Lessons from Denmark for community-based governance of urban heat networks

Urban heat systems are pivotal to achieving climate-neutral, resilient, and equitable cities. Within the European Union’s Green Deal and Fit-for-55 frameworks, the decarbonisation of heating and cooling (H&C) - which accounts for over 60% of EU energy use - remains a critical challenge for sustainable urban transitions. District heating networks, often described as a “Swiss army knife for decarbonisation,” provide a key pathway for cities to integrate renewable electricity, recover urban waste heat, and strengthen energy resilience. Yet their development depends on governance models that embed justice, participation, and local empowerment. This paper presents findings from a Rapid Evidence Assessment of Denmark’s heating system, where two-thirds of domestic heat demand is met through district heat, and over 90% of networks are municipally or cooperatively owned. By analysing Denmark’s socio-technical and legal frameworks, the research identifies three enabling conditions for decarbonised urban heat transitions: (1) stable rule of law through the Heat Supply Act, which delegates planning powers to municipalities; (2) sustained financial mechanisms that support non-profit, community-based infrastructure; and (3) participatory ownership models that foster “innovative democracy” in energy governance. These insights show that urban heat networks function as public infrastructures of resilience when underpinned by strong and participatory governance. The Danish experience demonstrates a community-oriented governance model that offers transferable lessons for European cities seeking to decarbonise heating systems in a just and climate-compatible way.