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Opinion of the European Economic and Social Committee – Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions – An EU Agenda for Cities: Driving Growth and Prosperity (COM(2025) 739 final)

EESC 2025/04288

OJ C, C/2026/3553, 22.7.2026, ELI: http://data.europa.eu/eli/C/2026/3553/oj (BG, ES, CS, DA, DE, ET, EL, EN, FR, GA, HR, IT, LV, LT, HU, MT, NL, PL, PT, RO, SK, SL, FI, SV)

ELI: http://data.europa.eu/eli/C/2026/3553/oj

Date of document:: 29/04/2026; Date of vote
Date of vote:: 29/04/2026
Date lodged:: 14/01/2026

Author:: European Economic and Social Committee
Responsible body:: Section for Economic and Monetary Union and Economic and Social Cohesion, EESC_ECO
Rapporteur:: Florian MARIN
Co-rapporteur:: Roman HAKEN
Form:: Opinion
Internal reference:: AVIS-SECTION 2025/4288 FIN, ECO/696
Session:: 605

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Treaty on the Functioning of the European Union

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12016E304

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52025DC0739 ESC Opinion

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14.10.00.00 Regional policy and coordination of structural instruments / General principles, programmes and statistics

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C/2026/3553

22.7.2026

Opinion of the European Economic and Social Committee

Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions

An EU Agenda for Cities: Driving Growth and Prosperity

(COM(2025) 739 final)

(C/2026/3553)

Rapporteur:

Florian MARIN

Co-rapporteur:

Roman HAKEN

Advisor	Kateřina ŠVEŘEPOVÁ (to the co-rapporteur)
Referral	14.1.2026, European Commission
Legal basis	Article 304 of the Treaty on the Functioning of the European Union
Section responsible	Economic and Monetary Union and Economic and Social Cohesion
Adopted in section	8.4.2026
Adopted at plenary session	29.4.2026
Plenary session No	605
Outcome of vote (for/against/abstentions)	224/0/2

1. Conclusions and recommendations

1.1.

The European Economic and Social Committee (EESC) considers cities to be the backbone of the European Union’s economic, social and territorial development. They are key spaces for social, ecological and economic transformation, where innovation should be oriented towards improving quality of life, reducing inequalities and operating within ecological limits, the main arenas for the green and digital transitions, and the level at which a substantial majority of EU legislation is implemented in practice. The future prosperity, resilience and cohesion of the EU therefore depend to a large extent on the capacity of cities of all sizes to effectively deliver European objectives on the ground. While the EESC welcomes the Commission’s complex approach and intention to strengthen the EU Agenda for Cities and its overarching vision of prosperous, liveable and inclusive cities, it believes that the proposed agenda does not yet match its stated ambitions. In particular, it does not include enough concrete measures to support cities. Without these elements, the agenda risks remaining largely declaratory and failing to deliver tangible improvements for cities and their residents.

1.2.

The EESC recommends that it be formally included in the proposed EU Agenda for Cities alongside the Committee of the Regions, reflecting the EESC’s recognised formal role in the Ljubljana Agreement and the Pact of Amsterdam, as well as its active involvement across all areas of the Urban Agenda. To ensure coherence with the existing strategic framework and proper representation of organised civil society, the EESC asks to take part in the organising panel and governance structures of the Cities Forum and the EU Cities Platform.

1.3.

The EESC proposes that the EU Agenda for Cities should be firmly anchored in multi-level governance, the partnership principle and a place-based approach. It must ensure balanced territorial development, strengthen social and civic dialogue, and provide cities with the necessary tools, resources and certainty to address mounting challenges such as climate change, energy transition, social inequalities, labour shortages, housing pressures and digital transformation.

1.4.

