice. The potential for new, decent jobs is huge in the shift to
renewable energy, green buildings, environmental services, clean transport,
organic farming and so on. On the other hand, job losses are expected, in particular
in the most polluting sectors, so professional transitions must be anticipated. In
addition, all economic activities and occupations are faced with changing practices
and the need to adapt skills. A shortage of skills can represent a strong barrier
to ecological progress, delaying technological and economic transformation.
Public intervention is therefore needed to help labour markets and education and
training systems adapt to the new demands of a green economy.

In every country, public and economic actors must act together to set up a
roadmap for the necessary adaptation of skills to the demands of the green
economy. Such processes are country-specific, because they are ideally adapted
to each particular social, economic and administrative context. Still, general
considerations can help guide the process of designing and implementing such
policies, with the purpose of triggering, encouraging and coordinating actions
from the various stakeholders involved in economic development and human
capital management.

First of all, once political commitment is made to green the labour market, a
critical starting point is to identify priority sectors and jobs, and current and future
skill needs, based on sound labour market information and social dialogue. A
second crucial focus and backbone of any policy strategy for green jobs and skills
is the involvement of stakeholders such as social partners, private firms, non-
governmental organizations (NGOs), education and training institutions, based
on the complementarity of top-down coordinated policy-marking and bottom-up
sectoral and local initiatives. At a more advanced stage of policy development, a
financial and regulatory framework should be set up by national and subnational
governments to support investments in greening skills. Last but not least, a
comprehensive model of governance must ensure that actions are coherent across
sectors and across decision-making levels. This is why largely multi-actor and
decentralized project governance should emerge, coexisting with the persistence
of a global political vision and coordination at the national level.

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Advancing Green Human Capital: A framework for policy analysis and guidance

Introduction: an international context for

greening jobs and skills
The ecological transition is a key challenge facing the international community. The tension between increasing global
demand for goods and services and rapid resource depletion can only be addressed through radical change in approaches
to the production–consumption cycle. It calls for transforming our economic and institutional frameworks to enable
new or adapted technologies and business models to emerge. If these changes are properly planned and managed, they
could result in environmental innovation that is positive for employment, productivity and competitiveness, and can be
a key factor for minimizing the cost to the economy of a shift to a more environmentally friendly model while creating
opportunities for greater social justice.

In this time of major environmental crisis and high levels of green economy and human capital, both vital for
of unemployment, public policy has an opportunity and a sustainable development. PAGHC aims to accelerate and
responsibility to focus on the intersection of activities that create opportunities for a just transition for all through
may lead to both sustainable and inclusive development. If policy dialogues that debate the implications of the
managed with clarity and determination, these policies can ecological transition for the labour market, training and
be a chance to build a new, solid, socio-economic model in education policies. Policy dialogues take the opportunity
tune with the many challenges of the twenty-first century. of international meetings, such as the 2015 United Nations
With the Paris Agreement on climate change, the Sustainable Climate Change Conference of the Parties (COP21) and
Development Goals (SDGs) and other major commitments, the Asia Clean Energy Forum, to inform people of the
the international policy context provides an ambitious importance of integrating employment, training and
vision and a coherent framework to tackle these issues in a education policies with economic policies, in order to be
concerted way. more efficient in the pursuit of national and international
objectives for climate protection and sustainable
The link between education, training, social justice and development. The policy dialogues promoted by PAGHC
environmental protection is a significant feature of the address questions such as how can we raise the profile of
SDGs adopted by the international community in 2015. skills to address the ecological transition? What initiatives
SDG 4, which is related to quality education, targets that are already being put into practice by governments,
by 2030, the world should ‘ensure that all learners acquire development partners, social partners and financial
the knowledge and skills needed to promote sustainable institutions? What guidelines can be proposed, in particular
development’. SDG 8, promoting inclusive and sustainable as part of the SDGs?
economic growth, employment and decent work for all,
aims to ‘substantially reduce the proportion of youth not This paper presents a structured reflection based on
in employment, education or training’ by 2020. SDG 12 on successful initiatives and on the work of PAGHC partners
responsible consumption and production includes ensuring since 2015 and other works published on this topic, with
that ‘people everywhere have the relevant information the aim to provide governments and other stakeholders
and awareness for sustainable development and lifestyles around the world with a strategic framework to take up this
in harmony with nature’. In addition, many of the targets agenda. It is intended primarily for national governments,
detailed as part of the SDGs, for instance ‘enhancing but can also provide a basis for reflection and action to
scientific research, upgrade the technological capabilities of subnational institutions and all stakeholders in the fields of
industrial sectors’ (SDG 9), implicitly call for a workforce with both education and training and sustainable development.
appropriate skills, and therefore for specific education and While we focus on government’s responsibility and skill
training efforts. In fact, all SDGs require individuals, whether supply issues, this is not to underestimate the importance of
acting as citizens or professionals, to acquire the knowledge, bottom-up approaches to skill development and the need
skills, values and attitudes that empower them to contribute for ambitious policies to provide an enabling environment
to sustainable development1. for responsible business practices, green finance,
infrastructure and clean technology development.
The Platform for Advancing Green Human Capital (PAGHC)
is an international partnership created in 2015 to provide After an illustrative reflection on the issues at stake and
an arena to tap important synergies between the worlds the role of skill development policies (Part I), this paper
provides a guiding framework for policy development (Part
1 That is the rationale behind UNESCO’s guide on Education for Sustainable
Development Goals, targeted to education specialists and which translates each II), together with references to other existing guides for skills
SDG into learning objectives (UNESCO, 2017). and jobs in a green economy (Part III).

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 Advancing Green Human Capital: A framework for policy analysis and guidance

I. Why advance green human capital?

I.1. Impacts of the ecological transition on employment

In the move towards a green economy, patterns of employment are experiencing contrasted changes both quantitatively (job
creation and losses) and qualitatively (evolution of skills and job quality). Employment and the training system are affected in
three ways (Cedefop, 2012):

ÑÑ Structural changes lead to increases in demand for some jobs and decreases for others.

ÑÑ M
any existing occupations and industries will experience greening changes to tasks involved in their jobs, which will require
adjustments to the current training and qualification frameworks.

ÑÑ T o a lesser extent, new economic activity may create new professions, a need for new skills profiles, and new qualification
and training frameworks.

The International Labour Office (ILO) identified eight key economic sectors where job markets are going to face major changes
(see Table 1).

Table 1 – Sectors most impacted by the ecological transition

Agriculture Agriculture is the world's largest employer with more than 1 billion workers, including a large number of poor
agricultural workers and subsistence farmers (mostly women). Strong investment in skills, rural infrastructure and
professional organizations would enable smallholder farmers to adopt more productive and environmentally
friendly farming practices, boost food security, reduce poverty and prevent rural exodus.
Forest industries In the forestry industry, unsustainable practices have already led to job losses, sometimes on a very large scale.
Sustainable forest management provides both essential environmental services and renewable raw materials to
other sectors while also providing quality jobs.
Fisheries The fisheries sector is facing a major transition challenge owing to overfishing. Of particular concern is that 95
per cent of the 45 million workers employed in fishing are poor artisanal coastal fishers in developing countries.
Temporary reductions of catch are needed in many fisheries to avoid the collapse of fish stocks and to allow their
recovery for sustainable food production and employment.
Energy In the energy sector, rapid growth in renewable energy, progress in energy efficiency and better access to energy
can lead to major gains in employment opportunities and income as well as significant environmental benefits.
Fossil energy generation is likely to see job losses, calling for policies to ensure a just transition for workers and
their communities.
Manufacturing Resource-intensive manufacturing has seen a decline in employment for decades, in which the environment
industries has been a minor factor. However, a green economy could increase demand for products from these industries,
contributing to improved competitiveness while protecting employment and even creating new jobs.
Recycling Recycling is essential for energy efficiency, avoidance of waste, safe treatment of hazardous waste and recovery
of valuable materials. Employment could be significantly increased by improving recycling rates, and there is
major potential to improve social inclusion and reduce poverty through formalization, as the majority of waste
pickers, notably women and child labourers, are concentrated in informal employment.
Construction High-efficiency buildings have the largest potential to reduce greenhouse gas emissions and resource use. There
are also significant opportunities for employment creation in new, green buildings, and even more opportunities
in retrofitting the large estate of older buildings. A successful strategy hinges on skills development and on
preparation and upgrading among the small and medium-sized enterprises (SMEs) which dominate the sector.
Transport Transport is central to the functioning of modern economies and for development, but it has also been the most
rapidly growing source of greenhouse gas emissions. However, substantial gains in employment can be created
by a shift to mass transportation and more energy-efficient vehicles.

