ILO Policy brief

  Just Transition Policy Brief

October 2022

Skills Development for a Just Transition

Key messages

X Enhanced policy coordination, social dialogue X Initial education for young people as well as
and partnership at planning, design and continuing training for adult workers and job
implementation stages and well-developed and seekers should target specific green jobs and
sound national and sectoral policies that increase sectors, be inclusive and prioritize the skills
relevance of skills development to green jobs can needs of vulnerable groups. The use of digital
help to propel a just transition. This will also require technologies, extended financing, increased
reviewing and (re)formulating skills development apprenticeships opportunities and the role of
policies, including means for validation and trainers and teachers and their pedagogical talent
recognition of skills and all forms of prior learning are important points in increasing the inclusiveness
jointly by governments, social partners and training of training.
institutions at all levels. X Public-private partnerships, with a particular
X Systems for identifying and anticipating skills needs attention on micro, small and medium enterprises
for green jobs can benefit from improved labour (MSMEs) and collaborative peer learning in skills
market information and institutionalized social development and lifelong learning for green jobs,
dialogue. This will lead to provide comprehensive could drive the sustainable development agenda
data and information on supply and demand beyond 2030.
related to skills for green jobs and better match
skills needs.
X A good mix of foundational, technical (hard) and
core (soft) skills, including science technology,
engineering and mathematics (STEM) skills, is
vital to an inclusive just transition to a greener
© Photo by ZHANG FENGSHENG on Unsplash

future, allowing everyone reap the benefits of

newly created jobs and enabling the transition and
job creation. Mainstreaming the green transition
through the technical and vocational education and
training (TVET) and lifelong learning systems will
increase the chance of advancing a just transition.
2 Just Transition Policy Brief

© ILO / Marcel Crozet

Background
The ILO Guidelines for a Just Transition towards The briefs cover the following thematic areas:
Environmentally Sustainable Economies and Societies for macro-economic and growth policies; industrial
All (hereafter the Just Transition Guidelines), adopted and sectoral policies; active labour market policies;
by representatives of governments, employers’ enterprise policies; skills development; green works;
and workers’ organizations in 2015, provide a policy occupational safety and health; social protection;
framework and an operational tool to address rights; social dialogue and tripartism; collective
environmental change in a way that advances social bargaining; labour migration and human mobility;
justice and promotes decent work creation.1 This indigenous peoples; gender and labour; youth
policy brief is part of a series of briefs that seek to employment; persons with disabilities; persons with
deepen the technical and policy understanding of HIV/AIDS; and financing a just transition.
the application of the Just Transition Guidelines. They
This policy brief is intended to present the linkages
are mutually reinforcing and together form a body of
between just transition and skills development,
policy guidance on the Just Transition Guidelines.
providing stakeholders with information and
The just transition briefs are intended for use recommendations for implementation. The broad
by policymakers and practitioners at all levels implementation of just transition across all policy
to provide practical information and guidance, areas and cross-cutting thematic topics requires
fostering a common understanding of what is careful consideration of the guidance provided in the
meant by a just transition in specific topic areas and ILO Just Transition Guidelines, taking into account the
providing recommendations for implementation by needs, priorities and circumstances of each country.
countries, international institutions and other actors
This policy brief draws on recent findings and
in academia and civil society. The briefs seek, in
projects, including the report, Skills for a Greener
particular, to provide guidance on just transition to
Future: A Global View2 and the policy brief, Skills for
ILO constituents, including workers’ organizations,
a Greener Future: Challenges and Enabling Factors to
employers’ organizations, and governments and
Achieve a Just Transition.3
relevant line ministries.

1 ILO. Guidelines for a Just Transition towards Environmentally Sustainable Economies and Societies for All, 2015.
2 ILO, Skills for a Greener Future: A Global View, 2019.
3 ILO, Skills for a Greener Future: Challenges and Enabling Factors to Achieve a Just Transition, 2019.
Skills Development for a Just Transition 3

1. Introduction
Skills development is one of key policy areas to social protection, respect for international labour
address environmental, economic and social standards (ILS), occupational safety and health
sustainability and one of pillars of the Guidelines for (OSH), green enterprise development, counselling
a Just Transition towards Environmentally Sustainable and effective labour market institutions to provide
Economies and Societies for All. The transition to job-matching and career counselling services and to
an environmentally sustainable and low-carbon create and facilitate the transition to decent green
economy is conditional on countries’ implementation jobs.
of their commitments to the Paris Agreement. The
Coordination with macroeconomic, sustainable
country commitments, or nationally determined
investment, industrial, sectoral, social and enterprise
contributions (NDCs) highlight adaptation and
policies, will be also essential in enabling businesses
mitigation measures in targeted economic sectors.
to develop, implement greener and resource-
The far-reaching goals that governments have put
efficient production practices, to align the supply of
forward in their climate change commitments in
skills with growing demand and to facilitate smooth
the energy, agriculture, waste, manufacturing,
and efficient reallocation of workers to newly created
transport, construction and tourism sectors will
green jobs. The ILO’s mandate for skills, training
require the availability of right and relevant skills in
and lifelong learning is based on its Constitution
these industries to achieve objectives of the 2030
and has been set out in ILS such as Paid Educational
Agenda, creation of the decent work and greening
Leave Convention, 1974 (No. 140), Human Resources
economies.4
Development Convention, 1975 (No. 142) and Human
The availability of the right skills paves the way for Resources Development Recommendation, 2004
the transition to carbon-neutral, environmentally (No. 195). The ILO Human Resources Development
sustainable and socially inclusive economies and Recommendation, 2004 (No. 195) particularly
decent work. Action planning on skills development emphasizes the importance of identifying human
will have to be integrated with key climate and resources development, education, training and
environmental policies and regulations, including lifelong learning policies which facilitate lifelong
NDCs, to ensure that skills needs are met and learning and employability as part of a range of
climate commitments are implemented effectively. policy measures designed to create decent jobs, as
Furthermore, specific disadvantaged and vulnerable well as to achieve sustainable economic and social
groups including young people, especially those development.
who are not in education, employment or training,
A just transition requires that education and
women, older workers, people with disabilities,
training are considered essential for all individuals
persons with HIV/AIDS, migrant workers, refugees,
at all stages of their lives, contribute to reap the
unemployed people, informal workers, low-skilled
job creation benefits and minimize the burdens
workers, indigenous and tribal peoples and those
of transition to carbon neutrality. Although skills
living in rural areas as well as owners and workers
approaches may vary depending on the national
of MSMEs need to be included in skills development
context and priorities in their pursuit of a just
programmes, enabling a green transition that is also
transition, this brief presents some key principles and
just for all.
concrete steps that countries can take jointly with
Skills development is an important pillar in a just social partners to advance a just transition towards
and inclusive transition, but other measures are environmentally sustainable economies and societies
equally important. A comprehensive approach for all.
should include bipartite and tripartite social
dialogue, active labour market programmes (ALMPs),

