Governing the Twin Transition: The Role of Transnational City Networks in EU Multilevel Governance

This paper aims at theorising that transnational city networks are becoming increasingly relevant actors in EU governance. The significance of multilevel governance and transnational city networks is reflected in the extent to which these networks can contribute to a reconfiguration of the traditional hierarchical structure of decision-making (Caponio, 2021). This paper follows the recent developments with the twin transition which has brought about new questions regarding governance in the European Union. The case of the twin transition provides an opportunity to explore how these two strands can converge, offering a more comprehensive understanding of policy-making and governance dynamics in the face of complex governance challenges. As the green and digital transition brings both opportunities and risks, policy must play a crucial role in ensuring that its benefits are harnessed for environmental sustainability while minimizing potential harms (Muench et al., 2022). Indeed, it is important that the twin transition be rooted in a cohesive society, focusing on the need for effective, accountable, and transparent governance in addressing these interconnected challenges (Fouquet and Hippe, 2022). On the one hand, despite it probably not being able to bring about fundamental changes, it can still contribute to the creation of new governance practices. On the other hand, the twin transition can be considered as another rhetorical tool employed by the European Commission to build consensus and promote synergy around complex and often contentious policy challenges (Kovacic et al., 2024). Cities frequently serve as primary implementers of EU policies and hold significant potential to drive sustainable development, functioning as crucial hubs for investment and innovation (Kern, 2019). However, there is an absence of adequate governance frameworks that enable meaningful collaboration between networks (particularly cities) and the supranational level (Eurocities, 2025). Within this framework, transnational city networks represent a fast-growing institutional form cutting across, often interacting with, and co-shaping broader multi-level governance systems which can present organizational advantages and innovation opportunities for governing the twin transition (Kern, 2019).