appraisal of a decade of local sustainability in the basque country 2000-2010

Appraisal of a decadeof Local Sustainabilityin the Basque Country2000-2010

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DEPARTAMENTO DE MEDIO AMBIENTE,PLANIFICACIÓN TERRRITORIAL,AGRICULTURA Y PESCA

INGURUMEN, LURRALDEPLANGINTZA, NEKAZARITZAETA ARRANTZA SAILA

Edition: May 2012

IHOBE, Public Environmental Management Company

Alameda de Urquijo 36, 6th floor - 48011 Bilbao

Tel.: 94 423 07 43 • Fax: 94 423 59 00

www.ihobe.net

Published by: Ihobe, Public Environmental Management Company.

Basque Government Department of Environment, Spatial planning, Agriculture

and Fisheries.

Contents: This document has been produced with the help of Minuartia Enea.

Designed by: Woko Creativos.

Translation: Elhuyar.

Printed entirely on recycled paper.

The contents of this edition of this book are published under a Creative Commons Attribution -

Non-commercial, No Derivatives 3.0 Unported Licence (for more information see

http://creativecommons.org/licenses/by-nc-nd/3.0/deed.es_ES)

Appraisal of a decade of Local Sustainability in the Basque Country 2000-2010

02 1001 06

03 1204 2005 2206 3007 3408 38

chapte

r

page

General framework and context

Executive summary

Specifi c characteristics of Local Agenda 21 in the Basque Country

Local Agenda 21 promotion and development stages

AIDAR strategy for promoting Local Agenda 21

processes and developing UDALSAREA 21

Results of the implementation of the Action Plans

External relations and promotion

Local Agenda 21 success factors

Executivesummary01

Executive summary

Appraisal of a decade of Local Sustainability in the Basque Country 2000-2010 1

7

This document takes stock of the 10 years of Local Agenda 21 implementation in the Basque

Country, with special emphasis being placed on the period running between 2007 and 2010. This

document complements the one compiled previously which took stock of the period 2000-2006.

From 2000 to 2010, 4 basic stages can be observed in the gradual maturing of the Local Agenda

21 (LA21) initiative: 2000-2002, 2003-2005, 2006-2009 and from 2010 onwards. These stages

are characterised (respectively) by the gradual incorporation of the Local Action Plan design, its

implementation, annual assessment and periodic review. The stages also coincide with the periods

of the Basque Network of Municipalities– Udalsarea 21’s 3 Strategic Plans for Sustainability.

The following are 6 specifi c actions which have helped promote Local Agenda 21 in the Basque

Country

• Close coordination and alignment of Local Agenda 21 with supramunicipal policies

(Environmental Framework Programmes and the EcoEuskadi Sustainable Development

Strategy 2020).

• The adoption of a strategic approach to the development of the Local Agenda 21 LAPs,

using the strategic instrument AIDAR and the Udalsarea 21 Strategic Plans.

• The development of a networking culture and a culture of shared services within the

framework of Udalsarea 21.

• Viewing the Local Agenda 21 LAPs as an annual management instrument for local

sustainability policies, which incorporates to this end a common methodology and shared

computer and technical services.

• Viewing Local Agenda 21 as a model for achieving global quality in processes and for

ensuring continuous improvement.

• The setting up of the Basque Country Local Sustainability Observatory.


Executive summary

1

8

The progress made in the development of Local Agenda 21 processes over the last decade has

been both notable and constant. Whereas in the year 2000, the vast majority of municipalities

(92%) had still not initiated Local Agenda 21 processes, by 2010, 95% of them had approved

Plans. 75% of these municipalities form part of Udalsarea 21, 40% annually assess the Plan’s

degree of implementation and 7% are engaged in advanced Local Agenda 21 processes as the

result of their commitment to and the quality of their LA21initiatives.

As a result of the promotion of Local Agenda 21, Action Plans have been implemented in almost all

Basque municipalities (a total of 239 Plans with approximately 25,000 actions). Consequently, an

enormous number of actions have been carried out which contribute to the environmental, social

and economic improvement of the municipalities in question. The areas in which the greatest

number of actions have been implemented are mobility, followed some way behind by waste

management, wellbeing and social inclusion and territory and planning.

In addition to these actions, the work carried out by Udalsarea 21 has also helped obtain other

positive results, including:

• The creation and/or strengthening of environmental technical services and local

council departments, which in turn has boosted local sustainability policies and helped

integrate sustainability criteria into the design and development of local public policy.

• Creation and promotion of citizen engagement processes and organisations, which

constitute in themselves novel experiences in many municipalities.

• The fostering of communication and awareness-raising regarding sustainability.

• The strengthening and structuring of local environmental and sustainability policies,

establishing (through Local Agenda 21) a general framework for management planning

and initiatives which contribute to local sustainability.

• The promotion of the culture and practice of target-based public management.

Executive summary


9

1. Local Agenda 21 has been considered a key component of Basque sustainability

policy.

2. A strategic approach has been adopted to the development of Local Agenda 21 LAPs.

3. The Basque Network of Municipalities for Sustainability, Udalsarea 21, has been

created and developed.

4. The different public institutions of the Basque Country have been actively involved and

have cooperated in the initiative.

5. The position of head of Local Agenda 21 has been created and consolidated.

6. The annual assessment of the actions carried out and the results obtained has been

incorporated.

7. The principle of acknowledging those local councils which demonstrate the greatest

degree of commitment and effort has been gradually implemented.

