A methodological approach to identify policy priorities of municipalities in Greece

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A methodological approach to identify policy priorities of A methodological approach to identify policy priorities of municipalities in District Greece The 15th International Symposium on Heating and Cooling municipalities in Greece b,c Kelemenisa,b, *,using Panagiota Galiatsatou Assessing Alecos the feasibility of the heat demand-outdoor a,b, Alecos Kelemenis *, Panagiota Galiatsatoub,c Decision Support Systems Laboratory, School of Electrical and Computer Engineering, National Technical University of Athens, Iroon temperature function forElectrical a long-term district heat demand forecast Decision Support Systems Laboratory, School ofPolitechniou and Computer Engineering, 9, 15780, Athens, Greece National Technical University of Athens, Iroon a a

PolitechniouHellenic 9, 15780,Open Athens, Greece Parodos Aristotelous 18, 26335 Patra, Greece Environmental Design, School of Science and Technology, University, a,b,c a b c 18, 26335 c of b Environmental Design, School of of Hydraulics Scienceaandand Technology, Hellenic Open University, Parodos Aristotelous Patra, Greece Hydraulics Laboratory, Division Environmental Engineering, Department of Civil Engineering, Aristotle University c Hydraulics Laboratory, Division of Hydraulics Thessaloniki, and Environmental Engineering, of Civil Engineering, Aristotle University of Thessaloniki 54124,Department Greece a Thessaloniki, 54124, Greece IN+ Center for Innovation, Technology and Policy ResearchThessaloniki - Instituto Superior Técnico, Av. Rovisco Pais 1, 1049-001 Lisbon, Portugal b Veolia Recherche & Innovation, 291 Avenue Dreyfous Daniel, 78520 Limay, France c Département Systèmes Énergétiques et Environnement - IMT Atlantique, 4 rue Alfred Kastler, 44300 Nantes, France b

