Covenant of Mayors guidebook: new edition for more effective climate change action

Cities participating in the European Commission’s initiative Covenant of Mayors can now count on an updated guidance to help them devise mitigation, adaptation and energy poverty plans to address the impact of a changing climate.

Cities and local authorities are key players in the fight against climate change. Since 2008, Covenant of Mayors has been supporting over 11,000 cities and local authorities in Europe to develop and implement Sustainable Energy and Climate Action Plans (SECAPs). 

This comprehensive update considers the latest policy developments, improving guidance on risk and vulnerability assessment and introducing new methodologies for evaluating energy poverty - a growing concern for cities. The guidebook includes real-world examples to serve as an inspiration. 

In line with the increased scope and ambition of EU climate policy – as set out in the European Green Deal and European Climate Law – Covenant of Mayors signatories commit to reach climate neutrality by 2050, as well as to increase the resilience of their territories and to address energy poverty. 

The new guidebook updates recommendations on the scope and boundaries of greenhouse gas emissions inventories and improves related methodological guidance.

It presents approaches to develop risk and vulnerability assessments tailored to their contexts, resources, and priorities. The document provides step by step guidance, practical examples and answers to frequently asked questions.

Finally, it offers resources, and real-world examples on energy poverty assessment. The resource bridges the gap between theoretical frameworks and practical implementation.

Beyond theoretical guidance

Five technical documents will complement the guidebook, offering comprehensive instructions for developing SECAPs. These plans serve as roadmaps for cities to address the initiative’s three core pillars: 

• Climate change mitigation
• Adaptation to climate impacts
• Energy poverty alleviation

To bridge the gap between ambition and action, the guidebook showcases successful examples from municipalities across Europe, including cities adhering to two Horizon Europe Missions: Climate-Neutral and Smart Cities and Adaptation to Climate Change initiatives. These real-world examples provide inspiration and practical insights for local authorities, helping them translate climate goals into concrete projects.

Methodological consistency 

The JRC ensures methodological consistency across the initiative. Since releasing the first guidebook in 2011 and an updated version in 2018, this latest edition reflects evolving policy contexts and emerging best practices in urban climate governance.

Background

Cities and local governments are increasingly recognised as critical actors in addressing climate change and limiting global temperature rise to 1.5°C.

The Covenant of Mayors, explicitly referenced in both the European Green Deal and the EU strategy on adaptation to climate change, has become a cornerstone of Europe’s climate action framework at local level. 

Related links

How to develop a Sustainable Energy and Climate Action Plan (SECAP) - Covenant of Mayors Guidebook - Main document, 2025

Guidebook 'How to develop a Sustainable Energy and Climate Action Plan (SECAP) 2018

Covenant of Mayors: 2023 assessment

Covenant of Mayors 2023 Energy figures

Covenant of Mayors – Europe

Global Covenant of Mayors for Climate & Energy (GCoM)