8. Socioeconomic aspects have been taken into consideration.

9. Local Agenda 21 has become a framework instrument for other policies.

10. A commitment has been made to communication and citizen engagement.

As regards foreign relations, during the initial stage, the promotion of Local Agenda 21 initiatives in

the Basque Country was based on what we learned from the experiences of other regions. As the

Local Agenda 21 and Udalsarea 21 processes have matured, this relationship has grown into one

based on mutual exchange, and the Basque Country has since become a shining example in both

Spain and Europe as regards the promotion and development of Local Agenda 21.

Finally, the following factors have been essential to the success of Local Agenda 21 promotion in

the Basque Country over the 2000-2010 period:

General frameworkand context02

General framework and context


11

The Basque Country is one of Spain’s 17 autonomous regions. It is situated in the north of the

Iberian Peninsula, forming the border between France and Spain along the Bay of Biscay, right at

the centre of a major communications route linking Europe with the Peninsula. It has a surface area

of just over 7,000 square kilometres and a population of around 2,100,000.

It has a per capita income of €30,095 (2010), which is 35% higher than the European Union mean,

and a strongly industrial economy with strong ties abroad.

Due to its mountainous terrain, high population density and intense economic activity, land is an

especially scarce natural resource.

The Basque Country has 251 municipalities spread over its three provinces. Only 3% of these

municipalities have over 50,000 inhabitants, and 60% have a population of under 2,000.

Due to the territorial and demographic characteristics of the region, the municipalities themselves

differ widely, ranging from extremely urban and industrial large towns and cities, to rural and

agricultural villages or coastal tourist destinations.

For many years now, the marked consequences of the Basque Country’s industrial activities on the

environment, as well as the effects of other sectors such as the residential and transport industries,

have prompted the Basque institutions (the Basque Regional Government, the Provincial Councils

and the Local Councils) to implement a wide variety of actions aimed at moving the region towards

a more sustainable development model. These actions include those aimed at supporting the

implementation of Local Agenda 21 in all Basque municipalities, an initiative which has been

actively pursued throughout the last decade (2000-2010).

At the end of 2010, 239 municipalities had implemented Local Agenda 21 programmes. This re-

presents 95% of all Basque municipalities and over 99% of the region’s population.

Figure 1 • Development of LA21 in the Basque Country municipalities

Paris

Madrid

Berlin

VitoriaGasteiz

DonostiaSan Sebastián

Bilbao

EibarDurango

ArrasateTolosa

Lasarte

Basque Country

Municipalities with LA21 and members of Udalsarea 21

Municipalities with LA21

Municipalities without LA21

Specifi c characteristics of Local Agenda 21 in the Basque Country03



13

The promotion of Local Agenda 21 in the Basque Country throughout the 2000-2010 period

has been based on an approach rooted in the specifi c elements shown in the fi gure below, and

described in the following paragraphs.

Coordination and alignment of Local Agenda 21 with supramunicipal policies: Environmental Framework Programme and EcoEuskadi 2010

The development of Local Agenda 21 was established as a priority objective and commitment

of Basque sustainability policies by the 1st Environmental Framework Programme, and was later

endorsed and consolidated in the 2nd and 3rd Environmental Framework Programmes, as well as,

more recently, by the Basque Sustainable Development Strategy: EcoEuskadi 2020.

Being so closely linked to a key commitment of the region’s sustainability policies has lent LA21

great force, as well as providing fi rm, ongoing support by the various supramunicipal authorities.

Moreover, having a decade-old stable working framework is an advantage that sets us apart from

other regions. This circumstance has proved essential to consolidating certain policies which, by

nature, require a certain time to mature - something which is not always coincident with political

cycles.

Coupled with the development of the Udalsarea 21 network, the maturing of Local Agenda 21

processes, the structuring of the various municipal departments and technical services and the

establishment of a specifi c sustainability policy which did not exist before the year 2000, have

all resulted in the creation of a framework which renders the relationships existing between the

regional and local levels much more fl uid as regards sustainability policies. This in turn helps align

objectives and develop national policies at a local level. It also helps formulate and implement the

Basque Country sustainability policies from a local perspective. The multilevel integration of policies

has been achieved in relation to both framework policies (EcoEuskadi 2020 and the Environmental

Framework Programmes) and sectoral policies (Basque Plan for Fighting Climate Change, Basque

Plan for Environmentally-Sustainable Consumption, etc.).

Figure 2 • Specifi c elements of the development of LA21 in the Baque Country

Multilevel alignment of sustainability

policies

Specific elements of

Local Agenda 21 in the Basque

Country

Strategic approach to the development of

Local Agenda 21

BAR local sustainability observatory

Networking culture and

shared services

Global process quality and continuous improvement

LAPs as management instruments



3

14

Figure 3 • Multilevel alignment of sustainability policies in the Basque Country

Local Agenda 21 Processes

Municipalities /Udalsarea 21

Influence on the design of supramunicipal

sustainability policies

Alignment of objectives and development of

policies at a local level

Sustainability Policies in the

Basque Country:EcoEuskadi 2020Environmental

Framework Programmes

One essential factor in the development of Local Agenda 21 initiatives in the Basque Country has

been the use of strategic approaches and tools by the Basque Government to develop its support

policies. The key elements here are:

• The design of medium and long-term support instruments and services which anticipate

the future needs of LA21 processes as they mature. Basically, this means designing

instruments clearly aimed at helping and encouraging the processes to mature.

• The inclusion of municipalities as key fi gures in the defi nition of the support services to be

provided.

The main instruments used were:

The AIDAR strategic marketing instrument

This instrument consists of formulating and implementing initiatives and services aimed at fostering

and facilitating the development of LA21 processes in stages, defi ned in accordance with the

degree of maturity of the process in question. Municipalities can be divided into the following

maturity stages:

Attention: those municipalities which have not yet initiated a LA21 process.

