Nordic local and regional views on the 2030 Agenda and beyond: Stepping up or stepping back?

2.2 What are the challenges?

Local and regional implementation of the 2030 Agenda has also faced a number of challenges. Study participants report slow progress on several SDGs, especially ecological goals such as biodiversity, sustainable consumption and production, water and transport, as well as social dimensions including equality and well-being. The major challenges mentioned by the participants are presented here.

Geopolitical instability and global uncertainties undermine momentum on sustainability

Nordic actors noted that escalating global instability and crises have shifted attention away from accelerating sustainability towards other urgent agendas. The focus has turned to maintaining existing commitments and fulfilling legally mandated tasks at various governance levels. Consequently, actors highlighted competing priorities and a growing tension between short-term needs and long-term sustainability goals. Increasing security concerns, economic pressures and a heightened focus on crisis response overshadow SDG implementation, leaving local actors struggling to sustain momentum. Some participants even expressed concern that “extraordinary leadership in a negative sense” may be driving global agendas away from sustainability. The unstable global situation creates discouragement also at the local level, making it difficult to maintain focus on SDG work at the local and regional level.

“One thing we are experiencing is that the world around us has changed. We are noticing uncertainty in the rest of the Nordic region regarding the political direction we are heading in, and not just in the Nordic region, but in Europe and globally.”

- a representative from the Government of Åland

Nordic actors noted that escalating global instability and crises have shifted attention away from accelerating sustainability towards other urgent agendas. The focus has turned to maintaining existing commitments and fulfilling legally mandated tasks at various governance levels. Consequently, actors highlighted competing priorities and a growing tension between short-term needs and long-term sustainability goals. Increasing security concerns, economic pressures and a heightened focus on crisis response overshadow SDG implementation, leaving local actors struggling to sustain momentum. Some participants even expressed concern that “extraordinary leadership in a negative sense” may be driving global agendas away from sustainability. The unstable global situation creates discouragement also at the local level, making it difficult to maintain focus on SDG work at the local and regional level.

“One thing we are experiencing is that the world around us has changed. We are noticing uncertainty in the rest of the Nordic region regarding the political direction we are heading in, and not just in the Nordic region, but in Europe and globally.”
- a representative from the Government of Åland

Declining political support and lack of coordination across governance levels

A lack of political prioritisation and clear leadership remains a persistent challenge for Nordic municipalities, as noted in previous studies (Ström Hildestrand et al., 2024). Despite growing urgency, several municipal and regional representatives reported eroding national political support for the 2030 Agenda and sustainability more broadly during focus group interviews. In recent years, signals and resources from global, EU and national authorities have weakened, creating cascading effects that undermine local implementation efforts.

Focus group participants further emphasised that national-level disengagement has given rise to structural barriers and uncertainty due to the withdrawal of coordination mechanisms and inadequate funding, leaving municipalities and regions struggling to maintain momentum. Several focus group participants noted that increasing politicisation of the SDGs makes it more difficult to anchor local sustainability work. Some municipalities have even started to adopt “workaround strategies”, avoiding explicit use of the term “sustainability” to circumvent potential resistance.

Study participants also stressed that unclear national frameworks and priorities fragment efforts, leaving local actors to adopt ad hoc approaches or to “reinvent the wheel”. For example, some local and regional actors noted that environmental and public health goals have faded from the conversation and that tracking systems and indicators have weakened.

“There has been a setback [in political support] at the EU and global level. Support for the local level is lacking or non-existent [...]. It is difficult to keep the theme visible if it lacks public and political attention and momentum.”

- written input, a representative from Finland

A lack of political prioritisation and clear leadership remains a persistent challenge for Nordic municipalities, as noted in previous studies (Ström Hildestrand et al., 2024). Despite growing urgency, several municipal and regional representatives reported eroding national political support for the 2030 Agenda and sustainability more broadly during focus group interviews. In recent years, signals and resources from global, EU and national authorities have weakened, creating cascading effects that undermine local implementation efforts.

Focus group participants further emphasised that national-level disengagement has given rise to structural barriers and uncertainty due to the withdrawal of coordination mechanisms and inadequate funding, leaving municipalities and regions struggling to maintain momentum. Several focus group participants noted that increasing politicisation of the SDGs makes it more difficult to anchor local sustainability work. Some municipalities have even started to adopt “workaround strategies”, avoiding explicit use of the term “sustainability” to circumvent potential resistance.

Study participants also stressed that unclear national frameworks and priorities fragment efforts, leaving local actors to adopt ad hoc approaches or to “reinvent the wheel”. For example, some local and regional actors noted that environmental and public health goals have faded from the conversation and that tracking systems and indicators have weakened.