4 The term “skills” is used throughout this policy brief to refer to the knowledge, competence and experience needed to perform a specific task or job.
A “skill” is an ability to carry out a manual or mental activity, acquired through learning and practice (Olga Strietska-Ilina et al., Skills for Green Jobs: A
Global View (ILO, 2011)).
4 Just Transition Policy Brief

© ILO / Falise T.

2. Implications of skills policies to advance a

just transition: two global scenarios
Climate change and environmental degradation creation outpaces job destruction.5 A net total
reduce productivity and destroy jobs, and their of more than 25 million jobs could be created in
effects fall disproportionately on the most the energy sustainability and circular economy
vulnerable. Action to combat these processes can scenarios cumulatively by 2030. Figure 1 shows the
potentially create millions of jobs – but this requires 20 occupations most in demand across industries in
a bold effort in investing in people’s capabilities each of the global scenarios. The transitions to these
to realize their full potential and contribute to jobs, however, will not happen by default: people will
the productivity of enterprises. In 2019, the ILO need new skills in order to tap into these new job
estimated that in both an energy sustainability opportunities.
scenario and a circular economy scenario, job

5 According to Skills for a Greener Future: “The transition to energy sustainability implies change in the amount of energy produced and in the way it
is produced, altering employment in the energy sector” (p. 128); “The circular economy is an alternative to a linear model of extraction–manufac-
ture–use–disposal, relying instead on the re-use, repair, recycling and retention of material goods” (p. 139).
Skills Development for a Just Transition 5

� Figure 1. Occupations with the highest number of new net jobs created in a low-carbon energy scenario
and a circular economy scenario

Panel A. Occupations with the highest number of new net jobs created in a low-carbon energy scenario

71 – Building and related trades workers, excluding electricians

93 – Labourers in mining, construction, manufacturing and transport
61 – Market-oriented skilled agricultural workers
72 – Metal, machinery and related trades workers
52 – Sales workers
74 – Electrical and electronic trades workers
83 – Drivers and mobile plant operators
81 – Stationary plant and machine operators
63 – Subsistence farmers, fishers, hunters and gatherers
92 – Agricultural, forestry and fishery labourers
82 – Assemblers
31 – Science and engineering associate professionals
33 – Business and administration associate professionals
13 – Production and specialized services managers
75 – Food-processing, wood-working, garment and other craft and related trades workers
73 – Handicraft and printing workers
96 – Refuse workers and other elementary workers
New jobs
41 – General and keyboard clerks
New jobs absorbing 51 – Personal service workers
laid-off workers
43 – Numerical and material recording clerks
Jobs destroyed,
reallocatable –1 0 1 2 3 4
Jobs destroyed,
not reallocatable Job change (millions)

Panel A. Occupations with the highest number of new net jobs created in a circular economy scenario

52 – Sales workers
74 – Electrical and electronic trades workers
72 – Metal, machinery and related trades workers
33 – Business and administration associate professionals
21 – Science and engineering professionals
31 – Science and engineering associate professionals
96 – Refuse workers and other elementary workers
41 – General and keyboard clerks
14 – Hospitality, retail and other services managers
61 – Market-oriented skilled agricultural workers
24 – Business and administration professionals
12 – Administrative and commercial managers
43 – Numerical and material recording clerks
83 – Drivers and mobile plant operators
95 – Street and related sales and service workers
42 – Customer services clerks
New jobs
54 – Protective services workers
New jobs absorbing 59 – Other service and sales workers
laid-off workers
Jobs destroyed, 91 – Cleaners and helpers
reallocatable 44 – Other clerical support workers
Jobs destroyed,
–12 –6 0 6 12 18
not reallocatable
Job change (millions)

Source: ILO, Skills for a Greener Future: A Global View, 2019: 132, 143.

