High-Level Dialogue: Mayors - Localizing the Twin Transition

The moderator frames the panel's purpose as creating a link between local and global levels of governance, specifically to animate dialogue between local leaders and international organisations. The Global Cities Hub's goal is to ensure that the stakeholder group of local and regional governments has a voice in international forums such as WSIS. The chosen topic of the twin transition is intended to explore how digitalisaton can address both digital development and environmental challenges.

The moderator explicitly thanked ITU for giving the floor to local and regional governments and described the Global Cities Hub's mission as linking the local and global levels . He framed the panel's topic as the twin transition, examining how local and regional governments can use digitalisation to address both digital development and environmental challenges .

The Universal Postal Union's postal network, comprising approximately 650,000 post offices worldwide, serves as a critical physical infrastructure that can support both digital and green transitions. These post offices reach the far corners of every nation state and can deliver a wide range of services including digital, physical, and public services. The UPU views the twin transition not as separate goals but as complementary means of supporting citizens.

Somasundram noted that the UPU supports 192 member states and that the postal network has approximately 650,000 post offices spread across the world, including in the far reaches of each nation state, enabling digital services, physical delivery, and public services . He emphasised that the UPU approaches the twin transition from the perspective of how both transitions can support citizens .

Post offices in a majority of UPU member states offer e-commerce and digital financial services that extend economic and financial inclusion to underserved communities, including small and medium enterprises and women. These services are particularly valuable in communities that lack access to commercial banking or high-speed internet. The postal network thus acts as a bridge for digital access in areas where other infrastructure is absent.

In more than 70% of member states, posts offer e-commerce services supporting small and medium enterprises, with Indonesia's post offices hosting collaboration centres providing MSMEs with high-speed internet and dedicated space for online selling . Posts in nearly 58% of member states offer digital financial services, with India Post providing doorstep banking services through delivery staff, especially for women and communities without access to commercial banking .

Postal vehicles and local post office sites can be equipped with environmental sensors to collect real-time air quality and climate data, providing municipalities with granular information for public decision-making. This repurposing of existing physical postal infrastructure offers governments at both federal and local levels a cost-effective means of gathering environmental data to support climate resilience and mitigation strategies.

In France, La Poste through Geopatis used postal vehicles and local sites equipped with fixed and mobile sensors to monitor air quality in real time, giving municipalities more granular data for public decision-making . In Switzerland, SwissPost worked with Sparrow Analytics to equip postal vehicles with environmental sensors collecting street-level air quality data .

International organisations and local governments share common concerns around governance, inclusion, equity, public value, and data stewardship, even though they operate at different levels. Recognising these shared concerns means that what is needed are better channels for productive dialogue between the global and local levels. The UPU's work is underpinned by the same objectives that local governments pursue.

Somasundram listed the concerns expressed by city representatives - governance, inclusion and equity, public value, and data in the service of citizens - and noted that these same concerns underpin much of the UPU's work . He concluded that shared concerns at both global and local levels mean that channels for more productive dialogue need to be created .

When engaging with member states on technical assistance and policy initiatives, the UPU consistently promotes a whole-of-government approach that brings all relevant stakeholders to the table, including local governments. Local governments are often critical partners in implementation, particularly on issues such as licensing and the location of post offices. Recognising local government as an essential stakeholder is key to the success of international initiatives on the ground.

Somasundram explained that the UPU promotes a whole-of-government approach in its technical assistance work, which means including stakeholders beyond the usual ones, and that local government is a very important piece of this . He noted that the UPU often finds itself needing to engage with local government on licensing and location issues related to post offices .

Berlin developed a blue-green infrastructure planning tool as part of Germany's Model Project Smart Cities programme to help the city prepare for the climate challenges of increased heat and irregular water patterns, including both drought and flooding. The tool combines planning for both water (blue) and vegetation (green) infrastructure in an integrated way. This is a concrete example of a smart city solution directly addressing climate adaptation needs.

Berlin developed a blue-green infrastructure planner within the German federal Model Project Smart Cities programme, which started in 2019, to address the city's challenges of longer dry periods and flooding when rain does arrive . Lassmann noted that when Berlin was originally planned, water scarcity was not a concern, making this tool essential for future-proofing the city against climate change .

