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International
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X Green jobs, green economy,

just transition and
related concepts:
A review of definitions developed
through intergovernmental processes
and international organizations
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revief definiti
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X Green jobs, green economy,
just transition and
related concepts:
A review of definitions developed through
intergovernmental processes and international
organizations
Copyright © International Labour Organization 2023
First published 2023
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Contents
Contents v
Acknowledgements vii
Abbreviations ix
1. Introduction 1
2. Policy definitions of green jobs 4

2.1 ILO–UNEP policy definition of green jobs 4
2.1.1 Discussion regarding the ILO–UNEP policy definition of green jobs 4
2.2 ILO Green Jobs Programme policy definition of green jobs 7
2.3 Similarities and differences between the ILO GJP and ILO–UNEP policy concept
definitions of green jobs 9
3. Statistical definition of green jobs and related definitions 11

3.1 The 19th ICLS Guidelines concerning a statistical definition of employment in the
environmental sector (2013): Overview and key concepts 11
3.2 Statistical concepts related to the production of environmental goods and
services 12
3.2.1 Environmental activities 12
3.2.2 Environmental sector 13
3.2.3 Environmental goods and services 13
3.3 Statistical concepts of employment in the environmental sector,
green jobs and related concepts 13
3.3.1 19th ICLS statistical standard definition of employment in the environmental sector 13
3.3.2 19th ICLS statistical standard definition of green jobs 14
3.3.3 Related statistical concepts defined by the 19th ICLS Guidelines 14
3.4 19th ICLS Guidelines: Schematic relationships between total employment,
employment in the environmental sector and decent work 15
3.5 Discussion regarding 19th ICLS Guidelines concept definitions of employment in the
environmental sector and green jobs 16
3.6 ILO pilot survey programme on measuring green jobs and operational statistical
definition of green jobs 17
4. Green economy and other related concept definitions 21

4.1 Green economy and blue economy 21
4.2 Green growth 22
4.3 Greening 23
vi Green jobs, green economy, just transition and related concepts:
A review of definitions developed through intergovernmental processes and international organizations
4.4 Shades of green 23

4.5 Circular economy 25
4.6 Nature-based Solutions 26
5. The just transition concept 28

5.1 Background 28
5.2 Definition of the just transition concept and key elements 29
5.2.1 Vision and guiding principles 29
5.2.2 Policy coherence and policy areas for a just transition for all 30
6. Conclusions 34
References 35
Tables and figures
Table 1. Industry sectors highlighted by ILO–UNEP regarding green job progress

and future potential. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Table 2. Key differences between ILO–UNEP and ILO Green Jobs Programme policy definitions. . . . 10
Table 3. Classification of environmental activities: overview of groups and classes. . . . . . . . . . . . . . . . 12
Table 4. Shades of green: pro-environmental measures in major segments of the economy. . . . . . . 24
Figure 1. ILO Green Jobs Programme integrated approach. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
Figure 2. The 19th ICLS Guidelines: Schematic relationships between total employment,
employment in the environmental sector and decent work . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Figure 3. Schema used in ILO pilot survey programme to identify employment

in the environmental sector and green jobs (household-based survey). . . . . . . . . . . . . . . . . . . 18
Acknowledgements
vii
Acknowledgements
This paper was prepared by Monica Castillo, Senior Green Jobs Technical Specialist of the International
Labour Office (ILO). Valuable comments were received from Moustapha Kamal Gueye, Director of the
ILO Priority Action Programme on Just transitions towards environmentally sustainable economies and
societies; Valentina Stoevska, Senior Statistician, ILO Department of Statistics; and Tahmina Mahmud,
Programme Technical Officer of the Partnership for Action on Green Economy (PAGE) in the ILO
Enterprises Department. Mette Lund, Technical Officer in the ILO Enterprises Department, provided
useful inputs concerning the section on circular economy. Leander Raes, Economist in the International
Union for Conservation of Nature shared useful information for the section on Nature-based Solutions.
Elizabeth Coleman, ILO consultant, was responsible for editing.

Abbreviations
ix
Abbreviations
CA4JI Climate Action for Jobs Initiative

DWA Decent work agenda
DWI Decent work indicators
EEA European Economic Area
EGSS Environmental goods and services sector
EP European Parliament
EU European Union
GAIN Green Jobs Assessment Institutions Network
GJM Green Jobs Module
ICLS International Conference of Labour Statisticians
ILC International Labour Conference
ILO International Labour Organization
ILO GJP ILO Green Jobs Programme
ILO PAP-JT ILO Priority Action Programme on Just transitions towards environmentally sustainable
economies and societies
IOE International Organisation of Employers
ISIC International Standard Industrial Classification of All Economic Activities
ITC–ILO International Training Centre of the International Labour Organization
ITUC International Trade Union Confederation
IUCN International Union for Conservation of Nature
MSMEs Micro, small and medium enterprises
NAP National Adaptation Plans
NDC Nationally Determined Contributions
NbS Nature-based Solutions
OECD Organisation for Economic Co-operation and Development
PAGE United Nations Partnership for Action on Green Economy
Rio+20 United Nations Conference on Sustainable Development
SDGs Sustainable Development Goals
SEEA System of Environmental Economic Accounting
SNA System of National Accounts
TME Tripartite meeting of experts
UN United Nations
UNCTAD United Nations Conference on Trade and Development
UNECE United Nations Economic Commission for Europe
UNEP United Nations Environment Programme
WESO World Employment and Social Outlook
1. Introduction
1
1. Introduction
The issues of climate change and environmental degradation have becoming increasingly prominent
in international policy debates given their implications for economic and social development and well-
being. The green economy is considered a viable means to respond to various crises that have emerged
globally in recent years, including climate, nature, pollution, food, financial, social and economic upheaval
(ILO 2013a). If well managed, the transition to a green economy has the potential to provide opportunities
for job creation and sustainable economic growth through targeted policies and investments and to
serve as a model for achieving sustainable development (ILO 2013b). Recent policy debates have focused
on promoting a just transition to a green economy which involves a new set of approaches and policy
options to generate optimal environmental and social outcomes – including opportunities for decent
work – while minimizing and addressing the social impacts that arise from the transformation (ILO 2013b).
The increasing urgency of sustainable development that considers both environmental and decent
work concerns has yielded some important milestones in recent years in the form of groundbreaking
international reports, policy guidelines and statistical standards, all of which have shed light on emerging
“green” concepts and definitions. Because a shared understanding of these terms is critical to advancing
sustainable development policies and programmes, this paper reviews these terms and suggests
refinements that incorporate these milestones. The concepts and definitions discussed here include the
green and blue economies, green growth, greening, shades of green, circular economy, Nature-based
Solutions and a just transition.
The concept of the green economy as an important pathway to sustainable development was first
discussed in an international forum during the United Nations Conference on Sustainable Development
(Rio+20 Conference) held in Rio de Janeiro in June 2012. The outcome document of the conference, The
Future We Want, encouraged countries to implement green economy policies in the context of sustainable
development and poverty eradication, in order to drive sustained, inclusive and equitable economic
growth and job creation, particularly for women, youth and poor people (United Nations 2012a). The
outcome document highlights the importance of promoting decent work for all.
A year later, the International Labour Conference, in Sustainable Development, Decent Work and Green Jobs
(ILO 2013b), acknowledged that the environment and social development must no longer be treated as
separate pillars of sustainable development, but rather as closely interrelated dimensions. The report
noted that an integrated approach towards environmental sustainability can be a significant avenue for
development, with more and better jobs, social inclusion and poverty reduction. It observed that the
shift to an environmentally sustainable economy has given rise to green jobs, a new type of job which
plays a vital role in greening enterprises and economies. It also recognized that defining and measuring
green jobs is essential to understanding the interrelationship between environmental sustainability
and labour markets, including job quantity and quality. Green jobs are seen to be both an important
2 Green jobs, green economy, just transition and related concepts:
part of the employment gains linked to a more goals and strategies as well as support policy and
environmentally sustainable economy and a programme implementation and monitoring.
critical factor for making the green transition
technically feasible and economically viable. Policy concepts related to just transition, green
Without skilled and motivated workers in new economy and green jobs are intended to support
green growth sectors and in key occupations and further clarify the notion of sustainable
across the economy, the investments made, and development. Such concepts and definitions allow
the technology deployed will not generate the the possibility of a range of political perspectives
expected benefits for sustainable development. in relation to economic growth, environmental
sustainability and human well-being. They are
In 2015, the International Labour Organization’s not necessarily mutually exclusive and take into
adoption of the Guidelines for a Just Transition consideration differences in country contexts
towards Environmentally Sustainable Economies and levels of development. The concepts and
and Societies for All (ILO 2015) aimed at enabling definitions covered in this paper focus on those
governments, workers and employers around the developed through intergovernmental processes
globe to leverage the process of structural change and by international organizations rather than an
towards a greener, carbon-neutral economy, academic perspective.
create green jobs at a large-scale and promote
social protection.1 The guidelines are both a Two main t ypes of international concept
policy framework and a practical tool to help definitions are used in this paper: policy concept
countries at all levels of development manage definitions and statistical concept definitions.
the transition to carbon-neutral and resilient International policy concept definitions serve
economies and can also help them achieve their to provide support to countries in developing
Nationally Determined Contributions (NDC), national policy frameworks, strategies, and action
National Adaptation Plans (NAP) and the 2030 plans. For example, UN policy frameworks such as
Sustainable Development Goals (SDGs). It’s worth the ILO Just Transition Guidelines help to support
highlighting that the Paris Agreement on Climate country strategic planning and implementation to
Change noted “a just transition of the workforce achieve environmentally sustainable and socially
and creation of decent work and quality jobs in just outcomes with decent work. International
accordance with nationally defined development policy guidelines are best served by providing
priorities” as an important consideration for clear and unambiguous definitions for terms
climate action (UNFCCC 2016). and concepts used. The existence of multiple
definitions for a given policy concept may at
Making progress towards a sustainable future times be necessary and should be clarified for
requires that policymakers, social partners and stakeholders to avoid confusion and allow optimal
civil society at large understand the challenges application; this is the case for example with the
and opportunities, investments and costs of a policy concept of “green jobs”.
just transition based on sound evidence. This is
essential since different greening policy scenarios International statistical concept definitions are
can be expected to lead to different outcomes, intended to help support the measurement,
yielding business opportunities and green job assessment and monitoring of relevant country-
opportunities in some economic sectors while level policies and programmes. International
destroying businesses and leading to layoffs in statistical concept definitions are adopted
others. A clear understanding of the concepts by UN statistical standard-setting bodies
and definitions must therefore underpin policy (like the International Conference of Labour
1 The Just Transition Guidelines were drafted by a tripartite meeting of experts mandated by the ILO Governing
Body and convened from 5 to 9 October 2015. Eight of the experts were nominated by the Governments of Brazil,
Indonesia, Germany, Kenya, Mauritius, Turkey, South Africa and the United States, while the Employers’ and the
Workers’ Group in the ILO appointed another eight for each of the two groups. The meeting was chaired by an
independent Chairperson, Minister Esther Byer Suckoo (Barbados); Vice-Chairpersons were Ms Vanessa Phala
(employer expert from South Africa) and Mr Kjeld Jakobsen (worker expert from Brazil).
1. Introduction
3
Statisticians) as part of adopted international This paper seeks to present the concept
statistical standards, including Resolutions and definitions of green jobs, green economy, just
Guidelines. 2 These standards usually relate to transition and related concepts. It provides
concepts, definitions, classifications, and other insights on key elements of the concept
methodological procedures which are agreed definitions and, in the case of the green jobs
as representing “best practice” in the respective definitions presented, discusses commonalities
areas. Adoption of standard concept definitions by and differences. The paper is divided into the
national statistics producers supports achieving following sections: (1) Introduction, (2) Policy
internationally comparable labour statistics as definitions of green jobs, (3) Statistical definition
well as data comparability within a country over of green jobs and related definitions, (4) Green
time. Operational statistical concept definitions economy and other related concept definitions,
support the implementation of international and (5) The just transition concept.
statistical concept definitions adopted by
international statistical standard-setting bodies.
2 For more information, see: https://ilostat.ilo.org/about/standards/.