The EESC therefore calls on the European Commission to:

—	formally recognise both the EESC and cities as equal partners in EU urban policymaking, and not merely as implementing actors, by establishing permanent and structured multi-level governance arrangements that enable cities to influence EU legislation and policy design from the earliest stages;

—

strengthen the partnership principle by guaranteeing the systematic and meaningful involvement of organised civil society and social partners throughout the entire policy cycle of the EU Agenda for Cities, including agenda-setting, implementation, monitoring and evaluation, and by moving beyond purely formal or late-stage consultations;

—

equip the EU Agenda for Cities with a concrete and operational action framework, including clearly defined responsibilities, timelines and measurable indicators, and by introducing systematic territorial impact assessments to evaluate the effects of EU legislation on cities and municipalities and a youth check mechanism;

—	ensure adequate, predictable and accessible financing for urban development, including direct access for cities to EU funding, more precise coordination of existing instruments and dedicated support for smaller towns and municipalities with limited administrative capacity;

—	promote an integrated, project-oriented and place-based approach to territorial cohesion, explicitly strengthening complementarity between cities and rural areas and reinforcing EU-level support for urban resilience, climate adaptation, green infrastructure and digital transformation;

—

develop an EU-level urban dialogue within the EU Cities Platform intended to highlight the importance of the roles of social and civil dialogue for employment-related matters and conditions needed for creation of quality jobs. Approaching these matters in a synergistic manner is a strength of the agenda;

—	increase the technical assistance fund dedicated to cities and introduce a dedicated European initiative or fund focused directly on urban projects, allowing municipalities to apply directly without mediation by national authorities;

—	propose clear consultation standards to ensure meaningful, timely and representative involvement of social partners and civil society at all levels;

—	establish a unified EU-level framework for collecting and reporting on urban data to ensure indicators are comparable and monitoring is effective across Member States;

—	recognise housing as a structural social and economic issue rather than only a market outcome, and call for solutions at appropriate level that ensures access to affordable, adequate, accessible and secure housing, including support for non-profit, cooperative and community-led housing models.

1.5.

The main mechanism used to implement European cohesion policy funding in an integrated and place-based manner is community-led local development (CLLD). In cities/urban areas must CLLD-U move beyond its current pilot status and be recognised as one of the most effective instruments for activating local communities, generating employment, strengthening the social economy and engaging stakeholders who are often invisible within top-down governance structures. It should be acknowledged that the CLLD methodology in urban areas, thanks to its intergenerational and ability-promoting social integration across different social groups, contributes to long-term sustainability. The EESC believes that a dedicated measure should be introduced to consolidate CLLD-U in the future, ensuring its formal inclusion in EU-level decision-making processes and in targeted technical consultations with experts. Supporting the extension of CLLD in cities should be prioritised. In addition, a clear recommendation should be made to include a specific chapter dedicated to subnational authorities within the National and Regional Partnership Plans (NRPP). CLLD-U will need to have the individual financial cash flow to a clearly identified budget used for urban development (CLLD-U) and distinct from rural development (LEADER/CLLD).

1.6.

The EESC warns against a technocratic and project-based approach that risks overlooking the structural drivers of urban crises. A credible EU Agenda for Cities must address underlying political-economic dynamics, including inequality, financialisation and uneven territorial development.

2. General comments

2.1.

The EU Agenda for Cities is a crucial instrument for urban development, serving to transfer best practices and innovation that can influence urban development and reduce inequalities, and strengthen multilevel governance, the place-based approach and partnership, especially in cities where a culture of partnership is not yet prominent. In places where cooperation is still limited, cities are required to operate within a complex EU policy environment shaped by multiple strategies and frameworks while also aligning with national policies and coordinating with rural areas.

2.2.

The EU Agenda for Cities is important, given that around 75 % of Europeans live in urban areas, approximately 70 % of EU GDP is generated in cities, and nearly 70 % of EU legislation is implemented by cities, social partners and civil society organisations. This creates a direct impact at grassroots level, in the street, at the workplace, in schools, in hospitals and in neighbourhoods. These figures show that cities of all sizes are engines of European growth, innovation and social development, while also bearing primary responsibility for the practical implementation of EU policies. The EESC believes that civil society should be recognised as a genuine partner within the EU Agenda for Cities, and not merely consulted as they are now, often only in the final stages of the decision-making process.

2.3.