c

I. Andrić

*, A. Pina , P. Ferrão , J. Fournier ., B. Lacarrière , O. Le Corre

Abstract Abstract This study introduces a proposed framework encompassing all pivotal sectors a municipality deals with contributing to sustainable Abstract This study introduces framework encompassing all to pivotal sectors a municipality dealsinwith contributing to sustainable development at a locala proposed level. This framework is tailor-made fit into the Greek environment which municipalities operate. development at local level. frameworkweighting is tailor-made to fit into the Greek environment inworking which municipalities operate. Furthermore, by amaking use ofThis an appropriate method, considering the challenges of the environment in Greek District heating networks are commonly addressed inmethod, the literature as onetheofchallenges the effective solutions for decreasing the Furthermore, bythe making of an appropriate weighting considering of the working in Greek municipalities, studyuse proposes a specific methodology to better understand themost policy priorities ofenvironment municipalities. This greenhousecan gasthe from and theabetter building sector. systems require high investments are and returned through theThis heat municipalities, studyto proposes specific methodology to better understand theand policy priorities of priorities municipalities. information beemissions used adjust align localThese policies with national strategies with which the needs of citizens. sales. Duecan to be theused changed climate conditions and policies buildingwith renovation policies, and heatwith demand in the could decrease, information to adjust and better align local national strategies the needs andfuture priorities of citizens. the investment return ©prolonging 2018 The Authors. Published byperiod. Elsevier Ltd. ©The 2018 Thescope Authors. Published by Elsevier Ltd. of this paperunder isby toElsevier assess feasibilitylicense of using the heat demand – outdoor temperature function for heat demand © 2018 The Authors. Published Ltd. This ismain an open access article the CCthe BY-NC-ND (https://creativecommons.org/licenses/by-nc-nd/4.0/) This is an open access article under the CC BY-NC-ND license (https://creativecommons.org/licenses/by-nc-nd/4.0/) forecast. The district of Alvalade, located in of Lisbon (Portugal), was used as a case study. The district is consisted of 665 This is an and openpeer-review access article underresponsibility the CC BY-NC-ND license (https://creativecommons.org/licenses/by-nc-nd/4.0/) Selection under the scientific committee Selection and peer-review under responsibility of the scientific committee of of the the 5th 5th International International Conference Conference on on Energy Energy and and buildings that vary in both construction period and typology. Three weather scenarios (low, medium, high) and three district Selection and peer-review under responsibility of the scientific committee of the 5th International Conference on Energy and Environment Environment Research, Research, ICEER ICEER 2018. 2018. renovation scenarios developed Environment Research,were ICEER 2018. (shallow, intermediate, deep). To estimate the error, obtained heat demand values were comparedSustainable with results from a dynamic heat demand model, previously andframework; validated weighting by the authors. Keywords: cities; urban sustainable development; urban planning; citydeveloped sustainability methods. Keywords: Sustainable urban only sustainable development; planning;the citymargin sustainability framework; methods. The results showedcities; that when weather change isurban considered, of error could beweighting acceptable for some applications (the error in annual demand was lower than 20% for all weather scenarios considered). However, after introducing renovation the error value increased up to 59.5% (depending on the weather and renovation scenarios combination considered). 1.scenarios, Introduction value of slope coefficient increased on average within the range of 3.8% up to 8% per decade, that corresponds to the 1.The Introduction decrease in the number heating hours of actors 22-139hinduring heating season on the combination ofrecognizes weather and Local authorities are of recognized as key globalthe development. The(depending new development Agenda [1] renovation scenarios considered). On the other hand, function intercept increased for 7.8-12.7% per decade (depending on the authorities are recognized as and key actors in global The new development thatLocal “sustainable urban development management aredevelopment. crucial to the quality of life of ourAgenda people”[1] andrecognizes confirms coupled scenarios). The values suggested could be used to modify the function parameters for the scenarios considered, and that “sustainable urban development and management are crucial to the quality of life of our people” and confirms improve the accuracy of heat demand estimations. © 2017 The Authors. Published by Elsevier Ltd. * Corresponding author. Tel.: +30 210 +30 211 216 1062. of The 15th International Symposium on District Heating and Peer-review under responsibility of772 the2080; Scientific Committee * E-mail Corresponding Tel.: +30 [email protected] 772 2080; +30 211 216 1062. address:author. [email protected]; Cooling.

E-mail address: [email protected]; [email protected] 1876-6102 © 2018 The Authors. Published by Elsevier Ltd. Keywords: Heat demand; Forecast; Climate change 1876-6102 © 2018 Thearticle Authors. Published by Elsevier Ltd. This is an open access under the CC BY-NC-ND license (https://creativecommons.org/licenses/by-nc-nd/4.0/) This is an and openpeer-review access article under the CC BY-NC-ND licensecommittee (https://creativecommons.org/licenses/by-nc-nd/4.0/) Selection under responsibility of the scientific of the 5th International Conference on Energy and Environment Selection peer-review Research, and ICEER 2018. under responsibility of the scientific committee of the 5th International Conference on Energy and Environment Research, ICEER 2018.

1876-6102 © 2017 The Authors. Published by Elsevier Ltd. 1876-6102 © 2018 The Authors. Published by Elsevier Ltd. Peer-review under responsibility of the Scientific Committee of The 15th International Symposium on District Heating and Cooling. This is an open access article under the CC BY-NC-ND license (https://creativecommons.org/licenses/by-nc-nd/4.0/) Selection and peer-review under responsibility of the scientific committee of the 5th International Conference on Energy and Environment Research, ICEER 2018. 10.1016/j.egypro.2018.10.051