Berlin is using drones combined with artificial intelligence to identify problems in woodland areas, demonstrating how emerging technologies can be applied to environmental monitoring and management at the city level. This is presented as one of several concrete smart city solutions being developed under the German federal programme.

Lassmann briefly mentioned that drones and AI can be used to identify problems in woods as another concrete example of smart city solutions being developed in Berlin .

International cooperation and exchange allow cities from different cultural backgrounds to recognise that they share the same goals while also understanding the different obstacles and starting points each faces. Exposure to other contexts widens the perspective of participants and can generate new ideas for overcoming local challenges. This shared learning is valuable even when the specific solutions differ.

Lassmann described her experience in an expert working group of 31 people from around the world developing people-centred smart city guidelines, noting that participants from different cultural backgrounds shared the same goals but came from very different situations . She gave the example of discussions with participants from South Africa about the challenge of maintaining project stability through political change, a problem shared across different national contexts .

Adding an international dimension to local smart city projects can provide a degree of stability that protects them from being cancelled due to political changes at the local or national level. Long-term projects are essential for building smart cities, and international partnerships can help anchor them beyond the electoral cycle. This is a practical benefit of international cooperation beyond knowledge exchange.

Lassmann noted that discussions with participants from South Africa about project stability led to the idea that adding an international component to projects might help bring stability to long-term projects, which are necessary for building smart cities .

Agadir developed an integrated data platform that consolidates data from environmental monitoring, water management, lighting, financial revenues, and other city systems into a single dashboard to help manage all city resources. The platform draws on both sensor data and more conventional data sources such as spreadsheets and information systems. Rather than using the term 'digital twin', the city deliberately chose to describe it as a platform that goes back to the essence of what digital technology should do: empower cities.

Oulad described Agadir's integrated data platform as bringing together data from environmental, water management, lighting, and financial sources, using both sensors and regular data sources like Excel files, to produce a dashboard for managing city resources . He emphasised that the platform is basic but powerful because it focuses on enabling and empowering the city rather than being a technological showcase .

Agadir increased its green space per resident from two square metres to ten square metres over five years, a fivefold increase, through a combination of better water management enabled by its digital platform and a policy of recycling 100% of its grey water for irrigation. A supporting policy prohibits the use of drinking water for irrigating public green spaces. This demonstrates how digital tools combined with strong governance and policy can produce significant environmental outcomes.

Oulad reported that Agadir moved from two square metres of green space per resident to ten square metres in five years, attributing this to better water management systems and 100% grey water recycling for irrigation . He noted that this is supported by a policy that forbids the use of drinking water for irrigating public green spaces .

Agadir doubled its city revenues over five years through digital monitoring of resources and finances, without increasing taxes, by improving fiscal equity and reducing leakage. This increased revenue has significant implications for the city's investment capacity and operational costs. The example is presented as a model relevant to mid-sized cities anywhere in the world.

Oulad stated that Agadir doubled its revenues over five years through digital monitoring without increasing taxes, by striving towards fiscal equity . He highlighted the significance of this for cities in any part of the world, whether in Colombia, Côte d'Ivoire, or Vietnam, in terms of investment capacity and operational costs .

Technology is increasingly available and affordable everywhere, but it does not automatically lead to equity; the governance layer is what determines whether technology reproduces existing inequalities or helps to overcome them. The truly scalable element of smart city solutions is therefore not the technology itself but the governance frameworks that guide its use. Without strong governance, technology risks making invisible populations even more invisible.

Oulad argued that what scales is the governance tool rather than the technology, because technology is available everywhere and becoming cheaper, but does not necessarily assist in moving towards equity . He stressed the importance of ensuring that technology does not reproduce existing inequalities and invisibilise some people, but instead strengthens equity and thrives towards a more sustainable approach for everyone .

Data platforms must be evaluated not only on their performance improvements but also on their public and social value, including their ability to make previously invisible populations visible. Without this broader measurement framework, platforms risk serving only those who are already well-served and reinforcing existing inequalities. Governance is essential to ensure that platforms are designed to advance equity rather than merely optimise existing systems.

Oulad emphasised the importance of measuring the public or social value of data platforms, warning that without this, a platform merely serves those already served and improves performance without ensuring equity . He argued that platforms should make those who are invisible become visible, and that this is exactly what governance is for .