2. Policy definitions of green jobs
This section presents two policy concept data gaps. The report section covering concept
definitions of green jobs which draw exclusively definitions is a rich source not only for the policy
from UN sources. The policy concept definitions definition of green jobs, but also for related
presented are those developed by (1) the concepts. Thus, the first UN policy concept
International Labour Organization (ILO) and the definition of green jobs is presented as follows:
United Nations Environment Programme (UNEP)
and (2) the ILO Green Jobs Programme. Key We define green jobs as positions in agriculture,
guiding elements of each definition are discussed, manufacturing, construction, installation,
as well as important similarities and differences and maintenance, as well as scientific and
between the two concept definitions. technical, administrative, and service-related
activities, that contribute substantially
to preserving or restoring environmental
quality. Specifically, but not exclusively, this
2.1 ILO–UNEP policy includes jobs that help to protect and restore
definition of green jobs ecosystems and biodiversity; reduce energy,
materials, and water consumption through
high-efficiency and avoidance strategies;
In 2008, the ILO and UNEP published a report de-carbonize the economy; and minimize or
entitled Green Jobs: Towards Decent Work in a altogether avoid generation of all forms of
Sustainable, Low‐carbon World (ILO and UNEP waste and pollution. But green jobs, as we
2008). The first comprehensive report on the argue below, also need to be good jobs that
meet longstanding demands and goals of
emergence of a “green economy” and its impact
the labor movement, i.e., adequate wages,
on the world of work in the twenty-first century,
safe working conditions, and worker rights,
it was commissioned and funded by UNEP (as
including the right to organize labor unions.
part of its Green Jobs Initiative), the ILO, the
(ILO and UNEP 2008, pp. 35–36)
International Organization of Employers (IOE)
and the International Trade Union Confederation
(ITUC). The report recognized the importance of
evidence-based climate change adaptation and 2.1.1 Discussion regarding the ILO–
mitigation actions for creating green jobs. It also UNEP policy definition of green jobs
argued for payment for environmental services
and improved natural resource management,
highlighting that such payments to repair and The defining characteristic of green jobs in this
protect the natural environment can be an policy definition is that they contribute substantially
important driver for generating green jobs. to preserving or restoring environmental quality.
This offers valuable policy scope and directional
The report is structured around the topics of guidance for understanding and applying the
definitions and policies; employment impacts of concept. In addition, the definition provides
shifting to a sustainable, low-carbon economy a sectoral scope that defines green jobs,
as well as the outlook for green jobs. It presents highlighting specific types of productive activities.
a series of estimates and projections of green Moreover, the definition acknowledges green jobs
jobs around the world as well as case study and must be “good jobs”, that is, jobs with adequate
circumstantial evidence of green jobs growth and wages, safe working conditions, and worker
potential while also noting the many remaining rights. These attributes of “good jobs” align with
5
the characteristics of decent work as defined by are for illustration purposes only and are not
the ILO.3 deemed exhaustive.
While the ILO–UNEP concept definition of green The inclusion of “installation activities” in the
jobs is based on a review of best practices and concept definition is reflected in the construction/
available evidence for policy needs, some building sector, and could include, for example,
elements call for further discussion considering electrical, plumbing, heat, and air-conditioning
developments since the publication of the installation among other installation activities.
report. First, the term “positions” is used in The installation of wind turbines and solar panels
this definition, presumably intended as an could be included here.
equivalent of the concept of “jobs”. Since the
term “jobs” is a defining element of the concept The items listed in table 1, which are drawn
of green jobs, it is essential to understand this from the ILO–UNEP report, were not intended
concept. A job is defined as “a set of tasks and to be an exhaustive list. Maintenance activities
duties performed, or meant to be performed, which are highlighted in the concept definition
by one person for a single economic unit”. can refer to such activities as the maintenance
It is worth noting that the term job is used of renewable energy installations. Scientific and
in reference to employment, that is, “work technical activities in the context of green jobs
performed for others in exchange for pay or include productive activities related to scientific
profit” (2013c). It may be preferable to use the research and development (R&D), architectural
more specific term of “job” to define the concept and engineering activities, technical testing
of green jobs since this concept benefits from and analysis, when such activities contribute
an international standard definition for all to substantially to preser ving or restoring
understand and apply. environmental quality.
Second, the scope of economic activities in the Additional activities that could be included as
ILO–UNEP policy concept definition is limited service-related activities include, for example,
to selected industries, specifically: agriculture, activities related to sewerage, waste collection,
manufacturing, construction, installation and treatment, and disposal activities; materials
maintenance, as well as scientific and technical, recovery; remediation activities and other waste
administrative, and service-related activities management services; and wholesale of waste
that contribute substantially to preserving or and scrap and other products.
restoring environmental quality. The inclusion
of these selected broad sectors leaves open to Government regulation and enforcement
interpretation how to define various sub-sectoral ac ti v ities related to the produc tion of
productive activities that contribute substantially environmental goods and services, including
to preserving or restoring environmental quality. labour inspections of such activities, could be
A notable omission from the listed sectors, for considered within the scope of the concept
example, is the energy sector, responsible for definition under administrative services.
the vast majority of the planet’s greenhouse
gas emissions. The ILO–UNEP report does in Certain sectors and productive activities are
fact highlight the energy sector (which should not covered in the ILO–UNEP report and are
be considered part of the “service-related potentially environmentally sensitive topics that
activities” in the concept definition) as well as nonetheless warrant discussion. Such is the case
various specific subsectors to be considered for for mining and quarrying activities. Putting aside
the purposes of guiding green job policies, as the issue of mining of non-renewable energy
summarized in the following table. It should be sources, and recognizing the enormous potential
noted that the sectors highlighted in the report of the circular economy for extracting precious
3 The ILO defines decent work as “productive work for women and men in conditions of freedom, equity, security
and human dignity”. For more information, see the ILO website on Decent Work.
X Table 1. Industry sectors highlighted by ILO–UNEP regarding green job progress and future potential
SECTOR SUBSECTORS
AGRICULTURE Small-scale sustainable farming
Organic farming
Environmental services
FORESTRY Reforestation/ afforestation
Agroforestry
Sustainable forestry management
CONSTRUCTION/BUILDING Green buildings
Retrofitting
Lighting
Efficient equipment and appliances
INDUSTRY Steel (secondary steel production based on scrap)
Aluminum (recycling aluminum scrap)
Cement (energy efficiency improvements; use alternative, recycled