“There has been a setback [in political support] at the EU and global level. Support for the local level is lacking or non-existent [...]. It is difficult to keep the theme visible if it lacks public and political attention and momentum.”
- written input, a representative from Finland

Lack of awareness and understanding of Agenda 2030

Although the 2030 Agenda has helped enhance understanding of sustainability (see previous section), knowledge gaps remain. Nordic actors report a persistent lack of awareness and understanding of the 2030 Agenda. Several municipalities noted that many stakeholders lack a holistic grasp of sustainability, limiting integration into daily operations and strategic planning. This knowledge gap persists across sectors and governance levels. Even where commitment is high, stakeholders often recognise SDG icons but struggle to translate global goals into local context and practice. Furthermore, many municipalities face challenges in reaching beyond “the usual audience” and engaging the wider population. This contributes to low awareness and limited broader support for the 2030 Agenda, especially among groups with low interest or trust in sustainability policies.

“One major challenge we’ve identified at the local level is the general lack of understanding around the SDGs – not just the goals themselves, but also holistic sustainability overall. People often recognise the colourful icons of the 17 goals, but they don’t always dig deeper into what they actually mean.”

- a representative from Finland

Although the 2030 Agenda has helped enhance understanding of sustainability (see previous section), knowledge gaps remain. Nordic actors report a persistent lack of awareness and understanding of the 2030 Agenda. Several municipalities noted that many stakeholders lack a holistic grasp of sustainability, limiting integration into daily operations and strategic planning. This knowledge gap persists across sectors and governance levels. Even where commitment is high, stakeholders often recognise SDG icons but struggle to translate global goals into local context and practice. Furthermore, many municipalities face challenges in reaching beyond “the usual audience” and engaging the wider population. This contributes to low awareness and limited broader support for the 2030 Agenda, especially among groups with low interest or trust in sustainability policies.

“One major challenge we’ve identified at the local level is the general lack of understanding around the SDGs – not just the goals themselves, but also holistic sustainability overall. People often recognise the colourful icons of the 17 goals, but they don’t always dig deeper into what they actually mean.”
- a representative from Finland

Difficulty in working holistically and overcoming silo-based thinking

The siloed structure of public administrations remains a major challenge, according to Nordic actors. The 2030 Agenda’s systemic ambition is undermined by fragmented priorities and weak mainstream governance integration.

Study participants stressed that sustainability is typically organised across separate departments (environmental, social and economic) with minimal cross-sectoral coordination. This fragmentation creates gaps, duplication and contradictory goals, while opportunities for synergies are missed and accountability for cross-cutting issues is weakened. In some authorities, sustainability is even treated as a separate activity and delegated to environmental departments rather than embedded in core processes. This may result in operational planning rarely considering holistic impacts, making genuine transformation difficult to achieve.

“The siloed structures – these ‘vertical pipes’ – are a major obstacle. That’s where we need to move forward.”

- a representative from Sweden

The siloed structure of public administrations remains a major challenge, according to Nordic actors. The 2030 Agenda’s systemic ambition is undermined by fragmented priorities and weak mainstream governance integration.

Study participants stressed that sustainability is typically organised across separate departments (environmental, social and economic) with minimal cross-sectoral coordination. This fragmentation creates gaps, duplication and contradictory goals, while opportunities for synergies are missed and accountability for cross-cutting issues is weakened. In some authorities, sustainability is even treated as a separate activity and delegated to environmental departments rather than embedded in core processes. This may result in operational planning rarely considering holistic impacts, making genuine transformation difficult to achieve.

“The siloed structures – these ‘vertical pipes’ – are a major obstacle. That’s where we need to move forward.”
- a representative from Sweden

Excessive focus on economic growth overshadows other sustainability dimensions

Local and regional actors expressed concern that economic growth remains the dominant paradigm, with municipal performance evaluated primarily through GDP and financial indicators. In practice, sustainability often loses out when it conflicts with growth priorities.

Despite recognition of alternative progress metrics, focus group participants reported that systemic change faces strong political and cultural resistance across governance levels. This tension undermines the integration of social and ecological priorities into governance and planning. While tools for measuring progress “beyond GDP” exist, they lack traction and remain secondary to growth imperatives, weakening genuine sustainability transformation.

“I can confirm that it's very hard for many politicians to move beyond the growth agenda. Most other goals that are set, even locally, are measured against what they mean for our growth ambitions. And if they conflict with those ambitions, growth usually wins.”

- a representative from Denmark

Local and regional actors expressed concern that economic growth remains the dominant paradigm, with municipal performance evaluated primarily through GDP and financial indicators. In practice, sustainability often loses out when it conflicts with growth priorities.

Despite recognition of alternative progress metrics, focus group participants reported that systemic change faces strong political and cultural resistance across governance levels. This tension undermines the integration of social and ecological priorities into governance and planning. While tools for measuring progress “beyond GDP” exist, they lack traction and remain secondary to growth imperatives, weakening genuine sustainability transformation.

