Local Engagement for Regional Sustainability 

The Italian city of Modena is demonstrating how citizen engagement is leading to long-term sustainability solutions. 

As the European Union aims for climate neutrality by 2050, a profound transformation is already taking root across its regions. Guided by the European Green Deal and given legislative force by the European Climate Law, the EU’s vision to achieve net-zero greenhouse gas emissions is reshaping every facet of European life – from energy production and industrial systems to urban mobility, agriculture, and the built environment. 

At the heart of this transformation lies a crucial principle: climate action must be locally grounded to be regionally impactful. Municipalities and regions are where the energy transition becomes tangible, where policies are translated into real-world solutions, and where citizens feel the effects almost immediately. In this context, Sustainable Energy and Climate Action Plans (SECAPs) have emerged as vital tools for operationalising the Green Deal at the local level.  

Developed within the framework of the Global Covenant of Mayors for Climate and Energy, SECAPs are dynamic instruments that chart the course for cities and towns to slash carbon dioxide emissions by at least 40%, adapt to intensifying climate risks, and ensure access to clean and sustainable energy. 

SECAPs embody a shift towards integrated, participatory governance, encouraging collaboration between public authorities, businesses, academic institutions, and civil society actors. They facilitate concrete actions – from boosting building energy efficiency and expanding renewable energy uptake to redesigning urban spaces for greater resilience. Yet, as recent research on energy communities by the University of Trieste underscores, the road to climate neutrality is uneven. Differences in regional governance structures, levels of technological adoption, and societal engagement often result in fragmented progress.  

Italian innovation 

Italy offers a telling case study of the challenges and the opportunities inherent in this journey. With its highly decentralised governance model and complex legislative landscape, Italy sometimes struggles to maintain coherence in its energy transition strategies. Regional disparities, bureaucratic fragmentation, and variations in policy ambition complicate the national picture. However, these very complexities also create fertile ground for local experimentation and innovation – showing that diversity, when properly harnessed, can become a strategic asset rather than a liability. 

Within this broader national context, the region of Emilia-Romagna has emerged as a particularly compelling example of local leadership. Rather than treating climate and urban policies as separate silos, Emilia-Romagna has chosen to integrate them, pioneering an approach that aligns SECAPs with the Urban Agenda for the EU.  This integrated strategy, explored in recent work led by Doctor of Engineering Giovanni Tedeschi and the University of Parma’s Department of Engineering and Architecture, is designed to harmonise climate mitigation, adaptation, and urban regeneration into a single, cohesive vision. 

Emilia-Romagna’s success lies in its ability to recognise and leverage its socio-economic and territorial diversity. Tailored initiatives have taken root across the region, from the promotion of distributed renewable energy systems and sustainable mobility projects to the creation of community-driven energy cooperatives and the development of positive energy neighbourhoods. Bologna, Modena, and Ravenna – each facing distinct geographic and social challenges – serve as real-world laboratories for how cities can lead a sustainable transition while remaining responsive to local needs. 

Although we are moving forward, we have the feeling that climate change is outstripping our ability to adapt.

Andrea Trenti, assistant to the Deputy Mayor for Environment, Ecological Transition, and Budget of the Municipality of Modena.

What sets Emilia-Romagna apart is not only its ambition but its method. Strategic financial incentives, strong public-private partnerships, and a commitment to participatory governance have all contributed to building trust and mobilising resources. Crucially, citizens are not treated as passive policy recipients but as active partners in shaping their sustainable futures. Climate goals are embedded into urban planning processes through wide-reaching consultation, ensuring that projects are perceived as legitimate and relevant by the communities they aim to serve. 

Of course, challenges remain. Coordination across administrative levels, the modernisation of aging infrastructure, and the securing of stable financing streams continue to test the resilience of local systems. Yet Emilia-Romagna’s experience demonstrates that with vision, integration, and inclusive governance, local authorities can act as powerful engines for Europe’s climate transition. The lessons emerging from this region – particularly the integration of climate and urban policies, the emphasis on social inclusion, and the creation of dynamic local energy systems – offer valuable insights not just for Italy, but for Europe as a whole. 