While overall job creation potential in the two will be able to find jobs in the same occupation in
scenarios is close to 103 million jobs, the estimates another industry within the same country through
show that nearly 78 million jobs could be lost. Of reallocation. Still, nearly 24 million workers in
those workers whose jobs are eliminated due to two global scenarios cumulatively are likely to
contraction in specific industries, the majority be in occupations where jobs will be lost without
6 Just Transition Policy Brief

equivalent vacancies arising in other industries. expected to disappear with no equivalent vacancies
These workers will require substantial reskilling into in other industries – possibly over 1 per cent of the
other occupations. global workforce – may well be able to use their
skills in growing industries with the varying degree
In both scenarios, most job creation and reallocation
of additional training. There is a set of core and
are concentrated among mid-skill occupations. These
technical skills that are potentially transferable,
results suggest that the growth in mid-skill jobs
within occupations, from declining to growing
in the green transition can partly offset the global
industries; but retraining will be needed to enable
trend in which skill-based technological change is
workers to acquire new skills for use in the latter.
hollowing out mid-skill occupations. The greatest
Apart from technical occupation specific skills,
job creation and destruction impact is expected for
core work (or soft) skills can confer a comparative
male-dominated occupations, suggesting that men
advantage as they can be transferred across
in mid-skill occupations will have the greatest need
occupations.
of reskilling and upskilling to enable them to tap
into new job opportunities. This also suggests that The transition to environmentally sustainable and
current occupational gender stereotypes are likely inclusive economies and societies cannot take place
to persist: women will get only a fraction of the jobs if the skills demanded by new jobs are not available
created, unless measures are taken to train women in the labour market. The transition is therefore
in relevant skills, so that they can benefit from conditional on investment in training to develop
potentially created jobs. skills to meet new requirements and avoid skills
mismatches. Forward-looking skills strategies are
It is estimated that only around 2 per cent of the
necessary to train young people and reskill the
global labour force will be affected in the global
current workforce to meet the skills needs of the new
scenarios. Within this disruption, jobs will not
jobs generated in the transition process in expanding
disappear, but will require reallocation, upskilling
sectors.
and reskilling. Even workers in the jobs that are

3. Key skills challenges for a just transition

Although some progress has been made in the Coherence between skills
past decade, there are crucial skills challenges
facing a just transition towards environmentally and environmental policies
sustainable economies and societies for all. To remains weak and fragmented
name a few, national commitments and sectoral in many countries
priorities to implement the Paris Agreement have not
The ILO in-depth study of the situation in 32
included sufficient skills development component
countries mapped sets of policies on environmental
to support their implementation. Comprehensive
sustainability and climate change that form
and systematic approaches to skills for a green
overarching frameworks for consideration of
transition and active involvement of stakeholders
capacity development, occupations and skills.
in discussions related to the greening agenda tend
Yet, how these environmental policies are put
to be lacking in many countries. While increase in
into practice, and how effectively they are
skills gaps and shortages are posing a challenge
linked to employment and skills policies, varies
to the green transition, effective mechanisms to
widely. Analysis conducted using data from the
anticipate and monitor those skills needs are not
Environmental Performance Index (EPI) and country
commonly found. The specific needs of vulnerable
reports along with an expert survey suggests that
and disadvantaged groups in adjusting to change
four groups of countries can be identified (see
in the green transition are not effectively addressed
figure 2). Only a small group of European high-
(see below for more elaboration).
income countries (France, Denmark, Germany and
Spain) demonstrates both strong environmental
performance and strong comprehensive and
coordinated skills policies. Another group,
comprising mostly high-income countries (HICs) and
upper-middle-income countries (UMICs), is strong in
Skills Development for a Just Transition 7

environmental policies but weak on the skills side. Finally, a large group of mostly low-income countries
A third group demonstrate strong skills policies but (LICs) are still in the early phases of addressing both
weaker performance on the environmental side. environmental and skills issues.

� Figure 2. Countries grouped according to performance in environmental and skills policies

90 Strong environment
Strong environment but lack
Environmental performance index (EPI)

of coordinated skills policies FRA and strong coordinated

skills policies
80 GBR DEU
DNK
AUS ESP
USA

70 CRI
EST
EGY
MNE
60 BRA
ARE MUS KOR PHL

KGZ SEN BRB

CHN THA
50
GHA IDN GUY
TJK ZAF
ZWE
UGA
40 MLI BFA

IND
BGD
30

Weak environment and lack Weak environment but strong

20 of coordinated skills policies coordinated skills policies

0 2 4 6 8 10

Comprehensive skills policies for greening

Note: Y axis: the EPI uses the distance-to-target technique for indicator construction, which situates each country relative
to targets for worst and best performance corresponding to scores of 0 and 100 respectively. X axis: the presence of
comprehensive skills policies for greening was calculated on a 0–10 scale. Country codes: Australia (AUS), Bangladesh
(BGD), Barbados (BRB), Brazil (BRA), Burkina Faso (BFA), China (CHN), Costa Rica (CRI), Denmark (DNK), Egypt (EGY), Estonia
(EST), France (FRA), Germany (DEU), Ghana (GHA), Guyana (GUY), India (IND), Indonesia (IDN), Republic of Korea (KOR),
Kyrgyzstan (KGZ), Mali (MLI), Mauritius (MUS), Montenegro (MNE), the Philippines (PHL), Senegal (SEN), South Africa (ZAF),
Spain (ESP), Tajikistan (TJK), Thailand (THA), Uganda (UGA), the United Arab Emirates (ARE), the United Kingdom (GBR), the
United States (USA) and Zimbabwe (ZWE).
Source: ILO, Skills for a Greener Future: Key Findings, 2019.

