Udalsarea 2030: how Euskadi promotes local climate action through multilevel governance

The Basque Country (2.2 million inhabitants, 252 municipalities) combines strong economic activity with high natural value, with nearly a quarter of its territory protected under Natura 2000. Climate and energy policy is therefore central to territorial planning. 

The regional regulatory framework has been significantly strengthened. The 4/2019 Law on Sustainable Energy laid the foundation, while the 1/2024 Law on Energy Transition and Climate Change requires 73 municipalities with more than 5,000 inhabitants to adopt Climate and Energy Plans and encourages smaller municipalities to develop plans individually or collectively. 

In this context, Udalsarea 2030 was created in 2002, initially focusing on Local Agenda 21 and progressively evolving towards climate and energy. Today, it is the main platform coordinating implementation of the Covenant of Mayors in the Basque Country and channelling regional climate policy to the local level. 

Membership is voluntary and structured through four-year strategic plans developed jointly with municipalities and partner organisations. The network has grown from 16 municipalities to 226 municipalities, 11 supramunicipal structures and 23 regional entities (260 entities in total). 

Multilevel governance structure and operating model  

Udalsarea 2030 governance structure integrates the three main levels of administration: 

• Basque Government: climate legislation and strategy 
• Provincial Councils: provincial coordination and partial financing 
• Local councils: implementation of local climate action 

County entities play a key role in grouping smaller municipalities with limited technical capacity. 

The governance structure includes: 

•  Political Presidency (Councillor of Industry, Energy Transition and Sustainability) 
•  Technical Committee (municipal technical staff) 
• Coordination and Promotion Committee (Basque Government Presidency, Ihobe and supramunicipal entities) 
•  Technical Secretariat led by Ihobe (Public Environmental Management Company) 

Sectoral public entities specialising in environment, energy, water and rural development, together with the association of Basque municipalities EUDEL, complement this structure. Operationally, the network: 

• Ensures coherent local Climate and Energy Plans based on rigorous diagnosis 
• Aligns local objectives with regional, national and European frameworks 
• Provides tools, guidance and strategic resources 
• Promotes cross-departmental municipal involvement 
• Encourages citizen participation and a just transition 
• Standardises monitoring and evaluation 

Ihobe has developed methodological guides, GHG inventory calculators, carbon footprint tools, monitoring systems and 252 detailed municipal risk and vulnerability assessments (currently being updated under the European CRVA methodology). As Covenant Coordinators, Ihobe and EVE support municipalities in preparing plans and inventories and harmonising regional tools with Covenant requirements. 

Financing opportunities 

Although Udalsarea 2030 does not directly manage funding, it facilitates access to financial mechanisms. The Basque Government provides annual grants for Climate and Energy Plans and adaptation measures. Provincial Councils offer additional support for energy and climate initiatives. 

The Basque Energy Agency (EVE) supports electrification (photovoltaics, heat pumps), sustainable mobility (low-emission vehicles, MOVES programme) and industrial transition, including tax exemptions. 

At EU level, Udalsarea 2030 participates in projects such as Urban Klima 2050 (LIFE) and LIFE OCTOPUS, promoting innovative adaptation solutions and strengthening local capacity to implement climate and energy plans. However, financial and technical limitations remain significant barriers, particularly for smaller municipalities. 

Lessons Learnt And Next Steps  

Udalsarea 2030 demonstrates that sustained, structured multi-level governance can effectively translate regional ambition into local climate action. Its growth and consolidation reflect strong institutional trust and cooperation. 

Key challenges include limited human resources, technical expertise and funding at local level, particularly regarding adaptation and nature-based solutions. Knowledge gaps persist in defining robust climate plans and identifying best practices. 

Next steps include: 

•  Updating and standardising tools to align with Law 1/2024 and Covenant frameworks 
•  Expanding Covenant signatories to 100 municipalities by 2028 
•  Strengthening technical support through EU projects such as LIFE OCTOPUS 
•  Enhancing access to diversified funding sources 

By reinforcing cooperation across all governance levels, Udalsarea 2030 continues to position the Basque Country as a leading example of integrated, multilevel climate governance in Europe. 

Explore the detailed version ↓

Basque Network of Sustainable Municipalities, Spain  

Area covered: Regional 

Key figures

• Number of Covenant Signatories and/or local authorities supported: 226 municipalities in the network; ~56 Covenant signatories (target: 100 by 2028)

• Number of municipalities in the Basque Country: 252 

• N. supramunicipal structures: 11 (regional entities) 

• Number of approved energy and climate plans: ~130 

GHG emissions reduction: 

• Net GHG emissions reduction of 45% by 2030 
• Climate neutrality and resilience by 2050 (Long-term strategy 2050) 

Mandatory Climate and Energy Plans for 73 municipalities (>5,000 inhabitants) under Law 1/2024

Related links

Basque Network of Sustainable Municipalities - Home Udalsarea 2030 -  Activity report of the Udalsarea 2030 network in 2025