A Functions Approach to the Review of the Effectiveness and Efficiency of the Just Transition Work Programme Discussion Paper and Submission

The effectiveness and efficiency of the just transition work programme (JTWP) is being reviewed at the same time that Parties consider how to operationalize the just transition mechanism (JTM), making the United Nations Framework Convention for Climate Change’s (UNFCCC) 31st Conference of the Parties to the Paris Agreement (COP31) a pivotal moment for just transition (JT) under the Paris Agreement.

Parties made progress at the 64th session of the Subsidiary Bodies (SB64) (June 2026). They agreed on the terms of reference for the review, including assessing ways to improve the JTWP’s modalities for possible continuation.¹ Parties also noted the co-Chairs informal note on the JTM, which included a non-exhaustive list of Parties’ views on its possible functions.²

Understanding which functions are best suited for the JTWP vis-à-vis the JTM, as well as other work inside or outside the UNFCCC would usefully inform the review of the JTWP. With these functions in mind and assuming Parties will extend the JTWP at COP31, Parties should consider requesting the JTWP to:

clarify JT ecosystem roles—set criteria that define how the JTWP, JTM, and other work divide responsibilities
establish an iterative cycle—identify priorities and commission work for the JTM to provide practical support (such as technical guidance, links to resources and experts, and investment-focused events) and report lessons back; then use those lessons to refine signals, set priorities and update guidance
hold coordination workshops—invite UNFCCC processes and workstreams to analyze and resolve potential mandate overlaps during in-session workshops by, for example, carrying out joint activities
issue cooperation-focused synthesis reports—elevate effective governance approaches from across the JT ecosystem, including the Global Climate Action Agenda (GCAA)³
prepare impactful high-level ministerial roundtables (HLMRTs)—use HLMRTs to send clearer guidance to the financial architecture
translate JTM/other work outputs into operational guidance—for example:
- signal priority sectors and regions for implementation
- recommend indicators for JT baselines and progress tracking aligned with JT pathway elements,⁴ key messages,⁵ and potentially outcomes from the first global stocktake (GST1).⁶
organize and synthesize reporting across UNFCCC bodies—track how constituted bodies have integrated JT elements since COP30.⁷

If the JTWP is not extended, it is unclear whether and how the JTM could take on those functions that the JTWP would have fulfilled through improved modalities.

What are the functional responsibilities of an effective and efficient JT ecosystem?
To improve coherence and avoid duplication, what criteria could help determine the allocation of functions across the JT ecosystem?
Has the JTWP been effective in meeting its objective? What would improved modalities for the JTWP look like? Is the JTWP still needed when the JTM is operationalized?
What are relative strengths of the JTWP vis-a-vis the JTM and other work? How can the JTM/other work complement the JTWP?

1. The JT ecosystem comprises:

the JTWP—operationalized at COP28, to discuss pathways to achieve the goals of the Paris Agreement, considering national circumstances⁸
the JTM—launched at COP30 and to be operationalized at COP31, to enhance international cooperation, technical assistance, capacity-building and knowledge-sharing, and enable equitable, inclusive just transitions, building on existing work⁹
other work—work to support the implementation of the JTWP,¹⁰ which the UNFCCC secretariat has started mapping.¹¹ This work is carried out by:
- inside the UNFCCC—workstreams, processes and bodies at the UNFCCC (e.g.: the Katowice Committee of Experts on the Impacts of the Implementation of Response Measures [KCI]; the Mitigation Work Programme; the Climate Technology Center and Network [CTCN]; the Paris Committee on Capacity Building; and the Global Climate Action Agenda [GCAA]); and
- outside the UNFCCC—UN agencies, international organizations and global initiatives outside the UNFCCC (e.g.: International Labour Organization; UN Development Programme; UN Trade and Development; and International Energy Agency).

2. The review of the JTWP in 2026 is an opportunity to think systemically about what the JT ecosystem could do and how to best utilize each component. To be effective and efficient, the JT ecosystem needs a rational allocation of functions. This paper suggests taking a functions-based approach by: (i) identifying JT ecosystem functions; and (ii) allocating these functions through criteria.

