Given the complexity and wide-ranging aspects of the current environmental problem, a problem-solving method based on the cooperation of various levels of actors is required above all. The operation of environmental governance should be accompanied by changes in the current perception of the environment and the establishment of social values rather than technology-oriented solutions. The key is to avoid the empowerment of independent actors, and to increase mutual cooperation and participation of various actors. This study examines the aspects of multi-layered actor participation and cooperation observed in the operation of EU environmental governance through the implementation and evaluation of Local agenda 21 of the Emilia-Romagna region. The composition of the study is as follows: first, with the theoretical discussion of environmental governance, second, the definition and content of Local agenda 21, and third, the implications and application of Local agenda 21 of Emilia- Romagna, and fourth, the implementation and evaluation of Local agenda 21. Through this, the study examines the sustainability of implementation of the Local agenda 21 of Emilia-Romagna and the degree of participation of multi-level actors led by local government and the creation of partnerships.