How Multi-Level Dialogue Platforms Can Drive Sustainable Urban Development

Multi-level dialogue platforms are enhancing sustainable urban development. From city networks to EU partnerships, Rene Peter Hohmann illustrates how collaboration across government tiers is shaping the future policy environment of our cities.

Cities play a pivotal role in global sustainable development and are essential to addressing social and ecological challenges. As of 2021, approximately 56 per cent of the world’s population lives in urban areas. This figure is expected to rise to 68 per cent by 2050 (UN Habitat, 2021).

This urbanisation trend positions cities at the forefront of addressing complex global issues. They consume nearly two-thirds of the world’s energy, produce up to 80 per cent of greenhouse gas emissions, and account for half of global waste  (OECD, 2024). Cities are also major economic centres, generating over 80 per cent of the global Gross Domestic Product (GDP), making them vital hubs for economic growth and innovation (World Bank, 2024).

A Key to Effective Urban Development Policies

City networks, particularly transnational networks (TMNs), have emerged as crucial actors in addressing global challenges at the local level. These city-to-city collaborations are for example advocating for sustainable solutions in regional and national policies. A recent global review identified 84 city networks comprising around 10,343 cities in 208 countries during the period of 2017 and 2018 (Acuto & Leffel, 2021). The increasing number of networks underscores the value and need for such advocacy coalitions, Peer-2-Peer Exchange and Cooperation Networks.

However, collaboration between cities, especially to advance sustainable urban development, may benefit from enlarging its constituencies. To effectively implement policies that address global challenges stronger cooperation between all levels of government is needed — from city councils to national governments and supranational institutions.

Even though researchers have previously explored multi-level governance approaches, such as through TMNs (Stephenson, 2013; Benz, 2021), this article reminds us of their importance by showcasing two European platforms that foster dialogue and collaboration on sustainable urban development across tiers of government.

Realising the EU-Cohesion Policy in Cities: The German-Austrian URBAN Network

The German-Austrian URBAN Network stands as an example of how multi-level governance can effectively bring together various tiers of government around the pitfalls and virtues of sustainable urban development projects funded by the European Union. For over 25 years, this Network, hosted by the German Association for Housing, Urban and Spatial Development (DV), has brought together cities, regional and federal authorities, and EU institutions to collaborate seamlessly, fostering a dialogue on how to implement and advance EU-funded urban development projects, especially under the EU-Cohesion Policy, in both countries.

Initially launched in 1994 in conjunction with the EU’s URBAN Community Initiative, the network was created to exchange measures in support of the economic and social revitalization of crisis-hit urban areas. Today, it connects cities of all sizes that receive EU funding in Germany and Austria with Federal, National and European institutions. 2-3 times per year, member cities invite the network to present their projects and discuss common operationalisation and mainstreaming issues. These EU-funded projects range from the revitalisation of former industrial areas to the creation of social infrastructure and mobility infrastructure (BBSR, 2020). The main goal of these exchanges is to learn from each other’s experiences and find better ways to use EU funding for urban development.

Figure 1: Structure of the German-Austrian URBAN Network (own illustration)

Facilitating exchange across governance levels guarantees that the hands-on experiences of cities carrying out EU-funded urban development projects shape future EU programs and initiatives. Drawing on practical insights, the Network recently published a position paper that outlines key priorities for sustainable urban development within the EU’s Structural Funds for the post-2028 period. It emphasises the need for long-term, integrated urban development strategies backed by robust financial support. It also recognises cities as forefront actors in tackling global challenges, such as climate change, migration, and labour market shifts. The paper calls for higher co-financing rates, especially for cities with limited financial resources. It underlines the need for simplifying administrative processes and preserving territorial flexibility to accommodate the varying needs of different urban areas, from neighbourhoods to inter-municipal regions.

Partnerships for the Urban Agenda for the European Union (UAEU): Multi-Level Governance in Action

Another example of promoting multi-level dialogue is the European Urban Initiative (EUI). It supports cities through funding instruments that focus on capacity building, knowledge development, innovation, and the development of transferable and scalable solutions for urban challenges across the EU.

At the heart of the EUI are the Urban Agenda for the EU (UAEU) partnerships, introduced in 2016.  These partnerships bring together the European Commission, Member States, cities, regions, and other stakeholders to tackle specific urban challenges. Up until now, already 18 partnerships have been established to address challenges like air quality, food, climate adaptation, digital transition, and housing. The most recent call in 2024 invites new partnerships to focus on water-sensitive cities and decarbonising buildings.

Figure 2: The structure of the Culture and Cultural Heritage Thematic partnership under the Urban Agenda for the EU as an example (own illustration)

These partnerships operate on a principle of multi-level co-production over three years. They develop action plans and recommendations, to highlight emerging issues in urban development and recommend new solutions and instruments in response to them. The Thematic Partnership on Culture and Cultural Heritage for example has given itself 11 actions to work on to inform future EU regulations ranging from Regulating Short Term Rental Platforms in cities to Guiding Principles for Resilience in Risk and Heritage Management in European Cities (UAEU, 2022)

Thus, the Urban Agenda for the EU serves as a project-based platform for cities to engage in dialogue with national and European institutions. This collaborative space allows urban areas to shape future regulations, particularly at EU level. This multi-level, multi-stakeholder collaboration at the heart of this initiative has proven to be its greatest strength (European Union, 2020). As Europe becomes increasingly interconnected, this model of cooperation becomes ever more crucial, enabling cities and institutions to collectively address shared challenges across the continent.

City Networks, National Policies, and Global Urban Challenges

City networks are an essential vehicle for urban development, and their potential can be even greater through deeper integration into multi-level governance structures. This integration serves two purposes: it sensitises upper government tiers to the nuts and bolts of local implementation, and it illuminates both the pitfalls and opportunities that supra-national policies may have during their localisation or operationalisation. Two standout examples of such transnational cooperation platforms are the German-Austrian URBAN Network and the partnerships for the Urban Agenda in the EU. Insights from those examples could provide some inspiration for similar endeavours at national and regional levels.