The future of EU cities should be built on interconnected hubs where creativity, sustainability, resilience and democratic innovation converge, and where citizens, civil society, institutions and innovators co-create urban futures through shared imagination, collective intelligence and a strong commitment to shaping cities as collaborative spaces rather than merely governed spaces, with transparency and multi-sector alliances at their core. In this regard, the EU Agenda for Cities should be territorially balanced, firmly safeguarding multilevel governance, promoting the partnership principle, and advancing the place-based approach, which incorporates the diverse interests of urban stakeholders and is grounded in transformative, inclusive and meaningful dialogue that delivers for regions and cities of all size.

2.4.

The EESC believes that local authorities should invest in community-building initiatives and support grassroots organisations that strengthen social ties and civic participation. Urban planning should adopt a life-course approach, ensuring that cities are designed to support people at every stage of life, from safe routes to school to age-friendly neighbourhoods alongside gender sensitive planning. This includes supporting collaborative, cooperative and community-led housing models, which have demonstrated their capacity to provide long-term affordability, strengthen social cohesion and reduce speculative pressures in urban housing markets. Digital strategies should include measures that promote healthy technology use, protect privacy and ensure that all residents, especially older adults, can participate fully in digital life.

2.5.

The EESC believes that future dialogue should pay special attention to cyclical migration and the cultural impacts of migration, and to demographic challenges, the rising cost of living and the asymmetry of risks associated with geopolitical developments. The right to move and the right to remain, together with equitable access to quality-of-life opportunities and cultural participation regardless of country, region or city should be more prominently recognised within the proposed vision. The integration of immigrants in the labour market should be one of the priorities.

2.6.

The proposed agenda does not live up to its declared ambitions and does not include enough concrete measures to support cities. The EESC believes that the EU’s vision for cities needs to be more specific and include clearer information on planned actions, measurable indicators, and a more explicitly specified role for social partners and civil society organisations. While the EESC welcomes the general objectives, achieving them requires clearer action proposals and measurable progress indicators. We therefore recommend supplementing the agenda with an action plan or a set of concrete steps, including monitoring indicators, to assess how the objectives are being met.

2.7.

The EESC notes that financial inclusion and access to necessary financial resources remains a challenge for some cities. This is especially true in the next programming period, where there will be more flexibility, but also greater political risks and stronger competition between different policy priorities. The EESC notes that urban project financing must be understandable, fair and accessible for cities, including those with limited capacities.

2.8.

The EESC welcomes the Commission’s efforts to use existing programmes and, if necessary, to create a new instrument (the EU Urban Initiative Facility) for cities. However, uncertainties remain about how this instrument will complement or replace well-established programmes such as URBACT or the European Urban Initiative (EUI). Municipalities need certainty that they will continue to have access to resources for their development, whether through earmarked allocations within funds or the ability to apply directly for support for urban projects. The EESC also recommends introducing a dedicated European initiative or fund focused directly on urban projects, allowing municipalities to apply directly without mediation by national authorities.

2.9.

The EESC welcomes the references on allocating dedicated budgets for cities. However, it emphasises that this remains insufficient and that greater predictability is required, drawing lessons from previous experiences with the Recovery and Resilience Facility (RRF). Cities should have a better overview of available resources in the long term to be able to plan investments. Lessons need to be learned from previous experiences with the RRF, where cities and regions have often not been given sufficient information or timely opportunities to participate. Housing challenges in cities should be addressed together with issues of access to banking services, financial inclusivity and efforts to promote stable and high-quality employment, while additional measures are needed to enhance urban development financing through national and regional budgets as well as capital markets. When it comes to availability of housing, the EESC and other stakeholders acknowledge the specific challenges facing young people (1); consequently, targeted measures are needed to address excessive gentrification, the proliferation of short-term rentals, and the pressures of over-tourism, including measures to increase housing affordability and accessibility for vulnerable groups, while also exploring the concept of housing as a ‘social good’. The relation between transport, housing and spatial planning is important for taking an urban integrated approach.

2.10.

The EU Agenda for Cities should look into the role of financial actors, investment funds and real estate speculation in the housing challenges that cities face.

2.11.

The EESC takes note of the vision of thriving, liveable, prosperous and inclusive cities, considering it a mature and well-articulated framework. In this context, the EESC proposes integrating a dimension on complementarity with rural areas and on strengthening civic and social dialogue alongside broader civic engagement. The agenda should therefore explicitly address complementarity between towns and the rural regions and support functional links.

