Guimarães, a historic city in northern Portugal and a recognised UNESCO World Heritage Site, is actively pursuing climate neutrality under the EU Mission “100 Climate-Neutral and Smart Cities by 2030.” The city’s Pilot Activity, District C – A Zero Carbon Commitment, is a living laboratory for decarbonisation, where sustainability is driven by inclusive governance, community innovation, and a bold stakeholder engagement strategy known as the 3D Participatory Approach.
Climate transition is not only technological or regulatory but also social, cultural, and participatory. Guimarães recognised that the long-term success of climate transition depends on building trust and a sense of ownership among its citizens. In parallel, a growing number of local businesses were embracing the city’s environmental agenda, reinforcing the need for a coordinated and inclusive approach. Engaging a wider community became essential to ensure that climate action was not perceived as a top-down process, but rather as a shared effort shaped by those who live and work in the city.
To this end, Guimarães designed and implemented the 3D Participatory Approach, a stakeholder engagement model built on three dimensions: creating identity, transforming the landscape, and building the future.
The first dimension, Creating Identity, focuses on fostering a sense of connection between citizens and environmental challenges by positioning people as key actors in shaping the city’s future. It was achieved through co-creation initiatives, immersive placemaking activities, and strong collaboration with schools, supported by community events such as the Spring Party and Green Week.
The second dimension, Transforming the Landscape, encourages behavioural change by reshaping physical spaces and daily habits. Infrastructure projects, such as the Energy Community, backed by policy and regulatory innovation, provided visible demonstrations of sustainability in action. Incentive-based programmes linked individual behaviour to environmental and economic benefits, while the establishment of Citizens’ Assemblies placed residents at the centre of decision-making. The Landscape Laboratory actively develops methodological approaches that connect citizens and policymakers, using science as a tool for territorial transformation.
Finally, the third dimension, Building the Future, ensures long-term impact through transparent communication and strategic support. It includes the launch of the “Guimarães 2030: Join the Green Transition” branding and digital platform, continuous monitoring by the Climate Transition Team, and active participation in European knowledge exchange. Financial planning has also been integral, with a dedicated funding and financing report and partnerships with institutions like the European Investment Bank and Capital Hub to support critical initiatives such as renewable energy systems and green infrastructure.
What were the key drivers of the initiative?
- Political support: Strong municipal alignment with the EU Cities Mission, and continuous political commitment to inclusive climate governance at the municipal level.
- Governance: The creation of the Climate Transition Team, a multi-actor, interdisciplinary group tasked with monitoring, impact evaluation, and ongoing community dialogue, has been instrumental in implementing the participatory approach.
- Strategic vision: The 3D Participatory Approach was embedded as a central component of the Guimarães 2030 roadmap, integrating stakeholder engagement into climate action from the outset.
- Collaboration: A multi-stakeholder governance ecosystem involving citizens, schools, businesses, academia, and civil society fostered cross-sectoral cooperation, trust-building, and co-responsibility.
- Digitalisation: Development of digital tools (e.g., the “Guimarães 2030” platform) enabled real-time tracking of climate actions and supported transparent citizen engagement.
- Civic engagement: Civic pride and environmental awareness, especially among youth, provided fertile ground for widespread community participation.
- Financial backing: Strategic partnerships with the European Investment Bank and Capital Hub unlocked funding for renewable energy and green infrastructure projects.
- Regulatory adaptability: Flexibility within local regulatory frameworks enabled adaptation of heritage protection laws to accommodate energy efficiency and sustainability innovations.
What were the challenges and barriers?
- Upscaling: Scaling up participatory methods city-wide without losing focus or inclusivity is challenging in terms of coordination and consistency. However, the use of the local test-beds for replication and the support of the Landscape Laboratory for place-based engagement integrated outcomes into coherent city-wide strategies.
- Stakeholder engagement: Coordinating diverse stakeholders, from policymakers and business leaders to educators and residents, necessitated new forms of collaboration and governance, which was tackled under the Climate Pact by the Governance Ecosystem, promoting cross-sector dialogue, transparent decision-making and a shared vision.
- Regulatory barriers: Balancing heritage preservation with innovation in the historic District C required careful policy design. Regulatory and spatial planning tools had to be adapted to introduce green technologies without compromising the UNESCO World Heritage status.
- Financial stability: Financial backing that relies heavily on external funding sources makes the long-term financial sustainability of engagement initiatives uncertain. The European Green Capital 2026 title will allow the city to attract investment, accelerate policy adoption, and secure sustainable financing beyond reliance on external funds.
- Technical expertise: Industrial and economic landscape is based on small- to medium-sized companies that lack technical expertise, human resources, or financial support to join the Green Transition. The creation of the Climate Pact provided them with access to technical support from the Landscape Laboratory.
- Capacity building: Establishing the digital platform and maintaining a continuous communication flow required both technical capacity and a cultural shift within the administration.
Potential for Replication
Guimarães’ 3D Participatory Approach is already being replicated. For example, Torres Vedras, the Twin City of Guimarães, has implemented a comprehensive community engagement strategy modelled after Guimarães’ participatory framework. Recognising that climate neutrality requires both technological measures and civic engagement, Torres Vedras strengthened democratic climate governance by creating spaces for citizens, institutions, and local organisations to co-design climate policies. At the core of their strategy is the belief that public involvement enhances legitimacy, effectiveness, and acceptance of climate measures, especially when communities feel their input is valued and shared responsibility is cultivated.
Successful replication in cities depends on several key factors. First, strong political will combined with inclusive governance structures is essential. Trust between institutions and citizens must be well established to foster effective collaboration. Cities also need the capacity to develop and manage participatory processes, including the use of digital tools that facilitate engagement. Additionally, having access to supportive funding frameworks at the national or European level plays a critical role in sustaining these initiatives.
For cities aiming to replicate this approach, it is important to start early with inclusive design processes that involve a wide range of stakeholders. Leveraging schools, cultural programs, and place-making efforts can help create visible and meaningful community engagement. Participation should not be limited to sharing information but should enable citizens to have real influence over decision-making. Finally, embedding feedback and learning mechanisms from the beginning ensures continuous improvement and adaptability.
Key lessons learned:
- Start with identity and shared values: Creating an emotional connection to the environmental challenge builds trust and community ownership.
- Enable change through infrastructure and policy: Behavioural shifts are more likely when paired with tangible improvements and incentive structures.
- Maintain continuity: Feedback loops, transparency, and long-term monitoring (e.g., via the Climate Transition Team, the Landscape Laboratory, and digital platforms) ensure resilience and adaptation.