Bursting the bubble? Engaging the disengaged for equitable climate transitions
*This blog was written by Jannis Niethammer and Emily West, ICLEI European Secretariat, and Rebecca Wessinghage, ICLEI World Secretariat
As the need for climate action accelerates across Europe, it has become increasingly clear that climate policies are often socially imbalanced, particularly in addressing the needs and participation of structurally disadvantaged groups. How can we ensure that climate transitions are not only effective but also socially just? This is necessary to ensure societal trust in, and subsequent durability of, climate actions.
At last year’s European Sustainable Cities and Towns Conference in Aalborg, Denmark, city leaders and stakeholders agreed that building this trust is fundamental to achieving cohesive transitions. But for many municipalities, the challenge lies in the how. How do cities bridge the gap between affluent communities and disadvantaged ones to create an inclusive, climate-resilient future for all? How to engage those in the transformation who currently feel left behind and even oppose it?
Rethinking municipal climate action from a justice perspective
Through the INCLU:DE project on socially just climate action in German cities, Bonn, Dortmund, Essen, Heidelberg and Ludwigsburg are currently working on tackling these questions head first by applying a more critical justice lens to their climate programs. Rather than continuing with traditional approaches that often favor those with higher incomes and higher carbon footprints, INCLU:DE advocates for rethinking public incentives and engagement strategies. Too often, climate programs reward high-consumption behaviors as they direct attention and public funds to incentivize sustainable choices for affluent populations. With this focus, programs tend to be structured in a way that makes them difficult to access for low-income households, for example by requiring significant monetary contributions and pre-payments, unintentionally reinforcing social divides.
This “incentive logic” makes climate action appear like a privilege, sidelining communities who are already struggling with poverty and exclusion. From an economic efficiency perspective, it also risks supporting investments that would have also been made without the program support, referred to as the ‘deadweight effect’. When climate initiatives seem exclusive or primarily accessible to wealthier residents, they can contribute to a sense of “Transformationsmüdigkeit”—or “change fatigue”—which may deepen societal divides and increase resistance. This perception can obscure the co-benefits of climate-friendly options and technologies, which have the potential to alleviate burdens on lower-income or disadvantaged communities, such as reducing electricity costs and improving public health.
To strengthen this perspective, INCLU:DE aims for a shift of municipal climate action towards a logic of empowerment, enabling participation for all parts of society.
Meeting people where they are and taking diverse realities seriously
Realizing this vision does not come without obstacles, as INCLU:DE’s project cities have experienced firsthand. In Dortmund, for instance, participatory efforts like the climate advisory board (Klimabeirat) are often dominated by the “usual suspects” – people who are already environmentally engaged. This poses a challenge for city leaders who aim to diversify engagement and bring unheard voices to the table.
The city of Heidelberg is developing targeted outreach strategies to strengthen participation in climate programs in the Hasenleiser district, focusing on physical presence and relying on trusted community members to function as multipliers. Yet, making progress and connecting to local populations has proven difficult. For many residents, climate action is not set as an immediate priority, and conveying its relevance poses a continuous challenge. A key learning from Heildelberg’s work is that it takes time, patience and continuous efforts to build and maintain local networks.
Through the “climate districts” program, the city of Bonn is taking a strategic approach to diversifying public engagement in neighborhood-level climate action. Three pilot districts have been launched in 2024 and one more is currently being developed, each with a specific focus that resonates with the local fabric of the respective community. To strengthen existing structures, well-connected, locally embedded civil society representatives are appointed as “transition managers” to establish physical participation centers and engage directly with local populations. This approach builds trust and encourages widespread involvement, making related initiatives genuinely more inclusive and reflective of diverse community needs.
Bonn’s community-focused approach to developing climate neighborhoods provides valuable insights into fostering inclusivity and social justice in climate action. A key aspect in this regard is the collaborative approach through the “KompetenzNetz”, a novel governance structure bringing together key players of the climate districts – both from civil society and the municipality. This network fosters mutual learning and capacity building, as demonstrated in a recent INCLU:DE-led workshop on strengthening social justice in the climate districts. Through conceptual discussions and insights from engagement experts, the workshop collected the following valuable lessons on how diverse citizen perspectives can be integrated into planning and decision-making:
Enhancing social justice through diversity and access: Key to the project’s success is its focus on heterogeneity and access. Recognizing the importance of equitable representation, the planning team ensures that geographic and demographic diversity is considered at every stage. By tailoring content and outreach strategies to the unique socio-demographic characteristics of each neighborhood, the initiative creates opportunities for meaningful participation across different segments of society. However, engaging diverse communities requires more than inclusive planning — it demands a deliberate and thoughtful outreach strategy. Ensuring equal access is not just a logistical necessity but a cornerstone of social equity in environmental initiatives.
Strengthening belonging and co-benefits: Climate action can serve as a bridge to broader societal engagement, strengthening a sense of belonging and shared purpose. In the climate districts, activities are flexibly designed, with input from local stakeholders and with an emphasis on co-benefits that resonate with local communities. For example, localized, multilingual information tailored to the needs and realities of specific communities can overcome language barriers and improve accessibility. Leveraging community-driven approaches ensures that different perspectives are acknowledged and local voices and ideas can be amplified, ultimately leading to more meaningful measures.
Building trust through transparency and local engagement: Respecting and valuing the diversity of lived realities is critical for fostering trust and participation. This involves active listening, responsiveness to local needs, and a commitment to transparency and honesty in communication. Transition managers in the climate districts are taking proactive steps to meet people where they are — both figuratively and literally — engaging communities early in the development of climate initiatives, and acknowledge existing local knowledge, infrastructure, and potential. Shifting from a rigid ‘target group’ framing to more dynamic, dialogue-based approaches and finding ways to make communities feel heard, valued, and empowered is a key objective for the city to advance inclusive climate action.
Expanding the climate dialogue: Another important lesson learned through discussions within Bonn’s KompetenzNetz relates to developing a critical awareness of the persisting dominant (often white, western, industrialized) narratives surrounding climate and social justice considerations. Broadening the climate dialogue to include diverse life experiences and intersecting challenges, such as migration experiences, cultural or linguistic differences, or housing insecurities, ensures that climate action resonates with a wider audience.
Moving forward: bridging the climate-social divide
The overall shift in focus—from incentivizing to enabling—is crucial. Overcoming the “climate protection is a luxury” perception is a necessary step toward creating a climate movement that resonates with all segments of society. By redefining who participates in the climate transition and how they participate, municipalities have a chance to bring everyone along, ensuring an equitable future and resilient communities.
In addition to these targeted engagement measures, a key aspect to make climate protection more relevant for all population groups is the question of municipal investments. Subsidy programs targeted at the individual can be a powerful tool for local policymakers and practitioners to ensure that public funds are allocated fairly and that different groups and communities feel addressed and part of the transition. In this context, the INCLU:DE Climate Equity Toolbox guides city practitioners through the process of designing municipal subsidy programs in a more socially just way and improving accessibility for structurally disadvantaged populations.
Municipalities daring to “break the bubble” and engage not only the usual suspects are likely to find that more inclusive, equitable engagement ultimately makes for stronger, more cohesive cities. It is time to rethink the structures of engagement and empower communities to be part of the climate transition—not just spectators but true partners in creating a sustainable environment for all.