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that signatory states will “work with local authorities and communities to renew and plan our cities and human settlements so as to foster community cohesion and personal security and to stimulate innovation and employment”. There are various initiatives at European level aiming at stimulating the interest and actions of local authorities towards sustainable development, such as the European Commission’s Covenant of Mayors [2, 3], which focuses on energy and climate mitigation and adaptation, or the Platform on Sustainable Urban Mobility Plans (SUMPs) [4, 5]. Focusing on Greece, local authorities, in particular municipalities, have been engaged in networks and actions with the aim to improve the quality of life of their citizens, to improve their services, and eventually to contribute to sustainable development at a local level. Various initiatives have been documented in the literature. The ENDURANCE project [6] aimed to promote the concept of SUMPs by creating national networks of cities and other entities. As results of the project in Greece, two SUMPs have been completed in the cities of Thessaloniki and Agioi Anargiri, Athens. Kolokotsa et al. [7] presented the case of the Municipality of Acharnes which installed cool roofs in the form of ceiling tiles on the rooftop of the municipality building to reduce cooling demands and eventually energy use. The utilization of Geographic Information Systems (GIS) tools in the redesign of waste management services of the municipality of Alimos, with the purpose of resource savings and better staff use and development was examined by Hatzichristos et al. [8]. In the area of governance, Papamichail and Perić [9] described a model for informal planning, relying upon the principles of collaborative dialogue, networks and trustful relationships among the relevant players, which aimed to improve local spatial plans in the City of Patras. Tafidis et al. [10] focused their work on mobility, and after reviewing a number of sustainable urban mobility indicators from the literature, examined the data availability, frequency and reliability in the city of Thessaloniki and finally proposed an indicator system as an evaluation tool of the mobility conditions in Greek urban areas. Moving from specific sector-driven approaches to a more strategic viewpoint, it is pivotal for stakeholders (including local and national policy makers, citizens, private sector, and eventually the EU) to understand which sectors are considered as the most significant for municipalities, facilitating an informed decision and policy making and the elaboration of strategies at various levels. In this respect, the objectives of this paper are a) to present a city sustainability framework relevant to the Greek context using as reference point the global ISO 37120:2014 [11] International Standard, and subsequently b) to introduce a methodology for the identification of the relative priorities for municipalities, among the defined sectors of the proposed framework. An illustrative example of a municipality in the region of Attica will be presented to show how the methodology can be applied. 2. Methodology The methodological approach consists of the steps illustrated in Figure 1 and analyzed hereupon.

Fig. 1. The proposed methodological approach.

2.1. Short analysis of the ISO 37120:2014 standard ISO Standard 37120:2014 establishes a set of city indicators to steer and measure delivery of city services and quality of life. The indicators are categorized under 17 themes and are divided into 46 “core” and 54 “supporting” indicators. According to ISO, the requirements contained in the Standard are applicable to any city, municipality or

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local government. ISO acknowledges [1] that “cities may not have direct influence or control over factors governing some of these indicators, but the reporting is important for meaningful comparison and provides a general indication of service delivery and quality of life within a city”. 2.2. The national framework in Greece guiding municipalities in the elaboration of their 5-year operational plans The legal framework which confirms the obligation of municipalities to prepare 5-year operational plans is defined by the Article 266 of the National Law 3852/2010 [12]. The Ministerial Decision No 18183 of 13 April 2007 [13] defined the structure and content of the operation plans, which was amended with the Ministerial Decision No 5694 of 3 February 2011 [14]. The Presidential Decree 89/2011 [15] which amended the Presidential Decree 185/2007 [16] defines the actors and the process for the elaboration, monitoring, and evaluation of the operational plans. The methodological approach requests that municipalities should define measures, targets, and actions around a strategy consisting of four axes, namely 1) environment and quality of life, 2) social policy, health, education, culture and sports, 3) local economy and employment, and 4) improvement of technical, managerial, and financial capacity of the municipality. Moreover, they should define input, output, and outcome indicators against which to monitor progress. The methodological framework for the elaboration of the operational plans is presented in Figure 2 [17].

Fig. 2. The methodological framework for the elaboration of the operational plans of municipalities in Greece.