content)
Pulp and paper (recycling paper)
Recycling (all forms, including electronics and composting)
ENERGY Renewables
Carbon capture and sequestration (CCS)
TRANSPORTATION Fuel-efficient cars
Mass transit
Rail
Aviation
Source: Adapted from ILO–UNEP 2008, Table III.2-1. Green Job Progress To-Date and Future Potential.
metals and other mining products, policymakers There are advantages and limitations to having
should consider how to best manage and regulate the sectoral scope of the concept definition clearly
mining and quarrying activities and associated demarcated as established in the ILO–UNEP
employment to ensure that the best possible policy definition of green jobs. On the one hand,
resource management and environmental highlighting key sectors helps users focus on the
protection practices and working conditions are sectors of key importance for addressing green
implemented, generating mining products (such jobs policies. On the other, the issues outlined
as lithium for producing electric car batteries) for above serve to inform some of the limitations
the future green economy and promoting decent of being too prescriptive in defining the sectoral
work opportunities in the sector. scope associated with green jobs.
7
2.2 ILO Green Jobs Programme The ILO GJP has served as the secretariat for
policy definition of green jobs the multistakeholder UN Climate Action for
Jobs Initiative launched by the UN Secretary-
General in 2019 during the United Nations
The ILO Green Jobs Programme (GJP) was Climate Action Summit. During the Summit, 46
established in 2009 to demonstrate ILO’s countries committed to place jobs at the heart
commitment to act on climate change and to of ambitious climate action and to promote a
promote resource efficient and low-carbon just transition. The 2020–2030 initiative brings
societies while supporting the Decent Work together governments, workers’ and employers’
Agenda. Decent work is a cornerstone for organizations, international institutions,
ef fective policies to green economies for academia and civil society to deliver concrete
achieving sustainable development. This implies actions on climate action with decent jobs and
that efforts to reduce adverse environmental social justice, support countries in a just transition
impact must lead to socially just outcomes with founded on broad-based support and facilitate an
employment opportunities for all. inclusive recovery from COVID-19.
The ILO GJP has assisted and supported countries The ILO GJP integrated approach is depicted in
by sharing relevant ILO expertise and tools in figure 1.
dedicated areas of work. The programme’s
s e r v i ce s ha v e i n c l u d e d: (1) K n o w l e d g e For the purposes of its programme services
creation through global, regional and sectoral delivery, the ILO GJP developed a working policy
studies, flagship reports and guidelines on the definition of green jobs, which appears on its
linkages between labour and environmental website, that incorporates key elements of the
issues; (2) Advocacy by building partnerships, such ILO–UNEP definition, with some important
as the Partnership for Action on Green Economy differences, as follows:
(PAGE) and engaging in dialogues and key
negotiation processes for increased international Green jobs are decent jobs that contribute to
policy coherence; 4 (3) Capacity building by preserve or restore the environment, be they
providing stakeholders with opportunities to in traditional sectors such as manufacturing
learn about key green jobs concepts, approaches, and construction, or in new, emerging green
tools and best practices;5 (4) Diagnostics and sectors such as renewable energy and energy
prioritization by identifying economic sectors efficiency.
with high potential for green job creation
through national green jobs assessments; Green jobs help:
(5) Pilot projects in which tools for sectoral
and thematic approaches are developed and a) Improve energy and raw materials
tested such as green entrepreneurship, the efficiency
greening of enterprises and local development
of infrastructure for adaptation to climate b) Limit greenhouse gas emissions
change; (6) Policy advice for the formulation
and implementation of effective national or c) Minimize waste and pollution
sectoral policies that create green jobs, foster
social inclusion and improve sustainability; and d) Protect and restore ecosystems
(7) Knowledge sharing so that others can learn
from best practices and country experiences. e) Support adaptation to the effects of
climate change
4 The ILO contributed actively to the Paris Climate Change Conference in December 2015.
5 Training programmes are offered in collaboration with ITC–ILO’s Green Jobs Learning Cluster at international,
regional and national level, and aim to provide stakeholders with the necessary knowledge to engage efficiently
in strategy design for green jobs creation.
X Figure 1. ILO Green Jobs Programme integrated approach
Knowledge
creation
Knowledge
sharing Advocacy
Policy
formulation & Capacity
implementa- building
tion
Diagnostics
Pilot &
projects prioritiza-
tion
Source: ILO.
At the enterprise level, green jobs can produce Yet, green jobs defined through production
goods or provide services that benefit the processes do not necessarily produce
environment, for example green buildings or environmental goodss or services. (ILO 2016)
clean transportation. However, these green
outputs (products and services) are not It is worth noting that in 2023, a restructuring
always based on green production processes of the ILO resulted in the ILO Green Jobs
and technologies. Therefore, green jobs can Programme being integrated into the ILO Priority
also be distinguished by their contribution Action Programme on Just transitions towards
to more environmentally friendly processes. environmentally sustainable economies and
For example, green jobs can reduce water societies (ILO PAP-JT).6 The ILO PAP-JT and the
consumption or improve recycling systems. broader ILO will continue to apply the same policy
6 This Priority Action Programme (ILO PAP-JT) will promote consistent progress in the area of just transition through
integrated technical support to constituents, capacity development, resource mobilization and partnerships, with
a horizon of a four-year implementation period. sThe Priority Action Programme aims at achieving the following
results: (i) yield a strengthened capacity of governments and social partners to advance social justice and decent
work through the design and implementation of coherent national policies for a just transition, and (ii) promote
social justice and decent work in a coherent and effective way within the multilateral system, including UN
agencies, IFIs and multigovernmental groupings such as the G20, to achieve a just transition.
9
definition of green jobs as previously applied by great potential for the creation of green jobs.
the ILO Green Jobs Programme. In the section All three goods-producing sectors (agriculture,
below, this concept definition is referred to as the construction and manufacturing) appear as key
ILO GJP definition in order to maintain links with sectors in the ILO–UNEP concept definition. The
its origins. green sectors of renewable energy and energy
efficiency which are highlighted in the ILO GJP
concept definition are not specifically mentioned
in the ILO–UNEP definition, although the energy
2.3 Similarities and differences sector is highlighted as an important sector for
between the ILO GJP and green jobs elsewhere in the ILO–UNEP report.
ILO–UNEP policy concept The ILO GJP definition includes the focus on new,
emerging green sectors which can be expected to
definitions of green jobs change over time; no similar reference appears in
the ILO–UNEP concept definition. Defining what
There are important similarities between the ILO constitutes a new and emerging green sector is
GJP and the ILO–UNEP policy concept definitions critical for using the ILO GJP definition.
of green jobs. First, they are both concerned
with contributing to preserving or restoring Another important difference between the ILO
the environment (ILO GJP) or environmental GJP and ILO–UNEP concept definitions regards
quality (ILO–UNEP), with the ILO–UNEP concept establishing how and to what degree green
definition providing the qualifying term of jobs contribute to preserving or restoring
contributing substantially towards environmental the environment. Recall that in the ILO–UNEP
quality. Moreover, the ILO GJP concept definition definition green jobs include protecting and
acknowledges that green jobs are decent jobs, restoring ecosystems and biodiversity; reducing
aligning with the ILO–UNEP definition that energy, materials, and water consumption
recognizes green jobs must have adequate wages, through high-efficiency and avoidance strategies;
safe working conditions and worker rights, and de-carbonizing the economy; and minimizing
the 19th ICLS concept definition of green jobs (the or altogether avoiding the generation of all
latter to be discussed in the next section). forms of waste and pollution. The ILO GJP
concept definition explicitly mentions “protect
There are also key differences between these and restore ecosystems” but doesn’t explicitly
policy concept definitions, including sectoral- mention biodiversity. Rather than proposing to
related differences. The manner in which the “reduce energy, materials and water consumption
sectors are presented and their scope differs through high-efficiency and avoidance strategies”
between the two definitions. The highlighted as indicated in the ILO–UNEP definition, the
sectors in the ILO GJP definition are given as ILO GJP definition offers a narrower scope,
examples rather than as defining sectors. The “improve energy and raw materials efficiency”.
language concerning the selected sectors in The language of “de-carbonize the economy”
the ILO–UNEP definition appears prescriptive used in the ILO–UNEP definition is transformed
even though this was likely not the intention in the ILO GJP definition by the language, “limit
given the broader sectoral coverage in the greenhouse gas emissions”. The ILO–UNEP
report.7 Manufacturing and construction are focus of “minimize or altogether avoid generation
mentioned in the ILO GJP definition as examples of all forms of waste and pollution” is limited to
of a traditional sector, whereas agriculture is “minimize waste and pollution” in the ILO GJP
not explicitly mentioned. Yet, the agricultural, definition. These differences indicate that the
fishing and forestry sector continues to be ILO GJP uses more muted language as regards
important today for work opportunities and has how and to what degree green jobs contribute
7 An example of language from the 2008 ILO–UNEP definition noted above: “We define green jobs as positions
in agriculture, manufacturing, construction, installation, and maintenance, as well as scientific and technical,
administrative, and service-related activities….”
X Table 2. Key differences between ILO–UNEP and ILO Green Jobs Programme policy definitions
ILO–UNEP ILO Green Jobs Programme
Proposes explicit sectors for inclusion: Proposes examples of sectors for inclusion:
X Agriculture, manufacturing, construction, X Traditional sectors such as manufacturing,
installation, and maintenance, as well as construction
scientific and technical, administrative, and X New, emerging green sectors such as
service-related activities renewable energy and energy efficiency
Protect and restore ecosystems and Protect and restore ecosystems

biodiversity
Reduce energy, materials, and water Improve energy and raw materials efficiency
consumption through high-efficiency and
avoidance strategies
De-carbonize the economy Limit greenhouse gas emissions
Minimize or altogether avoid generation of all Minimize waste and pollution

forms of waste and pollution
Source: Author.
to preserving or restoring the environment as friendly processes and technologies) or just

compared with the ILO–UNEP concept definition. one of the characteristics (such as jobs that
The differences between the two policy concept produce renewable energy in an environmentally
definitions in terms of sectoral scope and in how unfriendly manner).
green jobs contribute to environmental quality
are presented in table 2. This dual characteristic of green jobs is not
included in the ILO–UNEP concept definition,
The final paragraph in the ILO GJP concept reflecting the fact that it was published in
definition brings to light the important dual 2008, well before the adoption of the 19th ICLS
nature of green jobs, namely that they produce statistical standard concept definition of green
goods and services that benefit the environment jobs in 2013. Indeed, this dual aspect of green jobs
and are characterized by their contribution to presented in the ILO GJP policy concept definition
more environmentally friendly processes or aligns very closely with the 19th ICLS statistical
technologies. Some green jobs may involve both standard definition of green jobs discussed in the
characteristics (for example, jobs that produce next section.
renewable energy using environmentally
3. Statistical definition of green jobs and related definitions
11
3. Statistical definition of green jobs and related

definitions
First convened in 1923, the International definitions associated with employment in the
Conference of Labour Statisticians (ICLS) is the environmental sector and green jobs as well as
recognized international standard-setting body the data collection programme and methods
on labour statistics. The ICLS meets every five recommended at the national level.8
years to establish such standards and participants
include experts from governments, mostly from The objective of the 19th ICLS Guidelines is to
ministries of labour and national statistical facilitate the development of a comprehensive
offices, as well as from employers’ and workers’ system of statistics on employment in the
organizations. Regional and international environmental sector to provide an adequate
organizations and other interest groups attend statistical base for different data users. Such
as observers. The ICLS makes recommendations statistics are needed for monitoring the transition
on selected topics of labour statistics in the form towards a green economy and monitoring green
of resolutions and guidelines, which are then jobs levels and trends. They can help support
approved by the Governing Body of the ILO the planning, design, and evaluation of aligned
before becoming part of the set of international environmental and labour market policies,
standards on labour statistics. These standards including impacts on the number of people
usuall y relate to concept s , def initions , employed in the environmental sector and their
classifications, and other methodological skill levels. Moreover, they facilitate assessing the
procedures which are agreed as representing extent to which the economy is responding to
“best practice” in the respective areas. When used various public policies and initiatives. In addition,
by national producers, these will increase the they support the analysis of the economic and
likelihood of having internationally comparable social situation of particular groups of workers in
labour statistics as well as comparability across the environmental sector such as women, rural
time within a country. and urban populations, youth, and the elderly.
The guidelines can help support the development
and implementation of decent work and green
jobs policy strategies and plans, aligning with SDG
3.1 The 19th ICLS Guidelines and Just Transition frameworks.
concerning a statistical
definition of employment in the It’s worth noting that the 19th ICLS Guidelines
cover separate concept definitions related to
environmental sector (2013): employment in the environmental sector and
Overview and key concepts decent work. This enables the production of
datasets that can provide separate statistics on
In 2013, the 19th International Conference of both employment in the environmental sector
Labour Statisticians adopted the first international and decent work. The key concepts defined in
statistical standards to support measurement the 19th ICLS Guidelines include: environmental
of green jobs in official statistics. The Guidelines a c t i v i t i e s , t h e e n v i r o n m e n t a l s e c t o r,
concerning a Statistical Definition of Employment environmental goods and services, employment
in the Environmental Sector (ILO 2013d) represent in the environmental sector, employment in
the first internationally agreed conceptual production of environmental output, employment
framework for understanding the concepts and in environmental processes, green jobs, green
8 For background information that was discussed during the 19th ICLS session on this topic, see ILO 2013a.
work and other related concepts. These concepts use of natural resources. Environmental
are discussed in the following sections. activities are grouped into two broad types:
(1) environmental protection activities and (2)
resource management activities. Environmental
protection activities are those activities whose
3.2 Statistical concepts primary purpose is the prevention, reduction
related to the production and elimination of pollution and other forms
of environmental of degradation of the environment. Resource
management activities are those activities
goods and services whose primary purpose is the preservation
and maintenance of the stock of natural
resources and hence safeguarding against
3.2.1 Environmental activities depletion. Activities in agriculture, fisheries and
forestry can be considered as environmental
According to the Central Framework of the if environmentally sustainable technologies
System of Environmental Economic Accounting and practices are used. The UN SEEA has
(SEEA) (United Nations 2012b), environmental established a classification of environmental
activities are economic activities whose primary activities according to the two broad categories
purpose is to reduce or eliminate pressures on of environmental activities as presented in
the environment or to make more efficient table 3 below.
X Table 3. Classification of environmental activities: overview of groups and classes
Group Classes
I: Environmental 1 Protection of ambient air and climate

protection (EP)
2 Wastewater management
3 Waste management
4 Protection and remediation of soil, groundwater and surface water
5 Noise and vibration abatement (excluding workplace protection)
6 Protection of biodiversity and landscapes
7 Protection against radiation (excluding external safety)
8 Research and development for environmental protection
9 Other environmental protection activities
II: Resource 10 Management of mineral and energy resources

management (RM)
11 Management of timber resources
12 Management of aquatic resources
13 Management of other biological resources (excluding timber and aquatic resources)
14 Management of water resources
15 Research and development activities for resource management
16 Other resource management activities
Source: UN System of Environmental Economic Accounts (SEEA).

