En i onmen al Science and Policy 156 (2024) 103753
A ailable online 6 Ap il 2024
1462-9011/© 2024 The Au ho s. Published by Else ie L d. This is an open access a icle unde he CC BY-NC-ND license (h p://c ea i ecommons.o g/licenses/by-
nc-nd/4.0/).
Mul i-le el inance impac s on pa icipa ion, inclusion, and equi y:
B icolage and Fuzziness in Nex Gene a ionEU- unded ena u ing p ojec s
Julia Neidig
a
,
b
,
*
, Isabelle Anguelo ski
a
,
c
, Ai o Albaina
d
, Unai Pascual
b
,
e
a
Ins i u e o En i onmen al Science and Technology, Uni e si a Au `
onoma de Ba celona, Edi ici ICTA-ICP, Ca e de les Columnes s/n, Campus de la UAB, Ce danyola
del Vall`
es, Ba celona 08193, Spain
b
Basque Cen e o Clima e Change (BC3), Scien i ic Campus o he Uni e si y o he Basque Coun y, Sede Building 1, 1s loo , Leioa 48940, Spain
c
Ins i uci´
o Ca alana de Rece ca i Es udis A ança s, Passeig Lluís Companys 23, Ba celona 08010, Spain
d
Depa men o Zoology and Animal Cell Biology, Facul y o Science and Technology, Uni e sidad del País Vasco (UPV-EHU), Ba io Sa iena s/n, Leioa 48940, Spain
e
Ike basque, Basque Founda ion o Science, Plaza Euskadi 5, Bilbao 48009, Spain
ARTICLE INFO
Keywo ds:
Clima e inance
Mul i-le el go e nance
Nex Gene a ionEU unds
Vi o ia-Gas eiz
U ban clima e ac ion
ABSTRACT
We analyze a mul i-le el ad-hoc eme gency und (MAEF) – he Eu opean Nex Gene a ionEU p og am – as an
oppo uni y o ad ance ambi ious municipal clima e ac ion. P esen ly, MAEF ollow a e ical complex go e -
nance s uc u e, including s ic imelines, e alua ions, and compe encies sp ead ac oss policy scales, which
condi ion local aspi a ions o ans o ma i e go e nance in e ms o pa icipa ion, inclusion, and equi y.
D awing on quali a i e da a (in e iews wi h key ac o s, pa icipan obse a ions, and p ima y policy and
planning documen s), we examine he implemen a ion o Nex Gene a ionEU- unded na u aliza ion p ojec s in
Vi o ia-Gas eiz, Spain, 2012 Eu opean G een Capi al. We o e an empi ical analysis o how MAEF equi emen s
challenge locally o mula ed alues o go e nance mean o ad ance ci ic pa icipa ion, inclusion, and equi y.
Findings indica e ha he municipal dependence on mul i-le el inancing schemes ep esen s a ade-o wi h
local democ a ic go e nance, whe eby he need o slow-e and inance-de ached ci ic engagemen p ocesses
clashes wi h EU equi emen s o apid p ojec execu ion. He e, ci ic con es a ion agains he p ojec s’ p ocesses
e eals some o he co e eme gency unds go e nance weaknesses: a) a b icolage app oach a he expenses o
democ a ic go e nance, o ensu e success ul applica ions o clima e inance p ojec s and b) a uzzy p ocess
wi hou anspa en communica ion o p ojec selec ion and implemen a ion. Howe e , indings also e eal ha
he municipali y ailed o build up pa icipa ion, inclusion, and conside a ion o social equi y goals ups eam,
be o e and ou side he con ex o MAEF. This eali y calls o local decision-make s o de elop mo e anspa en
go e nance models ha help build up ci ic suppo when p ojec s a e in hei ea ly concep ion s age.
1. In oduc ion
In May 2020, he Eu opean Commission eleased i s eco e y plan o
boos i s membe s a es ou o he COVID-19-pandemic, he so-called
Nex Gene a ionEU (NGEU). Only a ew mon hs la e , Spain ecei ed
no ice o being disbu sed 77 billion Eu os in di ec ans e s and up o
140 billion Eu os in loans, o inance na ional p ojec s aligned wi h he
Eu opean G een Deal o be execu ed by Decembe 2026 (Eu opean
Pa liamen , 2023). In July 2022, he hen-mayo o Vi o ia-Gas eiz,
p oud 2012 Eu opean G een Capi al, decla ed “Today Vi o ia-Gas eiz
has ea ned again an endo semen om Eu ope. We a e on he igh
ack o become a Eu opean supe ci y, we a e on he ain o Eu ope, and
we wan o ake ad an age o i ” (Ci y-hall Vi o ia-Gas eiz, 2022a), a e
ha ing secu ed nea ly wo million Eu os o Spanish NGEU unds o
na u alizing one o i s co e mobili y axes.
As u ban clima e change adap a ion and mi iga ion p ojec s ge
olled ou unde mul i-le el clima e inance (Cause ic and Sel akku-
ma an, 2018), including sma o low-ca bon in as uc u es, ene gy
e o i ing o buildings, o ena u ing p og ams, ques ions eme ge as o
he equi y and jus ice impac s o inanced in e en ions and go e nance
p ocesses (Knu h and K ishnan, 2021; Smeds and Acu o, 2018). In his
a he as -paced echnoc a ic p ocess, municipali ies seem indeed o
ha e li le ma gin o de elop inclusi e, democ a ic, and socially inno-
a i e go e nance models ha ad ance local clima e ac ion wi hou
* Co esponding au ho a : Basque Cen e o Clima e Change (BC3), Scien i ic Campus o he Uni e si y o he Basque Coun y, Sede Building 1, 1s loo , Leioa
48940, Spain.
E-mail add ess: [email p o ec ed] (J. Neidig).
Con en s lis s a ailable a ScienceDi ec
En i onmen al Science and Policy
jou nal homepage: www.else ie .com/loca e/en sci
h ps://doi.o g/10.1016/j.en sci.2024.103753
Recei ed 10 Oc obe 2023; Recei ed in e ised o m 29 Feb ua y 2024; Accep ed 28 Ma ch 2024
En i onmen al Science and Policy 156 (2024) 103753
2
eplica ing mul i-scale inequali ies (Colenb ande e al., 2017). In
addi ion, p ojec s ope a e on s ic imelines, complex adminis a i e
ules, and build upon a g een g ow h na a i e ha has been shown o
lea e equi y and inclusi i y conside a ions aside (Ga cia-Lama ca e al.,
2021).
