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This case study was developed within the framework of the EU Mission on Adaptation to Climate Change, involving the European Environment Agency (EEA), Valencia City Council, the Regional Government of Valencia, and the Mission Secretariat. Additionally, valuable contributions were provided by Tecnalia Research & Innovation and TECH friendly through their work with the Valencian authorities
Key Messages
- A holistic approach to climate action that integrates adaptation and mitigation helps to capitalize on their synergies and to align local and regional policies.
- The involvement in the EU Mission on Adaptation and in the EU Mission on Climate-Neutral and Smart Cities boosts progress towards a sustainable and resilient urban environment.
- A robust multi-level governance framework is necessary to coordinate actions, foster synergies, and lead the collaborative implementation of EU Missions. A robust multi-level governance structure is vital for the successful implementation of climate adaptation measures.
- Utilising existing multi-level networks and collaborative mechanisms is essential for achieving effective multi-level governance. These elements offer support to local governments in the design and implementation of local adaptation strategies and actions.
Executive Summary
In València, a multi-level 'collaboration space' is being established to promote coordination between the city and the regional government, as well as foster collaboration among various stakeholders. This framework aims to address climate challenges and implement EU missions related to climate change. Supportive administration has played a vital role in establishing the new governance framework. Multidisciplinary working groups collaborated to analyze synergies and conflicts between actions, enriching the process.
Context
The case study delves into the ongoing development of a multi-level governance framework in València, Spain. This framework is designed to take a leadership role and expedite action within the context of the EU Mission on Adaptation to climate change. The so-called ‘collaboration space’ aims to establish an effective mechanism for the coordination, collaboration, and decision-making among the regional and local authorities, enabling synergies between adaptation and mitigation, and leading the collaborative deployment of the EU Missions. By doing so, it aims to establish permanent, effective and collaborative climate adaptation processes at local level.
The case study involves the Regional Government of Valencia (Generalitat Valenciana), the governing body of the Autonomous Community of Valencia (Comunidad Valenciana) and València City Council (Ayuntamiento de Valencia) and affiliated institutions. Both entities signed the Charter of the Mission on Adaptation to Climate Change, emphasizing on the need for coordination between regional and local authorities in implementing adaptation actions. València city’s participation in the EU Mission on Climate-Neutral and Smart Cities offers additional opportunities for identifying and maximizing synergies between the EU Missions.
The collaboration space results from past coordination efforts at the regional and local levels, as well as ongoing local activities and interactions with other EU Missions. The framework draws inspiration from the governance structure of the "València 2030 Climate Mission" a local mission-oriented initiative that laid the groundwork for València's participation in the EU Missions. Finally, the multi-level collaboration space is further put forward in the binding Climate City Contract signed by València city in the context of the EU Mission on Climate-Neutral and Smart Cities.
Challenges
Recent evidence from the IPCC (2022) highlights the urgency of addressing climate change and its impacts. In València, climate adaptation is now gaining prominence after years of mitigation being the primary focus of climate policy and implementation.
València is encountering challenges that are commonly shared across the Mediterranean basin. The Regional Government has already assessed the main risks and impacts of climate change in the Region of València. Anticipated temperature increases, water scarcity, droughts, and other risks are expected to negatively affect ecosystems, human health, and key economic sectors. València city has an updated climate risk assessment, considering the immediate catchment area and sensitive ecosystems. It experiences climate-related impacts such as heatwaves, droughts, flooding, sea level rise, and coastal erosion.
Both the Regional Government and València City Council have made progress in addressing these impacts through advancing climate risk assessments, raising public awareness campaigns and putting forward adaptation solutions related to sustainable water management and nature-based solutions.
In València, the authorities are striving for an integrated approach to comprehensively achieve their climate objectives. This entails fostering synergies between adaptation and mitigation, integrating adaptation goals into sector-specific policies, aligning regional and local adaptation initiatives, and increasing local awareness. Implementing this approach requires the establishment of effective mechanisms for vertical coordination, cooperation, and multi-stakeholder engagement, including government agencies, community organizations, universities, businesses, and civil society. However, establishing a multi-level governance framework to support the long-term process of climate change adaptation is a complex task that requires sufficient time and effort.