Mid-sized cities, where the demographic centre of gravity of the world's population lies, do not always have the same financial or technical capacity as large cities and are not always given a place in international discussions during either the design or implementation phases of programmes. Their specific experiences and meaningful feedback are valuable and should be systematically included. Ensuring their participation is essential for developing solutions that are relevant to the majority of the world's population.

Oulad noted that mid-sized cities and smaller cities do not have the same financial or technical capacity as larger cities and do not always get their place in the room . He pointed out that the demographic centre of gravity of the world is in mid-sized cities, where most of the world's population lives, making their inclusion in both design and implementation phases essential .

It is relatively easy to obtain funding for physical infrastructure such as pipes, optical fibres, and sensors, but much harder to secure funding for the governance layer and institutional capacity building. Yet human capital — the skills and competencies of people working in city administrations — is one of the key conditions for mastering technology and AI. This gap is particularly acute for mid-sized cities with limited financial resources.

Oulad observed that it is easy to get money for infrastructure such as pipes, optic fibres, and sensors, but not for governance or institutional capacity . He linked this to the importance of human capital as a condition for mastering technology and AI, and questioned how cities can strengthen their human capital without the financial capacity to do so, especially as mid-sized cities .

Oulad proposes a practical test for evaluating any technological implementation: does it merely reproduce the existing reality and improve performance within it, or does it actively redistribute resources and advance spatial equity? This test is intended to ensure that technology is used as a tool for transformation rather than for reinforcing the status quo. It is particularly relevant in cities where under-equipped neighbourhoods are close to the city centre and inequalities are highly visible.

Oulad proposed a test between reproduction and redistribution, asking whether a technological implementation reproduces existing reality with improved performance or helps redistribute properly and thrive towards spatial equity . He noted that in smaller cities, under-equipped neighbourhoods are much closer to the city centre, making inequalities more visible and the need for redistribution more pressing .

Rio de Janeiro has built an integrated urban data infrastructure centred on its operations centre, which brings together information on mobility, weather, health, emergency services, and urban infrastructure to enable the city to move from reacting to crises to anticipating them. The city produces its own local meteorological data and uses sensors, cameras, and risk maps to monitor extreme weather and coordinate responses. This integrated approach represents a shift from reactive to proactive urban governance.

Roque described Rio's integrated urban data infrastructure around its operations centre, combining information on mobility, weather, health, emergency services, and urban infrastructure . The city produces its own local meteorological data and uses sensors, cameras, and risk maps to monitor extreme weather and coordinate responses, enabling it to move from reacting to crises to anticipating them .

Rio de Janeiro is developing a digital twin to simulate water flows and the impact of heavy rainfall, with a particular focus on vulnerable communities such as favelas. This tool is designed to identify where small, targeted interventions can prevent flooding, protect homes, and save lives. It represents an application of advanced digital technology directly in service of the city's most vulnerable residents.

Roque explained that Rio is developing a digital twin to simulate water flows and the impact of heavy rainfall, particularly in vulnerable communities such as favelas . She noted that this tool can help identify where small, targeted interventions may prevent flooding, protect homes, and save lives .

The Sensible Rio Lab is a partnership between the City of Rio, the MIT Sensible Lab, and the Federal University of Rio de Janeiro that combines urban sensing with data produced by citizens to better understand complex and informal territories, particularly favelas. The laboratory creates virtual models to support policies in housing, infrastructure, environmental protection, and climate adaptation. It exemplifies a community-centred approach to data collection and urban modelling.

Roque described the Sensible Rio Lab as a partnership between the City of Rio, the MIT Sensible Lab, and the Federal University of Rio de Janeiro, combining urban sensing with citizen-produced data to better understand informal territories such as favelas . The laboratory creates virtual models to support policies in housing, infrastructure, environmental protection, and climate adaptation .

Since the COVID-19 crisis, Rio de Janeiro has integrated electronic health records and data analysis to identify epidemiological risks of diseases such as tuberculosis that are closely linked to housing and social vulnerabilities. By organising this information in a city data lake, the city can provide more targeted and rapid responses to health crises. This demonstrates how digital tools can be used to address the intersection of public health and social inequality.