Projecting ISO Standard 37120:2014 onto the reality in Greece, the following are noteworthy: Social services and cultural activities, core sectors under municipalities’ mandate in Greece, are missing from ISO’s Standard. Fire and emergency response is a highly relevant theme. However, it should be more broadly defined in order to encompass city’s resilience and/or city’s adaptation to adverse impact of climate change. In Greece, recreation is a core area of intervention of municipalities but is considered as an element of spatial and/or environmental policy and it does not make sense as a stand-alone theme, as in ISO’s Standard. In Greece, infrastructure related to water supply and sanitation and waste water is linked to maintenance and upgrading of existing infrastructure, which all households with legal titles are connected to in urban environments. These themes under the ISO Standard refer largely to the capacity of local governments to provide citizens with services such as water supply and wastewater and residues’ collection, which is not relevant to Greece. This is also the case for the Shelter theme under the ISO standard. In spite of the increasing number of homeless people in Greece, this theme, as described by the corresponding indicators (population living in slums, percentage of homeless, households without registered legal titles), is not relevant to the reality in the country. Shelter is well understood and tackled under the social services provided by the municipalities. Finally, as regards the theme of Safety, law enforcement is under the responsibility of the central government in Greece. Municipalities can only inform and provide input to policy making processes or push for proper implementation of the respective laws. As municipalities lack decision making power, this theme is not deemed as relevant. Figure 3 illustrates the proposed adaptation from the ISO Standard 37120:2014 to a customized city sustainability framework for municipalities in Greece.

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Fig. 3. Proposed adaptation from the ISO Standard 37120:2014 to a customized city sustainability framework.

From the ISO Standard, the theme of Safety can be integrated into many other sectors of the proposed framework, such as Economy/Employment, Education, Governance, Culture and sports. The theme of Shelter can be integrated into the Social services, Wastewater into Waste, Water and sanitation into Urban planning and Social services, and Recreation into Environment and Urban planning. 2.3. Analysis of operational plans This step includes the analysis of operational plans aiming to identify the linkages between the relevant measures under each of the four axes and the proposed city sustainability framework sectors. It is expected that the majority of measures of operational plans are related to one or more sectors of the proposed framework. However, there also might be particular measures with no obvious relationship. This step requires a thorough study of the content of the operational plans, where all measures, their targets, and the related proposed actions are presented in detail. 2.4. Feedback from municipalities This is the last step of the process. It requires the collection of input from municipalities and the analysis of data in order to conclude about the relative importance/priorities among the 14 sectors of the framework at the municipality level. Aggregation of findings from many municipalities could lead to conclusions at a regional or even national level. As this is a weighting problem in the multi-criteria decision analysis field, we need to select an appropriate weighting method. We do not opt for the ranking ordering method [18, 19, 20] as it becomes difficult for the decision maker to straight rank a high number of criteria [21], like in our case with 14 criteria. We do not consider Analytic Hierarchy Process (AHP) [22] and Delphi [23], since the first one requires a high number of pairwise comparisons and the second requires a long process. Overall, the situation in our case is described by time pressure and decision maker’s limited attention and information processing capability. The decision maker may not be willing or able to provide exact estimations of decision parameters. Therefore, we need a straightforward and “easy to analyze data” method. The ratio weighting method, proposed by Edwards [24], is qualified as the most appropriate one. It requires the decision makers to first rank the relevant criteria according to their importance. The least important criterion is assigned a weight of 10 and all others are judged as multiples of 10. The resulting raw weights are then normalized to sum to one. The ratio method is an algebraic, decomposed, direct procedure. Substantially, the decision maker should reply to the question how much more important is a criterion than the least important criterion [21].

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3. Indicative example Lying in the northwest foothills of Attika's mountain Hymettus, approximately eight kilometers from the center of Athens, Papagou - Holargos municipality covers a region of 10.34 km2 with a population of 44539 citizens (2011 census). Following the national framework for the elaboration of the 5-year operational plan, the Municipal Assembly approved the first phase of the plan in October 2015, which reflects the current situation and defines the vision, the strategy, the measures, and the targets. The second phase was approved in December 2016, which defines the actions and the monitoring indicators [25]. Figure 4 illustrates how each of the measures of the operational plan corresponds to the city sustainability sectors of the proposed framework.