Interest: those which are compiling or have compiled a LAP.

Demand: those with a LAP underway and which are members of Udalsarea 21.

Action: those Udalsarea 21 members who carry out LAP monitoring and follow up.

Recognition those municipalities which are members of Udalsarea 21, carry out LAP

monitoring and follow up and have more mature processes.

The incorporation of a strategic approach to the development of Local Agenda 21 LAPs



15

The services and activities linked to the “Demand”, “Action” and “Recognition” stages have been

provided/carried out since 2003 within the framework of the Udalsarea 21 network.

Udalsarea 21 - Strategic Plans: I (2002-2005), II (2006-2009) and III (2010-2015)

For each period, the Strategic Plans defi ne the strategic framework for developing the network

(Vision, Mission, Values and Strategic Objectives), the specifi c actions to be taken (programme of

action and list of services), the monitoring instruments to be used (indicators) and the operating

bodies responsible for this.

Figure 4 • AIDAR strategy for developing LA21 in the Basque Country

Attention

Interest

Demand

Action

Recognition

Municipalities’ stages of development in relation to Local Agenda 21

Specificservicesper stage



3

16

The development of a networking culture and shared services

In 2002, the Network of Basque Municipalities for Sustainability, Udalsarea 21, was set up.

The network initially encompassed 16 municipalities. By 2010, the network had 188 member

municipalities and had become the principal forum for driving, orienting and aligning the actions of

its members in relation to local sustainability policies, enabling them to share and access resources

and facilitating a wide range of useful, high-quality services adapted to its members’ diverse needs

and circumstances.

Udalsarea 21 provides its member municipalities with a list of 28 different services, grouped into the

following categories: information, training, methodology, computer services, fi nance, consulting

and technical assistance and recognition activities.

Local Agenda 21 LAPs as annual management instruments for local sustainability policies

Local Action Plans are designed to serve as management instruments. Consequently, the network

of municipalities, Udalsarea 21, has established a blanket implementation model This model

includes the following tasks, which together make up an annual management cycle for the LAPs.

- PROGRAMMING of actions

- EXECUTION of actions

- ASSESSMENT of the degree of IMPLEMENTATION of the Local Action Plan

- Calculation of SUSTAINABILITY INDICATORS

This annual cycle is accompanied by the LAP REVIEW task, which consists of drafting a new Plan

in accordance with a common methodology, once the old Plan has expired.

The computer application MUGI 21, installed in over 150 municipalities within the network,

facilitates the integrated management of all these tasks. It also enables the subsequent uploading

of all the information to the Basque Country Local Sustainability Observatory, thus enabling means

to be calculated, municipalities to be compared and development to be analysed.

The Local Agenda 21 management model in the Basque Country aims to foster target-based

management which prioritises effi cacy, effi ciency and quality, thus improving the results obtained

and increasing the satisfaction level of the population.



17

Figure 5 • Management model for Local Action Plans and progress of sustainability in the municipality

Social and environmental improvement

year 1 year 9(...) year 10

LAP REVIEW

Annual

progra

mming

Annual

progra

mming

Annual

progra

mming

Assess

Plan

Calculate

indicators

Assess

Plan

Calculate

indicators

Assess

Plan

Calculate

indicators

Execution

Execution

Execution

Execution

1st local a

ction Plan (8

years)

(...)

(...)

(...)2nd lo

cal actio

n Plan



3

18

Figure 6 • Quality attributes of the Local Agenda 21 processes in the Basque Country

A model oriented towards global process quality and continuous improvement

Local Agenda 21 processes in the Basque Country are based on the 5 attributes shown in the

fi gure below. The aim is for all processes to incorporate these attributes to the greatest possible

degree.

To achieve this aim, Udalsarea 21 has recently set up a multi-criteria global quality assessment

system for each process, called tak21. This system incorporates both quantitative (degree of

implementation of the Action Plans, value of the local sustainability indicators, etc.) and qualitative

(political leadership, quality of citizen engagement, etc.) indicators. Thanks to this system, each

municipality can self-assess its own process and compare itself with others, thus identifying its

strengths and areas of improvement for the future.

Sustainable

Strategic

Cross-cuttingParticipatory

Operational

LocalAgenda 21

Process



19

Basque Country Local Sustainability Observatory

Udalsarea 21 has set up a Local Sustainability Observatory for the Basque Country, which gathers

a vast amount of valuable information which it then uses to assess the effort and effectiveness of

local sustainability policies in the Basque Country.

The Observatory gathers its information from the Local Action Plan assessments (over 9,000

actions have been assessed so far) and indicator calculations (more than 6,000 indicators have

been calculated to date). It is therefore a global platform for integrating, monitoring and interpreting

the results of the indicator calculations and Local Action Plan assessments carried out by each

municipality.

The information provided by the Action Plans and sustainability indicators is managed by a

computer application called MUGI 21, developed by Udalsarea 21, which is available to all its

member municipalities. This application enables an integrated management of the Local Agenda

21 process, while at the same time exporting data to the MUGI 21 environment of the Udalsarea

21 Technical Secretariat, which coordinates the Basque Country Local Sustainability Observatory.

It also enables users to extract indicators from the network as a whole in order to gain a global

overview of the progress of the various processes. Based on this vast and valuable database, the

network compiles and publishes a biennial Local Sustainability Report for the Basque Country,

which outlines and interprets the results obtained. This report also serves as feedback for the local

processes themselves, since it provides mean values which those responsible for managing Local

Agenda 21 initiatives can use as a reference.

