The Who Bears the Costs? Addressing Inequalities from Climate Change and Climate Action report was published by UNESCO and “la Caixa” Foundation on 11 December 2025, with a last update on 4 March 2026. The report examines how climate change does not affect everyone equally, and how climate policies can also create new inequalities if they are not designed fairly. It focuses on the need for climate action that protects vulnerable groups, supports the Global South, and ensures that the costs of transition are not carried by those least responsible for the crisis.
Key insights:
Climate change deepens existing social and economic inequalities, especially for poorer communities, workers in vulnerable sectors, women, youth, Indigenous peoples, and communities in the Global South.
The report argues that climate action must be designed with fairness at its core, because poorly planned green transitions can shift costs onto low-income households and workers.
It highlights the importance of asking who pays, who benefits, and who is protected when climate policies are introduced.
Climate finance is a central concern. The report calls for a major increase in climate financing, including a target of USD 1.3 trillion annually by 2035, with priority for the Global South.
The report stresses that mitigation and adaptation policies should be linked to social protection, decent work, education, and inclusive public participation.
It warns that climate policies that ignore inequality may face public resistance and risk slowing down climate action.
A just climate transition requires targeted support for affected workers, communities, and sectors, especially where livelihoods depend on fossil fuels, agriculture, or climate-sensitive job