Source: ILO 2012

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Advancing Green Human Capital: A framework for policy analysis and guidance

Research underlines the potential for new jobs created in the Box 1 - Lessons from previous coal transitions
shift to renewable energy, green buildings, environmental
services, clean transport, organic farming, eco-tourism
A successfully managed coal-mining transition can take
and so on. The potential for employment in clean energy up to twenty-five years, in order to ensure new jobs for
in particular is enormous. The 2017 review report by workers, regional economic regeneration, and company
the International Renewable Energy Agency (IRENA) on reinvestment in new business models. Given the imperative
renewable energy and jobs estimates the global work and the likelihood of a relatively fast phasedown of global
force in renewables at 9.8 million – a figure 40 per cent coal use from the 2020s onwards, stakeholders need to
begin a managed and controlled transition today. If not,
higher than in 2012 (IRENA, 2017). Doubling the share of
they risk more serious consequences of more abrupt and
renewables in the energy mix by 2030 could increase direct unmanageable changes later on. Once they begin, coal
and indirect employment in the sector to 24.4 million. transitions can move fast, at which point they can be
Research also shows the quality of new renewable energy impossible for governments to deal with effectively.
jobs to be good, with overwhelmingly permanent, full-time
The example of the Limburg region in the Netherlands
positions. In China, workers at wind firms had higher average illustrated that higher levels of reemployment, company
annual incomes and better job security, experienced better reinvestment in new business models, and regional
occupational conditions and enjoyed a higher level of economic regeneration are possible given time,
workplace protection measures than their counterparts in reinvestment and sufficient social and political consensus.
For instance, in that case, a transition of approximately 75,000
conventional power plants (ILO, 2013).
mining workers into alternative employment (or in some
However, job losses can also be expected from the ecological cases retirement) was achieved over a period of ten years.
A significant percentage of affected workers were also able
transition, especially in the short term in carbon-intensive
to be retrained and find new employment in the same coal-
sectors, for instance as some coal mines and processing mining company, as it diversified into other activities in the
industries are closing down. Just in China, more than 1 region, most notably chemicals.
million jobs will be suppressed.
On the contrary, unplanned transitions often led to multiple
In order to allow and maximize the positive impacts and problems: higher rates of long-term unemployment and
‘inactive’ prime-age workers unable to re-enter the labour
minimize the negative impacts on employment, the issue
force, higher risks of large companies going bankrupt,
of helping professionals to adapt to the needs of the poorer long-term regional economic performance, lower
green economy across various economic sectors must tax revenues for local services, unpaid-for environmental
be considered. This means relevant public or private remediation, and unpaid pension and/or health care
services must accompany professional transitions through programmes. For example, in the United Kingdom the lack
retraining both workers and jobseekers. In order to inform of anticipation and active management of the removal of
support for coal mining in the 1980s has meant that even
the future of coal-producing regions, the Institute for
thirty years later, former UK coal-mining regions have
Sustainable Development and International Relations typically seen rates of unemployment between 3and 6 per
(IDDRI) and Climate Strategies published in 2017 a report cent higher than the national average.
that highlights key lessons from previous coal transitions in
In addition to other non-monetary costs, such as social,
various countries (Caldecott et al., 2017). It underlines the
environmental and human impacts, the financial costs of
importance of anticipating professional transitions for the worker reconversion and regional economic adjustment
benefit of whole economies (see Box 1). are often much smaller than the costs of failing to
implement a transition.

Source: Caldecott et al. (2017).

In order to allow and maximise the Besides the sectors most impacted by the ecological
positive impacts and minimise transition, all economic activities and occupations are
part of the global movement towards a sustainable
the negative impacts on employment, economy, and therefore are faced with changing practices
and the need to develop new attitudes, knowledge and
the issue of helping professionals skills.
to adapt to the needs of the green The workforce are influenced by environmental issues
economy across various economic because of a number of factors:

sectors must be considered. ÑÑ change in the physical environment (which is already

affecting the work practices and skill needs of agricultural
workers, especially in arid and semi-arid regions)

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 Advancing Green Human Capital: A framework for policy analysis and guidance

ÑÑ e
nvironmental policy and regulation, which is pushing I.2. The role of technical and vocational
industry towards greater sustainability, increasing the
demand for specific skills
education and training (TVET)
The need to adapt jobs and workers is felt across various
ÑÑ g
reen innovation, which is obliging thousands of
sectors, starting with agriculture, chemistry and the energy
technicians to master new ways of working
and building industries, where ‘green jobs’ are being
ÑÑ c hanging consumer demand (such as the demand for created (for example, energy auditor) while other jobs
organic food, which is creating entirely new industries are progressively declining or dramatically transformed
requiring workers with specific skills) (OECD et al., 2015). (for instance, a petrochemist turning to vegetal-based
chemistry), and others see minor changes in their day-to-
At the same time, changes in employment are not only a day activities (for instance, eco-driving for couriers). This
consequence of the transition to a green economy, but highlights the role of the education and training systems to
a determinant of its success, as the workforce can be a ensure that the workforce adapts to the new demands of
strong driver to a green economy. Conversely, a shortage sustainability.
of skills can represent a strong barrier to ecological progress,
delaying technological and economic transformation. In Of course, informal processes play an important part in
its 2015 report Aligning Policies for the Transition to a Low skill development. Workers throughout the world acquire
Carbon Economy (OECD et al., 2015), the Organisation for a large part of their skills through on-the-job practice and
Economic Co-operation and Development (OECD) and exchanges with their peers. However, informal training has
its partners suggest that the right skills are still needed to a limited capacity to anticipate and stimulate all the skills
‘generate technological change for the transition and to needed in the context of a green economy. An institutional
serve the new markets spurred by climate-related policy response in the shape of changes to formal education and
measures’, and that public intervention is needed to help training systems is needed to ensure coherent, widespread
labour markets and education and training systems adapt adaptation. The role of education and training here is to
to the new demands of a low-carbon economy and to avoid raise awareness, encourage and allow ecological practices
gaps in skills that undermine the effectiveness of policy in every professional sector.
measures.
Sustainable development needs the active participation of
The need for skill development is felt at all levels of individuals, whether acting as citizens or professionals. This
qualification. The experience of Australia with its Home implies an increased need for environmental awareness as
Insulation Programme introduced in 2009 illustrates the well as certain types of competency such as the ability to
problems that can arise when training provision is not up analyse complex systems across different domains (society,
to the challenge, in this case at low levels of qualification. environment, economy) and across different scales (local to
The programme was designed partly to generate jobs for global) (PAGE, 2016). There is a decisive role for education
lower-skilled workers in the housing and construction to help citizens become eco-citizens and adaptive future
industries. At the start of the programme only supervisors professionals. Access to primary and lower secondary
were required to satisfy minimum technical competences education is a first building block allowing the acquisition
in insulation activities. After a few months, fires were of foundation knowledge and skills. These are the skills on
reported in the newly insulated homes, which undermined which individuals can build on for their future employability,
public confidence, and the programme was cancelled in including the ability to adapt to new skills and occupational
February 2010. A subsequent sample of inspections revealed requirements throughout their working lives (ILO, 2014).
that nearly 30 per cent of installations had some level of
TVET is another building block to development and a master
deficiency. Investigation showed that low skill levels in the
key to facilitate sustainable development and corporate
industry and inadequate provision of training were among
social responsibility, since TVET is directly linked with the
the factors responsible (World Bank, 2012).
labour market. TVET aims at the development of both
In brief, efforts in accompanying the transition of the technical skills (those required to deal with new technologies
workforce and labour markets to the green economy should or new commercial techniques, for instance) and non-
be part of any policy strategy for sustainability, as they offer technical skills (such as the ability to foster transformation
a triple dividend: an environmental dividend (allowing and or collaboration) applied to specific professions, including
accelerating the ecological transition), a social dividend the professions that are most in-demand and transformed
(creating decent jobs and upgrading skills, in particular for in the context of the ecological transition. This is why TVET
young people, women and the low-skilled) and an economic institutions, particularly those focused on the sectors and
dividend (avoiding long-term costs linked to declining occupations most impacted by the ecological transition,
economic fabric and unemployment). have a central role to play.