Roque noted that since the COVID crisis, Rio has integrated electronic health records and data analysis to identify epidemiological risks of diseases like tuberculosis, which are closely linked to housing and social vulnerabilities . By organising this information in a city data lake, the city can give more targeted and rapid responses to crises .

To ensure that digital technologies genuinely serve citizens rather than exclude them, public governance of data, transparency, and community participation are essential. Without these elements, digital tools risk being used in ways that do not reflect the needs or interests of the communities they are meant to serve. Rio's ambition is to build not just a smarter city but a more resilient, sustainable, and fair one.

Roque stated that to ensure technologies serve citizens, public governance of data, transparency, and community participation are needed . She articulated Rio's ambition as building not merely a smarter city but a more resilient, sustainable, and fair city where digital twins can be used to create a better world for all .

Digital twins can serve not only as technical planning tools but also as means of involving communities in difficult public decisions, enabling residents to identify problems, evaluate alternatives, and help design solutions. This participatory use of digital twins strengthens public awareness and democratic engagement. It positions digital capacity as essential to addressing contemporary democratic challenges.

Roque argued that digital twins can become a means of involving communities in difficult public decisions, enabling residents to identify problems, evaluate alternatives, and help design solutions . She added that digital capacity strengthens public awareness and participation, both of which are essential to addressing today's democratic challenges .

Many local governments collect large amounts of data but are losing control over how that data is stored, processed, and used because they depend on proprietary systems controlled by a small number of global companies. This loss of data sovereignty is a significant risk for cities and undermines their ability to govern in the public interest. Addressing this requires a strategic international approach to building alternative, open public tools.

Roque noted that many local governments collect large amounts of data while losing control over how this data is stored, processed, and used . She attributed this to dependence on proprietary systems controlled by a small number of global companies, and argued that the international community should take a much more strategic approach to cooperation among cities to address this .

The international community should support cities in developing open public tools and shared sovereign digital infrastructure that reduce dependence on proprietary systems and prevent cities from being locked into solutions controlled by a small number of global companies. This goes beyond interoperability and requires building a network of cities that pool expertise and develop public interest technologies that no single city could build alone. The goal is to strengthen local governments' capacity to govern their own data.

Roque called for the international community to take a strategic approach to cooperation among cities for the development of sovereign digital infrastructure and shared technological tools, going beyond interoperability to build open public tools . She envisioned a network of cities exchanging knowledge, pooling expertise, and developing public interest technologies that no city could build alone, thereby strengthening local governments' capacity to govern their own data .

Cities are currently often invited to participate in international programmes only after priorities, indicators, and funding mechanisms have already been defined, relegating them to the role of implementers rather than co-designers. However, cities are where climate risks, social inequalities, and digital transformation become concrete realities, making their early involvement in the design of global strategies essential. Local governments must be treated as political actors and trusted partners from the outset.

Roque argued that local governments are often invited only after priorities, indicators, and funding mechanisms have already been defined, but cities are where climate risks, social inequalities, and digital transformation become concrete . She stated that cities need to participate not only as implementers but also as co-designers of global strategies .

International financing mechanisms are frequently designed for national governments rather than cities, making it difficult for local governments to access the funds they need to build long-term institutional capacity. Simpler mechanisms and direct access to international funds are needed, particularly to support the sustained capacity of local governments. This is presented as the second of three key changes the international community should make.

Roque noted that financing is frequently designed for national governments rather than cities, and called for simple mechanisms and direct access to international funds, especially to support the long-term institutional capacity of local governments .

The province of Barcelona has already deployed a range of operational digital and green transition tools, including a digital twin for simulating mobility flows and air quality, a real-time sensor platform for urban services management, a territorial planning system for smaller municipalities, smart water management for leak detection, and an intelligent waste management system. These tools are presented as concrete, functioning projects rather than theoretical proposals. Together they illustrate how the twin transition can be implemented at the territorial level.

De la Varga Mas listed operational projects including the Digital Twin Barcelona for simulating mobility flows, air quality, and urban transformation before decisions are implemented; the Centillo platform gathering real-time sensor data for urban services management; the SeedMoon system for territorial planning especially for smaller municipalities; smart water management systems for early leak detection; and an intelligent waste management system improving efficiency and reducing environmental impact .

