Taking the pulse of European mayors

How mayors expect the EU to support them in meeting their priorities

Above all, city leaders continue calling for more direct, predictable EU funding for cities. They state that cities are closest to residents and are often responsible for delivering EU priorities, but do not always have the financial means to do so. Many mayors highlight worsening fiscal pressure caused by inflation, demographic change, and rising service demands.

As negotiations on the next seven-year EU budget for 2028–2034 gather pace, mayors call for long-term investment to be earmarked for urban priorities such as climate action, housing, mobility and digital innovation.

As in 2024, mayors highlight the fragmented nature of EU urban policy. Cities must navigate multiple initiatives, calls and funding programmes. This demands administrative capacity that many municipalities lack.

The EU Policy Agenda for Cities, launched in December 2025, aims to provide more coherent, long‑term support. But mayors say its impact is not yet felt on the ground.

They call for stronger multi-level governance, with cities formally involved in shaping EU policies rather than only being consulted.

In 2026, the housing crisis remains a major issue for cities and mayors express more clearly what they need from the EU. They call for a dedicated EU housing fund to help expand social and affordable housing, support major renovation programmes and speed up sustainable construction, including modular and energy-efficient solutions. They ask for technical assistance to prepare complex housing investments and support for new public-private financing models.

Mayors also state that EU rules need to better support local action, with simpler procurement, fewer administrative burdens and more flexibility to adapt solutions to local needs.

When it comes to climate action, city leaders repeat their call for faster and larger-scale access to climate finance. Compared to 2025, mayors require funding that brings together different sectors, from energy and mobility to housing, water and public space. They need more support to deliver climate adaptation measures such as flood protection, cooling strategies, water resilience and nature-based solutions. Mayors also want the EU regulatory environment to better support local delivery. They call for simpler rules, less bureaucracy and more flexibility to design solutions that reflect local needs.

More city leaders than ever are calling on the EU to better integrate cities into industrial, innovation and competitiveness strategies. They also want direct EU support for innovation clusters, digitalisation, local business ecosystems and skills development. Many mayors say that Europe’s green and digital competitiveness depends on strong city infrastructure, including energy grids, talent housing and efficient mobility systems.

Looking back: unexpected top challenges faced by mayors in 2025

In 2025, city leaders across Europe faced unexpected challenges that significantly disrupted their strategic ambition. Once again, financial constraints and budgetary pressures were the most frequently cited challenge, with over 31% of mayors stating their unexpected impact. The findings confirm that financial pressure is becoming a structural challenge for cities. Its continued ranking as a top concern, building on the 2024 survey, shows this is no longer a short‑term disruption. Mayors report that inflation, rising service costs, and reduced or unstable national transfers are putting pressure on city budgets. Several cities also experienced lower-than-expected tax revenues, while others were affected by spending cuts imposed by national governments.

As a result, many mayors delayed or scaled back investment in climate action, housing, infrastructure and digitalisation. City leaders insist that the next seven-year EU budget is key and must give them the resources and finance they need to deliver EU ambitions, from the green transition to social inclusion and innovation.

Overall, the top 10 challenges cited by mayors show that cities face a more complex, interconnected and volatile set of risks in 2025. They also reflect many of the changes being faced in global current affairs, showing how local politics are closely linked with other levels of government.

Bureaucracy and governance barriers continue to slow action in many cities. As in 2024, mayors report that slow national approvals, fragmented governance and centralised decision-making are delaying projects in housing, mobility, green infrastructure and innovation. Compared with previous years, more city leaders now highlight a lack of local autonomy. They cite growing constraints on planning, finances and long‑term investment, and warn that national governments are increasingly limiting city powers for political reasons.

Top unexpected challenges faced by mayors in 2025

Geopolitical instability is placing growing pressure on cities, especially in border regions and frontline areas. As the survey was carried out before the war in Iran, mayors’ responses mainly reflect the impact of Russia’s invasion of Ukraine and wider global tensions. City leaders report challenges linked to military attacks, cyber threats, displaced people and growing pressure on local integration and social cohesion. Some cities also note that global uncertainty is weakening investor confidence and slowing major development projects.

Energy and cost‑of‑living pressures complete the top five and remain structural challenges, despite a slight decline. The survey also points to a new and growing concern around social and demographic pressures in cities.

Mayors delivering impact: spotlight on 2025 achievements

Despite another year marked by financial pressure, geopolitical uncertainty and growing social demands, mayors across Europe continued to deliver meaningful change for their residents. Their achievements in 2025 show what city leadership delivers in practice. Cities built infrastructure, strengthened democracy, supported local economies and stepped up climate action – with clear benefits for people’s quality of life.