The NGEU embodies a mul i-le el clima e inance ool embedded in
he con ex o he global up u e o he COVID-19-pandemic. Due o he
high inancial olume and quick disbu semen o unds, hose mul i-
le el ad-hoc eme gency unds (hence o wa d: MAEF) o e municipal-
i ies wi h igh budge s he sudden oppo uni y o immedia e imple-
men a ion o cos -in ensi e, ans o ma i e clima e ac ion owa ds low-
ca bon and esilien ci ies (C escenzi e al., 2021). Being in eg a ed in a
e ical adminis a i e s uc u e o compe encies, om he Eu opean o
he municipal le el, hey howe e equi e complex decisions o e und
dis ibu ions, in e en ions being il e ed by di e en go e nmen
scales, and an e icien appa a us o mul iple public and p i a e ac o s
allowing o a mul i-le el ope a ionaliza ion (Ke n and Bulkeley, 2009).
Despi e hei high po en ial o a b oad-scale impac , MAEF a e
o mula ed a ound alues o go e nance ha condi ion o may e en
con adic local aspi a ions o ans o ma i e go e nance p ocesses. We
hus ask: To wha ex en do mul i-le el ad-hoc eme gency unds allow o
ci ic pa icipa ion, inclusion, and equi y in u ban clima e ac ion? We embed
ou analysis in he c i ical body o li e a u e ha disen angles he ole o
nes ed g een inance schemes in achie ing inclusi i y in local go e -
nance (Wes man e al., 2019; Ga cía-Lama ca e al., 2022). The no el y,
uniqueness, and inancial olume o MAEF, such as he NGEU, make i
pa icula ly impo an o unde s and how hey condi ion ac ion on he
g ound. We hence con ibu e impo an insigh s on he impac s o such
ad-hoc and e ical inancing ins umen s on local clima e ac ion and
go e nance.
We ollow wo u ban na u aliza ion p ojec s being implemen ed as o
he beginning o 2024 in Vi o ia-Gas eiz, a mid-sized ci y in he Basque
Coun y, Spain, unde he NGEU amewo k. Bo h p ojec s aim o a
na u aliza ion o inne -u ban public space ye ollow di e en a ionales
o be eligible o NGEU unds. We chose Vi o ia-Gas eiz as case ci y
gi en i s long-s anding ajec o y o g eening e o s and pa icipa ing in
EU-led ini ia i es such as he Co enan o Mayo s o he Eu opean
mission o 100 clima e neu al ci ies. The ci y has also a ained in e -
na ional ecogni ion o i s success ul clima e ac ions (Ke n, 2019;
Neidig e al., 2022).
We o e an empi ical analysis o how MAEF challenge locally
o mula ed alues o go e nance ad ancing ci ic pa icipa ion, inclu-
sion, and equi y in u ban clima e ac ion. P io o his analysis, we e iew
he li e a u e on equi y and inclusion in mul i-le el clima e inancing,
be o e con ex ualizing NGEU unds in mul i-le el go e nance p ocesses.
We hen p esen ou me hodology and case s udy con ex o Vi o ia-
Gas eiz o help iden i y he dilemmas o MAEF o local democ a ic
clima e ac ion. We pay a en ion o how ci ic-pa icipa ion, inclusion,
and equi y a e ope a ionalized in he case s udy unde he NGEU
amewo k and analyze MAEF as a possible poisoned gi o local
democ a ic go e nance. Las ly, we discuss ou indings and call o a
b icolage app oach o unding o enable a shi om uzzy owa ds
mo e anspa en and pa icipa o y p ocesses.
2. Ad ancing u ban clima e ac ion h ough mul i-le el
go e nance and inance
2.1. Mul i-le el clima e inance and he issue o achie ing u ban equi y
In he con ex o clima e u banism (Long and Rice, 2019), mul i-le el
go e nance has shi ed o e he las ew decades om hie a chical,
op-down owa ds mo e ho izon al and nes ed models, cons i u ed by
new ne wo ks o ansna ional and p i a e ac o s (Bulkeley, 2005;
Nielsen and Papin, 2021). This has seemingly a ibu ed a highe deg ee
o agency o municipali ies o ma e ialize locally inno a i e clima e
ac ion (Cas ´
an B o o, 2017). In his con ex , new o ms o clima e
inance associa ed wi h p ojec s alling unde he b oad umb ella o
low-ca bon ansi ions ha e allowed public agencies o ad ance p ojec s
di icul o inance h ough con en ional public unding (Robin, 2022;
B acking and Le el, 2021). P i a e clima e inance inc easingly o e s
public (c edi -wo hy) adminis a ions access o inancial ma ke s by
u ning u ban clima e in e en ions in o an in es men asse o mos ly
p i a e capi al (Jones e al., 2020).
By he same oken, embedding public clima e go e nance in o p i-
a e capi al ma ke s enables p i a e in es o s o ake ad an age o
a he minimal e o s unde aken o comba clima e change (Long,
2021). U ban clima e p ojec s, whose objec i e is o inc ease socie al
esilience o clima e-induced isks, a e he eby being applied a logic o
inancial cap u e, which u he s an economic g ow h na a i e o
clima e u banism while hinde ing socially o ien a ed ac ions aiming o
educe socio-ecological injus ices accele a ed h ough ma ke logics
(Ga cía-Lama ca e al., 2022; Hilb and and G a e, 2022). Local clima e
ac ion p ojec s become hen decon ex ualized, wi h he equi emen s o
inancial in es o s being p io i ized o e hose esul ing om local
communi ies’ needs (Aalbe s, 2020).
In his con ex , an inc easing body o li e a u e ocuses on so-called
g een bonds (B acking, 2019), a deb ins umen ha o e s low in e es
a es o he bo owe , e.g., municipali ies, and isk a e se in es men s
ye low e u n a es o he lende (Long, 2021; Jones e al., 2020).
P ojec s inanced h ough g een bonds a e mean o be labelled as
“g een”, ei he sel -ce i ied o elying on ansna ional ce i ica ion
schemes (Hilb and and G ubbaue , 2020). Howe e , ecen s udies
ha e shown ha inanced g een in e en ions, con a y o hei ini ial
ambi ion o enable no el p ojec s h ough da ing in es men s, employ a
business-as-usual “ lashy” app oach, pa ing he way o he g een-
washing o con en ional p ojec s (Ga cía-Lama ca and Ulls ¨
om, 2022;
Jones e al., 2020).
In p ac ice, he disbu semen o mul i-le el (p i a e) inancial ools
is also globally unequally dis ibu ed, as hey equi e ci ies o be c edi -
wo hy which complica es access o especially Global Sou h munici-
pali ies (Bigge and Webbe , 2021; Robin and Cas ´
an B o o, 2020).
In e nally, hey ha e been shown o ein o ce socio-economic exclusion
wi hin spa ial bounda ies o hose ci ies success ully a ac ing p i a e
capi al. Fo example, Ch is ophe s (2018) and Bigge and Milling on
(2020) ound ha d awing on g een bond inance o no el ansi and
wa e in as uc u es p ojec s in Washing on D.C., New Yo k, o Cape
Town has inc eased he bu den o al eady ulne able communi ies
acing highe a es o public se ices h ough he need o p oduce
inancial e u ns o g een bond in es o s. Such bu dens call o he
democ a iza ion o mul i-le el inancing and go e nance p ocesses,
based on he alues o anspa ency, accoun abili y, and equi able and
inclusi e pa icipa ion (Schala ek, 2012).