3. A functions-based approach can help assess:

what the JTWP can do best (noting the relationship between the JTWP and the JTM is in the scope of the review and the UNFCCC mapping as a source of input)¹²
the additional value of the JTM/other work, which sets up further discussion on the JTM’s operationalization, including governance and links to the JTWP.¹³

4. The JTWP is best suited to: send normative signals: create coherence across JT ecosystem roles; and provide high-level technical guidance and progress updates. The JTM can strengthen the JTWP by deepening analysis of synergies and drawing lessons learned from other work, tracking implementation, and connecting Parties to relevant resources tailored to specific circumstances.

5. Parties have already identified functions for the JTM, organized by the SB64 informal note into six categories. This paper uses these six categories of functions as the basis for assessing how responsibilities could be allocated across the JT ecosystem, noting that several functions are already performed by the JTWP (see Annex I).

6. Parties could consider using the following criteria to guide function allocation:

Criterion	Best suited to JTWP	Best suited to JTM/other work
Nature of objective/activity	Deliberative functions: dialogue, exchange, synthesis, awareness-raising, political signal/guidance	Operational functions: capacity-building and technical assistance; matching; partnership mediation (“brokering”); finance mobilization
Global vs. country-specific	Global discussions on broadly defined topics	Demand-driven implementation support, including support tailored to individual countries
Outputs	Periodic outputs (one-off or periodically updated) tied to mandated activities (e.g., reports, experience and data-sharing workshops, dialogues, JTWP website)	Continuous service/support, including living resources needing maintenance (e.g., toolbox, registry, matchmaking platform) and research-intensive knowledge products
Staffing needs	Existing UNFCCC secretariat and Co-Chair support	Additional consultants, helpdesk, rosters
Resource implications	Relatively limited budget (could include voluntary contributions)	Dedicated funding

7. This paper has analyzed and allocated 23 functions across the six categories to the JT ecosystem. Each JTWP function is tagged as either a “high” or “medium” fit, with medium-fit functions indicating areas where the JTWP’s deliberative strengths can be complemented by the more operational capacities of the JTM/other work (see Annex II).

JTWP High-fit Functions

8. The JTWP demonstrates clear high‑fitness or strong suitability for coordination and coherence. It is well positioned to convene annual events, meetings, and structured dialogues that bring together relevant bodies, experts, and external organizations. It can strengthen international cooperation by increasing complementarity across the ecosystem without duplicating mandates.

9. For example, the JTWP could: (i) set criteria that clarify roles across the JT ecosystem; and (ii) establish an iterative cycle with the JTM/other work. In such a cycle, the JTWP would identify priorities and commission work, while the JTM would translate that direction into practical support—such as guidance, tools, platforms, investment-focused events, and links to resources and experts—then report lessons back. The JTWP would use those lessons to refine priorities and update guidance.

10. The JTWP also exhibits high-fitness for international cooperation functions. These include: (i) sending political signals to climate finance institutions and the broader financial architecture; and (ii) issuing guidance that elevates effective cooperative approaches emerging from across the JT ecosystem, such as the GCAA. If not negotiated, this guidance could at least be noted in synthesis reports.

JTM High-fit Functions

11. The JTM/other work shows high-fitness in development and implementation of JT pathways. It is best placed to provide technical assistance to build institutional and human capacity at national, subnational, and community levels, including through skills development. It can also offer tools for mapping high-potential sectors and developing just transition strategies through sectoral assessments involving diverse stakeholders.

12. The JTM/other work also has high‑fitness for international cooperation functions, but these are related to mobilizing and facilitating access to means of implementation, brokering North‑South and triangular partnerships, and matching technical and financial assistance to requesting countries.

Synergies

13. Synergies between the JTWP and the JTM/other work are found across functions in most categories (see Annex II). For example, in terms of addressing challenges and opportunities, the JTM/other work can complement the JTWP’s signals on structural economic, environmental, and social dimensions that enable or constrain JT pathway implementation by producing impact assessment reports and compilations, building on existing work.

