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As climate impacts mount, so does the urgency of resolving the equity challenge. Those least responsible for climate change are often the most vulnerable to changes in weather patterns, sea level rise, and other impacts, further exacerbating existing inequities. Meanwhile, actions—both to address climate impacts and to reduce emissions—are intertwined with broader equity issues involving livelihoods, health, food security, and energy access.

The urgency of the equity challenge is heightened by recent negotiations for the new international climate agreement in 2015. Parties have determined that the agreement must be both “applicable to all Parties” and remain “under the Convention,” raising questions regarding equity that must be addressed by global leaders if the agreement is to build consensus and ambition.

This report offers a new approach to these challenges linking actions to combat climate change with broader equity objectives. This approach places the well-being of people and communities at the core of climate action, illustrating how well-designed low-carbon energy and adaptation policies can promote and enhance the capabilities of the most vulnerable and least well off.

This report draws on the capabilities approach formulated in the development arena by economist Amartya Sen and philosopher Martha Nussbaum. The capabilities approach recognizes that human well-being, and the realization of human rights, depends on access to a range of basic capabilities such as the opportunity to pursue a decent livelihood, to benefit from sufficient nutrition, transport, housing, physical safety, and security, and to engage in collective decision-making. Climate policies—both those reducing emissions and those adapting and building resilience to climate impacts—can contribute to protecting and strengthening these basic capabilities. This report also focuses on the capabilities of the most vulnerable or least well off because their capabilities are most at risk and in need of strengthening.

This report does not argue that a capabilities approach should become the only framework for pursuing climate equity. Rather, it proposes that the concept of capabilities offers useful guidance in achieving equitable climate action that is grounded in a thorough understanding of the geographical, social, and economic differentiation that exists among individuals and communities.

This understanding can be used to build consensus and collective ambition in the international climate agreement in 2015, as well as to support the design and implementation of policies at all scales that strengthen capabilities. Over time, this approach will build the capabilities of nations, strengthening their ability to pursue strong climate policies.