Figure 7 • Basque Country Local Sustainability Observatory

MUGI 21MUGI 21

MUGI 21 MUGI 21

MUGI 21

Technical secretariat Udalsarea 21: IhobeBasque Country Local Sustainability Observatory

MUGI 21

Local Agenda 21 promotion

and development stages04

Local Agenda 21 promotion and development stages


21

Development of Local Agenda 21 in the Basque Country

The development of LA21 can be divided into 3 stages ranging from the year 2000 to 2009,

followed by a fourth stage which began in the year 2010 and which is expected to last until 2015

(see fi gure 8).These stages are based on the steps that have been taken as the processes have

matured within the local councils and as Udalsarea 21 itself has grown and evolved.

LA21 has evolved and matured as new phases in the management of the LA21-LAPs have

gradually been incorporated by the most advanced municipalities. The phases are as follows: LAP

design (2000-2002); implementation of the actions encompassed in the LAP (2003-2005); LAP

assessment and indicator calculation (2006-2009); and review of the Local Action Plans (from

2010 onwards).

Udalsarea 21 has developed in parallel, in accordance with the stages established in its Strategic

Plans and the key objectives set for each period. These objects were: Set up, growth and

structuring of services (2003-2005); consolidation, diversifi cation of services and focusing of

activities (2006-2009); and commitment and quality, cross-cutting action, social outreach and

recognition (2010-2015).

Figure 8 • Stages in the development of Local Agenda 21 and Udalsarea 21 in the Basque Country (2000-2010)

Set up of Udalsarea 21

2000 2003 2006 2010

Strategic Plan

2003-2005

Strategic Plan

2006-2009

Strategic Plan

2010-2015

Design

US

21

De

velo

pm

en

tL

A2

1 D

eve

lop

me

nt

Set upGrowth

Structuring of services

ConsolidationDiversification of services

Focusing

Commitment and qualityRecognition

Social outreachCross-cutting action

LA21-LAP design

LAP implementation

LAP assessmentIndicator calculation

LAP reviewGlobal quality LA21: tak21

Num. LA21 processes 20 45 188 239

Municipalities in US21 0 16 138 188

Num. LAPs assessed 0 0 39 85

Processes with advanced LA21 0 0 0 17

Revised plans 0 0 0 11

AIDAR strategy for promoting

Local Agenda 21 processes and

developingUdalsarea 21

05

AIDAR strategy for promoting Local Agenda 21 processes and developing Udalsarea 21


23

Within the general AIDAR framework, in the case of the more advanced stages (DAR), LA21

promotion is carried out through Udalsarea 21 and its portfolio of services.

The fi gure below provides a more graphic illustration of the evolution of the municipalities in

accordance with the developmental stages (AIDAR) during the 2000-2010 period. The graphs

indicate the percentage of municipalities within the Basque Country which are located in each stage

in each given year. The fi gure also shows the principal services provided to the local councils each

year and at each stage.

2000

92% 8% 0% 0% 0%

Attention Interest Demand Action Recognition


2003

82% 12% 6% 0% 0%

Udala website

US21 internal and external participation

appendixes

Review of development from 2000-2010

As stated above, the promotion of Local Agenda 21 processes in the Basque Country is focused

on and makes use of the strategic instrument known as AIDAR. In this case, Local Agenda 21

processes are promoted through the generation of services and activities grouped in accordance

with the process’s current stage of development. This makes it easier to respond to the specifi c

needs of each municipality, as well as to help the processes to mature and evolve towards more

advanced stages.

Depending on their developmental stage, municipalities are classifi ed as:

Attention: municipalities which have not yet initiated a Local Agenda 21 process.

Interest: municipalities which are compiling or have compiled a LAP.

Demand: municipalities with a LAP underway and which are members of Udalsarea 21.

Action: Udalsarea 21 members who carry out LAP monitoring and follow up.

Recognition municipalities which are members of Udalsarea 21, carry out LAP monitoring

and follow up and have more mature processes.



5

24

When the data and fi gures are analysed, it becomes clear that LA21 processes have evolved

considerably, and in an ongoing manner, over the course of the last decade. Thus, for example,

whereas in the year 2000 the vast majority (92%) of municipalities had not yet initiated their

processes and only a very few had approved plans, in 2010, the situation was just the opposite:

95% had approved plans, 75% were members of Udalsarea 21, 40% assessed the degree of

implementation of the plan on an annual basis and 7% were at an advanced stage of the process,

and therefore eligible to be publicly acknowledged for their quality and efforts.

The data from 2010 indicate that the majority of municipalities in the Basque Country have reached

the stage required to become members of Udalsarea 21 (Demand) and have formally expressed

their desire to join the network.

They also show that greater and greater differences are becoming clear as regards the development

stages of Local Agenda 21 processes. This highlights the inability or lack of effort shown by some,

as well as the commitment and quality shown by others.

The gradual progress of the municipalities through the phases has been accompanied by the

increasing generation of support services and resources.


2006

25% 20% 39% 16% 0%

2010

5% 20% 35% 33% 7%

LA21 Monitoring Programmes

MUGI 21

European Sustainable Mobility

Week and Aste Berdea (Green Week)

Information Serviceon Subsidies and

Financial AidGuides and Manuals

TrainingUdalsarea 21 notebooks

US21 appendixes: Internal and external

participation Technical Secretariat

Udala website

www.udalsarea21.netElectronic newsletter

Best Practices: on-lineUdalsarea21 Appendixes:

citizen engagement and LA21 consolidationInformation Service on

Subsidies and Financial Aid

Guides and manualsTraining

Udalsarea 21 notebooks

MUGI 21LA21 Monitoring

Programmes; Segmentation

Basque CountryLocal Sustainability

Observatory Think tanktak21:LA21 quality self-assessment

systemUdalsarea 21 Awards:

consolidation




25

The fi rst services set up were aimed at catching the municipalities’ Attention. Actions at this time

included the creation of a specifi c website (Web Udala) and a telephone information hotline (Ihobe-

Line).