Modena’s modern strategy 

In the Emilia-Romagna region, the city of Modena offers a clear example of how SECAPs can be effectively woven into local urban policy frameworks to accelerate the energy transition. Building on the regional SECAP strategy, Modena has developed a comprehensive Urban Energy Plan that aligns climate objectives with broader city planning efforts. The groundwork for this approach was laid as early as 2019, when the Urban Energy Plan was drawn up in tandem with the city’s General Urban Plan (GUP), which later received formal approval in 2023. 

Modena’s location within an area recognised by the European Commission as facing persistent air quality challenges has made the shift toward green energy production particularly urgent. Scientists have emphasised that improving air quality is not merely an environmental issue but a critical public health imperative. Furthermore, the city has taken a forward-looking approach by actively promoting establishing renewable energy communities, thus fostering decentralised, citizen-driven energy solutions. Both public and private sectors are encouraged to adopt clean technologies, creating a ripple effect that extends across industries and everyday urban life. 

Nonetheless, the path to integration has not been without obstacles. As highlighted by the Covenant of Mayors – Europe, Modena faces the intricate challenge of fully aligning SECAP targets with GUP frameworks. Difficulties arise in promoting renewable energy uptake and efficiency within traditionally hard-to-reach sectors such as industry and agriculture. Compounding these technical hurdles are local constraints, such as the need to safeguard Modena’s historic heritage and manage strict urbanisation limits. Effective public awareness campaigns and coordinated stakeholder action remain essential to overcoming resistance and ensuring the broad-based adoption of sustainable practices. 

Andrea Trenti, assistant to the Deputy Mayor for Environment, Ecological Transition, and Budget of the Municipality of Modena, has been involved in steering the city’s climate strategy. The strategy reimagines Modena in terms of climate adaptation and as a response to broader societal transformations. Although still under refinement, the plan has already produced tangible results, such as the widespread replacement of traditional street lighting with LED technology and the substantial energy retrofitting of municipal buildings. 

Despite these advances, Trenti reflects candidly on the enormity of the task ahead: “Although we are moving forward, we have the feeling that climate change is outstripping our ability to adapt.” His words capture a broader sentiment felt in many European cities facing the dual pressures of accelerating environmental risks and complex governance environments. 

On the urban mobility front, Modena has broken new ground by implementing “quiet zones” around school routes – an initiative that was long envisioned but only became feasible thanks to the framework and funding opportunities provided by the SECAP. These areas, where car traffic is restricted to improve air quality and promote sustainable transport options, were initially met with resistance from school staff, parents, and nearby residents.  

However, through public consultations and advocacy from environmental organisations, these zones gained widespread support and became an integral part of the city’s urban mobility plan. Andrea Trenti explains, “These zones not only improve the safety of children but also encourage more sustainable modes of transport and a sense of community.” 

The success of Modena’s initiatives is deeply rooted in its commitment to participatory governance and social inclusion. Through regular public consultations, residents have contributed to shaping urban sustainability priorities – from expanding cycling infrastructure and green spaces to improving waste management systems. By ensuring that citizens are co-creators of the city’s sustainable future, Modena is building a resilient, adaptive, and inclusive model of climate action that holds valuable lessons for cities across Europe. 

Transforming public spaces  

Modena is aligning its urban policies with climate neutrality goals and redefining the very fabric of its public spaces through bold innovation. Among the most emblematic initiatives is the city’s adoption of the “sponge city” concept –, a nature-based urban planning approach that uses natural and engineered solutions to absorb and manage heavy rainfall, reducing the risk of urban flooding. Through sustainable infrastructure interventions such as permeable pavements, urban wetlands, and rain gardens, Modena is strengthening its resilience to extreme weather while enhancing urban quality of life. 

Trenti illustrates this transformation by highlighting how public parks have been reimagined as multifunctional spaces that capture and manage rainwater while offering new recreational areas for citizens. “These prototypes are not just infrastructure,” Trenti stresses, “they are a reminder that climate adaptation is an immediate need for our community.” Beyond their technical function, these projects aim to raise public awareness and embed climate action into the everyday urban experience. 

A second aspect of Modena’s local strategy is the promotion of renewable energy communities, an essential tool to democratise the energy transformation and ensure that it is inclusive and economically viable. “Energy communities,” Andrea explains, “are essential for involving the population in the energy transition in an inclusive and economically viable way,” emphasising the critical role of citizen participation in achieving decarbonisation targets. 

Solar energy deployment has been another major focus area. Modena has systematically installed photovoltaic systems on public and residential buildings, supported by innovative financial models designed to make solar technology accessible to middle-class families.  

