Evaluation Framework and Guidelines for the Evaluation of Distributive Justice in Climate Policy

Justice is a key guiding principle in Dutch climate policy, as set out, among other places, in the Climate Plan 2025–2035. At the same time, evaluating policy in terms of justice is complex. What is perceived as fair differs between groups and perspectives. Moreover, political choices play a role in how the benefits and burdens of policy are distributed.

Precisely because of this complexity, it is important to map the distributional effects of policy in a systematic and transparent way. This makes it possible to better substantiate policy choices and to make adjustments where necessary.

Commissioned by the Ministry of Economic Affairs and Climate Policy (EZK), CE Delft has developed an evaluation framework and methodology to assess energy and climate policy in terms of distributive justice.

Four distribution principles as a foundation
The study focuses on a fair distribution of the benefits and burdens of climate measures. In doing so, it builds on four distribution principles from the Climate Plan:

1. Climate target principle: achieving climate goals.
2. Ability-to-pay principle: contributions and support according to capacity.
3. The polluter pays.
4. The sustainability investor is rewarded.

For each principle, indicators have been developed which together form a practical evaluation framework.

From framework to application
Based on the evaluation framework, guidelines have been developed with a concrete step-by-step approach for carrying out evaluations. These guidelines help to:

• systematically map distributional effects;
• assess these effects against justice principles;
• report results in a consistent and transparent manner.

To test and refine the methodology, two pilot evaluations were conducted:

• the Investment Subsidy for Sustainable Energy and Energy Saving (ISDE);
• energy taxation.

The guidelines are not intended to deliver a final judgement on whether policy is ‘just’. Instead, it maps distributional effects and assesses them against explicit principles. This provides policymakers and politicians with a more robust basis for well-informed decisions.

Basis for future evaluations
This research report and guidelines provide a foundation for structurally incorporating distributive justice into future policy evaluations. This makes it possible to draw lessons from existing policy and to work purposefully towards more just climate policy.

CE Delft recommends applying the guidelines in upcoming evaluations, so that experience can be gained and the approach can be further refined.