“I can confirm that it's very hard for many politicians to move beyond the growth agenda. Most other goals that are set, even locally, are measured against what they mean for our growth ambitions. And if they conflict with those ambitions, growth usually wins.”
- a representative from Denmark

The 2030 Agenda is too complex and does not adequately address conflicting goals

Nordic representatives, especially from smaller communities, find the 17 SDGs and 169 targets of the 2030 Agenda overwhelming and difficult to apply. Some study participants also noted that the Agenda is not framed as a practical tool, which hinders effective local implementation. Furthermore, participants argued that the framework lacks a clear “dilemma perspective”, often presenting goals in uniformly positive terms while failing to address tensions between objectives, such as economic growth versus climate and nature conservation. Without tools to navigate trade-offs or understand interdependencies, local actors struggle to manage goal conflicts and harness synergies, limiting effective implementation and uptake.

“The SDGs are complex – and when a small municipality wants to take on all 17 goals and 169 sub-targets, it’s easy to become overwhelmed by the bureaucracy of it all.”

- a representative from LRGA

Nordic representatives, especially from smaller communities, find the 17 SDGs and 169 targets of the 2030 Agenda overwhelming and difficult to apply. Some study participants also noted that that the Agenda is not framed as a practical tool, which hinders effective local implementation. Furthermore, participants argued that the framework lacks a clear “dilemma perspective”, often presenting goals in uniformly positive terms while failing to address tensions between objectives, such as economic growth versus climate and nature conservation. Without tools to navigate trade-offs or understand interdependencies, local actors struggle to manage goal conflicts and harness synergies, limiting effective implementation and uptake.

“The SDGs are complex – and when a small municipality wants to take on all 17 goals and 169 sub-targets, it’s easy to become overwhelmed by the bureaucracy of it all.”
- a representative from LRGA

Measuring progress on sustainability is complex

Measuring and monitoring progress on sustainability remains challenging for Nordic municipalities due to fragmented approaches and insufficient local indicators. Municipalities often struggle with poor-quality indicators, limited data and analytical capacity. Some goals, such as CO₂ emissions, are relatively easy to quantify, while others, including well-being, biodiversity and discrimination, remain vague and difficult to measure. This results in uneven follow-up and risks deprioritisation of less measurable goals.

Some actors further noted that monitoring often focuses on local development, overlooking global impacts such as consumption-based emissions and spillovers. Voluntary Local Reviews may show strong local performance while masking significant global footprints. Inconsistent indicators, inaccessible data, weak accountability and failure to capture indirect effects undermine both local tracking and systemic progress towards the SDGs.

“Good work has been done on indicators, but more is still needed, and access to meaningful local data is still limited. If it’s not measured, it’s easy to deprioritise.”

- a representative from Norway

Measuring and monitoring progress on sustainability remains challenging for Nordic municipalities due to fragmented approaches and insufficient local indicators. Municipalities often struggle with poor-quality indicators, limited data and analytical capacity. Some goals, such as CO₂ emissions, are relatively easy to quantify, while others, including well-being, biodiversity and discrimination, remain vague and difficult to measure. This results in uneven follow-up and risks deprioritisation of less measurable goals.

Some actors further noted that monitoring often focuses on local development, overlooking global impacts such as consumption-based emissions and spillovers. Voluntary Local Reviews may show strong local performance while masking significant global footprints. Inconsistent indicators, inaccessible data, weak accountability and failure to capture indirect effects undermine both local tracking and systemic progress towards the SDGs.

“Good work has been done on indicators, but more is still needed, and access to meaningful local data is still limited. If it’s not measured, it’s easy to deprioritise.”
- a representative from Norway

Small communities face capacity constraints and interconnected challenges

Many Nordic municipalities identified ongoing struggles with underfunding and capacity shortages for sustainability work. Smaller, remote and island communities are disproportionately affected, often with a single staff member handling multiple roles within local administrations, with little capacity for long-term strategic work.

In addition, these smaller municipalities often face interconnected demographic and socioeconomic challenges that may reinforce one another and undermine local sustainable development. Participants noted that youth outmigration, population decline and ageing can weaken local labour markets and economic prospects, while also making it harder to maintain public services and infrastructure. As such services become more limited, municipalities may struggle to attract and retain residents, creating a sense of places “spiralling down”.

“It's really challenging for people to build a future when they don't see themselves as having the privilege of good infrastructure.”

- a representative from Iceland

Many Nordic municipalities identified ongoing struggles with underfunding and capacity shortages for sustainability work. Smaller, remote and island communities are disproportionately affected, often with a single staff member handling multiple roles within local administrations, with little capacity for long-term strategic work.

In addition, these smaller municipalities often face interconnected demographic and socioeconomic challenges that may reinforce one another and undermine local sustainable development. Participants noted that youth outmigration, population decline and ageing can weaken local labour markets and economic prospects, while also making it harder to maintain public services and infrastructure. As such services become more limited, municipalities may struggle to attract and retain residents, creating a sense of places “spiralling down”.

“It's really challenging for people to build a future when they don't see themselves as having the privilege of good infrastructure.”
- a representative from Iceland