Governing by Enabling in Multilevel Systems: Capacity Building and Local Climate Action in the European Union

This article investigates whether, how and under what conditions European Union (EU) capacity-building programmes actually contribute to improving the action capacity of target actors in view of common policy objectives. The empirical analysis focuses on the European Local Energy Assistance (ELENA) technical facility that aims to enhance local authorities’ project development and management capacities in the field of renewables and energy efficiency. Our findings show that favourable contextual conditions and the actual functional demand for more capacities cannot explain the implementation dynamics of this programme across EU countries. Conversely, the availability of basic starting resources or the ability to draw from EU funds emerge as key factors behind these dynamics. Evidence is provided demonstrating that the effectiveness of such programmes can be hampered by a persistent capacity trap if barriers to their implementation are not carefully considered in advance.