More generally, skills development for green jobs of the 2015 Paris Agreement, 2030 Agenda and the
can be characterized as somewhat unsystematic, ILO Just Transition Guidelines.
sometimes taking place as part of overall
Furthermore, weak policy coordination between
government policy but often carried out by other
government, ministries, social partners, training
actors, including civil society groups as well as
providers and other stakeholders remains a key
regional and local government authorities and
obstacle to an effective and successful transition
social partners, working to fill gaps from the bottom
to greener production and consumption. At
upwards. Thus, the overall picture of training in skills
governmental level, responsibility for the areas of
for greener jobs is fragmented and led by individual
policy relevant to skills for green jobs still tends
regions, sectors and projects. Such interventions
to be distributed across more than one ministry.
may be effective to a certain extent: they are
While ministries responsible for environmental
usually driven by well-understood and pressing
policy are in charge of policies on topics such as
needs of communities and businesses. However,
climate change, disaster risk management and
such approaches cannot give sufficient attention
biodiversity, use of renewable energy sources and
to broader policy coordination, important equity
technologies, the transition to inclusive and greener
considerations and longer-term strategic objectives
8 Just Transition Policy Brief

economies can involve ministries for the economy, Digitalization is another important global trend that
employment/labour, education, agriculture, energy, highlights the need to promote information and
industry and trade. Ministries responsible for labour, communications technologies (ICT) for the green
education and training tend to be least involved in economy and to develop skills for green transitions
policymaking and consultations on climate change to promote sustainable development.
and environment. In general, coordination tends to
occur for specific purposes, with weak monitoring Green structural change will be
and unsystematic follow-up. Poor inter-ministerial
coordination hampers the effective design, planning,
profound in certain sectors
implementation and evaluation of policies on skills The ways we live, work and earn are affected by
development for green jobs and climate action. environmental degradation, global warming, loss
of biodiversity, desertification, rising sea levels and
Skills gaps and shortages persist, changing climate patterns that know no borders.
However, green structural change has been shaped
despite recent and positive trends by specific national contexts and differing levels
The green transition requires massive investments of development across sectors. Fossil fuel-based
in reskilling and upskilling to equip workers with the industries and high carbon-emitting sectors are
technical (specific to each occupation) and core (soft) most likely to be affected by green structural change.
skills required. Skills gaps and shortages are almost Although green jobs growth is widely forecast,
inevitable whenever any new product or service countries have made variable progress since 2011.
appears, and the green economy is no exception. The green transition continues to both affect existing
Identification and anticipation of skills needs have occupations and create new green occupations,
been gaining ground since 2011 but remain weak and in cases where new technologies or processes are
insufficiently systematic to provide comprehensive applied.
information on demand and supply related to skills
In HICs, the green transition in economic and
for green jobs.
employment policies is driven by two factors. First
Developing countries are especially challenged by is a drive to achieve greater energy efficiency and
a lack of professionals and a paucity of university renewable energy use while reducing negative
graduates in general, especially those trained in environmental impacts. Second is the rising trend
STEM skills. Even in HICs, including those with in markets for green goods. The environmental
well-developed skills anticipation systems, a lack of goods and services sector is now a well-developed
both technical and transferable core skills remains feature in HICs. In general, green markets have
a significant cause of recruitment problems for been important sources of employment growth in
employers. Poorly developed skills anticipation recent years in developed economies; they are also
systems limit countries’ ability to identify skills gaps emerging, though slowly, in developing economies.
and to analyse future training needs and shortages
In low-income countries (LICs), the environment
in a systematic and comprehensive way.
has a more direct bearing on people’s lives. These
One emerging driver of change is the increased countries are most likely to be affected by climate
mobility of workers. On the one hand, labour change and environmental degradation, which in
migration opens up income generation opportunities turn affects their growth prospects. There is also a
for many people, including the low-skilled. On the greater reliance in LICs on agriculture and extractive
other hand, it may contribute to a “brain drain” and industries. The most important changes in skills and
skills shortages in sending countries. In addition, occupations for the green economy are taking place
the negative consequences of environmental at a relatively higher skill levels, requiring vocational
degradation and climate change may cause the training or university education. This represents
internal or external displacement of workers, leading a critical challenge for many LICs, where access to
to increased numbers of migrants. Climate-spurred education and training is insufficient, dropout rates
migration among poorer populations, including are often an issue of concern and relevant skills are
indigenous peoples, creates the need for new sets of in short supply.
skills (including core skills) for workers in new labour
The sector that has seen the greatest growth in
markets or in search of alternative employment.
employment potential is renewable energy. The
environmental goods and services sector, which
Skills Development for a Just Transition 9