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Advancing Green Human Capital: A framework for policy analysis and guidance

The reality is that in many countries, TVET is viewed as a TVET system should not be limited to
second-class system compared with university education.
Upgrading skills to meet the demands of transition to being a mere supplier satisfying
a green economy cannot be made without improving
the image of TVET to make it as attractive as university.
economic demands It also has a
This will need efforts to understand the dynamics at play. responsibility and opportunity to
Stakeholders at all levels need to be made more aware of
the place of TVET in this development paradigm, and skills help generate a new generation of
need to be formalized through certification and qualification
recognition schemes.
workers and entrepreneurs willing and
Efforts must be made to incorporate changes into training
able to frame an economic model
practices, revise training programmes and introduce new adhering to the principles of
ones so as to ensure the employability of workers in a rapidly
changing world. The green transition is generating far more sustainable development, in a way
demand for upgraded skills in established occupations than
it is creating brand new occupations (ILO et al., 2013). In both
that fits the national political
cases, as green markets evolve and mature, there is an orientation.
increasing tendency for the related jobs to require more
specialized and better-skilled personnel, preferably with I.3. Towards a coordinated, multi-
formal qualifications. While the initial training system has
stakeholder engagement
a role in bringing in a new generation of professionals well
prepared for the opportunities and challenges of the twenty- The creation of decent jobs and anticipation of skills in
first century, continuing training is essential to ensure that a green economy can take various forms and stem from
those already in work adjust to the rapidly evolving and the initiative of a large array of stakeholders, including
urgent demands of the green economy. The timeliness governments, private firms, NGOs, education and training
or the lack thereof with which TVET systems respond to institutions and social partners. In order to move towards
sustainability concerns and the demand for related skills a collective, coherent vision of sustainable development,
can put these systems in a virtuous cycle of interaction with an enabling environment is needed in which these various
the labour market, or alternatively widen the disconnect initiatives and actors can flourish and collaborate. There
between the demand for and the supply of skills. is a responsibility of governments, not of market forces
alone, to ensure a proper labour market response in order
A demand-driven approach to greening skills is therefore
to maximize the positive impacts of green policies on
necessary: the needs of the economic market in terms of jobs
employment. For these important reasons, it is important to
and skills must be identified and then answered through
ensure that green policies address not only the issue of hard
appropriate training offers, with the final aim being to ensure
infrastructure but also social and human capital through the
the employability of professionals and future professionals in
development of workforce skills.
the green economy. However, despite recent changes, many
employers still have a lack of knowledge on sustainability- The responsibility of governments is to set up policies
related skills and do not explicitly demand such skills or framed around the engagement of public, private and
qualifications from their employees (Strietska-Ilina et al., community-based stakeholders, including social partners,
2011). This is why the TVET system should not be limited and covering both employers and workers. Three key
to being a mere supplier satisfying economic demands. It messages summarize the pathway ahead to achieve policy
also has a responsibility and opportunity to help generate coherence for skills and ecological transition:
a new generation of workers and entrepreneurs willing
and able to frame an economic model adhering to the ÑÑ the importance of interrelationships between sectors
principles of sustainable development, in a way that fits and related policies
the national political orientation (Majumdar, 2010). Moving
ÑÑ the mobilization of stakeholders through staging social
towards sustainability while improving the quality and status
dialogue at national and local level
of TVET requires innovative and transformational leaders in
all policy, economic and educational spheres who can seize ÑÑ the need for a broad strategy going beyond training and
the opportunities to create a new vision for twenty-first including social policies (labour market, social protection)
century skills, jobs, economies and societies. and environmental policies (infrastructures, green
standards and so on).

These are part of the key messages from the PAGHC policy
dialogues of COP21 in Paris in December 2015 (see Box 2).

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 Advancing Green Human Capital: A framework for policy analysis and guidance

Box 2 - Messages from the COP21 policy dialogues on advancing ambitious policies and actions. In that context, investments
green human capital in the green economy can represent a missed opportunity
to provide local employment and economic wealth in
Economy, investment, employment and skill development developing countries, as testified by the example of wind
are interrelated areas. energy development in Africa (see Box 3). It is therefore
important to move forward international collaboration.
ÑÑ T he investment for advancing clean energy needs to be
thought through as a cross-sector issue so that our efforts
maximize employment and employability. Box 3 – Boosting renewable energy in Africa: the skill challenge2
ÑÑ W
e need an integrated development of policies for the
clean energy transition at the international, regional,
The challenge of involving the private sector is particularly
national and local levels. Our mindset needs to change.
important in the energy sector, particularly in Africa. Only
The mobilization of all the partners for the anticipation of 30% of the African population have access to electricity, 80%
changes is crucial. rely on the use of biomass for cooking (mainly firewood and
coal), 600,000 children die each year from indoor smoke
ÑÑ T he anticipation of skills needed for clean energy pollution. Still, by 2014, Africa attracted less than 10% of
development has to be supported by policies framed global investment in renewable energy (about 80 billion USD)
around the engagement of public–private and despite a significant potential.
community-based stakeholders, including social partners
– employers and workers – to take account of skills One explanation is the lack of technical skills of the African
development issues. workforce in the renewable energy sector, which forces
companies investing in renewable energy development
ÑÑ W
hile national policy frameworks are critical for
establishing policy coherence across ministries and to import skilled labour. The challenge for governments
agencies, their implementation at the local level by in Africa is to provide adequate training programmes to
municipal and community stakeholders as well as in ensure the development of skills needed by the private
enterprise levels – by workers and management – is key. sector for renewable energy development and enhance the
employability of young people in that sector.
ÑÑ C
oordination between public and private actors is
necessary to achieve policy coherence and to reach The largest wind farm in Africa is under construction in Kenya,
common goals for clean energy. with a power capacity of 300 MW and a total investment of
nearly 900 million USD. About 2,500 construction workers are
A broad strategy to promote and manage actions towards
needed on site, and more than 200 permanent workers will
development of strategies for greening of skills is essential
be needed for operation and maintenance. The supplier and
to address the new climate economy.
operator of the wind turbines plans to recruit as much as 80%
ÑÑ E ducational and training curricula should be reviewed of the wind technicians on the international labour market,
and adapted to meet skill needs to better fit labour because the right skills are not available locally. In Nigeria, a
market requirements in existing and emerging series of investment agreements have been signed totalling
occupations. about 5 GW of solar energy. The largest single project, a
solar power plant of 3 GW worth 5 billion USD, is expected
ÑÑ T his could be achieved through multi-stakeholder to create 30,000 jobs. Unfortunately, no vocational training
partnerships in order to facilitate the definition of training
programme has been planned for the local population.
needs, job competencies, and the design of training
programmes.
With more than 60% of the African population living in
ÑÑ U
pgrading of skills in existing occupations is needed rural areas, increasing access to energy means relying on
to enable workers and enterprises to address clean a dynamic tissue of small and medium-sized enterprises
energy needs. It is essential for all countries to develop that are able to bring technical and social innovation, to
and promote awareness and engagement even if their offer products and services and to rely on economic models
development prospects differ. adapted to African rural markets. Yet, young entrepreneurs
are confronted with various obstacles to create and sustain
their business, like a lack of technical skills, a lack of networks,
and constraints in accessing financing. Integrated green
Efforts to adapt professional knowledge and skills should entrepreneurship programs that build on the lessons learnt
be made in every country and coordinated at supranational from experiences in other sectors are necessary to help
remove these obstacles. Support for such projects would
level, since the challenges we face are generalized and
have significantly positive impacts on young people and
global in nature. For rapidly developing and least developed women in particular.
countries, investing in knowledge and skills is all the more
crucial as this is central to seizing opportunities to develop Source: AFD (2017)
markets for new technologies, attracting investment and
creating sustainable, decent and green jobs for a growing
Disadvantaged workers and communities will need
labour force (ILO, 2014). Moreover, some countries are more
targeted assistance to make the transition to new practices.
vulnerable than others to the impacts of climate change
In addition, with regard to agriculture and forestry, it is
and environmental degradation while they face harder
social challenges and have limited capacity to undertake 2 AFD, 2017. Annexe au cadre d'intervention transversal climat.