2.2. Nex Gene a ionEU unds in he con ex o mul i-le el go e nance and
inance
The ope a ionaliza ion o NGEU di e s om o he con en ional
Eu opean mul i-le el unding schemes (e.g., EU Ho izon, URBACT, o
LIFE), by i s signi ican ly la ge olume in o m o a one- ime paymen ,
hei s ic imelines in he con ex o he COVID-19-pandemic and by
decisions o e p ojec selec ion being highly poli ical and s a egic
ac oss policy scales (C escenzi e al., 2021). Wi h a budge o o e 800
billion Eu os, 723.5 billion Eu os a e being di ec ly disbu sed o EU
membe s a es (EC, 2023a). To be eligible o NGEU unds, by Ap il 2021
each membe s a e had o p esen a na ional eco e y and esilience plan
(hence o wa d: RRP) laying ou pa hways o an (economic) eco e y
om he pandemic. A minimum o 37% o each na ional RRP’s budge
had o be dedica ed o “g een” p ojec s and ano he 33% o he digi al
ansi ion. Plans we e ideally o be de eloped in collabo a ion wi h
ele an sec o s and con ain ac ions wi h a inal comple ion da e o
Decembe 2026 and an o e all aim o social and e i o ial cohesion
and gende equali y. In sho , NGEU unds we e sold as a win-win-win
J. Neidig e al.
En i onmen al Science and Policy 156 (2024) 103753
3
si ua ion “ o boos jobs and g ow h, he esilience o ou socie ies, and
he heal h o ou en i onmen .” (EC, 2020). To inance NGEU, he Eu-
opean Commission became he la ges issue o g een bonds aiming o
a olume o up o 250 billion Eu os dedica ed o p ojec s o he na ional
RRPs’ g een componen s wi h measu es “compa ible wi h in e na ion-
ally accep ed social and en i onmen al p inciples” (DG Budge , 2022)
NGEU wo ks unde a e ical mul i-le el s uc u e (Ke n and Bul-
keley, 2009). Membe s a es a e he o icial ecipien s o unds, ye hey
a e hen dis ibu ed acco ding o he na ional RRPs o he egional and
local scales, o bo h public and p i a e sec o s. To ensu e e icien
implemen a ion and alignmen o p ojec goals wi h c oss- e i o ial
agendas, ecipien s mus ollow s ic epo ing, e alua ion, and ime-
line guidelines (Dawidowicz e al., 2023). Some pe cei e his p ocess as
ein o cing neolibe al and echnoc a ic go e nance dynamics since
s anda dized p ojec epo ing consolida es ins i u ional and p i a e
ac o s as e alua o s and au ho i y (B acking and Le el, 2021; Hilb and
and G a e, 2022). In his p ocess, p ojec c edibili y is depending on
ma ke mechanisms; hus, legi imizing a op-down go e nance
app oach (Hilb and and G ubbaue , 2020).
In he case o Spain, he o al o NGEU unds a e dis ibu ed ac oss
en policy le e s di ided in o 30 componen s. Al hough municipali ies
a e ancho ing Eu opean g een and digi al s a egies on he g ound, once
p ojec s a e execu ed, na ional le el agencies a e esponsible o he
adhe ence o local p ojec s o EU policy goals (Spanish Go e nmen ,
2021). So a , in he Spanish con ex , he impac o NGEU on local
go e nance is only compa able o he 2009–2011 Plan-E (Spanish Eco-
nomic and Employmen S imulus Plan), he go e nmen al esponse o
he 2008 inancial c isis, which included he ans e o 8 billion Eu os o
Spanish municipali ies o igh unemploymen and inc ease in as uc-
u e planning in a con ex o o he wise Eu opean aus e i y poli ics.
Plan-E hence ep esen ed an unp edic able cascade o unds o ci ies as
a ee pass o any kind o p ojec , ye also allowing o misuses o unds
as e alua ion p ocesses we e lacking (Ca ozzi and Repe o, 2019;
Mon olio, 2018).
3. Da a and me hods
3.1. Da a collec ion and analysis
We ollowed Cha maz’ (2006) G ounded Theo y app oach d awing
on mul iple da a sou ces (Fig. 1): Fi s , we used pa icipan obse a ion
a six public e en s be ween 2022 and 2023, such as pa icipa o y and
in o ma o y sessions ega ding bo h na u aliza ion p ojec s, ci y-hall
o ganized con e ences abou i s long- e m g een ision, and he 2023
Eu opean Con e ence o Mayo s in B ussels. Second, in 2023 we con-
duc ed, audio- eco ded and ansc ibed 14 semi-s uc u ed in e iews
wi h Vi o ia-Gas eiz’ key in o man s, i.e., decision-make s, u ban
planne s, and ep esen a i es o neighbo hood associa ions wi h a his-
o y o in ol emen in local go e nance o explo e he con lic ing alues
being exp essed in mul i-le el inancial go e nance ope a ions. Las ly,
we conduc ed an analysis o policy documen s on he ci y, egional,
na ional, and Eu opean scale ega ding he mul i-le el execu ion o
NGEU unds and complemen ed hose wi h local media a icles con-
ce ning he wo u ban na u aliza ion p ojec s.
We coded hese h ee da a sou ces as we collec ed hem, using he
so wa e N i o. This p ocess helped o con inuously e ine ou ini ial
esea ch ques ions and da a collec ion (Cha maz, 2006). Codes eme ged
a ound he con ex , his o y, and p ojec phases o bo h na u aliza ion
p ojec s; ela ionships be ween (non-ins i u ional and ins i u ional) ac-
o s; con o e sies su ounding he Eu opean inance and o e all p ojec
aming; di e en alues o go e nance ac oss policy scales, including
e iciency, equi y, inclusion, g een inno a ion/ expe imen a ion, eco-
nomic g ow h, mul i-le el adminis a ion; and amings o na u e/-
na u aliza ion. A e a iangula ion o hose di e en da a sou ces, we
na owed he analysis on he challenges o local go e nance unde a
mul i-le el ope a ionaliza ion on equi y, ci ic pa icipa ion, and
inclusion (see Fig. 2).
3.2. Case s udy con ex
Following he 2012 Eu opean G een Capi al awa d, Vi o ia-Gas eiz
success ully a ac ed compe i i e Eu opean unding, such as EU Ho i-
zon, Li e+, and In e eg, ha helped inance small-scale g een in a-
s uc u e and mobili y in e en ions. In addi ion, ecen MAEF, i.e., he
Spanish Plan-E, ha e enabled la ge-scale u ban ans o ma ions,
including a comple e edesign o he public anspo ne wo k h ough a
comp ehensi e pa icipa o y p ocess, and a pilo supe block (wi h a cos
o i e million Eu os). Fi een yea s la e , NGEU unds a e expec ed o
ha e a simila impac , as he ci y has secu ed unds o mul iple p ojec s,
such as he implemen a ion o low-emission zones, pedes ianized a eas,
and a ully digi alized pa king sys em.