© ILO / Marcel Crozet

includes waste, energy and water management, fiscal space for counter-crisis measures but reskilling
has been developing significantly where it is and upskilling measures will be essential for the
supported by government policies and measures. recovery in all countries. During the global pandemic,
In construction, employment effects vary, employers, workers and job seekers alike became
depending on the degree to which the existing more aware of the need to invest in training for the
built environment is “greened” through retrofitting green transition in order to either keep current jobs
(mostly in HICs) and the rise of the green building or to take advantage of new job opportunities arising
sector and “smart cities”. The employment effects with the economy recovery. To this end, the Global
of the green transition in other sectors tend to be Call to action adopted at the 2021 International
complex. Manufacturing, notably the automotive Labour Conference outlined the promotion of skills
sector, is gradually changing its output to produce development opportunities that are responsive
more energy-efficient products, with limited net to labour market needs and support for effective
employment gains but significant changes in transitions as required policy measures to ensure
skills demand. However, it is also producing green human-centred, inclusive, resilient and sustainable
products and creating jobs in supply chains with recovery from the current global crisis.
significant indirect employment effects, including the
production of parts for the use in renewable energies Skills development programmes
such as the production of wind turbines. Agriculture,
though subject to significant green challenges and
lack a strong focus on gender and
a very important source of employment in most the needs of vulnerable groups
developing countries, does not appear to date There are still not many skills development
to have undergone significant changes in skills. programmes particularly focused on the needs
The potential for green jobs in transportation and of vulnerable groups. Active labour market
tourism is yet to be fully realized but is attracting programmes (ALMPs) related to skills for green
considerable attention in some countries in pursuit jobs generally target the unemployed and those
of sustainable development. in precarious labour market situations. The few
The economic crisis induced by the COVID-19 examples of national strategies or targeted public
pandemic and related jobs crisis reduced job employment services (PES) initiatives that focus
opportunities, including green jobs. Developing on skills for green jobs include ALMPs to pre-empt
countries are particularly affected due to a smaller potential skills shortages and to support groups
10 Just Transition Policy Brief

rendered vulnerable by the transition. These groups provide comprehensive information on demand and
often include low-skilled workers and people supply related to skills for green jobs are still not
who are either already unemployed or at risk of systematic enough. Some countries have set up a
unemployment as a result of certain activities being specific institutional body or monitoring mechanism
phased out in the greening process. PES initiatives dedicated to identifying the skills needed for green
are often aimed at tackling unemployment among jobs. In countries that have no system at all for
youth, indigenous peoples, people with disabilities or monitoring skills needs (for green jobs or generally),
migrant workers. which is the case for most LICs, such needs are
usually identified on an ad hoc basis.
Despite good examples of attracting more female
students to science- and technology-related Only a few countries have systematic, innovative and
programmes, enrolments in universities and institutionalized mechanisms for skills anticipation
technical and vocational education and training in which the private sector is directly and actively
institutions (TVET) still reflect traditional gender involved. This makes it difficult to develop specific
stereotypes, with more male students in STEM areas. skills policies, adapt skills training and ALMPs to
Developing countries face greater challenges in current and future demand and to shape TVET
this area owing to the lack of trained teachers and appropriately (often by adding green components
trainers and graduates with STEM skills. to existing curriculum, qualifications or education
programmes). Only a few countries have systems
Effective skills anticipation or measures in place that are fully dedicated to
developing skills for green jobs.
and monitoring mechanisms
are still not in place
Efforts to identify and anticipate skills needs have
gained ground in recent years, but mechanisms to

4. Key principles and steps to seize a just transition opportunity

If equipped with the right technical and core skills for of economic activity and at all levels of skill and
a just transition, the current and future workforce responsibility” (Article 4). The ILO Recommendation
have the potential to become responsible producers No. 195 recommends that Member States “recognize
and consumers. They can act competently and that education and training are a right for all and,
creatively as active change agents for advancing in cooperation with the social partners, work
a just transition in their workplaces and in society towards ensuring access for all to lifelong learning”
at large. Achieving this requires the joint effort (Paragraph 4).
and shared responsibility of governments (by
Convention No. 142 and Recommendation No.
creating the conditions and investing in education
195 call for consultations with social partners in
and training), employers (by training their
developing policies and programmes on vocational
employees), and individual workers (by developing
and career guidance and vocational training.
their competencies and careers through active
Institutional capacity building and awareness raising
engagement in lifelong learning opportunities),
on the roles of various stakeholders in the just
with education and training institutions delivering
transition will therefore be important.
demand-led trainings and social partners playing
a critical role. Institutionalized social dialogue Furthermore, Paid Educational Leave Convention
mechanisms and procedures at national and sectoral (No. 140) specified that “Each Member shall
levels are an important engine for driving policy formulate and apply a policy designed to promote,
coherence and achieving a just transition. by methods appropriate to national conditions and
practice and by stages as necessary, the granting of
The ILO Human Resources Development Convention
paid educational leave for the purpose of (a) training
(No. 142) prescribes that “each Member shall
at any level; (b) general, social and civic education; (c)
gradually extend, adapt and harmonise its vocational
trade union education.”
training systems to meet the needs for vocational
training throughout life of both young persons and It further specifies that “Paid educational leave
adults in all sectors of the economy and branches shall not be denied to workers on the ground
Skills Development for a Just Transition 11

of race, colour, sex, religion, political opinion, This will also require reviewing and (re)formulating
national extraction or social origin.” It is essential to skills development policies, including means for
ensure that all workers have the time and financial validation and recognition of skills and all forms
support they need to acquire and upgrade skills of prior learning jointly by all key stakeholders
throughout their careers. Such an approach should including governments, social partners and training
be supported by removing barriers to participation, institutions at all levels. Collaborative approaches
widening access to learning, ensuring gender allow information on greening developments from
equality in learning and providing social protection the front line in industry, agriculture and services
and proactive employment services to make a just to inform skills development in formal TVET. Public–
transition possible. private partnerships (PPPs) can bring together public
and private resources and tap businesses’ practical
Enhanced policy coherence, social knowledge of skills relevance and quality.