13
production of environmental goods and

3.2.2 Environmental sector services. In addition to persons involved in
the production of environmental goods and
The environmental sector consists of all economic services, this includes workers whose duties
units that carry out environmental activities. involve making their economic unit’s production
It’s worth noting that the environmental sector processes more environmentally friendly or
concept used in the 19th ICLS Guidelines make more efficient use of natural resources.
corresponds to the concept of environmental (ILO 2013d, paragraph 11)
goods and services sector (EGSS) in the SEEA.
The concept of employment in the environmental
sector consists of two groups: (1) employment
in production of environmental outputs and (2)
3.2.3 Environmental goods and employment in environmental processes. These
services concepts are defined in the 19th ICLS Guidelines
as follows:
Economic units in the environmental sector
produce, design, and manufacture at least Employment in production of environmental
some goods and services. Environmental goods outputs is defined as employment in the
and services are produced for the purpose production of environmental goods and
of environmental protec tion or resource ser vices for consumption outside the
management. According to the SEEA, there are producing unit. It may exist in specialist or
four types of environmental goods and services: (1) in non‐specialist economic units.
environmental specific services, (2) environmental
sole‐purpose products, (3) adapted goods, and Employment in environmental processes is
(4) environmental technologies (end‐of‐pipe and defined as employment in the production
integrated technologies). Environmental goods of environmental goods and services for
and services can be produced by economic units consumption within the producing unit. It
for consumption by others or for own use. may exist in specialist economic units and in
economic units that are not environmental
in nature (i.e. non-specialist or own-account
producers). These are jobs in which workers’
3.3 Statistical concepts duties include production of environmental
goods and services for use within the
of employment in the
economic unit, but also the use of methods,
environmental sector, green procedures, practices, or technologies that
jobs and related concepts make their economic unit ’s production
processes more environmentally sustainable.
This includes methods, procedures, practices,
or technologies that, for example reduce
3.3.1 19th ICLS statistical standard
or eliminate pollution, reduce consumption
definition of employment in the of water and energy, minimize waste, or
environmental sector protect and restore ecosystems. This type
of employment also includes jobs in which
workers are employed to research, develop,
According to the 19th ICLS Guidelines, employment
maintain, or use technologies and practices
in the environmental sector is defined as:
to reduce the environmental impact of their
economic unit, or to train the unit’s workers or
Persons employed in the environmental
contractors in these technologies and practices.
sector comprise all persons who, during a
(ILO 2013d, paragraph 12)
set reference period were employed9 in the
9 According to the 19th International Conference of Labour Statisticians Resolution I, adopted in 2013, employment
is defined as “work performed for others in exchange for pay or profit”. See ILO 2013c, paragraph 7b.
It’s worth noting that the two categories 3.3.3 Related statistical concepts
comprising employment in the environmental defined by the 19th ICLS Guidelines
sec tor are not mutually exclusive. While
some jobs may engage in the production of
environmental goods and services for the market There are three additional statistical concepts
or producing environmental goods and services related to employment and decent work
for use within the economic unit, other jobs may presented in the 19th ICLS Guidelines: (1)
engage in both the production of environmental Employment in the non‐environmental sector
goods and services and carrying out duties that created thanks to greening, (2) Employment in
include making their economic unit’s production low carbon economic units and energy-efficient
processes more environmentally sustainable. enterprises, and (3) Green work. The definitions
The concept of employment in the environmental for each of these concepts are presented below:
sector and the two subcategories which comprise
it are key components of the statistical definition Employment in the non‐environmental sector
of green jobs, which represents the base created thanks to greening: This refers to
foundation for the measurement of green jobs. employment in economic units that supply
goods and services to the environmental
sector. Such employment may be estimated
using input‐output tables and environmental
3.3.2 19th ICLS statistical standard expenditure data.
definition of green jobs
Employment in low carbon economic units
and energy efficient enterprises: This refers
According to the 19th ICLS Guidelines, green to employment in units that have low
jobs10 is defined as follows: carbon emissions (e.g., employment in green
buildings) and to employment in enterprises
The term ‘green jobs’ refers to a subset of that are more energy efficient than most of the
employment in the environmental sector that enterprises within the same economic activity.
meets the requirements of decent work (i.e.,
adequate wages, safe conditions, workers’ “Green work”: This refers to all work11 involved
rights, social dialogue and social protection). in production of environmental goods and
The decent work dimension of jobs in the services. It includes employment, voluntary
environmental sector may be measured work and own‐use production work to
according to relevant indicators selected from produce environmental goods and services
the ILO manual on Decent Work Indicators. (ILO 2013d, paragraph 15).
(ILO 2013d, paragraph 13)
10 According to the 19th International Conference of Labour Statisticians Resolution I, adopted in 2013, a job is defined
as “a set of tasks and duties performed, or meant to be performed, by one person for a single economic unit. The
term job is used in reference to employment.” See ILO 2013c, paragraph 12b.
11 According to the 19th International Conference of Labour Statisticians Resolution I, adopted in 2013, the concept of
work “comprises any activity performed by persons of any sex and age to produce goods or to provide services for
use by others or for own use.” The forms of work framework identifies five forms of work which are distinguished
by the intended destination of the production (for own final use; or for use by others, i.e., other economic units)
and the nature of the transaction (i.e., monetary or non-monetary transactions, and transfers). The five forms
of work include: (a) own-use production work comprising production of goods and services for own final use;
(b) employment work comprising work performed for others in exchange for pay or profit; (c) unpaid trainee work
comprising work performed for others without pay to acquire workplace experience or skills; (d) volunteer work
comprising non-compulsory work performed for others without pay; and (e) other work activities. See ILO 2013c,
paragraphs 6–7.
15
3.4 19th ICLS Guidelines: “Employment in the non-environmental sector

Schematic relationships created thanks to greening” is depicted by circle D
between total employment, which partly includes “decent jobs”. “Employment
created thanks to greening” is represented by the
employment in the union of circles A, B and D. Note that some but
environmental sector not all of such employment is defined as “decent
and decent work jobs”.
A useful visual depiction of the main employment- The concept of “employment in low carbon
related concepts presented in the 19th ICLS economic units and energy efficient enterprises”
Guidelines is shown in figure 2 below. The concept is not specifically depicted in figure 2, although
of “employment in the environmental sector” is its scope would be fully included as it is a part
depicted by the union of circles A and B. Circle A of employment. The concept of “green work” is
represents the concept of “employment in the similarly not shown, in large part because the
production of environmental outputs” while circle scope of the concept of “work” is broader than
B represents “employment in environmental that of “employment”, that is, the concept of
processes”. The intersection between “decent “work” covers not only employment but also
jobs” (shown as circle C) and “employment in the other forms of work, such as volunteers, unpaid
environmental sector” (union of circles A and B), apprentices or own-use production work. (For
defines the scope of “green jobs”. Note that both more details, see footnote 11.)
concepts fall within the scope of “employment”
(outermost circle), that is, work carried out for
others in exchange for pay or profit.
X Figure 2. The 19th ICLS Guidelines: Schematic relationships between total employment, employment in
the environmental sector and decent work
Total employment A. Employment in

production of
environmental
outputs
B. Employment
in environmental
C. Decent Jobs processes
D. Jobs in non-environmental
sector created thanks to greening
Employment in environmental sector = A B

Employment created thanks to greening = A B D
Green jobs (Employment in Environmental Sector that is decent) = (A B) C
Source: ILO.
3.5 Discussion regarding the production of technology or services for

19th ICLS Guidelines concept environmental protection consumed outside
definitions of employment the producing economic unit (Environmental
protection – Output activities); (3) those using
in the environmental technology in a process that improves the
sector and green jobs economic unit’s own resource management
(Resource management – Process activities)
The set of statistical definitions adopted in the and (4) those producing products or services
19th ICLS Guidelines brings together concepts that improve resource management which are
from the areas of environmental-economic consumed outside the producing economic unit
statistics, labour statistics and decent work (Resource management – Output activities).13
measurement. This provides a framework that Thus, employment in the environmental sector
is coherent and aligned in two areas of statistical and green jobs can be associated with different
standards, that is, the SEEA-System of National combinations of productive activities viewed
Accounts and the labour statistics standards from the environmental-economic perspective
adopted by the International Conference of and the environmental-employment perspective,
Labour Statisticians.12 supporting the construction of different indicators
for an array of research and policy purposes.
The statistical definitions of employment in the
environmental sector and green jobs benefit It should be noted that these SEEA and ICLS
from the classifications in the SEEA framework classifications cut across different industry
related to environmental goods and services sectors. Thus, unlike the policy concepts of green
activities. As noted above, the SEEA classification jobs discussed previously in this paper that are
of environmental activities includes two broad defined by specific sectors (ILO–UNEP concept) or
groups: (1) environmental protection activities for which key sectors are suggested as examples
and (2) resource management activities. This of traditional or new and emerging green sectors
classification of activities is complemented by two (ILO GJP concept), the 19th ICLS statistical concept
groups of activities in the environmental sector of green jobs is not defined by sectoral boundaries
identified in the 19th ICLS guidelines that serve to or even guided by selected examples of green
define the scope of the concept of employment sectors in which green jobs may be performed.
in the environmental sector: (1) activities that The statistical concept definition recognizes that
relate to the production of goods and services in principle green jobs could be carried out in
for consumption outside of the producing nearly all sectors in a given economy while being
establishment (output concept) and (2) activities limited in scope to productive activities in the
that relate to the use of those activities inside the two classifications. Nonetheless, for purposes of
production unit (process concept). statistical measurement, an operational statistical
definition is best formulated using specific
The two classifications can be combined, yielding productive activity examples which in some
four different types of activities in which an cases may only be performed in specific sectors,
employed person’s economic unit engaged in for example, producing outputs in the renewable
the environmental sector could be classified: energy sector.
(1) those that use technology in the economic
unit’s own production process to protect the The concept of employment in the environmental
environment from pollution (Environmental sector and the two subcategories which comprise
protection – Process activities); (2) those involving it (employment in the production of environmental
12 For more in-depth information on information provided in this section, see ILO GAIN Training Guidebook: How to
Measure and Model Social and Employment Outcomes of Climate and Sustainable Development Policies. Of particular
interest is Module 2: Assessment tools: Inventories and surveys as sources of data on employment in the
environmental sector and green jobs.
13 ILO GAIN Training Guidebook, p. 63.
17
outputs and employment in environmental 3.6 ILO pilot survey programme

processes) represent essential components of on measuring green jobs
the 19th ICLS statistical concept definition and and operational statistical
of the ILO GJP policy concept definition of green
jobs. This aspect is not included in the 2008 ILO–
definition of green jobs
UNEP definition which was established prior to
the adoption of the 2013 19th ICLS Guidelines. The ILO developed and tested a methodology
for collecting statistics on a set of variables
The inclusion of the decent jobs dimension in the concerning employment in the environmental
19th ICLS statistical concept definition of green sector and green jobs. Specifically, the ILO
jobs aligns with the policy concept definitions of carried out pilot surveys in Albania (ILO 2014)
green jobs discussed previously. A key difference and Mongolia (ILO 2017) to test the practical
is that the statistical concept definition provides application of the concepts and definitions
specific guidance on where to seek such presented in the 19th ICLS Guidelines using
information, indicating that this may be measured the ILO data collection methodology. The
according to relevant indicators selected from the objective was to collect statistics on a set of
ILO manual on decent work indicators (ILO 2013e). variables related to the number of green jobs
The manual presents a set of statistical and legal in each country and their characteristics. The
framework indicators which are structured methodology consisted of pilot testing a special
according to the Decent Work Measurement module of questions linked to the labour force
Framework (ILO 2013e, p. 12). The statistical survey and another linked to the establishment
decent work indicators are quantitative indicators sur vey on employment and earnings. The
derived from official national data sources and testing allowed for a better understanding of
should be used in the statistical measurement good practices and limitations associated with
of green jobs. More specifically, indicators the methodology, provided lessons learned
whose reference scope refers to employment and informed making recommendations for the
or subgroups (such as employees) are to be future. The approach to identify employment in
used. For the concept of green work, a broader the environmental sector and green jobs in the
reference scope that includes forms of work other household-based pilot surveys is presented in
than employment (such as volunteers, unpaid figure 3.
apprentices, or own-use production work) should
be targeted in the construction of decent work The identification of green jobs follows a logical
indicators. Additional methodological work is still approach in line with the 19th ICLS guidelines.
required to support the measurement of green It begins with identifying the key economic
work and development of related indicators. industries in which environmental activities
take place in a given economy,14 then, within
The ICLS statistical concept definition of these industries, seeks to define the scope
green jobs thus provides useful guidance to of the environmental sector through further
support measurement of green jobs for better identification of the component environmental
data comparability and coherence. Actual protection activities and resource management
implementation of the definition requires an activities. These activities are linked to the
operational definition that can be used in a environmental goods and services produced. This
statistical survey such as a dedicated green jobs helps define the environmental activity scope,
module in a labour force survey. An operational which is then used to separately identify the
statistical definition provides concrete criteria and two types of employment in the environmental
boundaries to help implement the international sector: (1) the number of persons employed in
statistical standard definition, as described in the a given reference period in the production of
next section. environmental outputs and (2) persons employed
14 This can be done by using a national or regional standard industr y classification system that permits
correspondence with the International Standard Industrial Classification of All Economic Activities (ISIC).
X Figure 3. Schema used in ILO pilot survey programme to identify employment in the environmental
sector and green jobs (household-based survey)
Environmental sector
Consists of all economic units that carry out environmental activities
Environmental protection activities Resource management activities