14. To foster awareness, expertise and access to information on JT-relevant initiatives, processes, instruments, and to enhance coordination and coherence, the JTM can translate the mapping of synergies delivered under the JTWP into a more structured, digital, and interactive format. It could do so by: translating its tabular format into a “heat map” that indicates where most synergies exist; organizing synergies by core JT thematic area and regional focus; and, for each linked resource, enable collaboration with relevant focal points.

15. The JTWP can request relevant UNFCCC constituted bodies to report on how they have integrated JT considerations in their work, while the JTM would directly advise bodies and processes on formalizing such integration through bilateral engagement.

16. Similarly, the JTWP can signal priority sectors and regions or recommend GST-aligned JT principles and indicators to inform national climate planning, although implementation would depend on tailored country support, which the JTM/other work is better placed to provide.

17. The objective of the JTWP is to discuss pathways to achieve the goals of the Paris Agreement, considering national circumstances. The JTWP’s modalities include: two dialogues per year, informed by submissions and captured in annual synthesis reports; annual HLMRTs and HLMRT summaries for each event; and a synthesis report that will inform the second GST.¹⁴

18. In the context of its review, the JTWP’s performance is assessed by its:

effectiveness—the capacity to achieve the desired objective, found in, e.g.: (i) comprehensiveness of themes covered and functions fulfilled; (ii) capacity to trigger implementation on the ground; and (iii) inclusivity of processes to relevant stakeholders
efficiency—(i) non-duplication and complementarity of functions across the JT ecosystem, building upon existing work to progress more quickly, including through iteration; (ii) establishing a logical cycle and timeline of activities and deliverables to fulfill functions; (iii) efficient use of resources and activities.

19. This annex assesses the functional effectiveness and efficiency of the JTWP in performing against its objective. As described in the informal note, functions for the JT ecosystem are organized in six categories:

Category 1—Development and implementation of JT pathways
Category 2—Integration into national climate planning
Category 3—Integration across UNFCCC bodies
Category 4—Coordination and coherence
Category 5—Addressing barriers and opportunities
Category 6—International cooperation.

20. Regarding Categories 1 (Development and implementation of JT pathways) and 2 (Integration into national climate planning), dialogues have been efficiently enabled discussion in conjunction with UNFCCC Climate Weeks.

21. Dialogues have supported knowledge sharing on JT pathways by covering all of the JTWP’s elements in Decision 1/CMA.5, supporting convergence around key messages. They have also enabled exchanges on best practices around integrating JT into national planning.

22. UNFCCC summary reports have comprehensively captured views on themes discussed. Party and non-Party stakeholder (NPS) presentations are also stored in the JTWP website.¹⁵

23. However, reports are not streamlined, which has made reporting back to domestic stakeholders (including line ministers) more difficult, impacting implementation.

24. The JTWP has not yet issued technical guidance to give more practical direction to the JT ecosystem.

25. For Categories 3 (Integration across UNFCCC bodies) and 4 (Coordination and coherence), dialogues have helped surface synergies across the JT ecosystem by bringing in key entities and processes working on JT. This prompted the JTWP to formally invite the JT ecosystem to incorporate JT considerations across its work.

26. However, the JTWP has not actively managed synergies for greater coordination and coherence. It has not established joint workplans nor discussed what to do with the UNFCCC secretariat’s mapping of synergies.

27. Regarding Categories 5 (Addressing barriers and opportunities) and 6 (International cooperation), the JTWP has highlighted the importance of scaling means for implementation and referenced desirable financial instruments. HLMRTs have also provided a forum for engaging ministers on (dis)enablers for just transition.

28. Still, Parties under the JTWP have not yet signaled effective governance arrangements or cooperative approaches that would strengthen accountability and implementation, including at the regional level.

1. Informed by the informal note, specific functions for each category are listed in the table below across the two columns, i.e.:

JTWP Function: what the JTWP does very well (high-fit) and what it could do better with improvements (medium-fit)
JTM/other work Function: what the JTM/other work does well (high-fit) and where synergies exist with the JT ecosystem (high-fit and synergy).