dialogue and partnership can help

Well-developed, sound
to propel the green transition
The Conclusions of the 109th session of the
national and sectoral policies
International Labour Conference recognized that enable the just transition
education and training is a right for all, and indicated Government policy plays a key role in the quest for
that, taking into account national circumstances, a green transition. Policies related to skills for green
governments should work in cooperation with the jobs take two main forms: they either arise as part
social partners towards ensuring access for all to of broader environmental and economic policies or
lifelong learning, and agreed that Governments, they are created specifically. Box 1 describes how the
with the support of the ILO should, among other Philippines created policy and legal frameworks for
things, coordinate education and training policies green jobs while engaging in active social dialogue
with other public policies and strategies, including and related human resource development planning.
fiscal, industrial, trade, investment, environment
Economic and employment policies frequently have
and climate change policies; and involve the
a sectoral or regional dimension which provides
social partners and cooperate with other relevant
a convenient vehicle for the inclusion of a green
stakeholders, where appropriate, in the design,
aspect. Incorporating skills for green jobs at sectoral,
implementation (including consultation on resource
regional and project levels can be part of national
allocation), monitoring and evaluation of skills
policy or undertaken autonomously in response to
development and lifelong learning policies, systems
sectoral, regional or local needs, or a combination of
and programmes.
the two. Sometimes action at this level in effect fills
The policy coordination “gap” that is such a policy gaps at the national level.
common feature at national level of the skills
Sectoral plans for skills for green jobs, supported by
for green jobs landscape is sometimes offset, at
government taxes and incentives, are most common
least in part, by policies and plans at sectoral or
in those sectors directly affected by climate change
subnational governmental levels. Where social
and environmental depletion, such as energy,
partner engagement is weak, this can have negative
transport, construction and waste management.
consequences for the coordination and relevance of
The private and public employers and trade unions
policies on skills for green jobs. Thus, a combination
play essential roles in the transition to sustainable
of top-down coordinated policymaking and
economies.
bottom-up initiatives could provide effective and
more sustainable support to the green transition.
Core and transferable skills are
Equipping workers with the right skills is an
essential prerequisite of a just transition. Bringing
vital to an inclusive green transition
trade unions and employers’ associations through A wide range of both technical and core skills,
active social dialogue and partnership into the including STEM skills, is needed to support the
planning, design, implementation and evaluation green transition. Some core skills are needed by all
of skills development can strongly boost the workers, regardless of the general skill level of their
responsiveness of education and training and occupation. Medium- to high-skilled occupations
trigger green transformation on a larger scale. may require additional skills of this kind, as shown in
12 Just Transition Policy Brief

Box 1. A legal framework for skills and training for green jobs in the Philippines
Enacted in 2016, the Philippines Green Jobs Act is the first piece of legislation in the country’s history specifically
designed to generate, sustain and incentivize green jobs in order to develop an environmentally friendly
economy. Prior to the Act, there was no legal concept relating to green jobs. The Act explicitly defines what is
meant by green jobs and consolidates various policy ideas. It promotes training by mandating the Department
of Education and the Commission on Higher Education to develop and implement curricula that would support
the skills and knowledge requirements of a green economy.
It tasks the Technical Education and Skills Development Authority (TESDA) and the Professional Regulation
Commission with developing training regulations and qualifications frameworks, respectively, to facilitate the
certification of skilled and professional green personnel. It mandates various government offices, including
the Department of Labour and Employment, the Department of Trade and Industry and the Department of
Tourism, to promote green jobs in their respective sectors. The Green Jobs Act also introduces a range of new
financial incentives to encourage enterprises to create further green jobs and training.
Furthermore, under the Act, the Department of Labour and Employment has been tasked with formulating
a National Green Jobs Human Resource Development (HRD) Plan in coordination with other government
agencies. Currently under development, the plan will integrate the international Just Transition framework
and include measures on education and skills development, labour market interventions, social protection,
enterprise development, social dialogue, policy coherence and financing.
Source: ILO, Skills for Green Jobs in Philippines, 2018.

table 1. In addition, it should be noted that enabling a developing the capabilities of all workers related to
green transition that is also socially just necessitates occupational safety and health (OSH), rights at work
raising awareness, improving sensitization and and decent jobs.

� Table 1. Main core (soft) skills required for green jobs, by skill level of occupation

Required across the labour force Required in medium- to high-skilled occupations

X Environmental awareness and respect; X Analytical thinking (including risk and systems analysis)
willingness to learn about sustainable to interpret and understand the need for change and the
development measures required
X Adaptability and transferability skills, to X Coordination, management and business skills that can
enable workers to learn and apply the new encompass holistic and interdisciplinary approaches
technologies and processes required to incorporating economic, social and ecological objectives
green their jobs X Innovation skills, to identify opportunities and create new
X Teamwork skills, reflecting the need for strategies to respond to green challenges
organizations to work collectively on tackling X Marketing skills, to promote greener products and
their environmental footprint services
X Resilience, to see through the changes X Consulting skills, to advise consumers about green
required solutions and to spread the use of green technologies
X Communication and negotiation skills, to X Networking, IT and language skills, to perform in global
promote required change to colleagues and markets
customers
X Strategic and leadership skills, to enable policymakers
X Entrepreneurial skills, to seize the and business executives to set the right incentives and
opportunities of low-carbon technologies create conditions conducive to cleaner production and
and environmental mitigation and adaptation cleaner transportation
X Occupational safety and health (OSH)

Source: ILO, Skills for a Greener Future: A Global View, 2019: page 30.
Skills Development for a Just Transition 13