When asked to share the single achievement mayors were most proud of in 2025, their responses show them moving from planning to delivery, even in difficult circumstances.

Mayors say they made the biggest difference by delivering major infrastructure and mobility projects last year. Across Europe, cities advanced long-awaited transport upgrades, construction works and critical repairs. For example, Utrecht secured more than €1.8 billion for a major rail project that will also support future housing development. Krakow progressed with foundational metro works, while Timisoara opened a landmark urban tunnel that had been in progress for decades. Other cities, including, Brno, Haarlem, Venice and Vilnius, reported major progress on roads, bridges, stations and tram systems.

Mayors also point to stronger democracy, civic engagement and social cohesion as key achievements in 2025. In a year marked by political volatility in several countries, city leaders highlighted the importance of participation, civic mobilisation and community trust. Munich pointed to mass pro-democracy demonstrations, while Essen and Istanbul underlined the role of community-led initiatives in strengthening social cohesion. Vienna was recognised as European Capital of Democracy, and several cities invested in new participatory practices, citizen dialogues and more inclusive forms of governance. These achievements show cities’ strength and reach in defending democratic values at a time of rising polarisation.

Many mayors also highlighted achievements linked to economic resilience and sound city finances. Faced with inflation, national budget cuts and rising service costs, cities such as Linkoping and Gothenburg pointed to their ability to maintain balanced budgets while protecting welfare services. Bristol and Malmo emphasised their success in preserving investment capacity and economic momentum despite difficult fiscal conditions. Other cities secured major external funding for strategic projects, with Terrassa mentioning raising more than €35 million from European instruments, while Gijon approved an ambitious budget focused on social equity.

Education and culture continue to be a distinctive area of success for mayors. They point to improved school results, new youth programmes, cultural milestones and investments in public spaces for learning and creativity. Uppsala reported progress in school performance, while Parma and Edinburgh celebrated achievements linked to youth and culture. These examples show how education and culture support social inclusion, talent attraction and long-term city competitiveness.

Cities also highlight progress in climate action and sustainable mobility. Groningen and Saint-Nazaire advanced their goals as EU Mission Cities, Tallinn accelerated work on green public spaces and child-friendly streets, and Athens launched a major strategy on urban cooling and open government. Many mayors also mentioned practical decarbonisation measures, from electrifying fleets and redesigning streets to expanding green areas.

Mayors also say they made a difference by tackling the housing crisis and strengthening social inclusion. Cities such as Lisbon, Barcelona and Mariupol reported progress in renovating public housing, expanding social support, improving rental affordability and protecting vulnerable residents. Lisbon launched its largest-ever housing investment programme, while Oslo, Mariupol and others strengthened services for displaced people, young residents and low-income families.

Several mayors also pointed to progress in urban planning and regeneration. Zagreb, Budapest, Ghent and Strovolos highlighted major spatial reforms. These range from bringing wastewater management back under municipal control to adopting new urban masterplans and launching large‑scale neighbourhood transformations.

In 2025, mayors proved they are managing crises and delivering lasting change. They completed infrastructure, strengthened democracy, accelerated the green transition, improved public services and positioned their cities as key players on the European and global stage.

The future of the EU: relationship with cities, existential threats, and EU enlargement

The decade ahead: how mayors expect EU–city relations to evolve

Mayors are preparing for a decade of profound and significant change in the relationship between the EU and Europe’s cities. Looking ahead to the next ten years, mayors expect EU–city relations to evolve in different directions. They see opportunities for stronger cooperation, but also warn of more centralised EU programmes and rising nationalism across Europe.

Mayors send a clear message: they want and expect a more direct relationship with the EU. A majority of mayors (52%) foresee more direct EU funding for cities over the next decade, alongside dedicated local investment envelopes and a stronger urban dimension in EU programmes. This shows that they see cities not only as beneficiaries of EU policy, but as essential partners in delivering it.

This expectation aligns with the new EU Policy Agenda for Cities, which calls for a stronger role for cities in shaping, implementing and governing European policies.

However, emerging debates on the next seven-year EU budget point in a different direction, towards a more centralised funding model, with larger EU programmes and stricter conditions. This creates a clear tension between what cities are asking for and the direction of current EU funding discussions.