Digital transformation is not merely a technological change but a deeply democratic, social, and political issue that is reshaping how people live, work, and relate to one another, while also challenging the foundations of democracy, economies, and social cohesion. Public institutions must therefore play a leading role in guiding and governing digital transformation to align it with the public interest. It cannot be left to chance or to market forces alone.

De la Varga Mas, reading on behalf of Mrs. Guy, stated that for the province of Barcelona, digital transformation is not only a technological change but a deeply democratic, social, and political issue . He noted that the digital revolution is reshaping how people live, work, and relate to one another, while challenging the foundations of democracy, economies, and social cohesion, and that it is both a promise of progress and a potential source of inequality, exclusion, disinformation, and control .

Technological transformation must be grounded in algorithmic fairness, digital equity, and the firm defence of human rights, because technology must not only be efficient but also fair, transparent, and accountable. This requires bringing technology into public debate so that artificial intelligence, supercomputing, robotics, and big data become part of collective decisions and democratic conversations. Human rights must serve as the guiding compass for all digital transformation.

De la Varga Mas stated that Barcelona's transformation must be grounded in algorithmic fairness, digital equity, and the firm defence of human rights as guiding compacts, because technology must not only be efficient but also fair, transparent, and accountable . He argued that this requires bringing technology into the public debate, as AI, supercomputing, robotics, and big data are already part of daily life and must therefore be part of collective decisions, public policies, and democratic conversations .

Investing in the training and capabilities of public sector professionals in data, AI, ethical governance, and advanced digital tools is a prerequisite for successful digital transformation. Without people who have the necessary skills and knowledge, no transformation is possible. This investment must also ensure that all municipalities, large and small, are equipped to participate in the digital age.

De la Varga Mas emphasised that the readiness for transformation depends on one key factor - people - and that investment is needed in the training and capabilities of public sector professionals in data, AI, ethical and responsible data governance, and advanced digital tools . He concluded that without people, there is no transformation .

Public administrations face strategic risks from their dependence on external cloud systems and data networks, which threatens their digital sovereignty. A failure in these systems could affect public administration, healthcare, transport, and security — all core competencies of local governments. This makes technological sovereignty a fundamental concern for public institutions.

De la Varga Mas warned of the growing challenge of technological sovereignty and the dependence on external infrastructures such as cloud systems and data networks, which create strategic risks for digital sovereignty . He noted that a failure in these systems could affect public administration, healthcare, transformation, and security, which are at the heart of local government competencies .

The challenges that cities face today — climate change, demographic transitions, water scarcity, mobility patterns, and the ethical use of AI — do not stop at administrative or national borders and therefore require shared solutions. No single city, region, or country has all the answers, making international cooperation essential. Through cooperation, cities can learn from each other's successes and failures and accelerate innovation while reducing risk and cost.

De la Varga Mas argued that the challenges cities face, including climate change, demographic transitions, water scarcity, mobility patterns, and the ethical use of AI, are shared challenges that require shared solutions . He stated that no city, region, or country has all the answers, and that through international cooperation cities can learn from each other, share data, methodologies, and governance models, and accelerate innovation while reducing risk and cost .

Networks of local governments, such as UCLG, ALDA, and the Global Cities Hub, enable cities to exchange experiences, identify innovative digital solutions, and adapt them to different territorial realities. These networks help move from isolated pilot projects to shared approaches on topics such as digital governance, smart territories, climate resilience, citizen participation, and ethical AI. They also help build common narratives around shared values and principles.

De la Varga Mas highlighted the province of Barcelona's participation in networks including UCLG's Commission for Smart Cities, ALDA's hub on citizens, AI, and governance, and the Global Cities Hub . He noted that these networks allow local governments to exchange experiences, identify innovative digital solutions, adapt them to different territorial realities, and move from isolated pilot projects to shared approaches on digital governance, smart territories, climate resilience, citizen participation, and ethical AI .

International cooperation strengthens cities' capacity to anticipate uncertainty by enabling the sharing of knowledge and data across territories, which supports the development of better predictive models and more efficient responses to climate-related events such as droughts, floods, heat waves, and forest fires. This cross-territorial data sharing is presented as a practical benefit of international networks for local governments.

De la Varga Mas stated that international cooperation strengthens the capacity to anticipate uncertainty by sharing knowledge and data across territories, enabling better predictive models, improved risk management, and more efficient responses to climate-related events such as droughts, floods, heat waves, and forest fires .