13
Advancing Green Human Capital: A framework for policy analysis and guidance

increasingly being recognized that indigenous peoples’ The time has come to act boldly: we need a big policy shift
traditional knowledge and practices play an important role towards reinvesting in employment and skill development,
in effective climate action and ensuring secure livelihoods. as a means to move towards sustainability and reduce
Skill shortages and non-recognition of traditional skills poverty. We need to emphasize an enabling environment
continue to be important challenges (ILO, 2016). for enterprise development, the right skills to make these
enterprises productive and competitive, and a social
Sustainable development can only happen through a protection system to cushion and ease the process of
combination of bottom-up and top-down approaches. This is transition.
why integration of strategies and actions is just as decisive at
the level of economic actors. The success of green policies Despite the many examples of innovative developments
and the creation of green jobs will ultimately depend in skills for the transition to green economies, countries do
on the establishment of a sound enabling environment not systematically set an enabling policy and governance
for economic actors, in particular small enterprises. The context. In many cases, change is being driven at pilot
availability of an adequate education and training offer is level by individual companies, teachers or TVET institutions
an intrinsic part of such enabling policies, but not the only rather than being steered by a whole-of-system policy and
ingredient (see Box 4). governance approach.

Furthermore, when governments choose to act on this

Box 4 - Policy measures for an enabling business environment issue, they are likely to put greater emphasis on policy
development than on subsequent implementation and
The trend we are observing is that corporate social evaluation. This focus on policy and less on implementation
responsibility makes business sense. Economic actors are means that well-designed policies for transition to a more
realizing that by improving their environmental performance,
sustainable development path might fail to be translated
they can act as good citizens, but also actually reduce input
costs and improve their image. They also see that new into action or reach implementation stage. In this context,
business opportunities and long-term job creation can arise to achieve large-scale impacts, it is important that countries
from green activities. However, we must anticipate that develop appropriate national policies and governance
for many of them, and in particular in SMEs, it is difficult to systems for skill development and focus on ‘getting things
achieve the greening of production processes in the absence done’. To this end, greening skills requires coordination
of investment in new technologies and in human capital
across a wide range of public policies. This includes
development.
horizontal coordination across policy domains and vertical
In addition to fostering an adaptive system for skill alignment across policy levels (supranational, national,
development, this implies targeted business information subnational and local). While there are toolkits and manuals
and advice on green business practices and eco-innovation
available to ‘engineer’ the right approach at the level of
as well as financial and regulatory systems that can facilitate
the uptake of green technologies and responsible business educational institutions, there still needs to be a concerted
practices. Three key policy areas can be identified as effort to make the system work better as a whole and take a
contributing to such an enabling environment for sustainable cross-policy approach.
business and green employment (AFD, 2017):

ÑÑ Reforming environmental taxation: The tax system has

a huge influence on directing activities and therefore
job creation. Globally, if taxes were imposed on carbon
emissions and if the resulting revenues were used to
reduce the cost of labour, then up to 14 million net jobs
could be created.

ÑÑ E
ncouraging investment in the green economy:
Investment has been insufficient in many areas, including
clean and modern energy sources, energy-efficient
housing, manufacturing and transport, sustainable
agriculture and rural infrastructure, and the rehabilitation
of ecosystem services. Targeted programmes investing in
environmental services, including public works schemes,
could create numerous jobs.

ÑÑ S
upporting entrepreneurship and SMEs: The role of
small and micro-firms in the transformation to a greener
economy will be crucial, with SMEs providing two-thirds
or even more of total employment and start-ups being
an important source of innovation. Environmental
regulations, research and development and public
procurement must take into account the needs and
limitations of small and micro-firms.

14
 Advancing Green Human Capital: A framework for policy analysis and guidance

II. Policy framework for decent jobs and skills in

the green economy

In every country, public and economic actors must act and ownership, and C) integrated governance. At each
together to set up a roadmap for the necessary adaptation of level, policy topics are provided to help guide action
skills to the demands of the green economy and sustainable and objectives. Trigger points are indicators that define
development. Such processes are country-specific, because different actions led by different policy representatives and
ideally they will be adapted to the social, economic and targeted at different stakeholder groups which could be
administrative context. They are nonetheless based on demonstrated in implementing the various policy phases.
factors that are not easy to change, therefore any plan for
skill development should be aligned with a vision to cater to The steps described in the following section represent a path
ecological, social and economic transformation. to progress towards the integration of skills development
policies into green and economic policies. The measures are
The following analysis is designed to help countries in proposed in a chronological order that makes policy sense.
envisaging a framework to identify the priority policy areas Indeed, countries that start a process for greening skills
that can result in improving their performance in their own may benefit from centralized governance to analyse and
specific situation. The framework is intended to be used understand the issues at stake, provide policy orientation
primarily by national governments, but can also provide a (policy area A), raise awareness among all stakeholders and
basis for reflection and action for subnational policy makers provide them with incentives for action (policy areas B).
and institutions and all stakeholders in the fields of both When the process reaches a more advanced stage, multi-
education and training and sustainable development. stakeholder governance, extended to both the private sector
and the territories (or states), is essential to enable optimal
The framework presents three areas for action: A) action tracks (policy area C).
observation and orientation, B) stakeholder awareness

Trigger point: Senior leaders across portfolios within

government are aware of the links between employment,
social and environmental policies and importance
of acting on greening skills

Policy Phase A.1: Trigger point: Central government has a genuine

Political willingness and commitment to advance sustainable development
strategic vision and skill development

Trigger point: A vision on greening TVET and skills across

sectors is integrated as part of skills and employment policies

Policy Area A: Trigger point: Labour market information systems integrate

Market analysis and research on dynamics of the green economy at sectoral
policy orientation Policy Phase A.2:
and occupational levels
Information on economic
development, labour markets
and skills Trigger point: A specific task force or observatory is set up to
gather and analyse information on the green economy and
related skills across sectors

Trigger point: Sectors, professions and training programmes

Policy Phase A.3: are prioritized with regard to their (potential) implications
Identification and in moving towards a green economy
standardization of
sustainability-related jobs
and skills Trigger point: Skills needed in each professions are
standardized, portable skills are identified

15
Advancing Green Human Capital: A framework for policy analysis and guidance

However, this path to progress should not be seen as sequential since many of the measures proposed can benefit from
being implemented simultaneously. Another important recommendation is that, while we focus here on skills and labour
market issues, these policy considerations should be strictly and consciously associated with and complemented by similar
considerations in the fields of green finance, infrastructure and technology development.

