Spain’s National Strategy to Transition Coal-Dependent Communities

This case study examines Spain's efforts to manage the decline of its coal industry through the 2019 Just Transition Strategy and the 2018 Plan Del Carbón. It details the shift from reactive social protections to a structured, participatory framework designed to diversify the economies of coal-dependent regions while meeting EU climate mandates.

• Spain's coal industry has experienced a severe long-term decline, with employment dropping from 45,000 in 1990 to approximately 1,700 by 2017. This decline was driven by EU mandates, such as Decision 2010/787/EU which required the closure of uncompetitive mines by December 31, 2018, as well as the improving economics of renewable energy and a commitment to climate-neutrality by 2050.
• The 2018 Plan Del Carbón provided 250 million euros for mining regions to fund early retirement, reskilling for green industries, and environmental restoration. The closure of 26 uncompetitive mines affected 1,677 workers, with early retirement available to those over 48 years of age or those with specific tenure in the coal mining social security fund or affected companies.
• The 2019 Just Transition Strategy utilizes 'Just Transition Agreements' as regional action plans to support economic diversification in at-risk areas, specifically targeting Aragón, Castilla y León, and Asturias. These agreements follow a five-step development process including territorial boundary identification and participatory negotiation. While they provide technical assistance and preferential access to EU funds, they do not have a dedicated funding pool.
• Spain's Integrated National Energy and Climate Plan 2021–2030 (INECP) sets 2030 targets for a 23% reduction in greenhouse gas emissions from 1990 levels, a 42% share of renewables in energy end-use, and a 74% share of renewable energy in electricity generation. The plan projects an employment increase of 253,000 to 348,000 jobs per year by 2030.
• A significant challenge for Spain is that transition efforts are largely reactive, addressing the fallout of closures that have already occurred. Many mining towns face depopulation rates as high as 40% and struggle to attract new enterprises due to their rural nature and a lack of a diversely skilled workforce.

APA

World Resources Institute (2021). Spain’s National Strategy to Transition Coal-Dependent Communities. https://www.wri.org/snapshots/spains-national-strategy-transition-coal-dependent-communities

Chicago

World Resources Institute. Spain’s National Strategy to Transition Coal-Dependent Communities. 2021. https://www.wri.org/snapshots/spains-national-strategy-transition-coal-dependent-communities.

Wikipedia

{{cite report |author=World Resources Institute |title=Spain’s National Strategy to Transition Coal-Dependent Communities |date=23 December 2021 |url=https://www.wri.org/snapshots/spains-national-strategy-transition-coal-dependent-communities |access-date=17 August 2026 |via=Climate Insights Directory}}

BibTeX

@techreport{worldresourcesinstitute2021spains, author = {{World Resources Institute}}, title = {{Spain’s National Strategy to Transition Coal-Dependent Communities}}, institution = {World Resources Institute}, year = {2021}, month = dec, url = {https://www.wri.org/snapshots/spains-national-strategy-transition-coal-dependent-communities}, urldate = {2026-08-17}, note = {Indexed by Climate Insights Directory} }