Once the municipalities had begun to express an Interest in the processes, other instruments were

generated to help them get started. Thus, from 2001-2003 the Udaltaldes 21 were designed and

set up. Udaltaldes are working groups of municipalities located in the same region which, with

the help of shared external technical assistance and the coordination of a regional supramunicipal

body, designed and implemented their Action Plans. Between 2001 (the year in which the fi rst

pilot Udaltalde 21 was set up) and 2010, as many as 28 Udaltalde groups were formed. Thanks to

these groups, almost all of the 239 existing Action Plans were successfully designed.

In 2003, thanks to the increase in the number of municipalities with approved Action Plans, a

growing Demand was noted for implementation support services. It was then that Udalsarea 21

was set up. Through the network’s Strategic Plans, a portfolio of services was established which

was later expanded and diversifi ed between 2003 and 2010. This portfolio of services was initially

aimed at municipalities at the Demand stage, who required implementation support, but from 2006

onwards it was expanded as more and more municipalities began to progress to the Action stage,

initiating their Action Plan assessment. It was also expanded to cater to those who demonstrated

particular commitment and quality in their processes, thus attaining the Recognition stage.

2007

15% 13% 40% 31% 1%

www.udalsarea21.netInformation Service

on Subsidies andFinancial Aid

Guides and manualsTraining

US21 appendixes: Internal and external participation Aste Berdea (Green Week)

European Sustainable Mobility Week

Udalsarea 21 notebooks

MUGI 21LA21 Monitoring

Programmes Basque Country

Local Sustainability Observatory and

Report




5

26

2008

12% 10% 43% 29% 6%

2009

6% 14% 47% 27% 6%

2010

5% 20% 35% 33% 7%


Information Service on Subsidies and Financial Aid:

trainingRegulatory models

Eco-barometers

MUGI21LA21 Monitoring

Programmes: Segmentation

Basque Country Local Sustainability

Observatory

Udalsarea 21 Awards:

consolidation

www.udalsarea21.netCustomised Training Days

MUGI21LA21 Monitoring

ProgrammesBasque Country

Local Sustainability Observatory

LA21 Monitoring Programmes: Segmentation

Think tanktak21:LA21 quality self-assessment

system


US 21 appendixes: Consolidating Local

Agenda 21Best Practices: on-lineInformation Service on Subsidies and Financial Aid Guides and Manuals

TrainingUdalsarea 21 notebooks




N.B.: Only the new services to meet Demand are shown for 2008 and 2009 for reasons of space



27

LA21 processes drawn up (2000-2010) 239

Udaltaldes 21 (2000-2010) 28

Number of Local Agenda 21 specialists (municipal and regional) 84

Number of LAPs assessed (2010) 85

Number of participating municipal employees 1,173

Number of LAP actions assessed (2010) 8,921

Number of indicators calculated (2010) > 6,000

Revised Plans (2007-2010) 11

Municipalities with advanced LA21 processes (2010) 17

Citizen engagement within the framework of LA21 (2000-2010) (1)

Participants in LA21 forums 31,234

Participants in LA21 School forums 18,952

Participants in LA21 Business forums 1,192

Participants in Environmental Advisory Boards 7,097

Participants in Sustainable Development Commissions 4,199

Participants in thematic work meetings 5,012

Number of municipalities which are members of Udalsarea 21 (2010) 188

Table 1 • Summary of the LA21 development indicators (2000-2010)

(1): Data taken from the Participa 21 project, based on a questionnaire administered to all the municipalities in the Basque

Country.

Degree of LA21 Development and Implementation:

In the specifi c period between 2007 and 2010, we should mentioned that 95% of the municipalities

in the Basque Country set up Local Agenda 21 processes. This includes small municipalities and

those located in rural areas.

We also managed to consolidate the number of members in the Udalsarea 21 network (DAR),

as well as the number of municipalities which carry out an annual assessment of their Plans and

calculate local sustainability indicators.

Finally, we should also point out the setting up of a new group of municipalities, defi ned as

“advanced” municipalities. This group includes those municipalities which have shown a particularly

strong commitment to their processes. In recognition of their efforts, they are offered a series of

exclusive services, such as Auzolan 21, help groups, the execution of pilot projects of common

interest and the LA21 global quality measurement system (tak21).

To summarise the 2000-2010 period, Table 1 outlines the principal indicators of the degree of LA

21 development and implementation in the Basque Country.



5

28

Overall, a very high level of communication and exchange has been achieved, both as regards

the number of people participating and in relation to the number of channels and the volume of

communications they enable. Also, over recent years, over 250 working and exchange events

have been held within the framework of the network’s different bodies (Technical Committee,

Executive Committee) and in the internal meeting and communications forums (Ekitaldes, Auzolan

21 and Training days).

Moreover, the network has gradually developed a broad-ranging portfolio of 28 different services,

which can be grouped into the following categories: Information, Training, Methodology, Computer

services, Finance, Consulting and technical assistance and Recognition activities.

The table below provides a summary of the degree of development of the network’s most

emblematic services.

Networkbodies

Internal meetingand communication forums

On-line informationand communication channels

ExecutiveCommittee

TechnicalCommittee

Auzolan 21

Ekitaldes

Trainingdays

LA21Seminars Social

networks

Udalsarea 21website

E-newsletter

MUGI 21

TechnicalSecretariat

Throughout the 2003-2010 period, the Udalsarea 21 network has continuously developed the

scope of its activities and services, and has set up various different forums and communications

channels between its members.