Improving skills anticipation requirements and components. In less developed

systems through better countries where such frameworks do not yet exist,
there is an opportunity to create structures such as
data and institutionalized a national human resources development council
social dialogue is crucial (NHRC), involving government, employers, workers
There is an urgent need for a more rigorous and providers of training and education in order
approach to the analysis and anticipation of demand to facilitate the exchange of information and to
for green job skills, with better information and data establish industry groupings that could later be
on skills and occupational needs to address the skills formalized as sectoral skills bodies. Systematic
challenge and enable the green transition. Without anticipation of skills needs, career guidance and
good quality, systematic and reliable data on supply counselling initiatives through sectoral skills bodies
and demand related to green jobs and labour market all facilitate and boost an inclusive human-centred
information, effective and focused planning of skills approach to the green transition.
development for just transition and skills matching
is difficult to achieve. Countries therefore need to Targeted and inclusive training by
equip themselves with the anticipation, forecasting well-equipped teachers is essential
and monitoring tools they need to respond to the
Effective training depends on the availability of
demand for skills for green jobs. It is essential to
teachers and trainers with current knowledge on
allocate adequate funding and to build technical
sustainable land and ecosystem management,
expertise and capacity for gathering and analysing
energy efficiency and green technologies. Their role
quantitative and qualitative data on green jobs and
is critical in promoting environmental awareness
labour market information. Box 2 provides a good
among young people and in spreading climate
example of how a French institution is anticipating
education and environmental training beyond the
skills needs for the green transition.
formal education system into the adult population.
The education and training of such teachers and
Box 2. Institutional arrangements for trainers should therefore be a top priority in any
anticipating skills needs for green transition skills response strategy at national, sub-national, and
in France sectoral levels.
The National Observatory for Jobs and While many countries aim to include disadvantaged
Occupations of the Green Economy (Onemev) groups in their skills development programmes for
was created in 2010 by the French Ministry of green jobs, these groups still do not benefit enough
Environment to analyse employment shifts from relevant and practical training opportunities.
in the green economy and produce relevant There is an urgent need to develop systematic
methodologies and statistics. The observatory reskilling and upskilling initiatives in skills for green
aims to provide a shared diagnosis on jobs, jobs aimed at specific groups: youth, older workers,
occupations and training in the green economy. women, people with disabilities, indigenous people,
It brings together a broad range of institutions migrant workers, unemployed people, informal
including relevant national ministries and workers, persons with HIV/AIDS, refugees, low-
agencies, key public employment service skilled workers, indigenous and tribal peoples and
organizations, the main TVET association, the those living in rural areas. The inclusion of women in
national statistical institute, research bodies apprenticeship and skills training for environmentally
(including the Centre for Studies and Research sustainable jobs is essential to overcome disparities
on Employment and Skills), and regional and gaps in the labour market as well as skills
employment and training observatories, where shortages in certain occupations. Incentives to
social partners are represented.. increase women’s participation in sectors with green
Source: Cedefop, Skills for Green Jobs: 2018 Update, growth potential, notably through technical training
2019. programmes, will achieve the double objective of
solving skills shortage problems in this area while
also increasing women’s participation in technology-
Where systems for anticipating skills needs already driven occupations. In addition, supportive policies
exist, they can be adjusted to incorporate new for MSMEs to facilitate workforce training in
14 Just Transition Policy Brief

response to climate change is essential for a just technologies and good green practices. They can
transition as they often lack resources to provide also provide a platform for combined contributions
training on their own. to support the TVET system systematically.
Financial incentives are a key aspect of the operation
Mainstreaming the green transition of green markets and support other drivers of skills
through the TVET systems can for green jobs. Some countries operate specific
financial incentives to encourage training, such as
help to ensure a just transition levy-grant systems, tax breaks, training vouchers
The shift to low-carbon and resource-efficient and individual training accounts. Strong and inclusive
economies and societies requires technical and PPPs could be instrumental in reducing the financial
vocational education and training institutions (TVET) constraints on the effective delivery of high-quality
to engage more systemically in response to the training as well as in generating more opportunities
changing job opportunities and skills needs for the to formulate new, innovative and data-driven skills
green transition. Through their ability to prepare development policies.
the current and future workforce with the relevant
knowledge and skills to transform the workplaces,
communities and societies as a whole, they have
Investing in skills for green
the potential to ensure that the green transition is jobs will help implement fiscal
fair and just. It is therefore essential to strengthen stimulus measures and recovery
governance and management structures required
to mainstream green transition in TVET systems
plans and build forward better
and to incorporate skills for green transition into the In the context of recovery from the COVID-19
development or renewal of competency standards, pandemic, many countries have been putting the
curricula, training, and assessment packages in both fiscal stimulus measures and recovery plans in
initial and continuing TVET. place. Having witnessed how unprepared global
systems were to handle the crisis and protect the
environment, health and economy, a growing chorus
Skills funds and public– of voices is calling for the economic recovery from
private partnerships the pandemic to be greener, inclusive and resilient.
could drive sustainable Against this background, governments are including
green measures in their fiscal stimulus packages,
development beyond 2030 with a view to building forward better from the crisis.
Skills development and training needs can also
be met through collaboration between private The availability of workers with the right skills for
sector and multinational companies and the public green jobs plays a vital role in the success of green
sector through promoting and empowering a fiscal stimulus and recovery measures. It is therefore
public–private partnership (PPP) for green jobs. crucial to direct substantial investment towards
Engaging the private sector, particularly MSMEs, upskilling and reskilling workers, thus enhancing
including cooperatives and involvement of countries’ ability to tap into new green jobs
workers’ organizations, is essential to establishing opportunities and improving transferability across
a sustainable and functional TVET system and to occupations and sectors. Skills development and
developing skills within sectors and enterprises. PPPs training for green jobs should be an integral part of
can catalyse and boost diversified, innovative and green fiscal stimulus and recovery measures, along
new approaches in financing lifelong learning, foster with support for enterprises and workers in sectors
collaborative peer learning and knowledge sharing negatively impacted by the green transition and
among businesses and workers as well as education current global crisis.
and training institutions on the application of green
Skills Development for a Just Transition 15