Partnerships with banks and solar panel manufacturers have enabled the city to offer tailored financing options, further removing barriers to adoption. In parallel, Modena is investing heavily in energy storage solutions, such as battery systems, to enhance the flexibility, stability, and efficiency of its local energy grid – a move aligned with broader European efforts to bolster energy resilience. 

Modernising the city’s public lighting system has been another visible and impactful achievement. By replacing conventional lighting with LED technology, Modena has significantly reduced municipal energy consumption and operational costs. However, Trenti notes that the transition required a delicate balancing act. “This change significantly reduced energy consumption, but it also required a careful balance of technical, financial, and social considerations,” he explains, highlighting the need for comprehensive stakeholder engagement and pragmatic planning at every stage. 

These innovations are underpinned by important institutional reforms. Trenti points out that administrative reorganisation – particularly the integration of environmental, energy, and social services – has enabled a more horizontal and coordinated approach to sustainability efforts, making public administration more agile and citizen-focused. 

In many ways, Modena has become a living laboratory for Europe’s climate ambitions, seamlessly merging local creativity with European policy frameworks such as the European Green Deal and the Fit for 55 Package. The city’s collaborative, cross-sectoral initiatives demonstrate how localised action is indispensable for achieving the EU’s broader climate and energy targets. 

Modena’s pioneering role has not gone unnoticed at the European level. The city was selected as a pilot municipality for the AT LAST project, a Horizon Europe-funded project designed to accelerate the transition of local authorities through capacity-building and peer learning. Through AT LAST, Modena is now working with other European municipalities to share best practices, scale up successful models, and co-develop innovative solutions to drive forward the sustainable energy transition. 

Changing mindsets 

As Europe accelerates its transition to a climate-neutral economy, it’s clear that technological innovation alone will not suffice. The success of this monumental shift relies heavily on social and economic transformations that empower communities and promote widespread behavioural change. Modena offers a compelling model of how local authorities can drive this change by integrating social solutions with sustainable economic incentives, all while fostering behavioural shifts at the community level. 

The role of citizen participation in Energy Communities cannot be overstated, as it promotes a culture of sustainability and behavioural changes around energy consumption and clean energy adoption. This model aligns closely with the EU’s climate goals, which stresses the importance of making energy systems more inclusive and decentralised.  

Modena also stands out for its approach to overcoming the financial barriers to adopting renewable energy technologies. Recognising that many middle-class families may find the upfront costs of installing solar panels prohibitive, the city has partnered with banks and solar manufacturers to offer tailored financial models. These financial instruments reduce the initial economic burden on households, enabling them to install photovoltaic systems in their homes without significant financial strain. 

Moreover, the city is making renewable technologies more accessible to a wider demographic, ensuring that solar energy adoption is not limited to wealthier households. This move aligns with the EU’s Green Deal principles which emphasise the need for green finance to facilitate the transition to a low-carbon economy. Additionally, the city’s investment in energy storage solutions, such as batteries, ensures that renewable energy can be stored and distributed efficiently, enhancing energy resilience and stability within the local grid. 

Energy communities are essential for involving the population in the energy transition in an inclusive and economically viable way.

Andrea Trenti, assistant to the Deputy Mayor for Environment, Ecological Transition, and Budget of the Municipality of Modena.

Modena’s climate strategy underscores the importance of public engagement and participatory governance. Rather than imposing policies from the top down, the city has made concerted efforts to involve residents in the design and execution of its sustainability projects. Whether it’s the expansion of cycling infrastructure, the enhancement of green spaces, or the improvement of waste management systems, Modena has ensured that citizens have a voice in shaping their city’s sustainable future. 

These behavioural change interventions are vital to the EU’s Sustainable Mobility and Transport Policy, which advocates for shifting public behaviours towards cleaner modes of transport. Modena’s experience demonstrates how public engagement and inclusion can lead to more sustainable, community-driven solutions that have a lasting impact on how people live and move around the city. 

Modena is a living example of how social solutions, economic incentives, and behavioural change can align to create a more sustainable, resilient, and inclusive urban environment. Through investments in energy communities, innovative financial models, and citizen engagement in public governance, Modena is building a solid foundation for a climate-neutral future. This integrated approach can act as a replicable model across Europe, offering valuable insights for other municipalities aiming to accelerate their green transition.