Figure 9 shows the various different forums and communication channels which have enabled

the construction of a solid network and a community of people working together to ensure local

sustainability in the municipalities of the Basque Country.

Figure 9 • Udalsarea 21 network forums and communication channels



29

Table 2 • Summary of the development indicators for the principal activities and support services provided by Udalsarea 21

(1): Ekitaldes: Thematic work groups of municipalities set up in 2004 and aimed at enabling learning though action and the

generation of common resources for the network.

(2): Auzolan 21: Technical and economic support service for carrying out innovative, pilot projects set up in 1007. It is provided

through the teamwork of a restricted number of highly-committed municipalities.

Principal Activities and Services Provided by Udalsarea 21

Number of network Technical Committee meetings (2003-2010) 36

Number of network Executive Committee meetings (2003-2010) 8

Number of publications (2007-2010)

US21Notebooks and Methodology Guides published 18

Videos 19

Number of people receiving training (2007-2010) 1,399

www.udalsarea.net hits (2010) 166,449

Ekitaldes (1) (2004-2010)

Number of Ekitaldes 20

Number of participants (municipalities and regional bodies) 293

Auzolan 21 (2) (2007-2010)

Number of Auzolan 21 experiences 4

Number of participants in Auzolan 21 31

Identifi cation and dissemination of Best Practices (2010)

Best practices of the Udalsarea 21 municipalities 65

Best practices of non-Udalsarea 21 municipalities 28

Number of users of the MUGI 21 computer application (2010) 149

School Agenda 21 (2010)

Number of municipalities with SA21 129

Number of schools 475

Students 200,231

Results of the implementation of the

Action Plans06



31

As a result of the promotion and development of Local Agenda 21, a total of 239 Action Plans

(with approximately 25,000 actions) have been implemented by the vast majority of Basque

municipalities. A large number of actions have therefore been carried out, which contribute to the

environmental, social and economic improvement of the municipalities.

Their degree of implementation varies widely from municipality to municipality: while in some the

actions are carried out at a stable pace, which is sometimes even faster than expected, in others

the processes have virtually come to a standstill, with very slow progress being made.

On the whole, the mean level of implementation of the Plans is gradually and consistently increasing

as time goes on, although the execution rate is around 20% lower than the desired level.

The review of the Action Plans by diverse municipalities, which has been underway since 2008,

has helped improve the implementation rate, since Plans are designed with actions more suited to

the real resources available and the specifi c needs of the local area.

Based on the sample of Plans assessed during the last year for which data are available, the

thematic area on which most of the actions carried out focus is Mobility (429), followed by Waste

management (304), Wellbeing and social inclusion (280) and Territory and Planning (272). At the

other extreme, environmental control (soil, acoustic and atmospheric) and the management of

environmental hazards are themes on which the fewest number of actions focus.

Alongside the execution of actions, the development of Local Agenda 21 processes has also

contributed to the achievement of other positive results, including:

• The creation and strengthening of technical environmental and Local Agenda 21

coordination services in local councils, which in turn has helped boost those local

sustainability policies which are both directly and indirectly linked to the LA21 initiative.

• The creation and/or strengthening of local council departments for the environment

and sustainability.

• The creation and promotion of citizen engagement processes and organisations,

which constitute in themselves novel experiences in many municipalities.

• The fostering of communication and awareness-raising regarding sustainability.

• The strengthening and structuring of local environmental and sustainability policies

and the integration of sustainability criteria in the design and development of local public

policies.

• The fostering of a culture and practice of target-based public management,

incorporating the assessment of the action carried out, the calculation of results and

improvement indicators and accountability, or the duty to communicate these results both

internally (among politicians and specialists) and externally (to the general public).



6

32

18,0%

13,8%

28,5%

23,0%

40,9%32,1%

48,7%

62,3%68,3%

58,1%39,0%

49,5%

60,0%70,5%

77,5%82,5%

1 2 3 4 5 6 7 8

Year of execution

Degree of execution

Target level of implementation Mean level of implementation

131

100%

80%

60%

40%

20%

0%

Evolution of the mean level of implementation of the Plans, in comparison with the target

Mobility and transport

Waste management

Wellbeing and social inclusion

Territory and planning

Economic development

Environmental management of the municipal administration

Water

Biodiversity and the natural environment

Awareness raising and sustainable consumption

Communication and citizen engagement

Energy

Culture

Basque language

Environmental management of economic activities

Housing

Equality

Health

Labour market

Acoustics

Atmosphere

Soil

Peaceful and harmonious coexistence

Environmental hazards

429

304

280

272

240

213

213

197

188

164

149

147

94

91

59

58

57

49

41

38

29

26

19

0 50 100 150 200 250 300 350 400 450

Num. of actions carried out

Figure 10 • Evolution of the mean level of implementation of the Action Plans in comparison with the target

Source: Basque Country Local Sustainability Observatory (2010)

Level of execution of the PAL actions, according to thematic area

Figure 11 • Level of execution of the PAL actions, according to thematic area

Source: Basque Country Local Sustainability Observatory (2010)



33

In addition to assessing the degree of implementation of the Plans, every year the municipalities

in the network also calculate the value of their local sustainability indicators. This calculation is

based on the MUGI 21 computer application and a system of common indicators. Between all the

network municipalities, over 6,000 indicators have been calculated to date.

Based on the information provided by these indicators, the municipalities can assess the degree

of environmental and social improvement achieved. The result of this assessment can later be

compared with the mean value calculated for the network as a whole, as well as with the specifi c

targets established in the fi eld of specifi c policies.