2.12.

The EESC also notes that certain measures included in the EU Agenda for Cities appear redundant, as they are already being implemented through different mechanisms already in place. Continuity and coordination will also need to be ensured. New platforms or partnerships should build on the experiences of existing working groups rather than start entirely from scratch.

2.13.

The EESC welcomes the references to the circular economy included in the proposal, and believes that measures such as extended producer responsibility, sustainable public procurement and increased investments in capacity-building (including peer-to-peer learning) should be further developed in this area, given that no specific measures have been promoted thus far. In addition, the social economy and social cooperatives require stronger support in order to consolidate their role in shaping the future of our cities. The agenda should place greater emphasis on adaptation measures and on protecting urban populations from the impacts of climate change. The EESC proposes that the EU introduce an urban adaptation programme to provide cities with funding and expertise to implement green infrastructure projects, such as urban parks, tree-lined streets, rainwater harvesting, urban cooling and nature-based flood protection measures.

2.14.

The EESC considers it necessary to provide functional areas that protect important ecosystem services in cities and municipalities, specifically urban greenery, water bodies and micro-streams, to use rivers and to maximise the infiltration and retention of rainfall areas and minimise soil sealing in cities, leaving space with functional soil surface as big as possible, with closer-to-nature care for urban green spaces focused on diversity and support for pollinators. Preservation and protection of naturally valuable areas within the reach of urban agglomerations, i.e. urban natural monuments and reserves, including their appropriate management, is needed and elements of the ‘new urban wilderness’ with high biodiversity should be preserved. The EESC emphasises that cities are frontline spaces of climate vulnerability and inequality, where heat stress, pollution and climate risks disproportionately affect the most vulnerable, including lower-income groups. The EU Agenda for Cities should therefore integrate a social dimension into climate adaptation policies, including consideration of climate justice principles.

2.15.

The EESC supports the idea that citizens become more involved in the new EU Agenda for Cities. For citizen participation to work effectively, diverse civil society must be involved, and methodological support and practical tools developed to support this involvement should be provided. These tools should allow citizens to play an active role not only during elections but also in the periods between these (permanent working groups, citizen panels, citizen juries, public hearings, etc.). It is important, for effective and meaningful participation, to choose an appropriate time and place for each meeting as well as to ensure relevant and accessible information provision to ensure easy accessibility for all citizens. This approach would make EU funding for local projects more effective, reduce corruption and increase inclusive public involvement. Where engagement is long term, participants should receive the necessary accommodations and support, including financial resources, to participate.

2.16.

A strong and competitive local economy is a prerequisite for sustainable urban development. The economic dimension of the EU Agenda for Cities therefore deserves stronger and more explicit recognition. The Agenda should place greater emphasis on creating favourable conditions for private investment and entrepreneurship, including SMEs. A predictable regulatory environment, access to affordable business premises and land, efficient administrative processes and good connectivity are essential factors for urban economic growth. Strengthening the economic foundations of cities also enhances social cohesion, supports employment and increases the capacity of urban areas to deliver on wider EU objectives such as the green and digital transitions. Supporting local food systems alongside small businesses like independent shops and restaurants is essential to ensure a diverse and multi-layered economic structure in cities.

3. Specific comments

3.1.

The EESC is disappointed that its role is not formally recognised in the proposed EU Agenda for Cities, and firmly calls to be included alongside the European Committee of the Regions and the European Parliament. This request is grounded in the legitimate interests that the EESC represents, the concrete roles played by organised civil society in urban development, and the fact that the EESC is already actively involved in all dimensions of the Urban Agenda for the EU. The important role that the EESC plays in implementing and developing the Urban Agenda is clearly recognised in the Ljubljana Agreement and the Pact of Amsterdam. To exclude the EESC from the proposed EU Agenda for cities would also be inconsistent with the existing strategic framework. Furthermore, the EESC insists on being included in the organising panel and governance structure of the Cities Forum, and in the governance of the EU Cities Platform.

3.2.

The EESC believes that one political dialogue per year will be insufficient. To address the complex issues affecting cities, it would be appropriate to establish thematic working platforms or committees that meet more frequently and address specific areas (e.g. climate, transport, digital transformation) in greater depth. The EESC proposes complementing the annual high-level dialogue with continuous working groups involving citizens, social partners, civil society organisations and cities and their associations to ensure a steady flow of information and feedback between the local and European levels.

