REPORT: Struggling for a Voice: the mixed reality of public participation in National Energy and Climate Plans

Across Europe, governments are falling short on climate democracy. CAN Europe and WWF’s latest report, “Struggling for a Voice,” reveals widespread failures by countries to engage citizens meaningfully in updating their National Energy and Climate Plans (NECPs).

Despite clear legal obligations under EU regulations and the Aarhus Convention to involve the public early and effectively, 25 out of 27 Member States received criticism from the European Commission for inadequate consultation processes (Luxembourg and Lithuania being the only two exceptions). Consultations were frequently rushed, inaccessible, or simply a tick-box exercise, with several governments failing to demonstrate how public feedback shaped the final plans.

For climate policies to succeed, public participation must be more than a formality—it must be the cornerstone of climate action. Civil society organisations reported issues ranging from overly restrictive online formats and short consultation windows to outright lack of transparency. This is regrettable as public participation is essential to enhance legitimacy and trust in climate policies.  

CAN Europe together with WWF urges  national governments to significantly improve future consultations, especially for upcoming Social Climate Plans due for June 2025. The NGOs also offer ideas to improve the legal framework on public participation in EU legislation. Enhanced public involvement is not just legally required, it’s essential for building effective, inclusive, and broadly supported climate strategies.