JTWP Function: Medium to High-Fit (and Possible Improvements)	JTM/other work Function: High-Fit/ Synergies with JTWP
Category 1—Development & implementation of nationally determined JT pathways
(Medium-fit) Promote meaningful participation of NPS within national transition strategies The JTWP hosts dialogues and convenings promote norms for stakeholder participation and exchange Possible improvement: Sharpen recommendations including at the sectoral/regional level	(High-fit and synergy)
	(High-fit) Technical assistance to build institutional and human capacity at the national, subnational and community level, including through skills development
	(High-fit) Provide (access to) tools for mapping high-potential sectors and just transition strategies, through sectoral assessments and including different stakeholders
Category 2—Integration of JT considerations into national climate planning (NDCs, NAPs, LT-LEDS)
(Medium-fit) Foster promotion and consideration of nationally determined JT pathways in 1.5°C-aligned NDCs, NAPs, LT-LEDS; national laws, policies, plans JTWP dialogues have generated understanding and exchange on different approaches Possible improvement: Sharpen asks for or recommend JT principles and indicators that could be used in planning, including GST-aligned	(High-fit and synergy) Generate knowledge, including through best practice reports with compilations of case studies Provide technical support for integrating JT principles into climate instruments, including sectoral national laws, policies, plans; and regional initiatives
(Medium-fit) Enable sharing of relevant data, knowledge and experience among Parties and regions The JTWP has carried out dialogues during UNFCCC Climate Weeks and the UNFCCC produced synthesis reports Possible improvement: Invite NPS and entities identified in the UNFCCC mapping to join thematic discussions	(High-fit and synergy) Maintain digital infrastructure, e.g., by linking relevant resources (including to other knowledge platforms, national and regional case studies)
Category 3—Integration of JT considerations across UNFCCC constituted bodies and UNFCCC work programs
(Medium-fit) Work with bodies and institutional arrangements, e.g. Technology Mechanism, Financial Mechanism entities; CTCN, KCI, Santiago Network The JTWP has surfaced key messages from structured dialogues, and invited their consideration by UNFCCC bodies and the broader JT ecosystem Possible improvement: Follow up on invitation to integrate JT considerations/ organize reporting; JTWP focal points to elevate JT signals across UNFCCC workstreams through Heads of Delegation and colleagues	(High-fit and synergy) Formalize inclusion of considerations as part of mandates, e.g., working with key bodies, processes, and entities via small workshops or deep dives, and bilateral conversations
Category 4—Enhance coordination and coherence
(Medium-Fit) Facilitate coherence, collaboration and coordination with workstreams, processes, institutions inside/ outside UNFCCC The JTWP has surfaced key messages and invited the JT ecosystem to consider them Possible improvement: Commission work to relevant JT entities; plan for iterative input-output cycles between the JTWP and other JT work	(High-fit and synergy) Structure synergies in JT work and useful resources by workstreams and entities to support targeted collaboration Organize synergies by key JT issue areas (e.g., creating a visual heat map of synergies) and regional focus Embed interactive functions in digital infrastructure with resources’ contact points
Strengthen international cooperation by increasing coherence and complementarity without duplicating mandates UNFCCC mapping of synergies Possible improvement: Clarify JT ecosystem roles highlight areas where UNFCCC workstreams mandates overlap and inform Arrangements for Intergovernmental Meetings
(High-Fit) Convene annual events, meetings or structured dialogues, bringing together relevant bodies, experts and external organizations The JTWP has held multi-stakeholder annual dialogues and HLMRTs Possible improvement: Improve participation of regional or underrepresented NPS and entities
Category 5—Address challenges, barriers, and opportunities
(Medium-fit) Address international/ structural dimensions acting as disenablers for JT pathway implementation The JTWP has sent signals on key crosscutting (dis)enablers through decisions and HLMRTs Potential improvement: Reference existing work in the JT ecosystem providing solutions for enhanced cooperation	(High-fit and synergy) Compile knowledge on economic, environmental, social factors that can enable or constrain implementation of JT pathways, and solution-oriented approaches Develop policy impact assessment reports Outline possible cooperative solutions to disenablers, building on existing work, including regulatory flexibilities, targeted capacity building, and regional approaches Connect countries facing similar circumstances
(Medium-fit) Foster awareness, expertise and access to information on JT-relevant initiatives, processes, instruments The JTWP has fostered awareness through dialogues and reports (including UNFCCC secretariat’s mapping), and dialogue presentations posted on the JTWP website	(High-fit and synergy) Similar to “Enhance coordination and coherence:” Develop a digital version of the UNFCCC secretariat’s mapping organized by key issue area, providing links to relevant resources and contact points
Category 6—Enhance international cooperation
(High-Fit) Enhance international cooperation The JTWP has supported through modalities including summary and annual synthesis reports Possible improvement: build stronger throughlines across dialogue topics and subthemes in annual synthesis reports for domestic uptake; prepare guidelines for HLMRTs; highlight key initiatives in the GCAA)
(High-Fit) Send signals/guidance to climate finance institutions, multilateral development banks, financial architecture HLMRTs and dialogue outputs have highlighted relevance of the financial architecture for implementation Possible improvement: include signals to specific institutions in negotiated outcomes
	(High-fit) Mobilize and facilitate access to means of implementation Co-organize thematic investment-focused events with other workstreams and processes, including the GCAA Hold these events in at regionally occurring Climate Weeks to maximize local representation Advise on project design and pitching
	(High-fit) Broker North-South and triangular implementation partnerships
	(High-fit) Facilitate access to and matching of technical and financial assistance to requesting countries (operational mechanism linking countries to support)