Prevention, reduction and elimination of pollution and Preserving and maintaining the stock of natural resources
other forms of degradation of the environment and hence safeguarding against depletion
Environmental goods and services

Goods and services produced for the purposes of environmental
protection or resource management
А. Employment in production of B. Employment in environmental processes

environmental outputs Employment in the production of environmental
Employment in the production of environmental goods and goods and services for consumption within the producing
services for consumption outside the producing unit unit
Persons employed in environmental sector

All persons who, during a set reference period, were employed in at least one
economic unit that is involved in the production of environmental goods and
services
DECENT WORK
- Productive - Provides adequate incomes - Provides social protection
- Respects the rights of workers - Social inclusion and gender equality
GREEN JOBS
All persons employed in the environmental sector that are
covered by social security schemes or receive adequate wages
Source: ILO.
in the production of environmental processes persons who receive adequate wages. The ILO
who work for pay or profit. pilot survey methodology used the operational
definition of green jobs as follows:
Finally, green jobs are identified using a small set
of decent work indicators to narrow the scope Green jobs are all persons employed in the
to persons employed in green jobs. As noted in environmental sector that are covered by
the schema, the operational definition in the social security schemes or received adequate
pilot survey programme used two decent work wages.
indicators to operationalize the measurement of
green jobs, namely: (1) employed persons covered It’s important to understand how this operational
by social security schemes and (2) employed definition was applied in the ILO Green Jobs
Module (GJM) of the ILO labour force survey
19
pilot testing programme.15 First, to identify The GJM thus provided a specified set of
“all persons employed in the environmental categories of environmental goods and
sector”, the GJM used a questionnaire that services associated with key environmental
consisted of t wo par ts. In the f irst par t, sector activities and also a set of environmental
respondents were asked if they were involved technologies and practices that could help
during the previous month in any of a specified with precise measurement of the concept
set of categories environmental goods and of employment in the environmental sector.
services intended for consumption outside The GJM included specific examples for each
their work site. The broad set of categories category to provide clarity. Thus, for example,
listed included: (1) Energy from renewable environmental outputs associated with energy
sources , (2) Energ y ef f icient goods and from renewable sources in the module include
services, (3) Reduction and removal of pollution products and services that generate electricity,
and greenhouse gas emissions, (4) Recycling heat or fuel from non-fossil renewable sources
an d re u s e of wa s te , (5) Env iro nm e nt al and/or from waste (for example, production of
protection and natural resources conservation, electric power from wind, solar, biomass, solid
(6) Environmental compliance, education and waste, hydroelectric or nuclear sources, etc.).
training, and public awareness and (7) Other. Such outputs also include manufacturing of wind
Information was also sought regarding what turbine equipment, solar heating equipment,
percentage of respondents’ working time was photovoltaic energy equipment and biomass-
spent in producing the environmental goods fired industrial boilers. The examples provided for
and services. the category of environmental technologies and
practices (such as environmental processes) in the
In the second part of the GJM, respondents module include the generation of electricity, heat
were asked if they used any of a selected set or fuel from renewable sources for use within the
of environmental technologies and practices establishment (electric power production from
(that is, environmental processes) at their wind, solar, biomass, solid waste, hydroelectric or
worksite in order to reduce the environmental nuclear sources, etc.)16
impact of the establishment, or to train the
establishment’s workers in the technologies Once having identified the employment in
and practices. The broad set of environmental the environmental sector using the GJM in
technologies and practices included categories combination with the main labour force survey
similar to those in the first part, with some which helps identify labour force status (including
differences: (1) Energy from renewable sources employment), the next step was to identify green
(2) Energy efficiency (3) Reduction and removal jobs using the operational criteria for decent
of pollution and greenhouse gas emission (4) jobs given in the operational definition used in
Recovery, reuse and recycling of resources the pilot country of Mongolia: “Green jobs are all
and/or substitution of natural resources persons employed in the environmental sector
(5) Environmental protection and natural that are covered by social security schemes or
resources conservation (6) Research, planning, received adequate wages.”
maintenance and control of technologies and
(7) Other. Respondents were also asked what The two decent work indicator criteria (social
percentage of their working time was spent security scheme coverage and adequate wages)
developing, maintaining, using or installing were used separately to measure green jobs
such technologies and practices. in the operational definition. The criterion of
15 The ILO pilot survey questionnaires are included in the GAIN Training Guidebook. The Green Jobs Module was
developed to align with the System of Environmental and Economic Accounting (SEEA) Framework, particularly
as regards the environmental goods and services sector. It benefitted from the use of existing national official
statistics practices in the measurement of green jobs.
16 The categories and specific examples used in a particular country for measurement will depend on whether the
activities exist and any other considerations.
“adequate wages” was defined as earnings above the indicator “employed persons covered by social
the two thirds of median earnings. As anticipated, security schemes” may not be very relevant. For
using different individual decent work indicators cross-country comparisons, it would be useful to
to measure green jobs resulted in different use decent work indicator(s) that can be applied
outcomes. Thus, for example in the Mongolia across a range of countries. The issue of how to
pilot survey conducted as part of the labour force apply such indicators in country contexts where
survey (in which the number of green jobs was the indicator(s) can only be applied to employees
determined only for paid employees during the but where nonetheless a large share of the
second quarter 2016), green jobs as a percentage employed are independent workers should be
of total employment was 9.9 per cent when using considered further.17
the criterion of “coverage by social security
schemes”. When using “adequate wages”, green Among the key lessons learned from the
jobs as a percentage of total employment was testing programme, survey officials engaged in
17.4 per cent. conducting the testing indicated that the concepts
and definitions of environmental goods, services
The pilot testing programme revealed that and processes should be more clearly illustrated
the ILO data collection methodology offers a or elaborated by examples. For example, it was
sound, feasible means to measure green jobs suggested that images and video recordings of
based on the 19th ICLS Guidelines. While much various environmentally friendly technologies,
was learned in the programme to improve the activities, services, and equipment could be used
methodology, testing should continue to support for training of enumerators conducting the green
further refining the methodology and provide job survey.
operational guidance to countries on statistical
measurement of green jobs. Such statistical methods testing and further
development of the international statistical
One key issue to note is that the selection of the guidance on measuring employment in the
decent work indicator(s) for measuring green environmental sector and green jobs will be
jobs needs to consider the relevance of selected essential for providing the needed statistical data
decent work indicators across different countries. and indicators to support countries in progressing
For example, in countries whose populations towards a just transition to environmentally
benefit from universal social security schemes, sustainable economies and societies for all.
17 An example of a decent work indicator that could be considered for measuring green jobs in a given country is
the informal employment rate. This indicator uses total employment (instead of employees) as the reference
population and can be measured across different countries.
4. Green economy and other related concept definitions
21
4. Green economy and other related concept

definitions
In this section, six policy concept definitions which necessary, rebuild natural capital as a critical
economic asset and as a source of public
relate to green jobs and the broader agenda of
benefits, especially for poor people whose
just transition are presented and discussed. These
livelihoods and security depend on nature.
include: (1) Green economy and blue economy
(UNEP 2011)
(2) Green growth, (3) Greening, (4) Shades of
green, (5) Circular economy and (6) Nature-based According to UNEP, the concept of blue economy
Solutions (NbS). In the case of circular economy, is a marine and coastal analogue to the green
a “dual-purpose” proposed headline working economy. The blue economy supports specific
definition for both policy and measurement measures to broaden the definition of ocean
purposes is currently under development by the resources – to acknowledge the fundamental,
OECD and UNECE. life-supporting benefits and services that are
provided by marine and coastal ecosystems. The
blue economy is understood to be part of the
green economy but has its own specificities and
4.1 Green economy and areas of policy interest, including those of concern
blue economy for “blue jobs” which can be understood as a
subset of green jobs, aligning with the definition
of blue economy.
The concepts of “green economy” and “blue
economy” are essential to understanding While other concept definitions of the green
decent work in the environmental sector. In 2011, economy exist,18 the similarities of what
UNEP established the first definition of a green characterizes a green economy outweigh the
economy by a UN agency as follows: differences across the different definitions. As
discussed previously for the green jobs policy
A green economy is an economy that results in concept definitions, a key aspect of the green
improved human well‐being and social equity, economy in different concept definitions is the
while significantly reducing environmental preservation or restoration of the environment.
risks and ecological scarcities. In its simplest Most studies also seek to identify green economy
expression, a green economy can be thought products and services that meet one of several
of as one which is low carbon, resource criteria for a green economy. For products
efficient and socially inclusive. In a green and services, most of these definitions include
economy, growth in income and employment environmentally friendly and enhancing products
should be driven by public and private and services; renewable energy products and
investments that reduce carbon emissions services; clean transportation and fuels; and
and pollution, enhance energy and resource “green” buildings (buildings that are energy and
efficiency, and prevent the loss of biodiversity water efficient, reducing waste and pollution,
and ecosystem services. These investments etc.). Some definitions also cite the processes by
need to be catalysed and supported by which products and services are produced, such
targeted public expenditure, policy reforms as energy‐efficient manufacturing, distribution
and regulation changes. The development and construction and the use of high-efficiency
path should maintain, enhance and, where
18 For example, the United Nations Conference on Trade and Development (UNCTAD) defines green economy as
“an economy that results in improved human well-being and reduced inequalities, while not exposing future
generations to significant environmental risks and ecological scarcities” (UNCTAD 2011). This definition presents
slight differences from the UNEP definition of green economy presented above.
strategies to reduce energy, materials and water 4.2 Green growth