Objectives
The Regional Government and València City Council have actively participated in the climate-related EU Missions to advance their approach. València city initially joined the EU Mission on Climate Neutral and Smart Cities in 2022 in becoming climate neutral by 2030. Following the selection of the Region in the EU Mission on Adaptation to Climate Change, València city also signed the Charter. This step solidified the necessary collaboration between the region and the city in jointly addressing climate adaptation planning and implementation, while also ensuring the delivery of mitigation co-benefits.
Climate adaptation and mitigation are two sides of the same coin. As a result, the objectives of both Missions are closely intertwined and are best addressed in a integrated manner. Furthermore, these Missions aim to bring about systemic transformations, requiring extensive collaboration among various levels of administration and stakeholders beyond the traditional approach.
In València, authorities are establishing a multi-level ‘collaboration space’ to enable vertical and horizontal coordination and drive the EU Missions in an integrated manner. The objectives of this multi-level collaboration space include:
- Improving the resilience to the impacts of climate change
- Supporting the integration and mainstreaming of climate adaptation into municipal and regional planning
- Supporting regional actors in acquiring the necessary skills to effectively plan for and implement climate adaptation
- Aligning the regional and urban strategies and policies in bringing about transformational change
- Identifying and utilizing synergies and determining joint tasks within the framework of the Climate-Neutral and Smart Cities & Climate Adaptation Missions.
- Citizens’ engagement is a key focus.
Building upon legacy: long history of multi-level collaboration
The Regional Government and València City Council have a strong track record of setting up collaboration-based governance arrangements to address other challenges related to agriculture, food, waste management, protected areas or wildfire prevention. Collaboration-based and participatory governance structures for climate change and energy related objectives have also become increasingly relevant.
The Regional Government provides the enabling institutional framework, allocates resources, and coordinates and overviews adaptation actions undertaken by the local authorities falling within its jurisdiction, such as the City of València. Since 2013, the Commission for the Coordination of Climate Change Policies has been acting as an institutional coordination body to support policy-making within the region. The Valencian Climate Change Agency is also being established, as an independent advisory board, which will have several roles, including advising and monitoring on climate action. Finally, through the ‘Policy Support Facility’ under the Covenant of Mayors, the region is offering funding and technical assistance to all municipalities and help implement adaptation actions. The City of València, along with its local climate and energy institutions, such as València Clima I Energia and Las Naves, has established various local governance structures to support climate action.
The establishment of the collaboration space builds upon past coordination, partnerships, and ad-hoc governance structures at both regional and local levels. This collaborative approach has been effectively employed in various initiatives that include the European Green Capital 2024, and the Horizon 2020 funded projects ARCH (Advancing Resilience of Historic Areas against Climate-related and other Hazards) and TOMORROW (TOwards Multi-stakehOldeRs transition ROadmaps With citizens at the centre).
València established a local mission-oriented framework "Missions València 2030" to tackle its major challenges by 2030. The first local mission, the "València Neutral City Mission", focused on achieving climate neutrality by 2030 and paved the way for València's participation in the EU Mission for Climate Neutral Cities. In tandem with the city’s intention to join the EU Mission on Adaptation in 2022, the local mission expanded to include synergistic adaptation-mitigation planning. Renamed as "València 2030 Climate Mission", it integrates adaptation policies and actions into the development strategy and sectoral plans, aligning with regional and national government strategies. The local mission is linked to the València 2030 Urban Strategy and through that to the local public policy sphere, promoting systemic innovation and urban transformation.
The València 2030 Climate Mission is propelled by a multi-level coordination approach, fostering collaboration among diverse stakeholders and distributed leadership. This multi-level and multi-actor framework is called Mission Alliance. Mission Alliance embraces the concept of the "Quintuple Helix framework”, which represents the collaboration of the private sector, public sector, academia, civil society, citizens, and the media. It calls for participation from all sectors and sources of knowledge to contribute to the Climate Mission. The Alliance seeks to create numerous transformative initiatives, including public policies, entrepreneurial innovations, and personal actions, that have a systemic impact on addressing the climate crisis.
València City has now adopted a binding Climate City Contract as part of its commitment to the EU Mission on Climate-Neutral and Smart Cities. València’s Climate City Contract incorporates adaptation objectives and institutionalizes the Regional Government’s central role and participation in the city’s climate endeavours, as well as València’s multi-level governance structure. Finally, upon joint decision, València’s Climate City Contract has been ratified by the Regional Government.
