This article investigates whether, how and under what conditions European Union (EU) capacity-building programmes actually contribute to improving the action capacity of target actors in view of common policy objectives. The empirical analysis focuses on the European Local Energy Assistance (ELENA) technical facility that aims to enhance local authorities' project development and management capacities in the field of renewables and energy efficiency. Our findings show that favourable contextual conditions and the actual functional demand for more capacities cannot explain the implementation dynamics of this programme across EU countries. Conversely, the availability of basic starting resources or the ability to draw from EU funds emerge as key factors behind these dynamics. Evidence is provided demonstrating that the effectiveness of such programmes can be hampered by a persistent capacity trap if barriers to their implementation are not carefully considered in advance.

中文翻译：

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多层次系统赋能治理：欧盟的能力建设和地方气候行动

本文调查了欧盟 (EU) 能力建设计划是否、如何以及在何种条件下根据共同政策目标实际有助于提高目标参与者的行动能力。实证分析侧重于欧洲地方能源援助 (ELENA) 技术设施，该技术设施旨在提高地方当局在可再生能源和能源效率领域的项目开发和管理能力。我们的研究结果表明，有利的环境条件和对更多能力的实际功能需求无法解释该计划在整个欧盟国家的实施动态。相反，基本起始资源的可用性或从欧盟资金中提取的能力成为这些动态背后的关键因素。