3.3.

The EESC recommends that the EU institutions put in place clear arrangements to ensure follow-up to the recommendations produced by the thematic partnerships. To promote genuine change, it is essential to take concrete actions and to establish a robust, institutionalised governance framework that embeds multi-level cooperation into EU decision-making. Such a system should enable cities and civil society to influence EU legislation from the earliest stages, rather than merely contributing to its implementation. The EESC considers it essential to clarify the relationship between the new EU Agenda for Cities and the existing Urban Agenda for the EU, and the partnerships associated with both. The new agenda should ensure that knowledge and lessons learned from these initiatives are used, for example, by coordinating more systematically across the Commission to ensure that the needs of cities are consistently reflected in all relevant policies.

3.4.

The EU Agenda for Cities should establish a permanent, structured and inclusive multi-level governance framework that ensures meaningful partnerships with subnational governments and diverse civil society to shape EU legislation across all policy areas. It should also improve how EU policies are implemented at local level. The EESC believes that the partnership principle must be understood as a process of continuous engagement rather than a one-off consultation exercise. In line with the recommendations of the European Community of Practice on Partnership, partners should be involved throughout the entire policy cycle, from priority-setting and programme design to implementation, monitoring and evaluation. If the agenda is to be genuinely applied across all policies, a team or unit within the Commission should be designated to coordinate the EU Agenda for Cities and ensure an integrated approach. To date, it has often been the case that each policy area has addressed the urban dimension separately, leading to duplicated efforts and, at times, conflicting requirements placed on municipalities, which, in practice, make it difficult or impossible to implement measures.

3.5.

The EESC believes that EU missions should continue and could be expanded by complementing the 100 climate-neutral and smart cities initiative with a new mission dedicated to 100 cities without poverty. This framework should ensure that organised civil society formally participate in designing, implementing and monitoring mission contracts, and in transferring future best practices. Furthermore, programmes similar to the European Capital of Culture could be extended to include new initiatives such as the European City of Youth, the Most Inclusive European City or the Most Entrepreneurial European City. The implementation of the EU Agenda for Cities should be continuously monitored and evaluated based on specific indicators. The focus should be on local-level data to identify where policies are working and where they are not.

3.6.

The EESC welcomes the proposal to establish high-level political dialogue with local authorities including a dedicated and recurring thematic platform on housing, urban affordability and spatial justice, given the urgency and scale of the crisis across European cities and considers this a positive step forward. However, it also emphasises that such an approach may be insufficient to address the complexity of EU requirements and the significant diversity of challenges faced by cities. The EESC therefore proposes that at least two meetings per year be organised, with the formal inclusion of social partners and civil society organisations, in order to ensure a more comprehensive and representative governance structure. The EESC further calls on EU Member States to translate the statements from the EU Agenda for Cities on the importance of cities into concrete action when negotiating European policies and the EU budget. Member States should, for example, support earmarking specific resources for urban development in the next EU multiannual financial framework after 2027, and ensure that cities have a guaranteed voice in how these resources are used. Increasing the funds dedicated to technical assistance to cities and proper use of these funds should be a constant concern.

3.7.

The EESC underlines the importance of strengthening the economic and employment dimension of urban policies through structured and continuous dialogue. This dialogue should provide a space for cities, social partners, civil society and EU institutions to exchange best practices for enabling conditions for creating quality employment. Cities are confronted with soaring living costs, intra-urban inequalities, labour shortages, skills gaps and widening inequalities, yet the agenda continues to treat conditions needed for creation of quality employment as secondary considerations rather than the political foundation of urban transformation.

3.8.

Cities are the cornerstone for a viable economy of the Member States and the EU as a whole. It is important to the EU Agenda for Cities and the measures proposed through it to provide effective tools to drive investments in cities that address the challenges faced by businesses related to demographic trends, bureaucracy, rising costs of business activities, and labour-market factors. The EESC believes a dialogue-based approach is more realistic and effective in urban policy, as it respects subsidiarity, avoids additional administrative burdens and allows cities to integrate social and employment objectives in a way that reflects their specific economic and labour-market realities.