Multi-level governance structure in action: New governance body to ensure resilience of L’ Horta de València
Valencian authorities have adopted multi-level governance to drive climate action and achieve vertical coordination and multi-stakeholder engagement, as well as benefit from synergies between adaptation and mitigation. This approach ensures coordination between different levels of government and maximizes the benefits of combining adaptation and mitigation efforts. L'Horta de València, a 28km2 historic agricultural site near the city exemplifies this governance model. It has been recognized as a Globally Important Agricultural Heritage System by the UN Food and Agriculture Organization and encompasses Spain's largest lagoon, Albufera, which is part of a wetland of international importance under the Ramsar Convention.
L'Horta falls under the jurisdiction of 40 local authorities, including València, and is considered a strategic site for climate action in the region. It demonstrates the positive outcomes that can arise from synergies between mitigation and adaptation. From a mitigation perspective, promoting local and sustainable food systems is a key strategy for reducing emissions, while the area's potential for carbon storage provides additional benefits. From an adaptation perspective, L'Horta's inclusion in the peri-urban green infrastructure network offers ecosystem-based services, such as reducing the heat island effect and preventing floods.
To support L'Horta's multi-functional role, a new legislative framework has been established in the past decade, addressing agriculture, land use, and governance. The Consell de L'Horta, a governance body responsible for managing L'Horta, was created with the involvement of the Regional Government, the Province, and the municipalities, including València. Additional efforts are underway at both the regional and city levels, such as the Regional Strategic Agroecology Plan and the Urban Agriculture Plan. Collaborative initiatives, like the CEMAS (World Sustainable Urban Food Centre of València), jointly established by the city and the FAO, further contribute to the collective efforts in this multi-level collaboration space.
The Valencian Solutions: Multi-level collaboration space for the EU Missions
In València, a multi-level ‘collaboration space’ is being formed to establish vertical coordination between the city and the regional government, alongside multi-stakeholder cooperation. While still under development, this adaptation governance framework aspires to enable all local actors to pursue synergies and join efforts to address climate challenges and implement the climate-related EU missions.
Adaptation to climate change requires action at various levels of government. Multi-level networks and collaborative mechanisms are essential for achieving effective multi-level governance. These elements offer support to local governments in the design and implementation of local adaptation strategies and actions (EEA, 2022). By the end of 2022, it was decided that defining a strong multi-level governance framework in Valencia was necessary to coordinate actions, pursue synergies, and lead the collaborative deployment of the EU Missions. That would require the creation and management of new multi-level governance arrangements, beyond those already active. Indeed, the multi-level collaboration space strongly relied on pre-existing networks and collaborations.
Work started by contracting a specialized technical assistance support service to guide and support the whole process. The organizational structure proposed by the technical assistance is set out in two levels. The first tier (check Figure 1) involves vertical coordination between the Regional Government, the City Council and associated agencies being in charge of steering and driving local climate policy making and implementation. It mainly comprises a Core Group that remains consistent throughout the planning and decision-making process, providing guidance and direction. Additionally, there is a supporting team consisting of representatives from institutions and boards who participate in specific initiatives as required. The second tier utilizes the city's networks, particularly the Mission Alliance, and involves other stakeholders who play an active role in implementing the city's Climate Mission.
This collaboration space plays a crucial role in facilitating leadership, promoting a just social transition, realigning regulatory and financial frameworks, and effectively managing available resources. It also supports rapid learning, fosters alliances and networks, facilitates social communication, encourages the development of new innovative and technological capabilities, and promotes capacity building.
Figure 1 Configuration of Valencia's Collaborative Space
Progress and Roadmap
The current phase of configuring the new collaboration space requires one year for implementation, starting from September 2022. Additional time may be necessary to establish any potential permanent coordinating body that could be formed.
A one-year workplan was approved in September 2022 by the Core Group to lay the groundwork for future efforts, and significant progress has been made by collaborating on the compilation and analysis of identified synergies between climate adaptation and mitigation actions undertaken by the City Council, its affiliated organizations, and the regional entities. Currently, no specific monitoring or evaluation mechanism has been established, but once the Collaborative Space is established as a permanent body, appropriate monitoring procedures will be determined.