External relationsand promotion07



35

External relations with other organisations and networks, both in Spain and abroad, have, from the

very beginning, been an important part of the Local Agenda 21 initiative in the Basque Country.

The promotion and implementation of Local Agenda 21 began fairly late in the Basque Country

(the year 2000), whereas other regions of both Spain and Europe initiated their processes, which

were pioneering in their day, much earlier (between 1996 and 1999).

During the initial stage, the promotion of Local Agenda 21 initiatives in the Basque Country was

based on what we learned from the experiences of other regions. As the processes matured,

however, and particularly as Udalsarea 21 was developed, this relationship evolved into one based

on mutual exchange and cooperation.

Currently, Udalsarea 21 has ever stronger ties with other regions in Spain and Europe, and is now

a benchmark as regards the promotion and development of Local Agenda 21 initiatives.

In this sense, over recent years, the number of papers and presentations given by the network and

its member municipalities at national and international events has risen. Furthermore, a growing

interest is being shown by other networks and organisations in Spain and Europe in learning more

about the activities and services provided by the network. The following aspects are the object of

particular interest to other organisations:

- The various methodological guidebooks compiled (related to the design of Local Agenda

21 processes, as well as to specifi c thematic areas).

- The Local Action Plan monitoring model and the instruments developed (annual

monitoring programmes, MUGI 21 computer tool and the Basque Country Local

Sustainability Reports).

- Anticipating climate change and how to focus its integration into LA21.

- The scope and quality of the portfolio of services and tools.



7

36

Figure 12 • Evolution of Udalsarea 21’s external relations and promotion (2000-2010)

Creation of Udalsarea 21

2000 - 2005 2006 - 2009 From 2010 onwards

Strategic Plan 2003-2005



Design

US

21

De

velo

pm

en

tE

xch

an

ge

wit

h o

the

r n

etw

ork

s a

nd

o

rga

nis

ati

on

s

Set upGrowth

Structuring of services

ConsolidationDiversification of services

Focusing

Commitment and qualityRecognition

Social outreachCross-cutting action


Benchmarking and learning from others

Cooperation and emerging reference

The table below outlines the main cooperation and external promotion initiatives carried out over

recent years:



37

Table 3 • Summary of the network’s main external relations and promotion initiatives. (1) Observer status only

Level of Activity and External Promotion of the network

International networks with

a cooperation agreement

Member of organisations

working towards local

sustainability

National networks with a

cooperation agreement

International exchange

meetings with other

networks

Exchange meetings

between the municipalities

and other national networks

Presentations at

international conferences

and seminars

Principal presentations at

national conferences and

seminars

1ICLEI, Local Governments for Sustainability (2004)

3Network of Sustainable Local Development Networks, Network of

Sustainability Observatories and Cities for Climate Network(1)

2Network of Cities and Towns for Sustainability (2004) and Navarra Network

of Local Entities for Sustainability (2006)

2Italian LA21 Association Bilbao (2007) and Rimini (2008)

3Bilbao (2005), Barcelona (2005) and Pamplona (2006)

114th European Conference of Sustainable Cities and Towns (Aalborg, 2004),

5th European Conference of Sustainable Cities and Towns (Seville, 2007),

European Conference of ICLEI (Zaragoza, 2008), ICLEI Conference on

Climate Protection and Renewable Energy (Rovigo-Italy, 2008), ICLEI World

Congress (Edmonton, 2009), 1st ICLEI World Congress: Resilient Cities

(Bonn, 2010).

11CONAMA (2006, 2008, 2010). Various interventions at AL21 seminars

in the different autonomous regions of Spain (The Canary Islands, 2005;

La Rioja, 2005; Asturias, 2006; Granada, 2006; Murcia 2006 and 2008;

Catalonia, 2008; Huesca, 2010)

Local Agenda 21 success factors08



39

The following factors contributed greatly to the success obtained regarding the promotion and

development of Local Agenda 21 in the Basque Country.

Local Agenda 21 as a component of Basque sustainability policies

The development of Local Agenda 21 was established as a priority objective and commitment

of Basque sustainability policies by the 1st Environmental Framework Programme, and was later

endorsed and consolidated in the 2nd and 3rd Environmental Framework Programmes, as well as,

more recently, by the Basque Sustainable Development Strategy: EcoEuskadi 2010.

Being so closely linked to a key commitment of the region’s sustainability policies has lent LA21

great force, as well as providing fi rm, ongoing support by the various supramunicipal authorities.

Moreover, having a decade-old stable working framework is an advantage that sets us apart from

other regions. This circumstance has proved essential to consolidating certain policies which, by

nature, require a certain time to mature - something which is not always coincident with political

cycles.

The incorporation of a strategic approach to the development of Local Agenda 21 Local Action Plans

One essential factor in the development of Local Agenda 21 in the Basque Country has been

the use of strategic approaches and tools during the development of support policies by the

Basque Government. The key elements of this development include the AIDAR instrument and the

Udalsarea 21 Strategic Plans, which have enabled the design of medium and long-term support

instruments and services, striving to anticipate the future needs of LA21 processes as they mature.

They also permitted the inclusion of the municipalities as key fi gures in the defi nition of the support

services to be provided.

The set up and development of the Udalsarea 21 network

Since it was set up in 2002, the Udalsarea 21 network has played a key role as a organisation that

brings together, drives, orients and aligns the actions of its member municipalities, enabling them

to share their resources and providing a multitude of useful, high-quality services specially adapted

to the diversity of Basque municipalities, thus developing the AIDAR strategy.

