Identifying social determinants of urban low carbon transitions: the case of energy transition in Bilbao, Basque Country

The research paper examines the cognitive dimensions of urban sustainability transitions (UST) in Bilbao, Spain, using the Q method to identify how stakeholder values and perceptions act as barriers or opportunities for decarbonization. The study identifies four distinct discourses among stakeholders: local followers, confidant visionaries, problem-solvers, and workaday sceptics. While there is a general consensus that energy consumption in the Basque Country is too high and fossil fuels are scarce, significant gaps exist between decision-makers and potential drivers of change. The authors argue that for cities to act as 'transition tractors' rather than mere actors, they must establish knowledge, discussion, and communication (KDC) platforms to link pragmatists, visionaries, and policymakers.

• The study identifies four primary stakeholder discourses regarding Bilbao's energy transition: 'local followers' (Discourse A), who view action as a top-down issue and distrust their own capacity to act; 'confidant visionaries' (Discourse B), who trust bottom-up innovation but distrust current institutional leadership; 'problem-solvers' (Discourse C), who focus on short-term practical solutions and regulatory frameworks; and 'workaday sceptics' (Discourse D), who are predominantly regional and distrust the anthropogenic causes of climate change.
• There is a strong consensus among all stakeholder groups that the Basque Country consumes more energy than is necessary and that fossil fuel resources are becoming scarce.
• Stakeholders generally agree that any transition toward energy efficiency and renewables must be supported by regulatory frameworks that establish minimum requirements and compulsory measures for industries and the building sector.
• Despite a perceived general social rejection of District Heating (DH) projects in Bilbao, stakeholders in the study agreed that such solutions are appropriate for a low-carbon transition.
• The study found that the common argument that Bilbao's climate is unsuitable for solar photovoltaic (PV) energy is not considered the primary cause for its poor implementation by stakeholders.
• There is a concerning lack of priority given to social participation and the role of local communities in the co-design of the city's energy transition across all identified discourses.
• A significant gap exists between stakeholders with power and responsibility (such as city hall and regional authorities) and those who could drive the transition (such as scientists, consultants, and social movements), necessitating a 'knowledge, discussion and communication (KDC) platform'.
• The authors conclude that social-cognitive limitations, such as mistrust in institutions or scepticism about climate change, are critical determinants of the success of urban transitions and should be included in transition modelling.

APA

Olazabal, M., & Pascual, U. (2013). Identifying social determinants of urban low carbon transitions: the case of energy transition in Bilbao, Basque Country. Basque Centre for Climate Change. https://www.bc3research.org/h6T8Uy8Nm4gFs0O/201305280846301163367391.pdf

Chicago

Olazabal, Marta, and Unai Pascual. Identifying social determinants of urban low carbon transitions: the case of energy transition in Bilbao, Basque Country. Basque Centre for Climate Change, 2013. https://www.bc3research.org/h6T8Uy8Nm4gFs0O/201305280846301163367391.pdf.

Wikipedia

{{cite report |last1=Olazabal |first1=Marta |last2=Pascual |first2=Unai |title=Identifying social determinants of urban low carbon transitions: the case of energy transition in Bilbao, Basque Country |publisher=Basque Centre for Climate Change |date=May 2013 |url=https://www.bc3research.org/h6T8Uy8Nm4gFs0O/201305280846301163367391.pdf |access-date=23 October 2026 |via=Climate Insights Directory}}

BibTeX

@techreport{olazabal2013identifying, author = {Olazabal, Marta and Pascual, Unai}, title = {{Identifying social determinants of urban low carbon transitions: the case of energy transition in Bilbao, Basque Country}}, institution = {Basque Centre for Climate Change}, year = {2013}, month = may, url = {https://www.bc3research.org/h6T8Uy8Nm4gFs0O/201305280846301163367391.pdf}, urldate = {2026-10-23}, note = {Indexed by Climate Insights Directory} }