Trigger point: A communication plan ensures that

information on green policies, the green economy dynamics
and related jobs and skills is widely disseminated to
Policy Phase B1: concerned stakeholders
Dissemination of information
and mobilization of
stakeholders Trigger point: Key stakeholder representatives are identififed
and involved in the definition ofa national plan for
widespread mobilization towards greening jobs and skills

Trigger point: Sectoral tripartite networks and partnerships

are established with the aim to engage in a common
reflection and coordination efforts towards greening TVET
and skills

Policy Area B: Policy Phase B.2: Trigger point: TVET institutions are part of sectoral working
Stakeholder Stakeholder engagement groups and teachers and trainers benefit from regular
awareness and through sectoral network and training on green technologies and sustainable development
ownership partnership issues

Trigger point: Sectoral targets and actions plans are adopted

by representatives of economic and training actors with the
aim of developing green jobs and related skills

Trigger point: A legal basis for policy actions including laws,

decrees and other forms of regulation structures the efforts
Policy Phase B.3: to adapt jobs and skills and TVET in various sectors
Legislative framework and
financial plan to act on
Trigger point: Financial commitments and programmes are
greening skills
adopted by national authorities and sectoral stakeholder
to fund efforts supporting action on greening skills and
promoting green jobs

Trigger point: Local authorities have a clearly defined and

accepted responsibilities in observing and acting on the
need for greening skills
Policy Phase C1:
Local clusters and
Trigger point: Local public authorities, economic actors,
partnerships
social partners, training representatives and researchers act
together, through clusters and other forms partnerships, to
advance the greening of human capital at local level
Policy Area C:
Integrated Trigger point: Cross-sectoral strategies for greening jobs,
governance encouraging professional transitions and highlighting
portable skills are set up with precise quantitative and
qualitative targets
Policy Phase C.2:
Mutual reinforcement Trigger point: National and subnational authorities are
between policies and targets engaged through policy contracts for advancing green
across sectors and levels of human capital at regional and local leveles in prioritie sectors
governance
Trigger point: Actions implemented across sectors
and territories are compiled, analysed, evaluated and
disseminated in order to feed and accelerate the national
effort towards sustainability-related skills

16
 Advancing Green Human Capital: A framework for policy analysis and guidance

2011a). One-off surveys targeted at enterprises in a specific

II.1. Policy area A: Market analysis and
sector must be complemented by a more systematic
policy orientation approach, carried out by ad-hoc observatories or as part of
existing observation mechanisms.
In the first stage of their strategy for greening skills, nations
should set up a vision and directions, initiate networks of àà Trigger point: Labour market information systems
stakeholders for both intersectoral and sectoral analysis, integrate research on the dynamics of the green economy
and identify emerging skill needs. This work should be at sectoral and occupational levels.
coordinated between and across ministries first at central/
federal level, since central government has a key role to play àà Trigger point: A specific task force or observatory is set up
in initiating a coherent national strategy that can cascade to gather and analyse information on the green economy
action in all sectors and at all levels of decision. and related skills across sectors.

Policy phase A.1: Political willingness and Policy phase A.3: Identification and
strategic vision standardization of sustainability-related jobs and
skills
Awareness of the links between employment, social and
environmental policies among governmental policy-makers Based on green policy objectives and the results of economic
and officials, and willingness to act to foster green skills, are analysis on evolutions in employment and skills requirements,
clear prerequisites to policy development. Based on this governments, in close cooperation with other stakeholders,
awareness and willingness, the ministries concerned should should identify precise needs and priorities for developing
express clear commitments to coordinate. The government jobs and skills. Those needs and priorities should ideally be
should have clarity over what it wants to achieve in the characterized both qualitatively (identification of professions
transition to a green economy, thus creating a direction and skills needed in the green economy, in particular
and objectives for skill development. This in turn creates a portable skills, which allow for occupational mobility) and
stimulus for improved coordination. quantitatively (number of jobs and training programmes to be
created or adapted), and coherent with sectoral and regional
àà T
rigger point: Senior leaders across portfolios in the contexts.
government are aware of the links between employment,
social and environmental policies, and the importance of àà Trigger point: Sectors, professions and training
acting on greening skills. programmes are prioritized with regard to their (potential)
implications in moving towards a green economy.
àà T
rigger point: Central government has a genuine
commitment to advance sustainable development and àà Trigger point: Standards are drawn up to specific the
skill development. skills needed in each professions, and portable skills are
identified.
àà T
rigger point: A vision on greening TVET and skills across
sectors is integrated as part of skills and employment
Box 5 The observatory of jobs and skills in the green economy led
policies. by the French Ministry of Environment

Policy phase A.2: Information on economic The French Government launched in 2009 its ‘national plan’
development, labour markets and skills for the adaptation of jobs to the green economy. The plan
has been coordinated by the French Ministry in charge of
The existence of economic intelligence is one of the building the environment, and aims to accompany economic actors
blocks of an effective TVET system, as it helps ensure that in anticipating skill and training needs in the transition to a
training decisions and skills acquired are relevant to the green, robust and just economy. The National Observatory
of Jobs and Skills in the Green Economy (Onemev) was set
labour market. Existing institutional mechanisms such as
up in 2010 as part of that national plan. The observatory
sectoral skills councils, observatories and skills advisory produces methods, statistics and analysis, and disseminates
groups typically provide a forum for social dialogue that knowledge on jobs and skills in the green economy. It brings
involves all relevant partners. However, where existing together representatives of the Ministry for Environment
systems for the identification of skills are organized along and the Ministry of Labour, the National Institute of Statistics
and Economic Studies, the national employment services
sectoral lines, there need to be initiatives to bridge between
agency, the national agency for environment and energy
and across sectors – in order to capture the cross-cutting management, training providers and representatives of
character of green economic activities (in fields such as regional observatories on employment and training.
energy management and plant-based chemistry) (ILO,

17
Advancing Green Human Capital: A framework for policy analysis and guidance

Policy phase B.2: Stakeholder engagement

Onemev has two main missions:
through sectoral networks and partnerships
ÑÑ Determining perimeters, statistical methodologies
and monitoring, and analysis of the labour market, The process of greening skills is an opportunity for a large
recruitment tendencies and mobility related to jobs in the array of stakeholders to meet and work together towards a
green economy (based on both jobs in green sectors and common purpose. Sectoral governance for skill development
green occupations across sectors).
has proved useful in engaging training institutions and
ÑÑ Identifying skills and analysing the employment–training employers, albeit it takes different forms in different national
relationship in the green economy. contexts. For instance, in several countries, tripartite
Continuing the work of the observatory at the regional level sectoral skill councils play important role in anticipating
is a major challenge involving regional bodies to study the skill development through social dialogue, and should be
adaptation of skills in the transition to a green economy. encouraged.
Source: France (2016). àà Trigger point: Sectoral tripartite networks and
partnerships are established with the aim to engage in
common reflection and coordination efforts for greening
II.2. Policy area B: Stakeholder awareness TVET and skills.
and ownership àà Trigger point: A legal basis for policy actions including
The process of adapting the workforce to the needs of laws, decrees and other forms of regulation structures
sustainable development is in the hands of a wide array the efforts to adapt jobs and skills and TVET in various
of stakeholders: public representatives from various levels sectors.
of governance and policy areas, economic, social and
àà Trigger point: Sectoral targets and action plans are
environmental experts, market and social actors (employers,
adopted by representatives of economic and training
trade unions, NGOs and others), and last but not least,
actors with the aim of developing green jobs and related
career guidance and TVET institutions. An important policy
skills.
area is thus characterized by actions designed to ensure
awareness, understanding and ownership by all stakeholders
of the issues at stake and policy objectives towards green Policy phase B.3: Legislative framework and
jobs and related skills. This stage includes the definition of financial plan to act on greening skills
a communication and mobilization plan. Further action to
A legislative, legal and financial framework is needed to
stimulate stakeholder mobilization will involve changes in
encourage, constrain and/or allow actions on greening skills
the legal and regulatory frameworks and the setting-up of
and accompany professional transitions while giving specific
incentives and financial support for projects.
attention to disadvantaged groups. Central authorities have
a clear role to play in providing such an enabling context for
Policy phase B.1: Dissemination of information stakeholders to act in coherence with national objectives for
and mobilization of stakeholders a green economy.

The availability of accurate and timely information on labour àà Trigger point: A legal basis for policy actions including
markets, employment and skill development metrics, and organic laws, decrees and other forms of regulation
awareness of policy orientation on sustainable development structures the efforts to adapt jobs and skills and TVET in
and related skills, can act as catalysts for stakeholder various sectors.
collaboration and commitment on greening skills.
àà T
rigger point: Financial commitments and programmes
àà Trigger point: A communication plan ensures that are adopted by national authorities and sectoral
information on green policies, the green economy stakeholders to fund efforts supporting action on
dynamics and related jobs and skills is widely greening skills and promoting green jobs.
disseminated to relevant stakeholders.