In his pape , we ocus on wo NGEU- unded p ojec s ha ollow he
same objec i e o g eening public space ye a e adminis e ed unde
di e en componen s o he Spanish RRP. The Los He ´
an S ee p ojec
aims o he na u aliza ion o a main u ban a ic axis and alls unde
he Spanish RRP’s second policy le e o esilien in as uc u es and
ecosys ems and i s componen #4 o ecosys ems’ conse a ion and
es au a ion. The Old Town’s na u aliza ion p ojec h ough mic o-
g eening in e en ions belongs o he i h policy le e o mode nizing
and digi alizing Spanish indus ies and i s componen #14 a ge ing he
compe i i eness o he ou ism sec o .
Bo h p ojec s a e in neighbo hoods wi h ewe g eenspaces and
lowe ecological quali y compa ed o he es o he ci y (Azna ez e al.,
2023) and we e al eady pa o he ci y’s 2014 U ban G een In a-
s uc u e P oposal
1
(hence o wa d: UGIP) aiming o an inne -ci y g een
bel and ne wo k o g een co ido s. On pape , he UGIP builds on an
inclusi e go e nance app oach, “ equi ing a consensus on [p ojec ] needs
and associa ed bene i s” h ough sha ed in o ma ion, aised awa eness,
and widesp ead ci izen pa icipa ion as o design and implemen a ion
(UGIP 2014). O g ea impo ance is he alignmen o local g een
in as uc u e p ojec s wi h Eu opean biodi e si y and clima e goals
(Ma anon, 2020).
4. The Dilemmas o mul i-le el go e nance o local democ a ic
clima e ac ion
Ou analysis o he deploymen o la ge-scale EU unds in Vi o ia-
Gas eiz e eals he challenges o mul i-le el go e nance o building
clima e ac ion in ways ha can u he local democ a ic p ac ices.
Nex , we p esen he wo u ban na u aliza ion in e en ions and
hei mul i-le el ope a ionaliza ion wi hin he NGEU amewo k (sum-
ma ized in Table 1). We ocus he e on how ci ic pa icipa ion, inclusion,
and equi y a e challenged by he na u e o NGEU unds mobilized o he
p ojec s (Fig. 2). We use hese h ee componen s o democ a ic local
go e nance as ou analy ical lens o examine he con lic ing isions o
“g een” embedded in he p ojec s. We explo e he ensions be ween
ins i u ional isions associa ed wi h shallowe meanings o g een (i.e.,
in es ing in aes he ic g een elemen s) unde an economic g ow h
pa adigm, and a ision o deepe socio-g een ans o ma ions (e.g., he
e o i ing o low-quali y housing and heal h ca e se ices).
We e e o ci ic pa icipa ion as a p ocess o in ol ing non-
ins i u ional ac o s such as neighbo hood esiden s and collec i es
h oughou he di e en phases o a gi en u ban clima e p ojec , and o
co-go e nance o he p ojec s and associa ed plans (Lis e bo n, 2008).
Inclusion e e s o he ecogni ion o esiden s´in e sec ing needs in he
p ojec designs, wi h speci ic emphasis on hose his o ically ma ginal-
ized in planning p ocesses (Amo im-Maia e al., 2022; Cal-
de ´
on-A gelich e al., 2023) and o he plu al meanings linked o a g een
1
O iginal name in Spanish: documen o de p opues a de la in aes uc u a
e de u bana de Vi o ia-Gas eiz
J. Neidig e al.
En i onmen al Science and Policy 156 (2024) 103753
4
ci y (Neidig e al., 2023). Las ly, equi y e e s o he jus ice componen s
o he p ojec s, ocusing on he conside a ion o b oade socio-economic
needs o u ban esiden s in he na u aliza ion p ojec s (Anguelo ski
e al., 2020).
We hen deepen he analysis by examining he go e nance ensions
embedded in hose unds in which municipal dependency on MAEF
ansla es in o a b icolage app oach d i en by a uzzy go e nance, e.g.,
h ough lacking anspa en communica ion.
4.1. The challenge o ci ic-pa icipa ion, inclusion, and equi y in MAEF
4.1.1. Case 1. Na u aliza ion o Los He ´
an S ee
4.1.1.1. P ojec con ex . Los He ´
an S ee is one o he ci y’s majo
Sou h-No h a ic axes. The p ojec en ails se e al g een in e en ions,
including mobili y ans o ma ions ( ia a ic calming, pedes ianiza-
ion, and p io i iza ion o bike and public anspo ) and he imple-
men a ion o u ban g een in as uc u es (e.g., a mul i-use pa k wi h
play equipmen , small o es and wa e a eas, u ban ga dens and g een
co ido s, and he eco e y o an unde lying s eam o ainwa e
d ainage and cooling sys em in hea wa es). The p ojec is amed in
e ms o clima e change adap a ion, local e ail e i aliza ion, and he
p o ision o inclusi e g eenspaces while educing inne -ci y a ic and
associa ed emissions (Ci y-hall Vi o ia-Gas eiz, 2022b).
P ojec s unde he RRP’s second policy le e o esilien in-
as uc u es and ecosys ems all unde he Spanish Minis y o
Ecological T ansi ion and Demog aphic Challenge ha ans e ed he
managemen o u ban na u aliza ion and esilience p ojec s o he
go e nmen al Fundaci´
on Biodi e sidad (hence o wa d: FB), a na ional
ounda ion campaigning and suppo ing p ojec s o coun e ac biodi-
e si y loss. FB is esponsible o p ojec selec ion and adminis a ion,
ensu ing ha selec ed p ojec s inc ease u ban g een in as uc u e,
h ough ecosys em es o a ion and educed habi a agmen a ion (BOE,
2021). Recipien adminis a ions a e encou aged o ake cha ge o mos
p ojec componen s inhouse, especially he implemen a ion o he
equi ed pa icipa o y p ocess.
4.1.1.2. Ci ic pa icipa ion, equi y, and inclusion. Ea ly d a s o he Los
He ´
an S ee p ojec i s appea ed in he ci y’s lagship g een s a e-
gies, including he 2007 Sus ainable Mobili y and Public Space Plan
which p oposed a ci y-wide implemen a ion o “supe blocks”. The
p ojec hen became mo e speci ic unde he 2011–2015 municipal
go e nmen (led by he Spanish conse a i e Pa ido Popula ) ye did
no mo e o wa d due o he incapaci y o secu ing unding. Only in July
2022 did he b oade public, including he go e nmen ’s opposi ion
pa ies, became awa e o he de ailed new p ojec . The ins i u ional
na a i e o he p ojec o he hen-leading conse a i e Basque
Na ionalis Pa y (PNV) s ongly ma ke ed he ini ia i e o i s Eu opean
NGEU unding as an oppo uni y o become a “Eu opean supe ci y”
(Ci y-hall Vi o ia-Gas eiz, 2022a).