Future of EU–City relations over the next decade

Some mayors (18%) expect a shift towards a more centralised EU model. They say larger, centrally managed programmes could reduce flexibility and make it harder for cities to adapt funding to local needs. Some link this concern to recent experience with EU instruments such as the Recovery and Resilience Facility, where cities often had limited influence over priorities.

Another 17% fear a shift towards renationalisation, with national governments taking greater control over funding, regulation and planning. These concerns are strongest in parts of Central and Eastern Europe, the UK and regions with contested competences, and reflect experience of political volatility, centralising reforms, or reduced autonomy.

Across the responses, one message is clear. Mayors believe EU–city relations are entering a decisive period. The next decade will define the role of cities within the European Union, through new governance arrangements, redesigned funding instruments or stronger political recognition.

A Union exposed: how Europe’s evolving landscape makes existential threats tangible in cities

Main existential threats to the EU over the next decade

As Europe enters a decade marked by instability, this year’s Eurocities Pulse Mayors Survey shows that mayors think the EU will face several serious and connected risks.

Mayors’ leading concerns are backsliding on the rule of law (36%) and geopolitical shocks and war (35%). These are followed by disinformation and economic stagnation (both 26%) and fragmentation (24%).

Mayors feel these pressures directly in their cities, where political tensions, economic strains and social challenges often emerge first. Taken together, they point to growing pressure on Europe’s democratic order and its ability to act collectively.

Cities feel the effects of geopolitical instability directly, from Russia’s invasion of Ukraine to energy insecurity and global market volatility. They report consequences such as rising energy costs, disrupted investment, pressure on transport and logistics systems, and changing migration flows.

Rule of law backsliding weakens Europe’s democratic and institutional foundations. For cities, this means uncertainty over funding, inconsistent laws, shrinking civic space and rising political polarisation. It also makes it harder for mayors to plan, deliver services and implement EU priorities.

Disinformation, economic stagnation and fragmentation sit just below the top concerns. Even so, they often deepen other risks and make them harder for cities to manage. For instance, disinformation weakens trust in public information and can undermine elections, climate action, mobility reforms and emergency responses. Meanwhile, economic stagnation and competitiveness gaps limit Europe’s ability to invest in its future. Fragmentation – whether political, fiscal or regulatory – makes it harder for cities to navigate rules, access funding and deliver shared priorities.

Mayors also highlight the pressures most visible to residents, including housing affordability (17%), inequality (14%) and climate and energy shocks (9%). These show how wider European risks are felt in everyday urban life.

Regional reading: territorially different, structurally connected

The continental map of risks is not uniform. Each region reads the EU’s vulnerabilities through its own socio‑political and geopolitical realities, yet these differences reveal how Europe’s challenges echo across diverse contexts.

Main existential threats to the EU over the next decade, by region

Enlargement as Europe’s urban opportunity curve

The Eurocities Pulse Mayors Survey 2026 shows that most local leaders are in favour of EU enlargement. Overall, 70% of mayors see enlargement as an opportunity for their municipality, with 28% saying “definitely yes” and 42% “somewhat yes”. Only a small share is opposed, while 13% is unsure.

The opportunities they see are practical. For them, enlargement is a way to improve cross-border cooperation, make planning and procurement easier, support more predictable labour and logistics flows, and open new opportunities for local businesses, universities and research partners. Many mayors also see enlargement as closely tied to Ukraine’s long‑term recovery and integration.

This message builds on the Timisoara Declaration, developed with Eurocities, which highlights the role of cities at the forefront of a united and secure Europe. It also stresses that enlargement must be based on democracy, the rule of law and stronger cooperation between local and national government, with cities recognised as strategic partners.

EU enlargement as an opportunity for cities

A third reason is democracy and governance. Mayors say accession can strengthen local self‑government, citizen participation and public services in candidate countries. This would also make cross-border cooperation more reliable and effective. Some mayors warn that enlargement without institutional reform could slow down EU decision-making. Others are concerned that cohesion funding could be stretched too thin, unless the EU increases resources.

Regional reading: how context shapes the opportunity lens

EU enlargement as an opportunity for cities, by region

Northern Europe

Southern Europe

Western Europe

Eastern Europe

Future of urbanisation: what do mayors expect?

For mayors, urbanisation will continue in a more compact form. Cities are expected to grow mainly within their existing boundaries. Around seven in ten mayors expect this growth to come through densification, the reuse of existing spaces, neighbourhoods that combine housing, services and jobs, and 15‑minute neighbourhoods.