àà T
rigger point: Key stakeholder representatives are
identified and involved in the definition of a national
plan for widespread mobilization to ensure the greening
of jobs and skills.

18
 Advancing Green Human Capital: A framework for policy analysis and guidance

Box 6 - Greening teacher education in Nigeria àà T

rigger point: Local public authorities, economic actors,
social partners, training representatives and researchers
The Department of Vocational Teacher Education of the act together, through clusters and other forms of
Centre for Technical and Vocational Education, Training partnerships, to advance the greening of human capital
and Research (CETVETAR) in Nigeria has reviewed and at local level.
revised its teacher education curricula. They now include
two mandatory face-to-face courses in the postgraduate
programme: Green Technology and Skills Development, and Policy phase C.2: Mutual reinforcement between
Emerging Issues and Innovations in Technology Education, policies and targets across sectors and levels of
which are infused with green economy issues. These form governance
part of the academic programme interventions.
It is important to consider intersectoral issues and
Outreach activities of CETVETAR for TVET teachers include a
series of greening TVET workshops aimed at advocating and interactions between national, subnational and local levels
sharing experiences on best approaches to infuse emerging of government when looking at moving from policy design
greening concepts and ideas into the curriculum of TVET to policy implementation. Many new activities and jobs
institutions and departments. Another intervention is on concerned with the green economy go beyond current
enhancing the capacity of TVET teachers in responding to
sectors and traditional disciplines. In addition, depending
emerging training needs for green skills, which will draw on a
research-based exercise on the skills needs of teachers. on their size and structure of governance, many countries
tend towards decentralization and devolution. Coordination
Source: CEVETAR 2015 contribution to UNESCO-UNEVOC across sectors and levels of governance is therefore
(2017).
important to ensure coherence and effectiveness of action.

àà Trigger point: Cross-sectoral strategies for greening jobs,

encouraging professional transitions and highlighting
II.3. Policy area C: Integrated governance portable skills are set up with precise quantitative and
qualitative targets.
The success of the strategy for greening skills will depend on
the interactions between ministries and national and local àà T
rigger point: National and subnational authorities are
policies and the appropriation and evaluation of strategies engaged through policy contracts for advancing green
by actors across sectors, activities and territorial levels: local human capital at regional and local levels in priority
authorities, the private sector, associations, civil society sectors.
organizations and communities. A largely multi-actor and
decentralized project governance emerges when the level of àà Trigger point: Actions implemented across sectors
policy maturity is advanced, coexisting with the persistence and territories are compiled, analysed, evaluated and
of a global political vision and coordination at the national disseminated in order to feed and accelerate the national
level. effort to develop sustainability-related skills.

Box 7 - Decentralized training systems in Denmark

Policy phase C.1: Local clusters and partnerships
When it comes to policy implementation, the local level of
governance should play the primary role. Direct dialogue The Danish vocational education and training system has,
through a series of reforms since 2000, given increasing
between national and regional governments and social
autonomy to the local level to adapt course curricula to
partners can be translated into action when commitments labour market needs through outcome and competency-
and resource allocation occur at a smaller scale and where based goals without detailed proscriptive curriculum
immediate dividends are obvious for all partners involved requirements. In the new national structure for continuing
(ILO and Cedefop, 2011). In many countries, TVET and vocational education and training provision, thirteen CVET
competency centres have been formed to connect providers
skill development is already a prerogative of subnational
of CVET and basic adult education in a more transparent
authorities. Indeed, the characteristics of labour markets infrastructure. Those centres are also be responsible for
and economic fabrics are largely dependent on territorial anticipating and monitoring skills changes at the local level.
contexts, where different stakeholders come into direct The reform has also instigated a standardization of initial
contact. Local partnerships are needed to work on the vocation education and training (IVET) qualifications and
fit between national and local green policies and local CVET labour market certifications, so that CVET certifications
can be integrated in IVET programmes and count towards
economic dynamics, and the skills and training offer.
credits in IVET.
àà Trigger point: Local authorities have a clearly defined Source: ILO and Cedefop (2011).
and accepted responsibility in observing and acting on
the need for greening skills.

19
Advancing Green Human Capital: A framework for policy analysis and guidance

III. References of guides for further action

This section presents a number of useful Box 8 ILO guidelines on skill development policies
publications that provide detailed guidelines and
tools to governments, TVET institutions and other Governments, in consultation with social partners, should:
stakeholders willing to anticipate and adapt skills
and accompany professional transitions towards a support the transitioning to more environmentally sustainable
economies by reviewing skills development policies to ensure
the green economy. After a brief presentation
they support responsive training, capacity building and curricula;
of the contents and purpose of these guides,
this section includes an extract from each of b coordinate skills development policies and technical and
these references, selected to reflect some of the vocational education and training systems with environmental
policy recommendations proposed in the above policies and the greening of the economy; and consider
concluding bipartite or tripartite agreements on skills’
framework.
development;

III.1. Guidelines for a Just Transition c m

atch supply and demand for skills through skills needs
assessments, labour market information and core skills
towards Environmentally development, in collaboration with industry and training
Sustainable Economies and institutions;

Societies for All (ILO, 2015b) d give high policy priority and allocate resources to the
identification and anticipation of evolving skills needs and the
In October 2015, ahead of COP21, the ILO adopted review and alignment of occupational skills profiles and training
new Guidelines aimed at enabling governments, programmes;
workers and employers around the globe to
e encourage acquisition of both generic skills and skills in science,
leverage the process of structural change towards technology, engineering and mathematics and incorporation in
a greener, low-carbon economy, create decent jobs curricula for basic training and lifelong learning.
at a large scale and promote social protection. They
Governments and social partners should:
call for an integrated approach to these challenges:
‘given the scale and urgency of these environmental a engage in social dialogue for responsive and collaborative
and employment challenges, it is clear that the labour market institutions and training systems, and coordinate
world will have neither the resources nor the time stakeholder needs at all stages of education and skills policy
development and implementation;
to tackle them separately or consecutively. Tackling
them jointly is not an option, but a necessity.’ The b promote equal access to opportunities for skills acquisition
Guidelines were drafted by a tripartite meeting of and recognition for all, in particular for young people, women,
international experts. workers who need to be redeployed, including across borders,
and for owners and workers of medium-sized, small and micro
The Guidelines allow the practical country-level enterprises by offering specific training services, ensuring suitable
application of a set of conclusions focused on timing and duration and promote supportive policies to enable
individuals to balance their work, family and lifelong learning
achieving sustainable development, decent work
interests;
and green jobs through the following areas:
c p
romote work-related training and practical experience as part
ÑÑ Policy coherence and institutional arrangements of the training process in order to increase the employability of
for a just transition for all jobseekers;

ÑÑ Social dialogue and tripartism policies d formulate a holistic skills development policy to promote skills
for green jobs that are coherent with environmental policies,
ÑÑ Macroeconomic and growth policies including means for appropriate recognition through certification
of skills;
ÑÑ Industrial and sectoral policies
e foster peer learning among enterprises and workers, as well as
ÑÑ Enterprise policies education and training in green entrepreneurship to spread
sustainable practices and the use of green technologies;
ÑÑ Skill development policies (see Box 8)
f a ssist businesses, particularly MSMEs, including cooperatives,
in their engagement with governments and training providers
ÑÑ Occupational safety and health policies
with regard to management and skills upgrading of their current
workforce, anticipation of future occupational profiles and skills
ÑÑ Social protection policies
needs, and workers’ acquisition of portable and employable skills.
ÑÑ Active labour market policies. Source: ILO (2015b).