Howe e , he Los He ´
an S ee p ojec emains limi ed in i s ci ic
pa icipa ion componen s. Ou documen and in e iew analysis e eals
ha , coinciding wi h he municipal elec ions, PNV used he poli ical
campaign o announce he NGEU unding mechanisms and un a el he
p ojec in a qui e cen alized manne . The hen-mayo and councilo
pa icipa ed in s ee ac ions (Pho o 1) and an in o ma ion session o
Fig. 1. Da a ypes and sou ces.
J. Neidig e al.
En i onmen al Science and Policy 156 (2024) 103753
5
Fig. 1. (con inued).
Fig. 2. Analy ical amewo k.
J. Neidig e al.
En i onmen al Science and Policy 156 (2024) 103753
6
he b oade public (a ended by a ound 200 neighbo s). This p ocess
was accompanied by s ee su eys o gauge esiden s’ opinion a ound
he p ojec – 68% o esponden s we e seemingly in a o , – and o
collec “sugges ions and complain s” (I06, ci y-council). While membe s
o he ci y-council con i med in in e iews he impo ance o an in o -
ma o y “pa icipa o y” p ocess, hey also s a ed ha a imes pa ici-
pa ion isks going agains clima e mi iga ion goals – a con adic ion o
he unding scheme ha highligh s he impo ance o ci ic pa icipa ion.
As an elec ed o icial explains:
“The p ojec is mo e o less de ined; he e can be limi ed pa icipa-
ion, bu mos hings will be like in he p oposal. Some may say [ he
poli icians] igno e pa icipa ion. Bu you canno s a o lis en o
e e yone who ells you hey wan o d i e hei ca inside he ci y,
(…), you mus be b a e and say we know, his is good o he ci y,
his comes om an analyzed s a egy con i ming i will be posi i e.
E en i [ he ci izens] complain, we mus mo e o wa d. (I06, ci y-
council)
While o he p ojec s o his scale usually d aw on c oss-depa men al
collabo a ion, his p ojec has exclusi ely been deal wi h by he hen-
Mayo ’s Communica ions O ice. In jus a ew mon hs and by Augus
2023, con ac s wo h 12 M Eu os we e signed, o be execu ed wi hin 20
mon hs (Ci y-hall Vi o ia-Gas eiz, 2023). The cen alized go e nance
app oach, absen o communica ion leading up o he p ojec
announcemen and o ci izens’ in ol emen in p ojec design, led o
s ong in e nal c i icism o echnical s a and opposi ion pa ies:
“Be o e you announce i o he p ess, you can in o m ha he e may
be a p ojec like his, e en i you don’ gi e all he de ails. Bu , well,
he e has been no hing (…). We would ha e liked o be in ol ed and
pa icipa e om he beginning and no ha e lea ned abou i om
he media. (…) The neighbo hoods (…) also hea d abou i h ough
he media. Yes, he e ha e been s ee ac ions o explain he p ojec ,
a ew in o ma o y sessions, bu his is no enough. The e mus be
mee ings wi h he neighbo hood o, oge he wi h hem, p opose he
bes op ions. Because i no , wha can occu is esis ance o his ype
o p ojec and we a e alking abou some hing e y c ucial as igh ing
clima e change.” (I08, ci y-council)
Despi e his c i icism, he p ojec ou come was no ejec ed by he
municipal opposi ion, which highligh s ha g eening ends o be a
a he consensual pos -poli ical ision in local poli ics (Neidig e al.,
2022).
F om a social equi y s andpoin , ou analysis e eals ha he p ojec
does no en ail any clea measu e o add ess socio-economic exclusion,
especially he needed ehabili a ion o he wo king-class neighbo hood
building s ock and o a cen e o elde ly esiden s, which many o he
ac i e neighbo hood collec i es see as a unding p io i y (I01, I11, E05).
Los He ´
an S ee s is a a ic axis c ossing se e al o he ci y’s mainly
wo king-class neighbo hoods de eloped in he 1950–60 s. Much o he
housing s ock in adjacen neighbo hoods is classi ied as “deg aded” due
o p oblems o hea insula ion, humidi y, and accessibili y. Those
neighbo hoods a e cha ac e ized by an aging popula ion, unemploy-
men a es abo e ci y a e age, and a lack o e ail op ions (Ensanche,
2018)
Despi e esiden s’ o e all suppo o imp o ing Los He ´
an S ee ,
ci ic c i iques ha e eme ged, especially amed a ound inclusion. Resi-
den s poin he e o he lack o consul a ion and conside a ion o speci ic
local needs, which planne s jus i y by lamen ing he s ic imelines and
p ojec equi emen s pu o wa d by he RRP. This c i ique became
exempli ied by a pe i ion ini ia ed in Sep embe 2023 by a local spo
jou nalis who called o p ese e he campos neg os (Pho o 1), he black
ields, an asphal ed spo s a ea being used by local, La ino and Pakis ani
communi ies and impo an iden i y-shaping space o he ci y’s his o ic
i s league Baske ball club. He e, di e en ideas o inclusion a e
clashing as municipal planne s en ision a mode n pa k in place o he
deg aded space, allowing o gende inclusi i y and mul i-uses ins ead
Table 1
Summa y o p ojec s’ mul i-le el ope a ionaliza ion.
Los He ´
an S ee P ojec Old Town
na u aliza ion p ojec
Spanish RRP
componen s
Policy le e #2:
Resilien In as uc u es &
Ecosys ems
Componen #4:
Conse a ion &
es au a ion o ecosys ems
( h ough, e.g., u ban g een
in as uc u e o educed
u ban habi a
agmen a ion).
Policy le e #5:
Mode niza ion &
digi iza ion o indus ial
& ou ism sec o s
Componen #14:
Mode niza ion &
compe i i eness o he
ou ism sec o ( h ough
g eening and
digi aliza ion measu es).
Adminis a ion o
RRP componen s
Responsible en i y:
Fundaci´
on Biodi e sidad
(unde he Spanish Minis y
o Ecological T ansi ion &
he Demog aphic
Challenge)
Assessmen o municipal
p ojec applica ions based
on 1) an en i onmen al
impac assessmen , 2) a
long- e m u ban s a egy,
such as a g een
in as uc u e, mobili y, o
sus ainabili y plan & 3) a
p ojec -speci ic s a egy o
go e nance & pa icipa ion,
communica ion &
awa eness- aising, and
moni o ing.
Responsible en i y:
Depa men o Tou ism,
Comme ce & Consume o
he Basque Go e nmen
(unde he Spanish
Minis y o Indus ies,
Comme ce and Tou ism)
Assessmen o local
Tou ism Sus ainabili y
Plan a Des ina ion co-
de eloped by na ional,
egional, and local
adminis a ions and local
p i a e ac o s. Two
e alua ion ounds: i s by
he espec i e egional
minis y, second by he
na ional minis y o
assu e alignmen o local
plans wi h he egional &
na ional ou ism
s a egies.
