A Sustainable Energy and Climate Action Plan (SECAP) is a comprehensive, strategic and operational document developed and formally adopted by local governments to address the challenges of climate change and the transition to sustainable energy in various areas of their competence. This plan outlines the commitments and concrete steps that local authorities will take to achieve their goals and build a low-carbon, resilient and inclusive society. SECAP is a central instrument of the European Covenant of Mayors for Climate and Energy (CoM EU), an ambitious initiative supported by the European Commission that brings together local and regional authorities in a common effort to address climate change. It serves as a shared roadmap, increases visibility and improves the image of local authorities.

SECAP is structured around three main pillars that municipalities must address within their territory:

• Reducing greenhouse gas emissions (mitigation): This pillar focuses on reducing emissions or increasing sinks of greenhouse gases through human interventions. Local governments commit to reducing greenhouse gas emissions by at least 55 % by 2030 compared to 1990 levels and to achieving climate neutrality by 2050. A key tool is the development of Baseline Emission Inventory (BEI), which identifies sources of emissions and helps set targets.
• Climate change adaptation: The aim is to increase the resilience of cities and municipalities and prepare for the adverse consequences of climate change. Adaptation means the process of adjusting to actual or expected climate and its effects in order to mitigate damage or take advantage of beneficial opportunities. Risk and Vulnerability Assessment (RVA) is key to identifying climate risks and vulnerabilities at the local level.
• Alleviating energy poverty: This pillar addresses the situation where households have to reduce energy consumption to such an extent that it negatively affects the health and well-being of their residents, mainly due to high energy expenditure, low income or low energy performance of buildings. Energy Poverty Assessment (EPOV) helps identify local conditions and inform strategies for its elimination.

These pillars should be interconnected and actions should complement each other, with the aim of optimising available resources and achieving synergies.

Developing a successful SECAP involves four main phases and ten key elements:

• Initiation phase: It begins political commitment and formal involvement of the local government, which is essential for the success of the planned actions. The following mobilization of all relevant city departments, ensuring interdepartmental cooperation and an integrated approach. It is also crucial stakeholder engagement and effective communication, which ensures transparency, credibility and acceptance of actions by the public and organizations.
• Assessing the current situation and defining goals: This phase includes a thorough assessment of the current local situation through the aforementioned instruments (BEI, RVA, EPOV), which are the basis for setting objectives. Subsequently, defines a shared vision and ambitious goals, which are realistic but ambitious, and must be in line with the Covenant of Mayors commitments (e.g. 55% reduction in emissions by 2030 and climate neutrality by 2050). The targets should be SMART (specific, measurable, achievable, realistic and time-bound).
• Action planning and strategies: It is about preparation of complex events to address key challenges that are consistent with the set objectives and include both short-term and long-term measures. It is also important identify and secure adequate funding for the implementation of these actions, which requires an assessment of investment costs and identification of funding sources. The final step is adoption and submission of SECAP, which requires formal approval by the city council.
• SECAP implementation and monitoring: This phase includes detailed implementation strategies with milestones and indicators. Monitoring and reporting progress is key to assessing results, identifying delays or shortcomings and ensuring transparency. Reports on monitoring the implementation of actions are submitted every two years, while greenhouse gas inventory reports are submitted every four years. The municipality undertakes to submit the SECAP within two years of officially joining the initiative.

The European Commission, through the Joint Research Centre (JRC), provides scientific, technical and methodological support The 2025 SECAP Guide is a comprehensive update of the previous edition, providing detailed guidance to support municipalities in building a more sustainable future. A municipality’s commitment to SECAP is a proactive step towards meeting transnational climate goals and improving the quality of life of its citizens. Spring

Glossary of key terms

• Adaptation: The process of adapting to actual or expected climate change and its effects. In the context of SECAP, it includes measures to increase a community's resilience to the adverse impacts of climate change.
• Baseline Emission Inventory (BEI): An inventory of greenhouse gas (GHG) emissions for the base year, which identifies the various sources of emissions in a given area and helps municipalities identify and target the best areas of action for reducing emissions.
• Covenant of Mayors for Climate & Energy (CoM EU): An initiative that brings together municipalities to support the design and implementation of effective climate policies and strategies at the city level.
• Climate Neutrality: Achieving net zero greenhouse gas emissions, meaning that any remaining emissions are balanced by their removal from the atmosphere.
• Covenant Coordinators: Regional or national authorities that support municipalities in developing and implementing their SECAPs often provide scientific, methodological and financial support.
• Energy Poverty: Complex and multidimensional social and economic conditions under which households are unable to meet their basic energy needs at an affordable price. An energy poverty assessment (EPOV) helps identify these conditions.
• Greenhouse gas emissions inventory (GHG Emission Inventory): Quantification of potential greenhouse gas emissions associated with a municipality's territory and activities, used to identify major contributors and track progress in reducing emissions.
• Climate Hazard: A potential climate-related event, trend, or physical impact that may cause loss of life, injury, or other health impacts, as well as damage to property, infrastructure, livelihoods, service provision, ecosystems, and environmental resources.
• Mitigation: Measures taken to reduce greenhouse gas emissions or increase removals of greenhouse gases from the atmosphere. In SECAP, this usually refers to reducing energy consumption and increasing the share of renewable sources.
• Monitoring Emission Inventory (MEI): A regularly compiled inventory of greenhouse gas emissions that tracks overall progress towards the emission reduction target set in SECAP.
• Risk and Vulnerability Assessment (RVA): The process of combining scientific data with local knowledge to assess climate risks and vulnerabilities, which informs the development of an adaptation strategy.
• Sustainable Energy and Climate Action Plan (SECAP): An integrated, strategic and operational plan, formally adopted by the city council, that outlines commitments and actions to address the challenges of climate change and the transition to sustainable energy in the different areas of intervention of the respective municipality.
• Stakeholders: Individuals or groups whose interests are affected by the issue, whose activities affect the issue, who own/control the information, resources and expertise needed for the formulation and implementation of the strategy, or whose participation/involvement is necessary for successful implementation.