During the recent DUST Consortium meeting in Katowice, Poland, we held a forum on participation in the progressing Just Transition policies in the Silesian Coal Regions. The discussion was held in Polish with representatives of an array of stakeholders: local mayors offices, Polish mining companies, mining trade unions, and local NGOs working with communities. Comments centred around the decisions taken by the government to close the last mine at the end of 2025, with a planned phase out process that aims to anticipate the necessary socioeconomic preparations. Many perspectives were shared during the session which highlighted the crucial involvement of communities and their representatives in the design of policy actions. Empowerment that respects regional identities and focuses on the development of shared visions for the future is key to a transition that is just and constructive.
Throughout the dynamic and sometimes moving discussion, many thoughts and perspectives were shared. Some of the key points in the conversation are summarised below.
The true costs of transitions: Economy and culture
At the heart of all discussions on transitions in the region are the expected impacts. It was discussed how at a decision-making level, most considerations focus on the economic costs. For many in the panel this is the key point, with some asserting that 70 000 people are expected to lose their jobs due to sustainability transitions of this type. With industry a key employer in Eastern Europe, what is to happen to vast populations when closures are called? Representatives of NGOs in Silesia believe that this may drive the recently unemployed towards more extreme political representation. For many, the urgency of transitions is not well understood, nor is the process of sustainability transitions poised to answer the simple question of what will happen to them and their families. This may lead to many backing political parties that opposite broad climate policies, in attempts to protect their livelihoods. Equally, if change does not come then what is the cost? Representatives of local Mayors offices reminded the panel of when schools were closed in 2020 because of harmful air pollution levels. The continuation of harmful industries must also be seen to be unsustainable for the health of local environments and populations. For many in the panel the question of change is one of legacy. Mining in Silesia is a cornerstone of the local culture. The sudden closure of mines in the region will raise questions beyond what to do with the remnants of heavy industry; it will threaten the cultural legacy and community structures of all of those that rely on mining in the region.
Lessons learned from previous industrial closures
For many in the panel, the main point of reference for what might occur with this transition was the closure of other mines and the shutting down of other industrial sectors in the region, for various reasons. Decision makers in the group reflected on how minimal economic support was provided in previous mine closures, especially in the areas of reskilling populations in smaller towns. They asserted that this was to be different in the urban centres Katowice, especially noting the support of the university, but raised concerns about how this might look in other smaller towns in the region. For representatives from the mining trade unions, taking note of how previous closures occurred is of vital importance. In other cases, industrial closures saw a rapid loss of jobs, leading to a destruction in the sense of life in impacted areas and subsequently increased crime rates. It will take a very long time to restore community and opportunity to these areas, highlighting the need for proper preparation in the closure of Silesia's mines.
Who are sustainability transitions for?
With so much at stake in the context of changing industries in Silesia, broader questions inevitably surfaced during the panel discussion. It was questioned by mining representations who the transition is really for. For many in the panel, the transition is about decarbonisation, seen by local communities as the result of ecological impact only ever depicted in the media to be located a world away. Closer to home, the impacts may be less understood, with little time spared to understand the composition of different local areas, and how their experiences of transitions may differ. Representatives of trade unions commented on how many miners felt akin to animals used as test subjects in medical experiments, not knowing what their future might look like or if there is one at all. Representatives of local government in the panel recognised that the transition must be for everyone, especially in the availability of alternative technologies to replace harmful industries. But many comments alluded to how key players are not involved in the deployment of transition policy. Mining companies are not eligible for transition funds and their ideas for industry reformation are rarely heard, with Polands largest trade unions not partaking in transition discussions at all, on the basis that they disgree with the closure of mines entirely. For some in the panel this is a discussion of timing and they question the readiness of Poland as a nation to depart from coal over night.
The state of participation in Silesia
Despite those who may disagree, transitions in the region are going ahead and there is a strong need for effective processes of consultation and participation. Questions were raised in the panel of who should be involved in this participation, beyond those already familiar to local governments. Many who are to be impacted by changes are without proper representation and some commented on the importance of developing proper tools to locate and connect to these groups. Representatives of local government asserted that they have strong knowledge of what participation means for the community, and robust systems to reach their populations. Equally, representatives of NGOs commented on how inhabitants themselves have the knowledge of how to reform their service provision, but that the skills to represent themselves in a complex landscape of changing policies may be lacking. Taking the time to equip communities with the capacities to represent themselves may be one way to elevate the voices of those impacted by sustainability transitions. Some in the panel suggested that this support and the elevation of grassroot opportunities in new industries will lead to communities giving up coal themselves, but the knowledge and capacity must be there. However, the question of the interest of communities in participatory processes remains. Representatives of local government commented on how participant interest in consultation processes is low, with populations more concerned with already visible impacts to their lives, such as flooding, than changes they will only see further down the line. Improper systems of information and lacking projections for the future may lead to more confusion, with citizens inserting their own expectations rather than coming together with decision makers to understand what is likely to change and how they should be preparing. Developing clear and effective ways to do this is what lies at the heart of the DUST project, to avoid (as one panelist put it) "bad consultation that is worse than no consultation at all".
The panel discussion during our consortium meeting in Katowice highlighted the mosaic of identities, histories, experiences and perspectives on sustainability transitions in Silesia. They inspired project partners to work hard towards the development of effective strategies to connect communities and decision makers, and to promote place-based policy action that is co-created with the least engaged communities. Follow us on social media to stay up to date with developments in the project and check out our case study region pages to see what's happening in your region.