Objec i es o local
p ojec s
Clima e change adap a ion,
economic e i al o local
comme ce, inclusi e
g eenspaces, educ ion o
inne -ci y emissions.
Added g een aes he ic
alue, inc eased ou ism
sec o , ecological
connec i i y, social
cohesion h ough co-
main enance.
In e en ions o local
p ojec s
Mobili y in e en ions
( a ic calming,
pedes ianiza ion,
p io i iza ion o bike &
public anspo ) &
p o ision o u ban g een
in as uc u es (mul i-use
pa k wi h na u e-based play
equipmen , o es , wa e
a eas, ga dens, g een
co ido s, eco e y o an
unde lying s eam o
ainwa e d ainage and
cooling sys em).
Small-scale g eening
in e en ions in na ow
s ee s & squa es (e.g.,
g een acades, g een
oo s, pocke pa ks, g een
u ni u e such as po s o
ees, imp o emen s o
exis ing g eenspaces)
based on co-design and
co-managemen by
municipal echnicians &
neighbo hood esiden s.
Pa icipa o y
p ocess, inclusion,
and social equi y
Al hough equi emen by
he unding scheme, only
“in o ma o y”
pa icipa ion. Lack o
s uc u al in e en ion o
add ess poo quali y
housing and social se ices
and lack o conside a ion o
esiden s’ demands and
his o ic place a achmen s
in hose a eas.
No equi ed by unding
scheme ye embedded in
he p ojec s’ long- e m
ision ( h ough co-design
and -go e nance).
Economic de elopmen
o isi o s p io i ized
o e esiden s’ social
iden i y and o e hei
o ganizing o bo om-up
g eening.
Financial
con ibu ions o
NGEU o local
implemen a ion
P ojec ed cos s o a o al o
13.5 Mio
€
o which a ound
1.9 Mio
€
will be inanced
h ough NGEU unds
(announced in July 2022).
2.8 Mio
€
o he i s
phase o he PSTD
(announced in Decembe
2021) o which 355.000
€
a e dedica ed o he
na u aliza ion o he Old
Town; 2.59 Mio
€
o he
second phase o he PSTD
(announced Decembe
2022)
J. Neidig e al.
En i onmen al Science and Policy 156 (2024) 103753
7
o designa ed a eas o compe i i e and o en male-domina ed spo s.
Howe e , he planne s’ p oposed design isks o e unning he neigh-
bo hood’s his o ic place a achmen ha g ew a ound mul i-cul u al
compe i i e spo s. A membe o he adjacen neighbo hood associa-
ion explains:
“The campos neg os usually ga he immig an s, bu also s uden s
om adjacen schools, who in hei ee ime go he e o play
baske ball and oo ball. Then he e is usually a Sou h Ame ican
g oup ha plays a lo du ing weekends, and people o Pakis ani
o igin who play c icke . I is a place used by all he people. We ha e
no idea wha hey wan o do wi h i , i seems hey wan o make i
g een, bu wi h a i icial g ass. (…) And hen, hey don’ wan o pu
games ha a e compe i i e. Please, i ’s a big enough place so ha all
he people can be he e, ….” (I01, neighbo hood associa ion)
4.1.2. Case 2: Na u aliza ion o he Old Town
4.1.2.1. P ojec con ex . The Old Town’s na u aliza ion is one o se e al
in e en ions unde Vi o ia-Gas eiz’ Tou ism Sus ainabili y Plan a
Des ina ion (in Spanish: Plan de Sos enibilidad Tu is ica en Des ino,
hence o wa d: PSTD) de eloped unde he RRP. I includes he na u-
aliza ion o he Old Town’s emblema ic na ow s ee s and squa es
h ough small-scale in e en ions such as g een acades and oo s,
pocke pa ks, g een u ni u e, and imp o emen s o exis ing g eenspaces
(Paisaje T ans e sal, 2022) (Pho o 2). The in e en ion aims o added
aes he ic alue, ecological connec i i y, and social cohesion, building
upon a long- e m p ocess o space co-design and -managemen oge he
wi h municipal echnicians and neighbo hood esiden s.
P ojec s unde he RRP’s i h policy le e belong o he Spanish
Minis y o Indus ies, Comme ce and Tou ism which hen alloca es
unds o he 17 egional minis ies o ou ism and local ecipien en i ies.
The objec i e is o gene a e a compe i i e g een and digi al ou ism
sec o by in ol ing p i a e ac o s and by na u aliza ion ini ia i es
con ibu ing o he sec o s’ economic g ow h. Special a en ion is
u he a ibu ed o he adminis a i e equi emen s o e alua ing im-
pac s o he local PSTD ha helps gene a ing “knowledge de i ed om he
collec ion, analysis and in e p e a ion o in o ma ion, (…) and i s e ec s on
he ou ism sec o .” (Spanish Go e nmen , 2023).
4.1.2.2. Ci ic pa icipa ion, equi y, and inclusion. The ini ia o o he Old
Town’s na u aliza ion ision is he En i onmen al S udies Cen e
(Spanish ac onym: CEA), a municipal en i onmen al hink- ank wi h
budge s app o ed by he ci y-council. Founded in 1995, he cen e has
been he d i ing o ce behind mos o he ci y’s g een ini ia i es, which
has gua an eed local- o-in e na ional ecogni ion and suppo ac oss
poli ical pa ies (Neidig e al., 2022). Ou analysis o in e iews e eals
ha , p io o secu ing budge , in 2020 he CEA s a ed o wo k on he
Old Town g eening ision based on a p ojec co-design and
co-main enance oge he wi h neighbo hood esiden s. The i s p ojec
p esen a ion o he ci y-council ecei ed posi i e suppo ac oss all po-
li ical ac o s:
“The ecep ion was e y good. (…) All he poli ical pa ies old us: "i
will be an ambi ious p ojec , bu s a doing hings, e en i you ail".
In o he wo ds, e e ybody hough ha i would be e y di icul ,
Pho o 1. le : In o ma ion boo h p esen ing he Los He ´
an S ee p ojec ; igh : he campos neg os, (eng: black ields) wi h hei cu en use as baske ball ields, o
be ans o med (pho os by he au ho s, May 2023).
Pho o 2. le and middle: p ojec ende ing o he Old Town p ojec ( om Paisaje T as e sal, 2022); igh : one o he na ow Old Town s ee s as possible space o
small-scale g eening in e en ions (pho o by he au ho s, June 2022).
J. Neidig e al.
En i onmen al Science and Policy 156 (2024) 103753
8
ha we a e going o make many mis akes, bu ha we should s a o
in e ene.” (I05, CEA)
The p ojec ’s objec i es i well wi hin he o e all ins i u ional
g eening discou se ocusing on he alue o g eening h ough p og es-
si e u ban expe imen a ion (Neidig e al., 2022), in his case a new o m
o mic o-landscaping wi hin a cons ained his o ic mo phology. None-
heless, he ci y-hall has hus a only minimally communica ed he
p ojec o he b oade public, especially in ela ion o he NGEU unds
inancing i .