consumption (ILO 2013a).
According to the Organisation for Economic Co-
There has been considerable policy interest in operation and Development (OECD), the concept
the economic sectors or activities that comprise of green growth is defined as follows:
the green economy. Linking the green economy
concept with the SEEA Framework, the concept Green growth means fostering economic
of the environmental sector (as highlighted in growth and development while ensuring
the 19th ICLS Guidelines mentioned previously) that natural assets continue to provide the
or, more specifically, the environmental goods resources and environmental services on
and services sector (EGSS) is widely considered which our well-being relies. (OECD 2011)
to represent the economic activity scope of
the green economy. The SEEA Classification The OECD (2011) further explains that green
of Environmental Activities (which includes growth involves:
env ironment al protec tion and resource
management activities) cuts across different X Enhancing productivity by creating incentives
economic industry groups. Moreover, the ISIC for greater efficiency in the use of natural
which is used to classify industry groups is resources, reducing waste and energy
currently not adequate as a classification tool consumption, unlocking opportunities for
to help identify industries in the green economy innovation and value creation, and allocating
since many (perhaps most) environmental resources to the highest value use.
activities are parts of divisions or classes
containing other activities. Thus, for example, in X Boosting investor confidence through greater
the ISIC (Revision 4) classification, coal and solar predictability in how governments deal with
electricity-producing establishments are grouped major environmental issues.
together since both produce electricity.19
X Opening up new markets by stimulating
Of particular importance for the world of demand for green goods, ser vices and
work in the UNEP concept definition of green technologies.
economy is the emphasis on an economy that
results in improved human well‐being and social X Contributing to fiscal consolidation by mobilizing
equity, while at the same time significantly revenues through green taxes and through
reducing environmental risks and ecological the elimination of environmentally harmful
scarcities. The scope of a green economy is thus subsidies. These measures can also help to
increasingly seen as going beyond the creation of generate or free up resources for anti-poverty
environmental goods, services and jobs since it programmes in such areas as water supply
also includes the broader dimensions of energy and sanitation, or other pro-poor investments.
and resource efficiency, poverty eradication,
social equity and human well‐being (ILO 2013a). X Reducing risks of negative shocks to growth due
Indeed, since the adoption of the SDGs, decent to resource bottlenecks, as well as damaging
work and social justice are central to sustainable and potentially irreversible environmental
development and many approaches have these impacts.
added dimensions when defining the scope of the
green economy. Green growth requires catalysing investment and
innovation which will support sustained growth
and generate new economic opportunities. The
concept is intended as a practical and flexible
approach for achieving measurable progress
19 The International Standard Industrial Classification of All Economic Activities (ISIC) process is underway, and such
considerations are being discussed in the updating of the classification.
23
across the economic and environmental The concept of greening was used throughout
pillars while taking fully into account the social the ILO report, World Employment and Social
consequences of greening the growth dynamic Outlook 2018: Greening with Jobs (ILO 2018).
of economies. Among the different intervention entry points
highlighted to support “greening with jobs”,
the report argued that the legal framework
can provide incentives for “greening the
4.3 Greening economy”, while social dialogue can be
effective in “greening the workplace”, engaging
The concept of greening is used in reference government actors and social partners to ensure
to strategies, policy interventions, actions or environmental and decent work objectives are
targets used to transform economies, enterprises met.
and workplaces that can be characterized as
environmentally sustainable, supporting social As regards the legal framework, the report
and environmental goals. According to the 19th indicated that legal standards can promote
ICLS room document which formed the basis for progress towards decent work during and beyond
discussion on the statistical concept definition the transition to environmental sustainability.
of green jobs, the concept of “greening the Because of their universal relevance for workers,
economy” refers to: workplaces and the various sectors, international
labour standards provide a social pillar for the
…a strategy under consideration by countries green economy and can help to ensure that
to enhance the quality of life of their citizens emerging sectors offer decent working conditions.
and to pursue sustainable development In addition, ILO standards on occupational safety
goals. The transformation of traditional and health contribute to the preservation of the
economies into green economies is based environment. The Indigenous and Tribal Peoples
on making investments in technologies, Convention, 1989 (No. 169), which requires
systems and infrastructures that enhance environmental impact assessments to be carried
productive economic activities while optimizing out in relation to development activities that may
natural resource utilization and minimizing affect that population, the Prevention of Major
environmental impacts. The objective is to Industrial Accidents Convention, 1993 (No. 174),
foster investments supporting social and and the Employment and Decent Work for Peace
environmental goals that would act as drivers and Resilience Recommendation, 2017 (No. 205),
for, instead of barriers to, sustainable economic among others, address environmental issues
growth. (ILO 2013a) directly.
The concept of greening the workplace was

acknowledged in the 2008 ILO–UNEP report on
green jobs: 4.4 Shades of green
… employers and unions are beginning to work The “shades of green” concept was first presented
together in the greening process, building on a in the ILO–UNEP 2008 green jobs report. It refers
long tradition of collaborating on occupational to:
safety and health. Companies and trade
unions have worked together to establish and …the different degrees to which technologies,
implement workplace targets for efficiency products, businesses, and business practices
and waste minimization. Together, they can be said to be green, ranging from
hope to contribute to the creation of a new reactive and remedial measures on the one
workplace culture that will ensure reduction hand to proactive measures on the other.
of greenhouse gases in production and the life (ILO and UNEP 2008, p. 41)
cycle of products as well as make substantial
changes to personal and communit y Table 4 gives an indication of this graduation from
consumption patterns of workers. (ILO and more limited to more transformative approaches
UNEP 2008, p. 286)
for selected segments of the economy. For any is a considered a reactive, remedial measure
given segment of the economy, items at the top of whereas biking, walking and changes in land-use
the list of pro-environment measures represent policies and settlement is a more transformative
the lighter shades-of-green measures, whereas approach. It could be beneficial to develop this
those at the bottom represent the more proactive, concept further to support a more refined a policy
darker shades-of-green measures. Thus, for analysis related to green jobs.
example, in transport, more fuel-efficient vehicles
X Table 4. Shades of green: pro-environmental measures in major segments of the economy
Segment of the economy Pro-environment measures
Energy supply Integrated gasification/ carbon sequestration

Co-generation (combined heat and power)
Renewables (wind, solar, biofuels, geothermal, small-scale hydro); fuel cells
Transport More fuel-efficient vehicles
Hybrid-electric, electric, and fuel-cell vehicles
Car sharing
Public transit
Non-motorized transport (biking, walking), and changes in land-use
policies and settlement
Manufacturing Pollution control (scrubbers and other tailpipe technologies)
Energy and materials efficiency

Clean production techniques (toxics avoidance)
Cradle-to-cradle (closed-loop systems)
Buildings Lighting, energy-efficient appliances and office equipment
Solar heating/cooling, solar panels
Retrofitting
Green buildings (energy-efficient windows, insulation, building materials,
HVAC)
Passive-solar houses, zero-emissions buildings
Materials management Recycling
Extended producer responsibility/ product take-back and remanufacturing
De-materialization
Durability and repairability of products
Retail Promotion of efficient products/ eco-labels
Store locations closer to residential areas
Minimization of shipping distances (from origin of products to store
location)
New service economy (selling services, not products)
Agriculture Soil conservation
Water efficiency
Organic growing methods
Reducing farm-to-market distance
Forestry Reforestation and afforestation projects
Agroforestry
Sustainable forestry management and certification schemes
Halting deforestation
Source: ILO and UNEP 2008, p. 42.

25
of its tenets is to reduce the extraction of

4.5 Circular economy raw materials and to rely instead on reuse,
repair and recycling. In a circular economy,
There has been increasing policy interest in the products are designed to have longer lives
circular economy and different concept definitions and to be repaired, reused or recycled.
exist which nonetheless share common elements. Through changes to the incentive structure
The circular economy is recognized as a model for for enterprises to produce more durable
sustainability in resource use and consumption. goods and goods that serve as inputs into
World Employment and Social Outlook 2018: other production streams when they are no
Greening with Jobs (ILO 2018) notes that nearly 6 longer usable, the circular economy keeps
million jobs can be created worldwide by 2030 products, components and materials at a
by moving away from an extract-manufacture- high level of utility and value (Ellen MacArthur
use-discard model and embracing the recycling, Foundation, 2013). In view of the interlinkages
reuse, remanufacture, rental and longer durability in the manufacturing sector and the fact that
of goods. The report suggests that supporting inputs are recycled, employment changes
the circular economy means a reallocation from are warranted in extractive and waste
the mining and manufacturing sectors to waste management industries. A circular economy
management (recycling) and services (repair, also results in changes in the services sector, as
rent). repair and rental services gain in importance
over the replacement and ownership of
In this section, policy concept definitions of goods (Wijkman and Skånberg, 2016).
“circular economy” are presented from: (1) Ellen (ILO 2018, p. 51)
MacArthur Foundation, (2) World Employment and
Social Outlook 2018: Greening with Jobs, and (3) the The European Parliament has defined the circular
European Parliament. Also presented is a headline economy, as follows:
working definition of circular economy for both
policy and statistical measurement purposes, The circular economy is a model of production
which is currently under development by OECD and consumption, which involves sharing,
and UNECE. leasing, reusing, repairing, refurbishing and
recycling existing materials and products
According to the Ellen MacArthur Foundation, the as long as possible. In this way, the life
circular economy is defined as: cycle of products is extended. In practice,
it implies reducing waste to a minimum.
…a system that looks beyond the current take- When a product reaches the end of its life,
make-waste industrial model, and aims to its materials are kept within the economy
redefine growth, focusing on positive society- wherever possible. These can be productively
wide benefits. It entails gradually decoupling used again and again, thereby creating
economic activity from the consumption of further value. This is a departure from
finite resources and designing waste out of the traditional, linear economic model,
the system. Underpinned by a transition to which is based on a take-make-consume-
renewable energy sources, the circular model throw away pattern. This model relies on
builds economic, natural, and social capital. large quantities of cheap, easily accessible
It is based on three principles: (1) Design out materials and energy. Also part of this model
waste and pollution, (2) Keep products and is planned obsolescence, when a product has
materials in use and (3) Regenerate natural been designed to have a limited lifespan to
systems. (Ellen MacArthur Foundation, n.d.) encourage consumers to buy it again. The
European Parliament has called for measures
to tackle this practice.” (EP 2023)
World Employment and Social Outlook 2018:
Greening with Jobs recognizes the above definition Finally, the Organisation for Economic Co-
of circular economy and adds new elements, operation and Development (OECD) and United
noting that: Nations Economic Commission for Europe
(UNECE) have joined forces to draft joint guidelines
The circular economy….is based on the for measuring the circular economy that includes
principle of produce-use-service-reuse. One a proposed working definition of circular
economy (OECD, UNECE and Statistics Finland X the input of materials and their consumption
2022). The work of these agencies has been is minimized;21
proceeding in parallel (over 2021–22), ensuring
complementary expertise and synergies. It X the generation of waste is minimized
involves three interrelated work packages [prevented] [waste is prevented from being
that include: (1) the conceptual monitoring generated] and negative environmental
framework , (2) s t atis tic al measurement impacts reduced throughout the life-cycle
framework, and (3) circular economy indicators of materials. 22
(developed by UNEP).
Under the agreed principles, there will be a