The network enables the exchange of knowledge, information, best practices and assistance, and

also helps those working in the same fi eld to get to know one another.

Inter-institutional involvement and cooperation

The Basque Government Department of the Environment, Spatial Planning, Agriculture and

Fisheries has led the development of Local Agenda 21. In this undertaking, from 2000-2010 it has

had the help and involvement of many different agencies working within the Basque administration

at both a regional and provincial level.

The creation and consolidation of the position “Head of Local Agenda21”

Since the year 2000, the position “Head of LA21” was created at both a municipal and local regional

level. This position has been a key factor in the development of Local Agenda 21 processes in the

different municipalities. In the specifi c case of small municipalities, the Udaltaldes 21 have played a

particularly important role, as has the appointment of shared local area specialists to help manage

LA21 in groups of small municipalities.

1

2

3

4

5



8

40

Furthermore, the involvement and fi rm commitment of the people fulfi lling these posts have

proved essential for the consolidation of the various processes. Within the framework of Udalsarea

21, these individuals have formed a network which has been a key element for the continued

advancement and improvement of the initiative.

The incorporation of the annual assessment of the actions carried out and the results obtained, as well as the periodic review of the Action Plans

Over 80 municipalities assess the degree of implementation of their Plans on a yearly basis, using

the MUGI 21 tool. They use a common methodology and an external assessor who helps ensure

the comparability and credibility of the assessment carried out. Moreover, these municipalities

also calculate every year the network’s common local sustainability indicators, using the computer

application and the shared assistance provided by MUGI 21. The consolidation of this monitoring

system has been a key element in driving forward the execution of the 25,000 or so actions

contemplated by the PALs of the Basque municipalities. Thanks to their participation in the

monitoring process, every year the involvement of over 1,000 municipal employees throughout the

Basque Country is ensured and consolidated. In addition to driving forward the Local Agenda 21

LAPs themselves, this annual monitoring process helps ensure the general improvement of public

management in the Basque Country municipalities, thus moving the whole region towards a target-

based management system, whose degree of implementation is assessed and communicated to

the general public.

Based on the experience accumulated since the year 2000, a common methodology for reviewing

Action Plans has been developed. Since 2008, this methodology has been implemented in a

large number of municipalities, as the initial Plans in said municipalities have expired. The review

of the Plans enables the processes to be revitalised and adapted to current needs and priorities. It

therefore helps the LAPs to continue serving as a key management instrument.

The gradual incorporation of the principle of recognising commitment

Over recent years, the practice of recognising and acknowledging the commitment shown by

local councils has gained ground. Particularly from 2007 to 2010, services were developed aimed

exclusively at those municipalities which are exemplary as regards the effort made and the quality

achieved in their processes. This commitment is a key element for incentivising the activities of

the municipalities. It is also a mechanism for improving the effi ciency with which the resources

provided by the network are used, aimed mainly at those members who are in a position to make

the most effective use of their value.

Incorporation of socioeconomic aspects

Local Agenda 21 was designed as an instrument for sustainable local development planning in

all its many dimensions, which could be adapted to the specifi c needs and requirements of each

individual municipality. As a result, many municipalities have incorporated social and economic

aspects into their Plans, alongside (and in equal measure with) environmental concerns. This is

particularly evident in relation to small and rural municipalities, which have very specifi c social and

economic needs and for which LA21-LAP has become their principal planning instrument.

Local Agenda 21 as a framework instrument for other policies

As sectoral sustainability policies have developed, Local Agenda 21 has increasingly become a

framework instrument encompassing many new areas of action. Emerging environmental aspects

such as the mitigation of and adaptation to climate change, biodiversity and sustainable public

procurement have gradually been incorporated into Local Agenda 21 processes as the Local

Action Plans are revised and redrafted. In this way, the Agenda retains its importance as a planning

and management instrument for local councils.

6

7

8

9



41

Commitment to communication and engagement

Local Agenda 21 is a key framework through which citizen engagement has been articulated

and promoted in municipalities. This has resulted in the incorporation of new approaches and

instruments which had hitherto not been taken into consideration in the municipal management

process. Although in a signifi cant number of municipalities these processes have diminished, in a

remarkable number periodic citizen engagement forums are still organised in relation to the annual

monitoring of the LAPs, as well as to the formulation of new policies directly or indirectly linked to

them.

Challenges

The main challenges for the future development of Local Agenda 21 and the Basque Network of

Municipalities for Sustainability - Udalsarea 21 are:

10

To increase commitment to local sustainability and

the quality of Local Agenda 21 processes by Basque

municipalities, by strengthening the actions designed to

recognise and acknowledge this effort. This should also

serve to motivate other, less committed municipalities.

To consolidate the ongoing development of Udalsarea 21 as

a framework for cooperation and a provider of key services

designed to foster Local Agenda 21, and to strengthen the

cross-cutting nature of the network through the incorporation

of new supramunicipal entities.

To ensure improved social-environmental and public management

results. These results should be tangible and notable, and should

be communicated effectively to Basque society in general, thereby

ensuring a greater social impact and raising public awareness of

Local Agenda 21 processes both in Spain and in Europe.

1

2

3

DEPARTAMENTO DE MEDIO AMBIENTE,PLANIFICACIÓN TERRRITORIAL,AGRICULTURA Y PESCA

INGURUMEN, LURRALDEPLANGINTZA, NEKAZARITZAETA ARRANTZA SAILA

appraisal of a decade of local sustainability in the basque country 2000-2010

Documents

alignment of local agenda

years of local agenda

basque countrylocal

local sustainability

decade of local sustainability

promotionlocal agenda

basque country2000

local action plan design