The p ojec ’s ci ic pa icipa ion aspec has so a been limi ed in scope
and a endance success. Following an ini ial assessmen o possible
g een in e en ions by an ex e nal a chi ec u e s udio in June 2022, he
CEA and he a chi ec s o ganized wo pa icipa o y wo kshops o os e
us wi h neighbo s (E01, E03, I04, I05, I09). Despi e being in a
neighbo hood wi h an es ablished social ab ic and adi ion o ac i ism,
a endance was low, wi h only six non-ins i u ional pa icipan s in he
i s and en in he second wo kshop. O ganize s acknowledged ha he
p ojec budge was pending app o al, despi e he a ailabili y o NGEU
ou ism unds o be implemen ed by 2026 (E01, E03, I04, I05). Since
hen, he CEA has been planning campaigns o aise awa eness,
encou age ci izen pa icipa ion, and p omo e collabo a ion among ac-
o s, emphasizing he p ocess-o ien a ed na u e o he p ojec . Ye ,
wi hou a clea imeline, he impac o speci ic ac ions emains qui e
poo , including planned ini ia i es such as a neighbo hood compe i ion
o he “g eenes balconies”, o which plan s, po s, and g owing in-
s uc ions will be gi ed o esiden s.
Simila ly o he Los He ´
an S ee p ojec , he g eening o he Old
Town is ocused on a limi ed de ini ion o g een in e en ions and a
negligence o deepe social equi y goals. The neighbo hood aces poo
housing quali y, ene gy po e y, and limi ed accessibili y. While many
o he neighbo hood’s Sou he n esiden ial buildings ha e been upg a-
ded, pa ly h ough a p ocess o ea ly gen i ica ion, he Old Town’s
No h emains deg aded, wi h a high pe cen age o lowe -income
o eign-bo n esiden s li ing in social ulne abili y. In esponse, ci ic
ac i ism is di ec ed agains ci y-hall s a egies ha seemingly ocus on
he economic e i al o he zone ye neglec u gen issues a ound he
poo quali y o especially immig an amilies’ homes and o neighbo -
hood heal h se ices, as a membe o he neighbo hood associa ion
ela es:
“The e ha e always been ensions wi h he ci y-council, because hey
ha e always been mo e conce ned abou he neighbo hood’s image
han abou esiden s’ ac ual needs, which a e housing, he e y old
heal h cen e … (…) So, he ci y s a ed p oposing ehabili a ion
p ojec s, bu igno ed ou social needs o many yea s. The e was a lo
o ne wo king o di e en local g oups o denounce his and o c ea e
al e na i es. We c ea ed a pla o m and made a e y la ge diagnosis
o he social needs. (…) In ha sense, i is a e y ich neighbo hood
wi h a powe ul and indic i e neighbo hood associa ion.” (I09,
neighbo hood associa ion)
Neighbo hood ac i is s a e aming a coun e -g een and - ou -
is i ica ion discou se ha p io i izes he inclusion o esiden s’ needs,
emphasizing social cohesion, social o ganiza ion, and neighbo hood
iden i y. They u he denounce he ins i u ional municipal ocus on he
economic e- alua ion o he e i o y as a ou ism si e, cen e ed a ound
a beau i ica ion and museumi ica ion o he his o ic ab ic. Thei
mis us owa ds ins i u ional p ocesses is e lec ed in he poo a en-
dance o he wo kshops ini ia ed by CEA. Du ing hose sessions, esi-
den s exp essed ha hey “did no wan ano he bo anical ga den no a
ou is ic a ac ion pa k” (au ho s’ ieldno es E01, E03) d i en by a
g een aes he ic.
This lack o us in ensi ied in he con ex o a bo om-up ini ia i e
eme ging om se e al collec i es, aiming o c ea e a playg ound co-
designed wi h child en on a o me Old Town pa king lo . Back in
2018, looking o unding, neighbo s had pa icipa ed in an annual ci y-
wide compe i ion, h ough which all esiden s could o e o one p ojec
submi ed by o he esiden s and collec i es. The winning p ojec known
in Basque as “Hau en Auzoa” (kids’ neighbo hood) was mean o
ecei e municipal unding owa ds i s execu ion. Howe e , in 2021–22,
he ini ia i e became ins umen alized by he municipali y which, unde
a ma ke ed bo om-up p ojec aiming o child en-inclusi e planning,
amed a ision o he economic e i al o he a ea. This p ocess c ea ed
much esen men among esiden s, who c i iqued he lack o inclusion o
esiden s’ social needs and o sel -o ganized ini ia i es. An in e iewee
om he neighbo hood associa ion explains:
“A ha ime, he [ci y-hall] decided o p io i ize o he p ojec s and
old us he e was no money. Then he pandemic came. In he
mean ime, he PNV b ough i up in he media as he s a p ojec o
he Old Town´s ehabili a ion plan. We we e e y ang y, i ’s no a
p ojec wi hin he ci y’s ehabili a ion plan. This is a p ojec ha
a ose om he neighbo hood´s needs. (.). Then hey also p esen ed
he p ojec in some Nex Gene a ion g an s o p omo e sus ainable
ou ism, and we we e like, wha do you mean, o p omo e sus ain-
able ou ism? Wi hou asking us, hey used ou documen s o he
applica ion. The pa k is now done and e y nice, i is used a lo , (…)
ha pa is ul illed, bu he p ocess o he ci y-hall was a disas e .”
(I09, neighbo hood associa ion)
In sum, he p ojec has wo con adic ing goals which s em om he
way in which unds a e amed and managed: On he one hand, NGEU
unds a e a icula ed o omen he economic g ow h o he ou ism
sec o , in which na u aliza ion con ibu es o he beau i ica ion o a
his o ic neighbo hood and is ul ima ely expec ed o ansla e in o he
economic e- alua ion o he a ea. On he o he hand, he na u aliza ion
h ough an en isioned slow pa icipa o y p ocess is on pape supposed
o enhance en i onmen al awa eness, quali y o li e o esiden s, and
social cohesion ac oss neighbo s. Ye , esiden s’ o ganiza ion agains he
ou is i ica ion o he ci y’s emblema ic his o ic cen e , pa ly inanced
by NGEU unds, means ha hey a e eeling “ o ced” o lea e he en i-
onmen al bene i s o he p ojec aside o de end he adi ional iden i y
o hei neighbo hoods.
4.2. The poisoned gi o ecei ing mul i-le el ad-hoc eme gency unds o
local democ a ic go e nance?