Approximately one billion people are not on the map — they are invisible to data systems — and AI cannot serve excluded populations if their data and perspectives are absent from the systems being built. This includes people experiencing homelessness and those living in informal settlements, who are also the most vulnerable to climate events and disasters. Ensuring that these populations are included in data systems is therefore a prerequisite for inclusive AI.

Rossbach noted that there are still approximately one billion people not on the map, including those in informal settlements and experiencing homelessness, who are the most excluded, most vulnerable, and most impacted by climate events and disasters . She argued that the first concern must be to ensure that data includes different voices and perspectives so that AI can work effectively and equitably .

Past urban data may not reflect the real dynamics of all groups in a city, leading to biased planning and policy decisions. The example of women's movement patterns in cities illustrates how data derived from sources such as ride-hailing apps may systematically exclude the experiences of women who cannot afford or are afraid to use certain transport options. Planning based on such incomplete data will fail to serve the full population.

Rossbach used the example of women's movement in cities, noting that women may be afraid to move in many cities and may not use public transportation on certain routes due to safety concerns, meaning that data from sources like Uber does not capture their real mobility patterns . She argued that planners cannot plan urban mobility based only on such data and must consider the perspectives and voices that are not being heard .

UN Habitat, together with ITU and other UN agencies through the UN for Cities group, has been developing guidelines and directions on how to implement a people-centred, human rights-centred approach to smart cities. This is an ongoing process involving experts and member states aimed at providing clearer guidance and recommendations. It represents a key work stream for ensuring that smart city development is aligned with human rights principles.

Rossbach described UN Habitat's work as part of the UN for Cities group, co-chaired with ITU and other UN agencies, developing a set of guidelines and directions on how to implement people-centred, human rights-centred smart city approaches, developed through a process with experts and member states .

UN Habitat is working with eleven cities in Ukraine, using satellite imagery and AI to help mayors assess the damages caused by conflict and establish recovery priorities. This application of technology demonstrates how digital tools can support urban recovery in crisis contexts. The partnership with UNOSAT provides the satellite imagery used for both mapping informal settlements and assessing conflict damage.

Rossbach mentioned that UN Habitat is working in Ukraine with 11 cities, using satellite imagery and AI to help mayors assess damages and establish priorities for recovery . She also noted the partnership with UNOSAT, which provides satellite imagery for mapping informal settlements and assessing damages .

UN Habitat works with cities including Rio de Janeiro to map informal settlements and connect communities to social services and digital systems, using technology to make previously invisible populations visible and embedded in city planning. This work involves gathering information, connecting social services, and upscaling technology over time to address the challenges of informal settlements. The learning from these partnerships is also shared with other cities.

Rossbach described UN Habitat's long-standing partnership with Rio de Janeiro, working with communities to gather information, connect social services, embed communities in mapping systems, and upscale technology to address the challenges of informal settlements . She also mentioned work in Namibia and Central America supporting the mapping of informal settlements in collaboration with census and statistics offices and national governments .

UN Habitat's strategic plan identifies participatory multi-level governance — connecting cities, national governments, and international organisations — as a critical means of implementation for its work. Cities are increasingly engaging in global agendas and recognising that what is decided at the global level has direct implications for them, while also finding solutions that can orient global policy directions. The connection between bottom-up and top-down governance is where UN Habitat sees its role.

Rossbach noted that UN Habitat's strategic plan identifies multi-level, participatory governance as a critical means of implementation . She described cities as increasingly engaging in global agendas such as the High-Level Political Forum and COPs, recognising that global decisions have direct local implications and that local solutions can orient global policy directions .

Cities are increasingly engaging in global agendas and are being recognised as solution-finders whose innovations can orient the direction of global policies, not merely as implementers of decisions made at higher levels. This recognition is reflected in the Pact for the Future, which required the Secretary-General to present ways for cities and local and regional governments to have stronger participation within the UN. Spaces such as the World Urban Forum are being used to bring city voices into global discussions.

Rossbach noted that the Pact for the Future required the Secretary-General to present ways for cities and local and regional governments to have stronger participation within the UN, with several spaces recognised in the resulting report, including conferences and the World Urban Forum in Baku . She described cities as realising that they are finding solutions that can orient global agenda directions .