20
 Advancing Green Human Capital: A framework for policy analysis and guidance

III.2. Comparative Analysis of Methods Three mutually supportive global reports were produced
under this joint management agreement:
of Identification of Skill Needs on the
Labour Market in Transition to the Low ÑÑ C
omparative Analysis of Methods of Identification of
Skill Needs on the Labour Market in Transition to the Low
Carbon Economy (ILO and European
Carbon Economy
Union, 2011)
ÑÑ Skills and Occupational Needs in Green Building
This study resulted from a joint European Commission/ILO
project, ‘Knowledge sharing in early identification of skill ÑÑ Skills and Occupational Needs in Renewable Energy.
needs’. The project covered over thirty countries worldwide,
The objective of the comparative analysis is to review
both developed and developing. It was supported by the
methodologies used to assess the skills and employment
EU Programme for Employment and Social Solidarity –
effects of various dimensions of the transition to clean
PROGRESS (2007–13). It was implemented in the framework
energy and greener economies. The focus is on both
of the Green Jobs Initiative, a partnership between the ILO,
quantitative and qualitative methods. In the context of
UN Environment Programme, International Trade Union
that report, ‘quantitative methods’ refers to methods that
Confederation (ITUC) and the International Organisation of
involve quantitative modelling, while ‘qualitative methods’
Employers (IOE). The study draws on a background report
refers to methods such as interviews, case studies and
from the Political Economy Research Institute (PERI), analysis
surveys that may provide both qualitative and quantitative
of data availability and classifications, expert opinions and a
information. Table 2 indicates questions that can drive the
broad literature review.
analysis of skills in the context of a low-carbon economy, and
suggests appropriate types of methodology to answer those
questions.

Table 2 Skill research questions and appropriate types of methodology

Level of Type of Some key headline questions Type of methodology

questions question Whole economy Sector
Jobs Quantitative How many direct jobs now and in the future? Quantitative, Quantitative,
Qualitative Qualitative
Quantitative How many indirect jobs now and in the future? Quantitative, Quantitative,
Qualitative Qualitative
Quantitative How many induced jobs now and in the future? Quantitative, Quantitative,
Qualitative Qualitative
Occupations/ Qualitative What occupations? How they should be defined? How Qualitative Qualitative
Skills they should be deifned? WHere are the boundaries
between occupations?
Quantitative How many people in each occupation? What is the Quantitative, Quantitative,
resulting demand for skills? Qualitative Qualitative
Qualitative What skills and competencies? How do these relate to Qualitative Qualitative
occupations?
Training and Qualitative What sources of skills are available? What types of Qualitative Qualitative
Education training and education are needed? How can they be
provided?
Quantitative What is the existing stock of people with the right Quantitative, Quantitative,
skills and training avialable tobe recruited? What is the Qualitative Qualitative
current flow of newly trained people available to be
recurited? What flow iwll be needed in future?

Source: ILO and European Union (2011).

21
Advancing Green Human Capital: A framework for policy analysis and guidance

III.3. Anticipating Skill Needs for Green

Jobs: A Practical Guide (ILO, 2015a)
This guide builds on previous research and practical Concerning whole-economy overviews of skills for green jobs,
application, and provides guidance on how to embark on a broad type of approach is the qualitative overviews of green
the identification of current and anticipation of future skill jobs across the economy. Such research is designed to provide
needs for the green economy and green jobs. Intended an overview of a country’s (or several countries’) current
primarily to assist researchers and analysts, the guide position on skills and training for green jobs, and on the future
deals with qualitative and quantitative methodologies, skill needs and training requirements. A proposed structure of
data classifications and sources, research processes and these analyses is presented in brief in Table 3.
institutional arrangements. The guide proposes methods to
undertake various types of research at the whole-economy
level and at sector level.

Table 3 – Structure of a qualitative whole-economy overview

Keychallenges
Key challenges and
and priorities
priorities for green
for green economy
economy
ÑÑÑ major
Ñ environmental
major environmental issues
issues which
which should
should drive drive the policy
the green greenresponse
policy response in theand
in the country country
which and which affect the
Analysis of policy context

economy, employment
affect the economy, and the
employment labour
and market
the labour market

Responsestrategy
Response strategy
ÑÑÑ general
Ñ country
general country strategy,
strategy, investment
investment plans,plans, the adaptation
the adaptation and mitigation
and mitigation measuresmeasures
in responseintoresponse to climate
change and environmental
climate change degradation
and environmental degradation

Skillsdevelopment
Skills development strategy
strategy in response
in response to greening
to greening
ÑÑÑ skills
Ñ development
skills development strategy
strategy as aas a part
part of a coherent
of a coherent country
country policy response
policy response to climateto climate
change andchange and degradation -
environmental
environmental
policy coherence,degradation - policy
complementarity, coherence,
relevance complementarity, relevance and coordination
and coordination
and of skills

Greenstructural
Green structural change
change andand (re)training
(re)training needsneeds
ÑÑÑ major
Ñ employment
major employment shifts
shifts within
within and and across
across sectors
sectors and economic
and economic activitiesactivities necessitated
necessitated by climate
by climate change change and
and demands for
and provision
provision of skills

demands
greening theforeconomy
greening the economy
ÑÑÑ identification
Ñ identification ofof skills,
skills, trades
trades andand occupation
occupation that become
that become obsolete
obsolete as as
Anticipation
Anticipation

Newand
New andchanging
changing skill
skill needs
needs
ÑÑ skill need for newly emerging
Ñ Ñ skill need for newly emerging green
green occupations,
occupations, andnew
and with with new
and and changing
changing skills requirements
skills requirements for existing
for existing occupations
occupations
(skills gaps) in (skills gaps)ofingreening
the context the context of greening the economy
the economy

Conlcusions
ÑÑ drawn on the basis of the whole body of research for the country study

Recommendations
ÑÑ Recommendations for action and for further research

Source: ILO (2015a)

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 Advancing Green Human Capital: A framework for policy analysis and guidance

III.4. Greening the Global Economy: The III.5. Meeting Skill Needs for Green Jobs:
Skills Challenge (ILO, 2011b) Policy Recommendations (ILO et al., 2013)
This policy brief draws the attention of policy-makers and This set of policy recommendations was prepared and
social partners in both developed and developing countries published in 2013 at the request of the G20 Development
to the role of skill development in facilitating the transition Working Group (DWG) under the Human Resource
to a greener economy and seizing the employment Development Pillar by the Inter-Agency Working Group on
opportunities that the transition entails. It arises out of the Greening Technical and Vocational Education and Training
above-mentioned Green Jobs Initiative. It draws on policy- and Skills Development, comprising ILO, OECD, UNESCO-
applied research and numerous case studies of country UNEVOC, Cedefop, the European Training Foundation and
experiences and good practice conducted in collaboration UNITAR (United Nations Institute for Training and Research).
with the European Centre for the Development of Vocational They were developed by ILO, in cooperation with and based
Training (Cedefop) and the European Commission. Key on inputs from the OECD, UNESCO and Cedefop. These
considerations that can guide policy development towards recommendations are presented here to inform and advise
skills for decent, green jobs are proposed in the policy brief the G20 governments on ways of anticipating and meeting
and presented in Box 9. the skill needs of labour markets while pursuing sustainable
development and green growth. The recommendations are
Box 9 - Policy checklist in addressing the greening skills summarized in Box 10.
challenge
Box 10 - Policy recommendations to address the challenges of
meeting skill needs for green jobs
1 Does your country coordinate environmental policies
and policies devoted to green job skills development?
If yes, how are skills issues included in national 1 Improve policy coordination and encourage social
environmental strategies? dialogue.
2 How are training and retraining needs anticipated and 2 Focus on the development of portable skills throughout
met within industries undergoing substantial green life to encourage occupational mobility.
transformations?
3 Encourage individuals and companies to invest in skills
3 How do public employment services provide development for green growth.
information on and access to retraining courses for
green jobs? 4 Revise curricula to increase individuals’ adaptability.