D awing on his analysis, his second sec ions examines he go e -
nance ensions a icula ed by local planne s and echnicians. Resul s
ind ade-o s be ween a) a municipal need o p oduce an e icien
unding b icolage ha may hinde co-p oduced u ban clima e p ojec s
and b) a p io i iza ion o anspa en jus i ica ion by ins i u ional ac o s
o e a uzzy go e nance app oach o ensu e esiden s’ suppo o
p ojec implemen a ion unde MAEF.
Fi s , as NGEU unds a e being disbu sed, local go e nmen s ind
hemsel es apped be ween MAEF equi emen s and comp omising
localized isions o a “slow-e ” go e nance ha would p io i ize dem-
oc a ic clima e ac ion. Du ing se e al in e iews, he ci y poli ical and
echnical leade s sha ed hei dependence on NGEU unds and he need
o c ea i ely ha ness hei capaci y o ob ain hem h ough a “b icolage”
app oach, e en when p ojec s migh i s be unpopula , also o achie e
hei ambi ious clima e goals. Access o MAEF such as NGEU is acili-
a ed by municipal agencies g abbing on o s a egies and p ojec p o-
posals eady o be pulled ou o calls wi h sho applica ion imelines, as
esponden s explain.
“This is a s a egy ha comes om Eu ope. Eu ope is elling you wha
o do and how o do i (…). I is an oppo uni y o us, o he wise ou
a e o in es men would ha e been much wo se, we would no ha e
enough money o in es . As small local en i y, we mus always be
connec ed o highe ins i u ions ha gi e you su icien unding.”
(I06, ci y-council)
J. Neidig e al.
En i onmen al Science and Policy 156 (2024) 103753
9
“They a e saying he NGEU unds a e o poli icians o show o . The
p ojec s ha we ha e done a e some imes unpopula . Bu o cou se,
when Eu ope gi es you money, you mus ake ad an age o i . You
don’ know i i is going o bene i o ha m you, bu you mus do i .”
(I07, ci y-council)
The s uc u e o his mul i-le el unding en i onmen also inc eases
an al eady exis ing gap in access o o mal unding sou ces be ween
ci ies wi h a lowe economic and echnical capaci y, o en mo e
ulne able o clima e impac s, and hose mo e g ea ly p epa ed o apply
o unds (Knu h and K ishnan, 2021; Robin and Cas ´
an B o o, 2020).
Al hough such new inance sou ces a e p aised o hei abili y o sup-
po p ojec s o he wise di icul o und, Vi o ia-Gas eiz’ planne s ex-
p ess ha bo h p ojec s would ha e been unded e en ually due o he
ci y’s leade ship in clima e u banism: “When he e a e plans, i is easie
o ob ain inancing. And we knew ha he [Old Town] p ojec would be
unded. Then, NGEU appea ed. Those who ha e some hing p epa ed,
e en i a he le el o an idea, ha e i easie .” Responden s u he
highligh he b icolage unding app oach, by olding g eening goals in o
ou ism p ojec s: “One o he NGEU is associa ed wi h ou ism, i em-
phasizes he his o ic cen e , so ha was a possibili y o us o include ou
g een in as uc u e p ojec ” (I05, CEA).
Accessing MAEF, al hough an oppo uni y o ma e ialize ambi ious
clima e goals, poses hence he isk o being a poisoned gi o local
democ a ic go e nance. Thei suppo o achie ing local clima e ob-
jec i es may no be seen by esiden s and migh e en be unde mined by
ci ic ac ion which would o he wise be mo e suppo i e. This dynamic
ul ima ely challenges he success ul ou come o local clima e ac ion.
Local decision-make s, iewing c oss-scale go e nance as p og essi e
policymaking, exp essed his dilemma o ob aining ci izen suppo o
goals ha migh be ambi ious o a ci y (clima e-wise), bu migh no
s and wi hin esiden s’ p io i ies.
“The local adap a ion o his Eu opean discou se wi h i s much mo e
global ision is eally complica ed. You ha e o ansmi i o he
ci izens, so hey unde s and why we a e doing hings, ha i is no
jus an o e nigh idea. Some imes, we may ha e a discou se a bi
close o his Eu opean ision, we a e b a e. A a poli ical le el,
being b a e has he isk ha you may lose. Adap ing hese objec i es
ha Eu ope is ans e ing and ying o inse hem in he ci y’s
cul u e wi h i s complica ions ha may a ise du ing he p ojec
execu ion (…) may e en be sepa a ing you om esiden s. (I06, ci y-
council)
Second, om a communica ions s andpoin , he e is a sense ha
a aching a Eu opean “iden i y” on o local clima e p ojec s migh
u he disconnec esiden s om hei municipal leade s, as in bo h
p ojec s examined he e ci ic esponden s c i icize he p ojec amings
as esponding o Eu opean p io i ies, exempli ied by he municipal
men ion o becoming a “Eu opean Supe ci y” (Pho o 3). Resul ing ci ic
con es a ion agains selec ed p ojec s hus s ems om he lack o di ec
communica ion when p ojec s ge disclosed, a icula ed, and jus i ied,
especially in he con ex o a municipal dependency on hose mul i-le el
unding schemes, as a neighbo hood associa ion highligh s:
“I any hing, you ha e o be hones and say “To ge his money, we
ha e o jus i y o do i his way.” Bu a leas , (…) communica e i
p ope ly and anspa en ly. Ask he collec i es: “How can do we do
i ?” I would al eady be pe cei ed di e en ly.” (I09, neighbo hood
associa ion)
Ins ead o clea ly communica ing unding equi emen s, in e iews
e eal ha he ci y e e s o he s ic imelines and Spanish go e nmen
and EU e alua ion measu es o jus i y hei uzzy go e nance lacking
anspa ency. Consequen ly, local decisionmake s ex e nalize he ci y’s
own agency and esponsibili y o highe -scale ins i u ional ac o s while
pa ly con adic ing RRP obliga ions and locally s a ed ambi ions o
pa icipa o y go e nance, as pu o wa d in i s own UGIP, which mos
likely endange s a success ul implemen a ion o selec ed p ojec s,
especially he Old Town p ojec ’s ision o co-go e nance.
5. Discussion
We ha e analyzed he ex en o which MAEF allow o he democ-
a iza ion o local go e nance o u ban ena u ing p og ams, p io i izing
ci ic pa icipa ion, inclusion, and equi y. We ha e d awn on quali a i e
da a a ound wo u ban na u aliza ion p ojec s cu en ly implemen ed
unde he NGEU amewo k in he ci y o Vi o ia-Gas eiz. Ou indings
show ha unding equi emen s di e ge om locally en isioned alues
abou go e nance h ough con lic ed pe spec i es o pa icipa ion, in-
clusion, and equi y by ci ic and ins i u ional ac o s. We a gue ha ci ic
Pho o 3. Ma ke ing campaign o Vi o ia-Gas eiz’ ci y-hall announcing he ci y as "Eu opean Supe ci y" in Spanish and Euske a (pho o by he au ho s, June 2023).
J. Neidig e al.