5. Conclusions and key recommendations

The green transition can generate millions of jobs, for skills for use in labour market intelligence in order
but these are conditional on the availability of to improve the relevance and quality of the training.
relevant skills and training. As highlighted in the Just Their role is also very important with respect to
Transition Guidelines, labour market intelligence and the further use of skills at the workplace and in the
skills anticipation should enhance the understanding provision of the workplace learning.
of changing skills demand in the green transition.
Trade unions play a pivotal role in providing skills
Countries need to mainstream systematically skills
for green jobs and enhancing recognition of skills
for green jobs in their systems and make these skills
and prior learning. Their role is difficult to overstate
more recognizable. In addition, forward-looking
when it comes to the inclusion of training clauses
skills strategies should be integrated in climate and
in collective agreements as part of just transition
environmental policies, coupled with active labour
measures.
market and career guidance measures and social
protection mechanisms. Furthermore, ensuring Education and training institutions need to
a just and inclusive transition necessitates paying enhance relevance of their training to the labour
priority attention to the needs of disadvantaged market needs and prepare learners, trainers and
and vulnerable groups. It will also require joint and teachers with the relevant knowledge and skills to be
active engagement by governments, employers’ active agents of change in a just transition towards
and workers’ organizations through social dialogue environmentally sustainable economies and societies
as well as engagement with civil society actors, for all.
education and training providers at all levels and
The ILO supports its constituents to shape skills
the international community. In other words,
development and lifelong learning with a view of
effective skills and climate response strategies must
equipping the current and future workforce with
be grounded in broad participation if they are to
right skills for a just transition, with knowledge
succeed in design, planning and implementation.
products, practical tools, policy advice, capacity
Governments have a key role to play in enhancing development, research and technical assistance in
the coherence of skills policies and environmental close collaboration with strategic partners including
policies and ensuring they are inclusive as well other international organizations. It does so in
as coordinating line ministries and agencies and line with the Just Transitions Guidelines and the
actively involving social partners with a stake in the conclusions adopted at the 2021 ILC.6 Useful ILO
green agenda. products and tools on skills for a greener future are
listed in table 2.
Employers’ organizations have a significant role to
play in transferring information on changing demand

6 ILO, Reports of the General Discussion Working Party on skills and lifelong learning, International Labour Conference, 109th Session, 2021: 9 (see
point 14(a)v).
16 Just Transition Policy Brief

� Table 2. ILO products and tools on skills for a greener future

ILO Materials and

Areas Summary
Resources

Global study with analysis on the implications of the transition to low-carbon

Policy Skills for a Greener Future: A and resource-efficient economies for skills, gender and occupations (based
research Global View (2019) on 32 country studies); Global projection of the implications of energy
sustainability and circular economy for skills, gender and occupations by 2030.

Capacity E-learning course on skills for Six-week online course on skills for green jobs, including regional and
development a greener future national versions in collaboration with ITCILO.

Skills for a Greener Future:

List of six main challenges, six policy messages and a policy checklist.
Policy Brief

Anticipating Skill Needs for Guidance on how to embark on the identification of current and anticipation
Policy advice Green Jobs: A Practical Guide of future skill needs for the green economy and green jobs.
& practical
tool A step-by-step “how to” tool for greening TVET, competency standards,
Greening TVET and skills curricula, training and assessment packages, focusing on low- and middle-
development: A practical income countries. The tool is being piloted in various countries, including
guidance tool Cambodia, Ghana, Zimbabwe, Zambia, Thailand and the Philippines from
2021 to 2022.

Key resources
ILO (International Labour Organization). 1974. Paid Educational Leave Convention, 1974 (No. 140).
—. 1975. Human Resources Development Convention, 1975 (No. 142).
—. 2004. Human Resources Development Recommendation, 2004 (No. 195).
—. 2018. World Employment and Social Outlook 2018: Greening with Jobs.
—. 2019. Skills for a Greener Future: Challenges and Enabling Factors to Achieve a Just Transition.
—. 2021. Shaping Skills and Lifelong Learning for the Future of Work, International Labour Conference
109th Session, 2021 (ILC.109/VI).
—. 2021. Global Call to Action for a Human-centred Recovery from the COVID-19 Crisis that is Inclusive,
Sustainable and Resilient (ILC.109).
—. 2021. Resolution Concerning Skills and Lifelong Learning (ILC.109).
—. 2022. Greening TVET and Skills Development: A Practical Guidance Tool.

Acknowledgements
Special thanks to ILO colleagues for their contributions, technical inputs and collaboration in the development
of this brief, namely to: Hae Kyeung Chun and Olga Strietska-Ilina in the Skills and Employability Branch; José
Luis Viveros Añorve in the ACTEMP; Olsen Lene, Claire La Hovary, Rafael Peels, Amanda Claribel Villatoro, Maria
Helena Andre, Anna Biondi in the ACTRAV; and Moustapha Kamal Gueye, Tahmina Mahmud, Monica Castillo and
Yanghaoyue Xiong in the Green Jobs Programme.

C
 ontact details International Labour Organization Skills and Employability Branch
skills@[Link]
Route des Morillons 4
CH-1211 Geneva 22 Green Jobs Programme
Switzerland greenjobs@[Link]

© International Labour Organization 2022