4 Is environmental awareness a routine component in 5 Make retraining opportunities accessible for all, and
general and vocational education and training? prioritize training for vulnerable and disadvantaged
groups.
5 Are training programmes for green jobs available to,
and affordable by, disadvantaged youth, people with 6 Strengthen career guidance on green jobs.
disabilities, rural communities and other vulnerable 7 Enable trainers and teachers to keep skills for green jobs
groups? What are the instruments used to include up to date.
disadvantaged groups in the greening of the economy?
8 Improve systems for identifying and anticipating skill
6 Does your country have a policy or incentives to support needs.
female enrolment into science, engineering and other
types of technical education and training? 9 Support training providers as active agents for local
sustainable development.
7 Do initial and continuing training programmes
for teachers and trainers include components on 10 Use indicators as tools for capacity building and policy
environmental awareness, new green services and green learning in greening TVET.
production methods?
11 Maximize the jobs potential of the transition to green
8 Does your country have a system to detect new skill growth.
demands? Is it used to detect skills arising as a result of
12 Use training to improve the quality of jobs.
greening? How does your country improve the system to
capture new developments in the green economy? 13 Include the greening of TVET in the post-2014 education
and sustainable development agendas.
9 Does the system for anticipating skill needs incorporate
a coordinating mechanism to allow skills identification 14 Foster mutual learning for greening TVET and skills
and information exchange across green sectors and line development.
ministries? Is it used to identify skills for green jobs?
Source: ILO et al. (2013).
Source: ILO (2011b).

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Advancing Green Human Capital: A framework for policy analysis and guidance

III.6. Unleashing the Potential: Transforming Technical and Vocational

Education and Training (Marope et al., 2015)
Through its Education on the Move series of publications, UNESCO is seeking to make available to education specialists
in-depth analyses and original thinking that can improve the relevance and efficiency of policies and programmes. As part
of this series, UNESCO published in 2015 Unleashing the Potential: Transforming Technical and Vocational Education and
Training (Marope et al., 2015). This book proposes a detailed analytical approach to policy-markers, educators and other
stakeholders of the TVET community and beyond who are interested in using skill development as a vehicle for human
progress. Table 4 is adapted from an indicative list of stakeholders who might contribute to TVET greening policies, as
suggested by the book authors.

Table 4 Stakeholders in the greening skills process by specialist group

Economic specialists Social specialists Environmental specialists

Public representatives Officials from ministries of Officials from ministries Officials from ministries for
economy, planningm trade, of labour, social policy, the environment, natural
industry... education, health, gender resources
affairs...
Exports Economists labour market Sociologists development Geographers, environmental
specialists, industrial expetrs, human rights scientists
sociologist, education lawyers, gender specialists,
specialists health specialists, education
specialists
Market and social partners Employer associations, Representatives of Environmental agencies,
professional associations, marginalised and conservation NGOs,
trade unions, consumer disadvantaged groups, representatives of green
associations, entrepreneurs informal sector associations, businesses
development NGOs,
community organisations
TVET representatives Public and private TVET providers

Source: Marope et al. (2015)

III.7. Facilitating Green Skills and Jobs in Developing Countries

(Rademaekers et al., 2017)
Considering that green jobs and skills are emerging concepts, this study published by the French development agency
aims to provide a knowledge base regarding their role in the transition to a sustainable economy in the developing country
context. The study selected and analysed 10 technical and financial organisations active in the field of green economy and
green jobs and skills at strategic and operational level and carried out 5 case studies on initiatives that aim to promote
green jobs and skills in different regions and sectors. Based on this analysis, the study provides recommendations for better
integration of green jobs and skills into policies and programmes at international, national and operation levels. Table 5
summarises the main recommendations that are developed in the study.

Table 5 – Recommendations to support green jobs and skills at different levels

Recommendations
Adopt working definition for green jobs – specifying target sectors
International National Operational
ÑÑ Frame green jobs & skills within ÑÑ THINK ÑÑ Identify projet
mission & priorities of insitution
ÑÑ PLAN: Incorporate green jobs/skills ÑÑ Formulate projects
ÑÑ List instruments offered (i.e. loans, in national vision
TA, grants) and how they can help ÑÑ Secure commitments
ÑÑ DO: Align employment and
ÑÑ Guidance on how to assess size & education policies and initiatives ÑÑ Planning & implementation
scope of green jobs with new vision
ÑÑ Monitoring & reporting
ÑÑ Suggest enabling factors & support ÑÑ - CHECK: Baseline and monitoring
knowledge sharing for green jobs & assessing impact of
initiatives

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 Advancing Green Human Capital: A framework for policy analysis and guidance

III.8. Methodological Kit for Accompanying Professional Transitions in

Industrial Sectors Impacted by the Ecological and Energy Transition
(France, 2016)
The French Ministries of Environment and Labour jointly developed a methodological kit (in French)
for accompanying professional transitions. This tool is intended to any territorial stakeholders wishing
to support and secure the professional transitions of employees or jobseekers from declining industrial
sectors to jobs in ecological or clean energy activities. The kit builds on the guiding principles, practices
and tools tested on a number of experimental territories in France. It provides the actors in charge of
territorial economic development policies (institutions, professional branches, social partners, companies
and so on) with guiding principles and tools to:

ÑÑ identify proximities of skills between jobs in industrial sectors experiencing transformational

challenges, and jobs in existing or emerging green activities

ÑÑ identify and create opportunities for retraining on the basis of pools of portable skills

ÑÑ support employment and secure career paths for employees and jobseekers.

The kit is organized in four independent parts, presented in Figure 2, corresponding to the different
components that should make up any plan to accompany professional transitions.

Figure 2 - Components of a plan to accompany professional transitions

ÑÑ What territorial scale?

ÑÑ What triggers a territorial project?
ÑÑ What stakeholders should get involved?
ÑÑ How to ensure good governance and
1. steering?
Governance and
steering

ÑÑ How to identify the needs ÑÑ What existing tools to identify

of fragilised industries? professionla bridges?
ÑÑ What are the skills needed ÑÑ How to enganced bridges
by emerging green between jobs in fragilised
4.
industries industries and emerging jobs in
Professional green industries?
transitions

2. 3.
Current and Portable skills and
expected skill needs potential bridges

ÑÑ How to effectively organise transition paths?

ÑÑ How to put in place new systems to confront job
offer and demand?

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Advancing Green Human Capital: A framework for policy analysis and guidance

Conclusion: an invitation to move forward

Moving towards a more sustainable development model requires a combination of drastic transformation
in both hard and soft capital – technologies and infrastructures but also culture and values, behaviours
and practices. While a main barrier to technological and infrastructural changes lies in the high amount of
financial investment needed, changing individual and collective behaviours represents a huge challenge
in terms of political sensitivity and stakeholder engagement and coordination. This challenge is ever-
present when dealing with the issue of adapting the practices of economic actors in general and the
behaviours and skills of workers in particular. For these reasons and because of its importance in moving
towards a green, inclusive economy, the issue of adapting professional’ skills deserves special attention
from policy-makers. A lack of attention to and investment in human capital is already proving a constraint
to the green economy and its economic and social opportunities, including opportunities for decent jobs.

Most countries are engaged in setting a policy framework for greening jobs and skills, although at very
different stages of development and in very different economic, social and institutional contexts. This
paper is intended to provide a set of general considerations that can help guide the process of designing
and implementing such policies. This paper is an invitation addressed to all policy-makers and economic
actors to gather forces around the issue of greening human capital as an intrinsic, crucial part of their
efforts to set up a new development model. The policy framework proposed in this paper is intended as a
guiding tool for analysis of the policies developed for that purpose, and a guiding tool for action towards
a coherent, ambitious plan for greening skills.

With this constructive purpose in mind, the Platform for Advancing Green Human Capital invites all
policy representatives and other stakeholders involved in such efforts to provide feedback on their own
incremental progress within the policy framework and on the usefulness of this framework in guiding this
progress. UNESCO-UNEVOC is going to open a dedicated feedback consultation thread on the UNESCO-
UNEVOC TVeT Forum 3 starting 1 December 2017 to facilitate collecting feedback and perspectives
on the framework. Alternatively, you can also send your feedback by email to: isabelle.richaud@
developpement-durable.gouv.fr.

Based on your feedback and inputs, PAGHC will be able to improve the framework and provide further
tools and initiatives to serve the global momentum towards a truly inclusive, sustainable society.

3 http://www.unevoc.unesco.org/go.php?q=e-Forum%20-%20Message%20Board

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 Advancing Green Human Capital: A framework for policy analysis and guidance

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PAGE (Partnership for Action on Green Economy). 2016.

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