Figure 2: Collaboration Space Roadmap
Stakeholder participation
The Regional Government and City of València have conducted stakeholder analyses to identify partnerships and collaborate closely with various stakeholders in the application and implementation of EU Climate Missions.
Workshop - Adaptation Mission in Comunidad Valènciana
The workshop on the Adaptation Mission in Comunidad Valenciana, co-organized by the Directorate General for Climate Change and the City of València, brought together experts, policymakers, and stakeholders from various sectors. It served as a crucial step in identifying areas for future projects and establishing partnerships within the collaborative space.
Public participation
Public participation and raising awareness among citizens are integral to preparing the collaborative space for EU Missions. Several initiatives at the regional and city levels promote citizens' engagement, including Climate Pact Ambassadors, Women's Climate Action Network, Environmental Education programs, and the Citizen Climate Assembly. The latter, which was legally approved recently is a forum for citizen representation that enables deliberative participation and the generation of collective knowledge and reflections on climate change. It also serves as a platform for discussing and developing public policies related to climate change.
At the city level, the collaboration space involves a multi-level and multi-actor local platform, the Mission Alliance comprising ambassador organizations, private sector entities, citizens, and influencers committed to the Climate City Contract. In addition to mobilizing the people of València, the Alliance provides information, tools, and resources to facilitate sustainable actions. It offers a platform where individuals and businesses can showcase their efforts, learn from each other, and engage in sustainable practices. By seeing others' involvement and progress, more people and organizations are motivated to participate and contribute to making València a better city to live in.
Mission Alliance consists of four levels of engagement: Engaged Citizenship, Joined entities, Ambassador Organisations, and Influential Figures. Engaged Citizenship refers to the active involvement of citizens in adopting sustainable habits, consumption patterns, and travel choices. Joined entities include small businesses and neighborhood associations voluntarily implementing sustainability measures. Ambassador Organisations are recognized for their strong commitment and innovative actions towards the Climate Mission. Influential Figures are individuals who are influential within Valèncian society and use their platform to advocate for a more sustainable world, reaching a broader audience that the public administration and other agents may not be able to reach alone.
Environmental education activities are conducted through València Clima I Energia, which manages the Climate Change Observatory, Observatory on the Road, and Energy Offices. The València Canvia Pel Clima campaign is an annual multi-stakeholder local event focused on climate change and energy transition experiences and celebrations.
Moreover, the current collaborative work between the two administrations includes a specific task related to communicating and disseminating the Missions, aiming at raising awareness and promoting citizens engagement.
Success and limiting factors
Success Factors
The creation of the multi-level collaborative space relies on established partnerships, networks, and collaborative processes that have been developed over time. This culture of collaborative administration and trust has inspired the multi-level governance concept. Also, the Regional Government and the City of València have maintained excellent communication despite working on interconnected initiatives with different timelines. For instance, while the region was still planning on the climate shelter regulations, the city was implementing its own network of climate shelters. Through collaboration and effective communication, both parties minimized the challenges and maximized the efficient use of resources.
The presence of supportive administration and political leadership has been essential in establishing the new governance framework. The collaboration of multidisciplinary working groups allowed for a deeper analysis of the whole range of synergies (and conflicts) between actions across the different work areas of both authorities, enriching the whole process. Contracting a technical assistance support service provided specialized support in the design of the collaborative space as well as on the development of the whole process.
Limiting Factors
The introduction of the multi-level collaborative space encountered obstacles during its implementation. Firstly, effectively communicating the missions to the civil society proved challenging due to the complexities inherent in communicating climate objectives. Certain messages were difficult to convey accurately, particularly to citizens who are generally unfamiliar with this field. Additionally, while stakeholders mapping had already been done, the main challenge was getting them actively involved in climate action, both in terms of mitigation and adaptation. Furthermore, being part of the first group to develop these systemic transitions meant there were no existing success stories to learn from. The need for more local staff to achieve the climate transition was highlighted in recent campaigns and studies. Breaking down organizational silos and advancing towards faster and more innovative administrative procedures was another challenge.
