Unpacking capacity for climate action: mechanisms shaping the effect of organisational capacity on policy implementation at the local level

In recent years, the local level has gained significant importance in the policy implementation of climate action. Cities and municipalities offer place-based and context-specific solutions to climate-related and -specific problems. Yet, cities often face an implementation challenge. For instance, they may lack the capacity to implement climate plans and measures. Previous studies have consistently found a general influence of capacity as a key constraint for local governments. However, capacity can take various forms. Scholars point to the influence of human capacity, financial resources, community support, operational expertise, networks, political will or local autonomy as factors for organisational capacity. While cities demand an increase in organisational capacity factors such as budget and staff by higher political levels, it is still unclear through which mechanisms the socio-economic and institutional dimensions of organisational capacity unfold when cities do implement climate action, or not. In this paper, we investigate cities on different dimensions of organisational capacity in relation to the presence and form of implementation of climate action. By examining the different dimensions, we identify underlying mechanisms influencing outcomes of local climate action. Since we are looking at mechanisms, we are not solely interested in the direction and strength of the relationship between organisational capacity and climate action, but rather in the underlying processes and the ways in which different dimensions of organisational capacity influence climate action and might compensate for shortcomings of other factors of organisational capacity. Thus, this paper demonstrates the underlying mechanisms of organisational capacity by comparing different cases with varying outcomes and conditions. We work with a precise operationalisation of capacity and use qualitative and quantitative capacity indicators for a systematic case selection yielding more than 20 medium-sized European cities for a comparative case study analysis. The sample includes cities from countries where climate measures are not a mandatory task for municipalities. Furthermore, we chose medium-sized cities as the availability of organisational capacity depends on factors such as the size of a city. Hence, we determine entry points towards dimensions of organisational capacity, and combinations with other factors which cities can influence to manifest climate action on the local level. In doing so, the paper contributes to our general understanding of capacity-related factors of policy implementation. Its implications are important for cities so that they invest their scarce resources more efficiently and thereby reach climate neutrality targets faster. On the long run, this contributes to reaching global climate and sustainability goals.