Climate Capacity in Medium-Sized German Cities: Implementation of Mitigation and Adaptation Policies with Emphasis on Sustainable Development Goals (SDGs)

Abstract

This report examines the capacity of smaller local governments in Germany to simultaneously address climate change mitigation and adaptation, focusing on medium-sized cities with populations between 50,000 and 100,000. Analysis of 194 German cities and interviews in ten municipalities reveal that while smaller cities are increasingly institutionalizing both mitigation and adaptation efforts, challenges remain in policy implementation and infrastructure development. The study highlights risks related to overambitious climate plans incentivized by external funding schemes and reliance on external experts, which may affect the realization of Sustainable Development Goals (SDGs), particularly SDG 11 (Sustainable Cities and Communities), SDG 13 (Climate Action), and SDG 17 (Partnerships for the Goals).

Introduction

Research indicates that larger cities generally exhibit greater activity in climate mitigation and adaptation due to favorable socioeconomic and political conditions, including wealth, education, and strong civil society engagement. Larger municipalities also possess greater internal capacities, such as skilled staff and financial resources, enabling more effective climate policy development and implementation. In contrast, smaller municipalities face capacity constraints, limited budgets, and less participation in transnational climate networks, which may hinder their ability to address climate challenges comprehensively.

Given these disparities, smaller municipalities may struggle to implement ambitious mitigation and adaptation policies, potentially impacting progress toward SDGs related to climate action and sustainable urban development. This report investigates the extent to which smaller German cities are addressing these challenges and the implications for SDG achievement.

Results

Desk-Based Analysis of Climate Activities in 194 German Cities

1. Mitigation and Adaptation Planning: Among 114 medium-sized cities (50,000–100,000 inhabitants), most have published climate mitigation plans, with only a few exceptions covered by regional strategies. However, fewer have developed adaptation strategies, with only 43 having published such plans by the end of 2022.
2. Comparison with Larger Cities: All 80 largest German cities (>100,000 inhabitants) had published mitigation plans, and over 80% had adaptation strategies, indicating a significant gap between larger and smaller municipalities in climate policy activity.
3. Engagement in Climate Networks and Initiatives: Larger cities are more involved in transnational climate networks, awards, and certifications, supporting SDG 17 (Partnerships for the Goals).
4. Recent Trends: Smaller cities have increased their climate planning activities since 2009 for mitigation and 2017 for adaptation, suggesting progress toward institutionalizing climate action aligned with SDG 11 and SDG 13.
5. Funding and External Support: Smaller municipalities heavily rely on federal funding, particularly the National Climate Initiative (NKI), for plan development and staffing, while larger cities more commonly fund initiatives internally.
6. Use of External Expertise: Approximately 80% of smaller cities depend entirely on external actors for producing climate plans, which may affect local ownership and alignment with municipal priorities.

In-Depth Analysis of Climate Policy Implementation in Ten German Cities

• Importance of External Funding: Interviews confirm that external funding is crucial for smaller municipalities, especially those facing financial difficulties, to develop climate plans and employ dedicated climate managers.
• Simultaneous Focus on Mitigation and Adaptation: Contrary to expectations, smaller cities strive to address both mitigation and adaptation concurrently, reflecting a holistic approach to climate action supporting SDG 13.
• Challenges in Implementation: Climate managers report spending excessive time on funding applications, with limited resources for policy enforcement and long-term infrastructure projects, risking short-termism and undermining SDG 11 and SDG 13 targets.
• Risks of Overambitious Planning: Competitive funding schemes incentivize municipalities to propose highly ambitious and sometimes unrealistic climate objectives, potentially compromising the feasibility of achieving SDGs.
• Reliance on External Experts: Dependence on external consultants for plan development may lead to misalignment with local contexts and reduced commitment to implementation.

Discussion and Conclusion

The study demonstrates that medium-sized German cities have made significant strides in institutionalizing climate mitigation and adaptation policies, contributing to the achievement of SDG 11 (Sustainable Cities and Communities) and SDG 13 (Climate Action). However, smaller municipalities remain less active than larger cities and depend heavily on external funding and expertise, which may hinder effective policy implementation and long-term sustainability.

Key challenges include capacity constraints, short-term project funding (“projectification”), and the risk of overambitious climate plans driven by funding incentives. These factors threaten the realization of SDGs and highlight the need for sustained support from higher levels of government to upscale local climate action.

Contrary to initial assumptions, smaller cities do not prioritize mitigation over adaptation but seek to integrate both, reflecting an evolving understanding of climate risks and the urgency of comprehensive action aligned with SDG 13.