Costs and benefits
The project's costs primarily consist of a technical assistance contract to support the establishment of the collaborative space. Additionally, there are expenses related to staff, representation, and meetings. Assessing or quantifying the monetary benefits of the process is currently challenging as the enhanced governance is expected to have a cross-cutting influence on future climate action, which currently is difficult to assess. The costs associated with the Mission on Adaptation workshop included staff, materials, speakers, catering, and promotion, totalling €16,317.24, with staff costs amounting to €1,017.43. NextGenerationEU Funds have been used in this process, as well as own funds of the participating entities.
Legal aspects
The Spanish policy framework on climate change adaptation includes both national and regional levels. The National Climate Change Adaptation Plan (PNACC), developed since 2006, serves as the reference framework for generating knowledge and implementing adaptive responses to climate change. At the national level, Law 7/2021 on climate change and energy transition aims to achieve greenhouse gas emission neutrality and establish an efficient and renewable energy system in Spain. Title V of the law focuses on adaptation to climate change and highlights the National Plan for Adaptation to Climate Change as the key planning instrument. It provides guidelines for considering climate change in various sectors, such as water management, biodiversity protection, territorial planning, and transport.
Regional governments have developed their own strategic frameworks, plans, and programs for climate change adaptation, which are implemented through various initiatives and actions. The AdapteCCa platform provides information on these regional frameworks and actions. Currently, five regions have approved their own regional climate change laws, while two regions (La Rioja and Galicia) are in the process of adopting their laws. The regions with approved laws include Andalusia, the Balearic Islands, the Canary Islands, Catalonia, and the Valencian Region.
The urgency of climate change can lead to hasty decisions and inconsistent regulations. These regulations may deviate from climate resilience goals. Recently, the Valencian Climate Change and Ecological Transition Law was approved by the Council (Llei 6/2022, 5 de desembre, DOGV Num. 9486 / 09.12.2022), is providing a legal basis for climate change adaptation. Aligned with the European Green Deal, this regulation aims to reverse the impact of the climate emergency through targeted actions in energy, urbanism and territory, mobility, and green taxation.
The law emphasizes collaboration and participation, establishing the Valencian Climate Change and Ecological Transition Council to coordinate climate policies. It encourages the formation of Local Councils for Climate Change and Ecological Transition at the municipal level, fostering engagement and facilitating local climate action plans. Overall, this law demonstrates a strong commitment to effective governance, driving the Valencian Community toward a sustainable and resilient future.
Implementation time
The current phase of configuring the new collaboration space requires one year for implementation. Additional time may be necessary to establish any potential coordinating body that could be formed.
Lifetime
The proposed measures have an indefinite lifetime. The governance structure is subject to continuous improvement and updating should circumstances (e.g. new regulations) make this advisable.
Contact
Regional Government
Regional Government | |
|---|---|
Patricia Callaghan Pitlik | Head of the Climate Agenda 2030 Service DG of Climate Change of the Ministry of Agriculture, Rural Development, Climate Emergency and Ecological Transition. Valencian Government + 34 961 24 70 08 callaghan:_pat@gva.es |
Ciro Pascual Garrido | Technical officer of the Climate Agenda 2030 Service DG of Climate Change of the Ministry of Agriculture, Rural Development, Climate Emergency and Ecological Transition. Valencian Government + 34 961 24 86 31 |
Valencia City Council | |
|---|---|
José Villalba Ruiz | Head of the Climate Emergency and Energy Transition Service Urban Ecology, Climate Emergency and Energy Transition Area. Municipality of València +34 96 96 352 54 78 jvillalbar@valencia.es Generic e-mail: scambioclimatico@valencia.es |
Emilio Servera Martínez | Environmental Projects Officer València Clima i Energia. Municipal Foundation +34 961 061 588 emilio.servera@climaienergia.com Generic e-mail: climaienergia@climaienergia.com |
Websites
https://agroambient.gva.es/es/web/cambio-climatico
https://www.València.es/cas/energias/energias-renovables-y-cambio-climatico
References
València 2030 Climate Mission Design
València 2030 Climate Mission Communication Toolkit
València 2030 Urban Strategy Strategic Framework
València 2030 Urban Strategy Action Plan
Covenant of Mayors - Europe | Covenant of Mayors – Europe
Estrategia Valenciana de Cambio Climático 2030
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