Municipalities in Germany are responsible for driving local heat transitions by developing heat plans, as mandated by federal law. While some cities have finalized their heat plans, others have yet to begin, raising questions about the factors and challenges influencing the process. This study addresses these questions by asking: ‘Why does progress in heat plan development vary across cities?’ The focus is on two main aspects of urban climate governance: (1) the often-overlooked role of politics, examining the influence of mayors and political parties at both local and state levels; and (2) the capacity of municipal administrations, which is strained by policy growth and increasing complexity.
We compile a dataset of all 82 German cities with populations over 100,000 to explore the relationship between heat planning progress, governing parties, administrative capacity, and ownership of energy infrastructure on the progress of heat planning. Based on this data set, we identify four cities that vary in administrative capacity and political leadership for a case study analysis. These case studies help evaluate the relative impact of these factors alongside other indicators. Using process tracing, we explore the mechanisms driving differences in policy outcomes and effectiveness. Our data sources include expert interviews and desk research.
This study contributes to the limited literature on urban heat transition governance by examining political dynamics and administrative capacity involved in implementing climate policy within multi-level governance settings.