Factors enabling or impeding the institutionalization of climate change mitigation in municipalities: findings from a survey in Germany

Sven Alsheimer, Elisabeth Dütschke and Joachim Schleich

Climate Policy, 2025, vol. 25, issue 9, 1413-1427

Abstract: This paper investigates factors that enable or impede the strategic and organizational institutionalization of climate change mitigation (CCM) in municipalities in Germany. Institutionalization refers to the formalization of CCM and involves its integration into the strategies and administrative structures of municipal governments and their administrations. Empirically, we distinguish three indicators to measure strategic institutionalization, i.e. adopting a CCM plan, setting a CCM target, and compiling an inventory of CO2 emissions. To measure organizational institutionalization, we use two indicators, i.e. dedicating a budget to CCM and creating a unit dedicated to CCM. The econometric analyzes are based on an original sample of 550 municipalities with 5,000–500,000 inhabitants combined with secondary data from external databases. The findings suggest that municipalities are more likely to institutionalize CCM if they frequently exchange climate-related information with other municipalities, civil society actors, and companies (relational factor), have higher shares of votes for the Green party (political factor), and are more urbanized (structural factor). In general, similar factors are associated with the strategic and organizational institutionalization of CCM. Observed differences pertain to some structural factors. For strategic, but not for organizational institutionalization, we find some evidence that an expected higher level of environmental awareness among the local civil society is conducive.Relational, political, and structural factors are systematically associated with the institutionalization of CCM in municipalities.Policies aimed at fostering the institutionalization of CCM could focus on strengthening municipal authorities’ capacities in less urbanized municipalities (structural factor).While we find no support that the party affiliation of the mayor is relevant, municipalities with a high share of votes for the Green party are more likely to institutionalize CCM (political factor).Based on our findings, there is a growing need for more participatory and polycentric approaches involving multiple actors in municipal decision-making processes related to the institutionalization of CCM (relational factor).

Date: 2025
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DOI: 10.1080/14693062.2025.2458568

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