The study also questions the reliability of climate plans as indicators of actual policy implementation, emphasizing the importance of qualitative research to assess on-the-ground progress and the effectiveness of climate initiatives.

To enhance SDG achievement, it is recommended that:

• Funding mechanisms be simplified and designed to support long-term climate action beyond initial planning phases.
• Capacity-building efforts focus on empowering municipal staff and fostering local ownership of climate policies.
• Greater attention be given to the alignment of externally developed plans with local priorities and contexts.
• Research expands to include smaller towns and comparative studies on policy implementation and effectiveness.

Methods

1. Scope and Context: The study analyzed climate policies in 194 German cities, focusing on medium-sized municipalities (50,000–100,000 inhabitants) compared to larger cities (>100,000 inhabitants), within Germany’s decentralized governance framework supporting SDG 16 (Peace, Justice and Strong Institutions).
2. Data Collection: Data were gathered from municipal climate plans, transnational climate networks, certification schemes, and awards. Plans were coded based on funding sources and authorship (internal vs. external).
3. City Selection for Interviews: Ten medium-sized cities with varying levels of mitigation and adaptation activity were selected for in-depth interviews with municipal staff and civil society representatives.
4. Interview Process: Eighteen interviews were conducted in autumn 2022 using structured guides focusing on institutional integration, political and societal context, financial capacities, and perceptions of climate policy ambition and implementation.
5. Analysis: Interviews were transcribed and thematically coded to identify capacity constraints, funding challenges, and implementation issues affecting progress toward SDGs.

1. Relevant Sustainable Development Goals (SDGs) Addressed in the Article

1. SDG 11: Sustainable Cities and Communities
   • The article focuses on how smaller and medium-sized German cities implement climate mitigation and adaptation policies, directly relating to making cities inclusive, safe, resilient, and sustainable.
2. SDG 13: Climate Action
   • The core topic of the article is local climate policy implementation, including mitigation of greenhouse gas emissions and adaptation to climate change impacts.
3. SDG 17: Partnerships for the Goals
   • The article discusses the role of external funding, transnational municipal climate networks, and collaboration with external experts, highlighting the importance of partnerships and cooperation.

2. Specific Targets Under the Identified SDGs

1. SDG 11: Sustainable Cities and Communities
   • Target 11.5: Significantly reduce the number of deaths and the number of people affected by disasters, including water-related disasters, with a focus on protecting the poor and vulnerable.
   • Target 11.b: Increase the number of cities and human settlements adopting and implementing integrated policies and plans towards inclusion, resource efficiency, mitigation and adaptation to climate change.
2. SDG 13: Climate Action
   • Target 13.1: Strengthen resilience and adaptive capacity to climate-related hazards and natural disasters in all countries.
   • Target 13.2: Integrate climate change measures into national policies, strategies, and planning.
   • Target 13.a: Implement the commitment undertaken by developed-country parties to the United Nations Framework Convention on Climate Change to a goal of mobilizing jointly $100 billion annually by 2020 to address the needs of developing countries in the context of meaningful mitigation actions.
3. SDG 17: Partnerships for the Goals
   • Target 17.3: Mobilize additional financial resources for developing countries from multiple sources.
   • Target 17.6: Enhance North-South, South-South and triangular regional and international cooperation on and access to science, technology and innovation.
   • Target 17.17: Encourage and promote effective public, public-private and civil society partnerships.

3. Indicators Mentioned or Implied in the Article to Measure Progress

1. Indicators Related to SDG 11
   • Number and share of cities with published climate mitigation and adaptation plans.
   • Membership and participation in transnational climate networks and certification schemes.
   • Existence of heat health action plans (Hitzeaktionspläne).
   • Declaration of climate emergencies by cities.
2. Indicators Related to SDG 13
   • Number of cities with greenhouse gas (GHG) reduction commitments and net zero targets.
   • Number of implemented mitigation and adaptation policies and infrastructure projects.
   • Amount and sources of funding secured for climate action (e.g., federal funding through National Climate Initiative (NKI), Deutsche Anpassungsstrategie (DAS), EU regional development funds).
   • Number of dedicated climate managers employed and whether positions are permanent or project-based.
3. Indicators Related to SDG 17
   • Extent of reliance on external actors (consultancies, universities) for climate plan development.
   • Level of collaboration and partnerships in climate policy development and implementation.
   • Success rate and challenges in obtaining external funding for climate initiatives.

4. Table: SDGs, Targets and Indicators

Source: nature.com