Mayors see this as a practical response to population growth, housing pressure, land scarcity and climate goals. By focusing on redeveloping existing sites instead of building on undeveloped land, cities can make better use of existing infrastructure, reduce urban sprawl and keep homes, services, schools, shops and public transport closer together. Many also stress that densification must be well designed and affordable, otherwise public support for more compact cities will weaken.

This doesn’t translate into a single model of growth. Almost half of cities expect densification to go hand in hand with other trends, especially growth along public transport corridors and the development of multiple urban centres within metropolitan areas. In practice, this means building more homes and jobs around rail, metro and tram lines, while also strengthening secondary centres across the wider urban area.

Beyond the dominant trend towards compact growth, two other expectations emerge. First, a large share of mayors (31%) foresee high-capacity public transport shaping future growth. They argue that when housing and employment are planned around stations, public transport use increases, household transport costs fall and cities can reduce car dependency.

A further 28% of mayors expect growth to spread across several well‑connected urban centres, rather than concentrate in the historic core. This is seen as a way to spread opportunity, improve access to services and support a more balanced metropolitan region. Strikingly, only a small minority see their city’s urbanisation as stable or in moderate decline over the decade ahead, and even fewer point to suburban growth. Overall, mayors expect cities to keep growing, but in a more compact, connected and balanced way.

The future of local democracy: what mayors expect from deliberation

Across Europe’s cities, deliberative democracy is moving from experimentation to practice. Deliberative democracy is a way of making decisions where citizens discuss issues openly and weigh evidence before reaching a conclusion. Most mayors expect it to play a continued role in decision‑making over the next decade, though to varying degrees. The largest share (41%) expect deliberative democracy to be used when needed, especially for specific projects or complex topics. Around one third (33%) expect to use it occasionally in a more structured way, while 24% foresee it becoming a regular part of city governance. Only a very small share (2%) expect it to be rarely or never used.

Future role of deliberative democracy in cities

This suggests that mayors see deliberative democracy as a practical tool. It is increasingly considered useful for decisions that are complex, contested or long term, where stronger citizen input can improve trust and legitimacy.

The main barriers are also practical. Mayors most often point to funding, time and logistics (40%), followed by political constraints linked to buy-in, partisanship and legitimacy (24%). A further 23% point to other local factors, while only 6% cite lack of know-how as the main obstacle. Cities support deliberative democracy, but must balance the resources, political backing and design needed to make it work.

Motivations for the use of deliberative democracy

Mayors and online harms: widespread exposure, not a marginal risk

Mayors are increasingly governing under pressure. Four in five report direct exposure to online violence, harassment or disinformation, and for one in three this happens frequently. This is not simply background noise. It affects personal safety, family life, staff wellbeing and the ability of city leaders to take decisions and carry out their work.

Online harms targeting city leaders

Global risks and cities

Given the challenging geopolitical context, this year we asked mayors to identify the top three risks facing their cities. Their answers show a risk landscape shaped by climate hasards, armed conflict and economic shocks, with cyber threats, disinformation and social pressures making these risks harder to manage.

Environmental risks come first, cited by 61% of cities, when responses are organised using the World Economic Forum’s Global Risks categories. These are followed by economic risks (60%), geopolitical risks (59 %), societal risks (40%) and technological risks (27%).

Global risks of greatest concern for cities

Economic risks are less often ranked first, however they appear in many responses. Inflation, stagnation, recession and competitiveness pressures are persistent concerns, raised by cities such as Edinburgh, Groningen and Brno. Cities feel these pressures through rising energy and commodity prices, linked to both conflict and climate disruption. For cities, the economic risk shows up in household bills, local business costs, investment delays and pressure on municipal budgets.

Geopolitical risks are also moving closer to city government. From Warsaw, Vantaa and Dublin to Tallinn and Groningen, many cities point to state-based conflict and a more volatile security order. This raises the stakes for municipalities, from civil protection and preparedness to energy costs and pressure on local services. In frontline and heavily affected cities such as Mariupol and Pokrovsk, war is existential, bringing loss of human capital, long-term demining needs and deep social fragmentation. Geopolitical risks rarely stand alone. They often overlap with social and environmental pressures.

Societal risks are the broadest category because they are where global pressure lands locally. Mayors point to poverty and inequality, housing stress, migration, demographic change, polarisation and populism. Malaga highlights inequality and poverty, while Barcelona and Gijon point to housing pressure. Ghent and Aix-Marseille-Provence raise migration and demographic challenges. Uppsala, Nurenberg and Lodz cite polarisation and populism. This category ranks highest because cities see it expressed most clearly in risks in neighbourhoods, services and social trust.