29. Improved modalities can better support JTWP medium to high-fit functions across categories.

30. With respect to Category 4 (Coordination and coherence), the JTWP could:

set criteria that clarify roles across the JT ecosystem
establish an iterative functional cycle that leverages synergies between the JTWP and the JTM/Other, whereby, e.g.:
- the JTWP surfaces concepts, barriers, and opportunities, and commissions work
- the JTM/other work: streamlines best practice; develops technical guidance, tools and compilations; maintains digital platforms; organizes investment-focused events; and directs countries to existing resources and expert networks
- the JTM/other work reports back on key insights and lessons learned from analyses and bilateral engagements (what did or did not work)
- the JTWP refines signals, sets priorities, and issues updated guidance on how to address barriers and opportunities; then provides further direction on work.

31. With respect to Categories 5 (Addressing barriers and opportunities) and 6 (International cooperation), the JTWP could:

hold in-session coordination workshops between UNFCCC processes and workstreams where significant risk of overlap exists, and encourage their resolution (e.g., by establishing joint activities); inform Arrangements for Intergovernmental Meetings16
issue synthesis reports that elevate effective approaches to cooperation from the JT ecosystem, including the GCAA
prepare HLMRTs to send clear signals to the financial architecture.

32. With respect to Categories 1 (Development & implementation of JT pathways) and 2 (Integration into national climate planning), the JTWP could distill recommendations from the work of the JTM/other work into operational guidance by:

signaling priority sectors and regions for implementation
suggesting relevant indicators for JT baseline setting and progress tracking. These could align with JT pathway elements, key messages, and possibly the first GST.

33. With respect to Category 3 (Integration across UNFCCC constituted bodies), the JTWP could organize (and synthesize) reporting by UNFCCC institutional arrangements on how they have integrated JT elements since the COP30 invitation.

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Taking Forward Negotiations on Cooperation with other International Organizations under the UNFCCC (August 2026), https://www.c2es.org/wp-content/uploads/2026/08/20260817-C2ES-Taking-Forward-Negotiations-on-Cooperation-with-Other-International-Organizations-Under-the-UNFCCC.pdf
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A Functions Approach to the Review of the Effectiveness and Efficiency of the Just Transition Work Programme Discussion Paper and Submission