hierarchy of definitions to include a simple 4.6 Nature-based Solutions
headline “definition” that, while pointing at
the key purposes of a circular economy, is When the term “Nature-based Solutions”
general enough to serve both policy needs and (NbS) was introduced during the late 2000s, it
measurement needs. This will be accompanied with represented an important paradigm shift in the
short explanations and references to underlying relationship between humans and nature, from
mechanisms and strategies. It will be adapted one in which people were mainly beneficiaries
as appropriate to specific needs including of nature’s benefits to one in which people could
country needs, specific sectors or materials and take a more active role in protecting, managing
is to be expanded with details needed to guide or restoring natural ecosystems (Cohen-Shacham
statistical measurement. The proposal is to be et al. 2016). NbS offered an important means of
complemented with a glossary of terms and addressing various environmental and societal
definitions. challenges, including climate change adaptation
and mitigation, life quality improvement, and
The proposed headline working definition is protection of biodiversity and ecosystems and
inspired by existing definitions (in particular, used knowledge about ecosystems to find
from OECD, European Union (EU)/European innovative solutions that support nature, society
Economic Area (EEA), and UNECE) and is building and the economy (Faivre et al. 2018). In 2016, the
on discussion outcomes. The draft proposed International Union for Conservation of Nature’s
headline working definition is as follows. (As this (IUCN) World Conservation Congress adopted a
proposed definition is still a draft, the alternative resolution which defined NbS as follows:
wording is shown in italics and bet ween
brackets.) Nature-based Solutions are defined as
“actions to protect, sustainably manage,
A circular economy is an economy where: and restore natural or modified ecosystems,
that address societal challenges effectively
X the value of materials in the economy [ for and adaptively, simultaneously providing
the economy and society] is maximized and human well-being and biodiversity benefits.”
maintained for as long as possible;20 (IUCN, 2016)
20 “Materials” are understood to include natural resources and the materials and products derived therefrom
(materials at all points throughout their life cycles). The “value of materials in the economy” is understood here to
encompass the value for society as a whole taking into account economic efficiency, environmental effectiveness
and social equity. Maintaining the value for as long as possible links to circularity mechanisms.
21 Minimizing the input of materials and their consumption contains a quantitative and a qualitative dimension. This
links to the preservation of natural assets, to resource efficiency, to environmental quality.
22 By referring to the life cycle of materials, (i) waste prevention at all stages of the life cycle is reflected and (ii) all
associated environmental impacts are reflected, including the generation of pollutants (residuals), impacts on
climate, biodiversity, natural capital stocks, etc.
27
IUCN led the development of a Global Standard The UNEA concept definition builds on the one
for NbS, laying the foundation for an operational developed by IUCN and adopted at the World
framework for designing, verifying, improving Conservation Congress in 2016. Understanding
and scaling up NbS (IUCN 2020). The Global about what the concept definition means in
Standard framework has eight criteria considered practice is still evolving (ILO, UNEP and IUCN
good practice for NbS implementation. (ILO, 2022).
UNEP and IUCN 2022).
Since the NbS concept was first introduced,

various international policy, science, and financial
organizations – including, for example, the World
Bank, the European Commission, the Nature
Conservancy, the IUCN, and the ILO– have used
and further developed the concept for research,
innovation or investment purposes, supporting
the creation of jobs and economic growth (Cohen-
Shacham et al. 2016, Nesshöver et al. 2017, ILO
and WWF 2020).
In March 2022, the UN Environment Assembly

(UNEA) adopted a resolution that defines NbS as:
…actions to protect, conserve, restore,

sustainably use and manage natural or
modified terrestrial, freshwater, coastal
and marine ecosystems, which address
social, economic and environmental
challenges ef fectively and adaptively,
while simultaneously providing human
wel l - b eing , eco s y s tem ser v ice s a nd
resilience and biodi ver sit y benef it s .
(UNEP 2022, para. 7)
5. The just transition concept
and policy options. The need to green our

5.1 Background economy presents an opportunity to make
the right policy decisions, but there is nothing
The just transition concept was first presented in intrinsically fair or just about either the
the 2008 ILO–UNEP report, Green Jobs: Towards process of becoming green or the end result
Decent Work in a Sustainable, Low‐carbon World, – this must be pursued politically within the
as a framework to address the social dimension overall paradigm of sustainable development
of the transition to a sustainable, low-carbon whereby the social dimension is fully and
economy. The report acknowledged that the equitably integrated into the economic and
transition would involve a social process of environmental dimensions. (ILO and UNEP
interactions and negotiations, incorporating 2008, p. 278)
technological innovations, shifts in business and
investment strategies, as well as a new set of The 2013 ILC report Sustainable Development,
policies. It suggested the transition would also Decent Work and Green Jobs (ILO 2013b)
involve businesses, workers, communities, and acknowledged that environment and social
movements. Importantly, the report noted that development must no longer be treated as
a just transition will produce new green jobs and separate pillars of sustainable development,
the greening of some existing jobs but will also but rather as closely interrelated dimensions.
result in job losses and jeopardized livelihoods It noted that an integrated approach towards
in certain regions, communities, industries, and environmental sustainability can be a significant
economic sectors (ILO and UNEP 2008, p. 277). avenue for development, with more and better
jobs, social inclusion and poverty reduction.
The 2008 ILO–UNEP report noted that while The report suggested that the shift to an
major economic transitions in the past have led environmentally sustainable economy has given
to significant social and economic progress for rise to green jobs, highlighting the important
society, these transitions have not often been fair potential of greening of enterprises and
and just. The lessons of this history are guiding economies jointly with social justice outcomes.
those who are seeking to ensure that the next It also highlighted a growing number of national
great economic transition – the transition to a policy statements had called for decent work
green and sustainable economy – will be fair and and a just transition to low-carbon economies to
just for all. The report notes that the story of a just be a central goal as well as driver for sustainable
transition will reflect political choices: development. These included the Rio+20 outcome
document and the Cancun Agreements on climate
It is a transition that will be assisted by market change. Importantly, during its 102nd Session
forces to some extent, but other market forces in 2013, the International Labour Conference
will push against the needed changes. The adopted a resolution and a set of conclusions
scope of the transition will be global and it concerning sustainable development, decent
will need to proceed at a pace that’s more or work and green jobs, putting forward a policy
less unprecedented in economic and social framework for a just transition.
history. In just two or three decades, the entire
global economy will need to be well on the In follow up, the ILO convened a tripartite
road to a low-carbon and sustainable future. meeting of experts (TME) to draft just transition
Markets cannot drive the transition, and guidelines, which were adopted by the ILO
neither can they be relied upon to deal with Governing Body in 2015. Guidelines for a Just
the problems that the transition will inevitably Transition towards Environmentally Sustainable
create. Thus, the effort to expedite a Just Economies and Societies for All (ILO 2015)
Transition to a green and sustainable economy (hereafter, the Just Transition Guidelines) seek
will also involve a new set of approaches to enable governments, workers and employers
29
around the globe to leverage the process of coherent, evidence-based framework and tool
structural change towards a greener, carbon- to support countries as they transition towards
neutral economy, create green jobs at a large- environmentally sustainable economies and
scale and promote social protection. They serve societies for all. They provide information
as both a policy framework and a practical tool regarding background and scope, a shared
to help countries at all levels of development vision, opportunities and challenges, guiding
manage the transition to carbon-neutral principles, as well as a set of key policy areas and
economies and can also help them achieve their institutional arrangements for a just transition
Nationally Determined Contributions (NDC), for all.
National Adaptation Plans (NAP) and the 2030
SDGs. It’s worth noting that the Paris Agreement With the intention of providing a deeper
on climate change, also adopted in 2015, noted understanding the just transition concept, the
“a just transition of the workforce and creation focus in this section is on key elements of the
of decent work and quality jobs in accordance vision, guiding principles and nine policy areas
with nationally defined development priorities” outlined in the Just Transition Guidelines.
as an important consideration for climate action
(UNFCCC 2015).
5.2.1 Vision and guiding principles
5.2 Definition of the The just transition vision recognizes that the
just transition concept four pillars of the Decent Work Agenda (DWA)
and key elements promoting decent work for all – social dialogue,
social protection, rights at work and employment
– are at the heart of policies for strong, sustainable
In 2023, the International Labour Office prepared and inclusive development.23 It acknowledges the
a report that presented the first international fundamental goal of sustainable development,
definition of the just transition concept with a that is, that the needs of the present generation
view to clarifying its meaning and promoting its should be met without compromising the ability of
implementation in the context of the ILO Just future generations to meet their own needs. The
Transition Guidelines: economic, social and environmental dimensions
of sustainable are recognized as interrelated, of
A just transition means promoting a green equal importance and must therefore be jointly
economy in a way that is as fair and inclusive addressed. The vision notes that there is no “one
as possible to everyone concerned – workers, size fits all” in implementing just transition across
enterprises and communities – by creating countries, as national circumstances and priorities
decent work opportunities and leaving no one need to be considered to achieve sustainable
behind. A just transition involves maximizing development.
the social and economic opportunities of
climate and environmental action, while A just transition needs to be well managed and
minimizing and carefully managing any contribute to the goals of decent work for all, social
challenges, including through effective social inclusion and the eradication of poverty while
dialogue and stakeholder engagement and also promoting environmental sustainability.
respect for the fundamental principles and Economies must be productive to meet the needs
rights at work. (ILO 2023, p. 12) of the world’s growing population and societies
must be inclusive, providing opportunities for
Aligning with this concept definition, the decent work for all, reducing inequalities and
Just Transition Guidelines are intended as a effectively eliminating poverty.
23 The text on the vision and guiding principles shared in this section is summarized directly from the ILO Just
Transition Guidelines.
The greening of economies, enterprises and education/training and labour portfolios need to
jobs is highlighted in the context of sustainable provide an enabling environment for enterprises,
development and poverty eradication. It has the workers, investors and consumers to help drive
potential to be a new engine of growth, both in the just transition. The set of coherent policies
advanced and developing economies, and a net also need to provide a just transition framework
generator of decent, green jobs. Managed well, for all to promote the creation of more decent
the greening of economies will enhance our ability jobs, including for example: anticipating impacts
to manage natural resources sustainably, increase on employment, adequate and sustainable social
energy efficiency and reduce waste, while also protection for job losses and displacement, skills
addressing inequalities and enhancing resilience. development and social dialogue, including the
The greening of jobs and the promotion of green right to organize and bargain collectively.
jobs, both in traditional and emerging sectors, will
foster a competitive, low-carbon, environmentally
sustainable economy and patterns of sustainable
consumption and production, and contribute 5.2.2 Policy coherence and policy
to the fight against climate change. Moreover, areas for a just transition for all
greening all enterprises and jobs by introducing
more energy and resource efficient practices,
avoiding pollution and managing natural The greening of economies in the context
resources sustainably leads to innovation, of sustainable development and pover t y
enhances resilience and generates savings which eradication will require a country-specific mix of
drive new investment and employment. macroeconomic, industrial, sectoral and labour
policies that create an enabling environment for
Governments, employers and workers are seen sustainable enterprises to prosper and create
as agents of change, who are able to develop new decent work opportunities by mobilizing and
ways of working that safeguard the environment directing public and private investment towards
for present and future generations, eradicate environmentally sustainable activities. 24 The
poverty and promote social justice by fostering aim should be to generate decent jobs all along
sustainable enterprises and creating decent work the supply chain, in dynamic, high value-added
for all. The principle of common but differentiated sectors that stimulate the upgrading of jobs
responsibilities as set out in the Rio Declaration and skills, as well as job creation and improved
on Environment and Development (1992) is productivity in more labour-intensive industries
recognized. that offer employment opportunities on a wide
scale.
The guiding principles in the Just Transition
Guidelines are intended to reinforce the vision. The challenge cuts across several domains, so
The principles note for example that social there is a need for mainstreaming sustainable
dialogue has to be an integral part of the development across all areas and for cooperation
institutional framework for policymaking and and coordination bet ween employ ment
implementation at all levels. Policies must respect, authorities and their counterparts in various
promote and realize fundamental principles and fields, including finance, planning, environment,
rights at work. Policies and programmes need to energy, transport, health, and economic and
consider the strong gender dimension of many social development. Institutional arrangements
environmental challenges and opportunities, and must be adapted to ensure the participation of
specific gender policies should be considered to all stakeholders at the international, national,
promote equitable outcomes. Coherent policies regional, sectoral and local levels in the building
across the economic, environmental, social, of an appropriate policy framework. Internal
24 The text shared in this section on policy coherence and policy areas for a just transition for all draws closely from
text in the UNFCCC 2020 technical paper, “Just Transition of the Workforce, and the Creation of Decent Work and
Quality Jobs”.
31
coherence should be sought among institutions in relation to energy poverty, which should be
at the national level as well as within international considered in their design. In view of these points,
institutions at the regional and global levels for country concentration results should ideally
the effective integration of the three dimensions be based on summary measures rather than
of sustainable development. discrete or semi-discrete measures. In this way, it
is possible to obtain a clearer picture of the peaks
The Just Transition Guidelines cover nine policy areas and shifts in country concentration over time.
to address environmental, economic and social
sustainability simultaneously. These policy areas Appropriate laws, regulations and other policies
were established based on tripartite consensus aimed at environmental improvements that
during the 2013 International Labour Conference lead to resource and energy efficiencies and
which considered evidence and lessons learned the prevention of environmental and social
from country-level policies and sectoral strategies degradation can align private incentives with
geared towards environmental sustainability, public policy objectives and can be cost effective
greening enterprises, social inclusion and the in the long term. Legislative and regulatory
promotion of green jobs as follows: certainty and the rule of law are needed to
promote environmental and social sustainability,
I. Macroeconomic and growth policies while stimulating innovation and investments
in human, social and environmental capital.
II. Industrial and sectoral policies These are the prerequisites for long-term
competitiveness and economic prosperity,
III. Enterprise policies social cohesion, quality employment and better
environmental protection.
IV. Skills development
V. Occupational safety and health Industrial and sectoral policies
VI. Social protection The greening of economies is a global challenge,