Technological risks are rising, especially around cybersecurity and disinformation. Cities including Linkoping, Krakow, Poznan, Vienna and Munich point to cyberattacks on municipal and utility systems. Terrassa and Utrecht highlight AI-enabled mis-and disinformation, which can weaken trust and complicate democratic decision-making. These risks connect directly to social cohesion, election integrity and hybrid threats.

The future of urban economies: where EU urban economies are heading (2026–2036)

Future drivers of jobs and inclusive growth in cities in the next decade

Mayors highlight housing retrofit and heat decarbonisation as the top sector likely to drive jobs and inclusive growth over the next decade. This is followed by clean energy and flexibility, then health, care and healthy ageing. Grid, charging and wider energy infrastructure rank fourth, while advanced manufacturing and reindustrialisation come fifth.

These are closely followed by innovation districts and collaboration between university and industry for research and development, AI adoption, and digital public infrastructure and data. Green logistics, culture and the creative economy, circular construction, and education and skills complete the list.

Together, these areas of growth show where Europe’s urban economies are heading and how cities plan to get there.

Housing is now central to cities’ economic competitiveness. Mayors see the built environment as a way to create good jobs, lower living costs and support local industry. For example, renovating buildings can bring innovation throughout the construction sector, from faster and more efficient renovation methods to better materials, heat pumps and district heating. And cities can use public procurement to turn demand into long‑term investment and stable projects. This is why housing should be understood both as a social priority and a key economic driver for Europe’s construction and building-tech value chains. Cities are well placed to convene partners, shape demand and use public investment to attract private capital.

Energy comes next, as cities are where most energy is used and where the biggest savings can be made. City leaders point to practical solutions such as solar panels on rooftops, local energy storage and systems that adjust energy use to demand. These can turn buildings and neighbourhoods from passive consumers into active contributors to the energy system, by producing, storing and managing energy.

When cities coordinate building renovation, cleaner heating and local energy generation with smarter pricing and control systems, the benefits multiply. They can reduce overall system costs, support new local services and jobs, and strengthen Europe’s industrial base in areas such as batteries, inverters and power electronics.

The ranking also places energy infrastructure close behind for good reason. Modern distribution grids and dense, reliable charging networks are the essential plumbing that makes electrification work at street level.

The European Commission’s Competitiveness Compass turns this into action focusing on clean industry, digital and AI capacity, and resilience. The proposed European Competitiveness Fund aims to bring together programmes so funding can support the full innovation process – from early research through to scaling up, deployment and manufacturing – across key sectors such as clean industry, digital and AI, health, the bioeconomy, defence and space.

The survey shows that cities are already organising around these priorities and are ready to deliver them on the ground.

Europe’s ambitions depend on this delivery. If it wants strategic autonomy built on real innovation and resilient value chains, Europe must invest in the places that turn plans into projects. Housing and heat decarbonisation can create demand for a modern construction and building-tech industry. Clean energy and flexibility, supported by upgraded grids, can cut costs and enable electrification. Health and care can turn Europe’s welfare leadership into a source of growth. Advanced manufacturing can connect existing industries to new opportunities. Innovation, digital public services and applied AI can scale these efforts faster, at lower cost and with greater trust.

Europe must give cities direct access and clear roles in the European Competitiveness Fund and related instruments. Because the next decade of European competitiveness will be built in Europe’s streets, homes, clinics and factories.

Health and care complete the top three, as ageing populations reshape local economies. City leaders see strong potential in new approaches to care. These include digital health services, technologies that support independent living, and community‑based models that provide care closer to home. Together, these approaches can improve quality of life while creating new jobs and services in cities. This is where Europe’s welfare systems meet its capacity for innovation. Cities offer real‑world settings to test and roll out new solutions, supported by strong research and companies that can grow across the single market.

Advanced manufacturing helps bridge today’s industries with the economy of tomorrow. Many cities already have strong industries in areas such as automotive production, engineering and medical technologies. These are now adapting to the green and digital transitions.

City leaders expect existing factories, suppliers and training centres to connect directly to new growth areas, including batteries, power electronics, heating technologies and medical devices. This helps Europe retain strong industrial bases while creating new sources of growth and jobs.

Based on mayors’ responses to the survey, their priorities align closely with Europe’s new competitiveness agenda. The Draghi report on European competitiveness calls for closing the innovation gap, cutting the cost of decarbonisation and reducing dependencies through coordinated, large‑scale investment.