Governing Local Heat Transitions: Participation, Conflict, and Technology Choices in Municipal Case Studies in Germany

The decarbonization of heat supply is a central pillar of Germany’s energy transition, requiring that the current supply—dominated by fossil fuels such as natural gas and oil—be completely replaced by 2045. Municipalities and local governments are at the forefront of this implementation. While national debates -most notably around the German Buildings Energy Act (Gebäudeenergiegesetz, GEG)- have been marked by intense political conflict and public backlash, less is known about local heat transitions. This paper examines local governance dynamics of heat transitions through a comparative case study analysis of four German municipalities The study is guided by the following question: What are enablers and barriers for local heat transitions? Empirically, it draws on qualitative expert interviews conducted in the four municipalities in the federated states Baden-Württemberg and Brandenburg. The cases were selected since they have made substantial progress in municipal heat planning and represent different technological pathways and governance structures, under varying local renewable energy potentials. We conducted interviews with key local stakeholders, including municipal administrations, energy utilities, and intermediary organisations. We also conducted a large-scale survey to better understand individuals heating preferences. The comparative analysis shows that local heat transitions are largely structured around three pillars: First is the expansion and decarbonisation of centralized large-scale heating networks (Fernwärmeversorgung). Many municipalities in Germany have a large-scale heating network with a centralized supply and planning on expanding it further, while exploring various approaches to decarbonise their heating supply. Second is the decarbonization and establishment of decentralised heating networks (Nahwärmenetze) in areas with no access to a centralized option. For both centralized and decentralized networks, a particular advantage lies in the use of locally available heat sources. For instance, geothermal heat from the ground can be efficiently distributed to heat consumers and in combination with storage provides viable opportunity for a climate neutral heat supply in some areas in Germany. The third component consists of individual and household-based solutions, i.e. heat pumps and energy-efficient measures renovation of buildings, which involve technical challenges as well as issues of social equity and affordability. In the four cases geothermal energy and storage is part of the local heating planning while differing local contexts and governance approaches characterize the transition process. This applies for example to local engagement which is often framed as a technical planning exercise rather than arenas for public exchange for transition pathways. Where challenges arise, they tend to be related to regulatory uncertainty, financial constraints, and limited municipal capacities rather than public opposition. Our findings show that local heat transitions in Germany follow distinct governance logics shaped by local institutional arrangements, existing infrastructures, and actor constellations. These local dynamics do not necessarily mirror the conflictual patterns observed at the national level, particularly in the debate surrounding the GEG. Instead, local heat transitions often proceed in a more pragmatic and less polarised manner, highlighting the importance of context-sensitive governance approaches for advancing climate-neutral heat supply.