but many environmental problems are sectoral,
VII. Active labour market policies and the search for solutions and the adoption of
policies starts at the sectoral level. Numerous
VIII. Rights countries have used industrial policy to support
the shift to the greening of their economies.
IX. Social dialogue and tripartism Industrial and sector-related policies, and
when appropriate, public–private partnerships
and public–public partnerships, are effective
in complementing macroeconomic policies,
Macroeconomic and growth policies
in helping to improve both the environmental
Macroeconomic and growth policies should and the employment performance of existing
promote sustainable produc tion and businesses, and in stimulating grow th in
consumption patterns, and place full and green products and services. Efforts need to
productive employment and decent work for focus on key sectors that are most relevant for
all at the centre of economic and social policies. environmental sustainability and job creation
Targeted f iscal polic y measures, market- in the national economy, such as agriculture,
based instruments, public procurement, and water management and sanitation, forestry,
investment policies can create frameworks for fisheries, energy, resource-intensive industries,
enterprises and investors to adopt or promote recycling, waste management, buildings and
more innovative economic practices, based on transport. Targeted measures will be needed
the sustainable use of resources, leading to better to formalize substandard, informal jobs in
access to economic opportunities and more environment-related sectors, such as recycling
inclusive labour markets. These policies can have and waste management, to transform them
adverse income distribution effects, in particular into decent jobs.
Sec tors of ten have specif ic governance types of jobs or to work with new materials,
instruments and institutions. Because of these processes and technologies in their existing
shared features, employers and workers engage jobs. Measures to develop skills that support
in collective bargaining and other forms of social entrepreneurship, resilience, innovation in
dialogue at the sectoral level, all of which present enterprises (including MSMEs), and their
opportunities to pursue economic, environmental transition to sustainable practices are critical
and social objectives in an effective way. factors for success.
Education and training for green jobs presupposes

Enterprise policies an appro ach b as e d on compre he nsi ve
lifelong learning. National skills development
Governments should foster the greening of and employment policies linked to broader
jobs through regulatory and non-regulatory development plans need to incorporate education
frameworks that support environmental and for environmental awareness with coherent
social sustainability while stimulating innovation skills strategies to prepare workers, in particular
and encouraging investments both at home and young people, for the future sustainable world
abroad. Special attention is needed to ensure of work. Education and training systems should
that such frameworks provide an enabling be designed to meet the needs of youth, women,
environment and assist micro, small and medium vulnerable workers and workers in rural areas,
sized enterprises (MSMEs), including cooperatives enabling them to contribute to and benefit from
and entrepreneurs, in making the transition. economic diversification and rural economic
Industries with high LQ are typically (but not empowerment. Equally, training programmes
always) export-oriented industries. These are need to target displaced workers and those who
important because they bring money into the lost jobs because of greening to ensure their swift
region, rather than simply circulating money that re-entry into the labour market.
is already in the region.
Most jobs are created by micro, small and medium Occupational safety and health
enterprises (MSMEs), yet little information on
making operations more resource efficient Many economic ac tivities related to
and environmentally responsible is specifically environmental sustainability present health and
targeted to MSMEs. Providing such information safety risks related to minerals, chemicals and
in a format that is easily accessible at this level pesticides, among other things. Ensuring that all
would greatly strengthen employers’ capacity to jobs, including green jobs, are decent, safe and
enhance environmental and labour performance. healthy is a key aspect of improving job quality.
Regulatory systems should have enforcement Switching from fossil fuels to renewables, for
capacity and be structured to provide advice to instance, entails changes in the occupational
business on how compliance can be achieved. safety and health situation. Occupational safety
and health standards and training must be
an essential component of all skills training.
Skills development Practical prevention measures should be
adopted at the enterprise level, based on risk
There should be strong interaction between the assessment and the principles of elimination
world of work and the world of education and and control of hazards. Policies and programmes
training. The greening of the economy should under national systems for occupational safety
focus on skills development in order to succeed. and health should be continuously improved
Solid technical and vocational education and in the light of the new challenges to ensure
training systems need to involve industry and that green jobs are safe. Adequate capacity of
trade unions. Access to training helps workers the labour inspectorate is essential to ensure
to develop the skills needed to transition to new compliance.
33
Social protection
improving the match between labour demand
Sound, comprehensive and sustainable social and supply.
protection schemes are an integral part of a
strategy for transition towards a sustainable
development pattern, built on principles of decent Rights
work, social justice and social inclusion. They
should provide workers displaced by technological International labour standards offer a robust
change or those affected by natural disasters framework for addressing the challenges to
with income support as well as access to health the world of work associated with the greening
care and basic services during the transition, and of the economy and, more broadly, with the
thereby reduce inequality. transition towards sustainable development and
poverty eradication. Several international labour
Targeted assistance to groups, regions and standards are important in this regard, including
occupations affected by the transition is essential. those covering freedom of association and the
For example, public and private employment right to collective bargaining; prohibition of forced
programmes can have large multiplier effects labour, child labour and non-discrimination;
by combining employment generation, income social dialogue; tripar tite consult ation;
support and conservation of natural assets. minimum wage; labour administration and
It is integral that social protection policies be inspection; employment policy; human resource
coordinated with vocational training and active development; occupational safety and health;
labour market policies to ensure the social and social security. The Just Transition Guidelines
dimension of a sustainable economy. includes an Annex that offers a set of international
labour standards and resolutions that may be
relevant to a just transition framework and
Active labour market policies implementation. These include Conventions
on fundamental principles and rights at work,
In many ways the transition to a green economy Governance conventions, other technical
will pose challenges similar to those of earlier Conventions, Recommendations and Resolutions
transitions caused by technological revolutions, adopted by the International Labour Conference.
globalization and rapid changes in world markets.
Active labour market policies can help enterprises
and workers, including unemployed workers, Social dialogue and tripartism
meet these challenges. The anticipation of
changing labour market demands, through sound Mechanisms of social dialogue, including
labour market information and data collection tripartism and collective bargaining, serve as
systems, as well as social dialogue, is essential to effective tools for the design of policies at all
helping governments, employers, workers, and levels. Social dialogue can contribute to just
education and training systems identify the skills transition by building on the commitment of
needed currently and in the future, and to take workers and employers to joint action. The
appropriate measures to provide timely training. ILO Just Transition Guidelines include detailed
Employment services are important for brokering recommendations for governments and social
workforce transition to greener occupations and partners for all these policy areas.
6. Conclusions
The selected definitions presented in this paper demonstrates how the dif ferent concepts
– concerning green jobs, green economy, just complement one another, highlighting some
transition and related concepts – represent the key characteristics and differences. For certain
efforts of various intergovernmental processes concepts, it is possible to merge policy concept
and international organizations to provide a def initions and statistical measurement
standardized and widely accepted understanding definitions.
of these concepts.
It is important for users of these concept
The definitions are intended to provide essential definitions to be aware of the scope and
guidance to countries and organizations as they nuances of each, including, for example, sectoral
develop and implement policy frameworks, limitations. Some of the concept definitions
strategies, and ac tion plans towards presented in the paper are likely to be developed
environmentally sustainable economies and further and be complemented by new guidance
societies. In the case of green jobs, two types informed by country practices, reflecting new
of UN concept definitions have been presented, insights and priorities in the process of addressing
namely, policy concept definitions and statistical the multiple climate and environmental
measurement concept definitions. The paper challenges of our times.
References
35
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International

X Green jobs, green economy,

ISBN 9789220391051 (web PDF)

2. Policy definitions of green jobs 4

3. Statistical definition of green jobs and related definitions 11

4. Green economy and other related concept definitions 21

4.4 Shades of green 23

5. The just transition concept 28

Tables and figures

Table 1. Industry sectors highlighted by ILO–UNEP regarding green job progress

Table 3. Classification of environmental activities: overview of groups and classes. . . . . . . . . . . . . . . . 12

Table 4. Shades of green: pro-environmental measures in major segments of the economy. . . . . . . 24

Figure 1. ILO Green Jobs Programme integrated approach. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Figure 3. Schema used in ILO pilot survey programme to identify employment

CA4JI Climate Action for Jobs Initiative

2 For more information, see: https://ilostat.ilo.org/about/standards/.

2. Policy definitions of green jobs

FORESTRY Reforestation/ afforestation

Sustainable forestry management

CONSTRUCTION/BUILDING Green buildings

Efficient equipment and appliances

INDUSTRY Steel (secondary steel production based on scrap)

Aluminum (recycling aluminum scrap)

Cement (energy efficiency improvements; use alternative, recycled

Recycling (all forms, including electronics and composting)

Carbon capture and sequestration (CCS)

TRANSPORTATION Fuel-efficient cars

X Figure 1. ILO Green Jobs Programme integrated approach

ILO–UNEP ILO Green Jobs Programme

Protect and restore ecosystems and Protect and restore ecosystems

De-carbonize the economy Limit greenhouse gas emissions

Minimize or altogether avoid generation of all Minimize waste and pollution

to preserving or restoring the environment as friendly processes and technologies) or just

3. Statistical definition of green jobs and related

X Table 3. Classification of environmental activities: overview of groups and classes

I: Environmental 1 Protection of ambient air and climate

4 Protection and remediation of soil, groundwater and surface water

5 Noise and vibration abatement (excluding workplace protection)

6 Protection of biodiversity and landscapes

7 Protection against radiation (excluding external safety)

8 Research and development for environmental protection

9 Other environmental protection activities

II: Resource 10 Management of mineral and energy resources

12 Management of aquatic resources

13 Management of other biological resources (excluding timber and aquatic resources)

14 Management of water resources

15 Research and development activities for resource management

16 Other resource management activities

Source: UN System of Environmental Economic Accounts (SEEA).

production of environmental goods and

3.4 19th ICLS Guidelines: “Employment in the non-environmental sector

Total employment A. Employment in

Employment in environmental sector = A B

3.5 Discussion regarding the production of technology or services for

outputs and employment in environmental 3.6 ILO pilot survey programme

Environmental protection activities Resource management activities

Environmental goods and services

А. Employment in production of B. Employment in environmental processes

Persons employed in environmental sector