Fig. 4. Linkages between operational plan’s measures with city sustainability sectors of the proposed framework.

Most of the measures are linked to one or more sectors of the proposed framework. Investigation into the content of Measures 3.3 and 4.5 did not evidence strong link to any of the sectors. Table 1 presents the inputs from the decision maker (representative(s) from the municipality). It is essential to note at this point that the values in column “Relative importance (input from decision maker)” are random and are used just to demonstrate the proposed methodology; they do not constitute real inputs provided by the Municipality. Table 1: Relative importance of the measures of the operational plan of Papagou - Holargos municipality (random values used as example) Measures

Relative importance (input from decision maker)

Normalized values

1.1 Natural environment

40

0.048

1.2 Cleaning-Waste management

60

0.072

1.3 Built environment-Transportation

50

0.060

1.4 Environmental management-Networks & infrastructure

50

0.060

1.5 Civil protection-Safety

80

0.096

2.1 Social policy-Health-Social care

80

0.096

2.2 Culture-Sports

30

0.036

2.3 Associations and social actors

20

0.024

2.4 Volunteerism

20

0.024

2.5 Education-Lifelong learning

20

0.024

3.1 Employment

70

0.084

3.2 Local market and entrepreneurship

30

0.036

4.1 Human resources, equipment and infrastructure

50

0.060

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Measures

Relative importance (input from decision maker)

Normalized values

4.2 Administration and services management

60

0.072

4.3 Transparency and participation

60

0.072

4.4 Financial management

70

0.084

4.6 Broadband and ICT

30

0.036

4.7 Smart infrastructure and services

10

0.012

Measure 4.7 has the lowest importance among the measures and gets a score of “10”. Accordingly, all other measures are compared with this one and get the respective values corresponding to “how many times the respective measure is more important than Measure 4.7”. Finally, considering the linkages presented in Figure 4, interim weights are calculated for each of the 14 sectors of the city sustainability framework and the normalized values give the final weights which represent the relative importance and eventually the policy priorities of the municipality. For example, Governance has an interim weight of 0.051, corresponding to the average of the normalized values of the five measures which contribute to Governance, as illustrated in Figure 4 (measures 2.3, 2.4, 4.1, 4.1, and 4.3). Table 2 presents the results, showing that Social Services, Resilience/Emergency, and Heath are the most important while Telecommunications/Innovation the least important. Table 2: Interim weights and final relative importance among the 14 sustainability sectors of the proposed city sustainability framework Sectors of the proposed framework

Interim weights

Normalized/Final weights (relative importance/priorities of the municipality)

Health

0.096

0.11

Resilience/Emergency

0.096

0.11

Social services

0.096

0.11

Finance

0.084

0.09

Waste

0.072

0.08

Economy/Employment

0.06

0.07

Energy

0.06

0.07

Transportation

0.06

0.07

Education

0.054

0.06

Governance

0.051

0.06

Urban planning

0.054

0.06

Environment

0.048

0.05

Culture and sports

0.036

0.04

Telecommunications/Innovation

0.024

0.03

4. Conclusions Local authorities are recognized by the international community as vectors of sustainable development. They are also the level of governance closer to the citizens, and the implementation of proper local policies can improve the quality of their life. In Greece, municipalities prepare operational plans which guide local development. Although not explicitly declared, most of the sectors of intervention of municipalities contribute to sustainable development. However, understanding of the specific priority sectors municipalities focus on can support informed decision making, such as the reallocation of resources to other sectors, deemed as more important for citizens. This paper has proposed a realistic, clearly understood, scientifically well-founded, and feasible proposal for a uniform assessment of the sector priorities of municipalities in Greece.

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