Stakeholder salience analysis for the growing divergent perceptions of positive energy districts

Positive Energy Districts (PEDs) have emerged as a central concept in Europe’s transition toward climate-neutral cities. Yet, despite significant policy attention and extensive research investment, PED development remains fragmented, and the concept is perceived differently across societal, governmental, and professional groups. This study investigates these growing divergent perceptions by integrating the Dream–Goal–Tool framework with the stakeholder salience model, which evaluates different actors based on their power, legitimacy, and urgency. Based on stakeholder inputs from European PED initiatives, projects’ workshops, and expert discussions, the analysis reveals a fundamental misalignment in how PEDs are understood. For the general public, PEDs is viewed as a dream which is an idealised vision disconnected from daily life conditions. For national governments and the European Commission, PEDs function as a policy goal that symbolises progress toward decarbonisation and innovation. For municipalities, utilities, developers, and other frontline actors, PEDs serve primarily as a tool for planning, experimentation, and coordinated urban transition work. By exploring these perception gaps, the study highlights the governance challenges that hinder PED scaling. It further outlines future development needs, including co-creation with citizens, clearer regulatory and assessment frameworks, cross-learning mechanisms, and the shift from technology-driven pilots to market-driven implementation. The findings provide a structured foundation for aligning stakeholder expectations and advancing PEDs from conceptual ambition to practical, socially supported, and scalable urban solutions.