3.9.

The EESC considers that all forms of dialogue are necessary, and that approaching social and civic dialogue in a complementary and synergistic manner would constitute a major strength. Interest-representation and intergenerational processes should be revised to ensure that participation is inclusive and balanced from both a territorial and sectoral perspective. In this context, a thematic partnership should be established under the Ljubljana Agreement on the future of partnership, and the European Code of Conduct on Partnership reformed. Moreover, the proposed technical-level dialogue should be closely linked to the Ljubljana Agreement to guarantee coherence and alignment across governance levels. Within the dialogue, special attention should be given to representing European youth and their vision for the future development of EU cities, as well as to specific groups with specific needs (e.g., migrants, people with disabilities).

3.10.

At strategic level, cities should implement monitoring and mitigation strategies for noise and light pollution, integrating them into broader environmental and health policies, and integrate mental-health promotion and accessible psychological support into local strategies, ensuring that well-being is treated as a core urban priority rather than an afterthought.

3.11.

For cities to be liveable and accommodating all, they should systematically address barriers faced by some population groups, including persons with disabilities, older persons, etc. by ensuring accessible infrastructure, housing, public spaces, transport, and services, in line with universal design and reasonable accommodation. Urban policies must tackle challenges such as limited mobility, segregation, unequal access to services and full participation of vulnerable groups. Implementing EU policy and programmes of the Preparedness Union strategy, cities need to invest in resilience and preparedness measures to prevent and mitigate the impact of recent and future shocks to the system. Disability-inclusive disaster preparedness should be integrated across all stages, and persons with disabilities and their organisations must be meaningfully involved in planning and decision-making.

3.12.

The EESC proposes including standards for consultations within the EU Agenda for Cities in order to avoid purely formalistic consultation processes and to define a clearer and more concrete role for social partners and civil society organisations at all levels (EU, national and city). The EESC considers it essential to guarantee representativeness, legitimacy and transparency within the various structures proposed, so that consultation evolves into genuine co-decision and cooperation, bringing all relevant voices to the table. Safeguarding ownership, effectiveness and citizens’ trust in EU programmes means preventing situations in which stakeholders are involved too late in the process, excluded from key decision-making phases or consulted without sufficient information or adequate time to provide meaningful contributions.

3.13.

The EESC proposes introducing systematic assessments of the impacts of new EU legislation on cities and municipalities (territorial impact assessments) as part of the implementation of the EU Agenda for Cities. This tool would assess the obligations, costs and opportunities that proposed measures would entail for local authorities, enabling timely measures to be rolled out to mitigate negative impacts. Specific procedural requirements to safeguard youth interests in long-term planning are necessary; implementing a youth check mechanism should be considered.

3.14.

The EESC proposes establishing a unified EU-level framework for collecting and reporting on urban data to ensure indicators are comparable and monitoring effective across Member States. This ‘data backbone’ could be managed within a new EU cities platform. At the same time, it recommends placing greater emphasis on digital transformation and innovation in cities. Digitalisation can help make urban administration more efficient and enhance citizen engagement. The agenda should also enable smaller municipalities to benefit from digital solutions, for instance through shared platforms or a central ‘marketplace’ of proven digital tools for local governments.

3.15.

The EESC agrees that cities are powerful magnets for talent and drivers of competitiveness, digitalisation, innovation and investment. In this context, the EESC highlights the importance of investing in the productive cities, where the urban economy is undergoing a digital transformation, automation, creative industries and energy communities are emerging. Particular emphasis should be placed on the concept of the productive city, based on SMEs, local services, short supply chains, the circular economy and social innovation. The EESC also draws attention to the importance of the tourism sector in the economic development of liveable cities. More sustainable and resilient urban tourism can be an important pillar of the local economy.

Brussels, 29 April 2026.

The President

of the European Economic and Social Committee

Séamus BOLAND

(1) More than a roof – The European Youth Forum’s position on housing, European Youth Forum (EYF), 2025.

ELI: http://data.europa.eu/eli/C/2026/3553/oj

ISSN 1977-091X (electronic edition)

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