Green Paper from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions - Adapting to climate change in Europe – options for EU action {SEC(2007) 849}
Date: 2007-06-29
Institutions: European Commission
Subjects: EU action, EU environmental policy, climate change, environmental cooperation, greenhouse gas, international cooperation, prevention of pollution

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 29.6.2007 
COM(2007) 354 final 

GREEN PAPER 
FROM THE COMMISSION TO THE COUNCIL, THE EUROPEAN PARLIAMENT, 
THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE 
COMMITTEE OF THE REGIONS 

Adapting to climate change in Europe – options for EU action 

{SEC(2007) 849} 

EN 

   EN 

 
 
 
  
 
 
GREEN PAPER 
FROM THE COMMISSION TO THE COUNCIL, THE EUROPEAN PARLIAMENT, 
THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE 
COMMITTEE OF THE REGIONS 

Adapting to climate change in Europe – options for EU action 

(Text with EEA relevance) 

Table of contents 

1. 

2. 

3. 

4. 

5. 

Putting adaptation and mitigation into perspective...................................................... 3 

Reasons for global concern .......................................................................................... 4 

Europe will not be spared............................................................................................. 4 

Europe must adapt - challenges for European society and European public policy .... 9 

Focusing EU action – Priority options for a flexible four-pronged approach............ 14 

5.1. 

The first pillar: Early action in the EU....................................................................... 14 

5.1.1. 

Integrate adaptation when implementing existing and upcoming legislation and 
policies ....................................................................................................................... 14 

5.1.2. 

Integrate adaptation into existing Community funding programmes ........................ 19 

5.1.3.  Develop new policy responses ................................................................................... 20 

5.2. 

5.3. 

5.4. 

The second pillar: Integrating adaptation into EU external actions........................... 21 

The third pillar: Reducing uncertainty by expanding the knowledge base through 
integrated climate research......................................................................................... 24 

The fourth pillar: Involving European society, business and public sector in the 
preparation of coordinated and comprehensive adaptation strategies........................ 26 

6. 

Next steps ................................................................................................................... 27 

Annexes 

Note: all figures and maps in this paper are to be printed in colour 

EN 

2 

   EN 

 
 
 
 
1. 

PUTTING ADAPTATION AND MITIGATION INTO PERSPECTIVE 

Climate change presents a double challenge today. First, severe climate change impacts can 
only be prevented by early, deep cuts of greenhouse gas (GHG) emissions. Swift transition to 
a  global  low-carbon  economy  is  therefore  the  central  pillar  of  the  EU’s  integrated  climate 
change  and  energy  policy  in  order  to  reach  the  EU’s  objective  of  keeping  global  average 
temperature increase below  2°C compared to pre-industrial levels.  Beyond 2°C  change, the 
risk  of  dangerous  and  unpredictable  climate  change  increases  significantly  and  costs  of 
adaptation escalate. That is why mitigation is such an imperative for the global community 
and why EU Heads of State and Government at the 2007 Spring Council unanimously agreed 
to reduce its greenhouse gas emissions by at least 20% by 2020 and, in case of a global and 
comprehensive agreement, by 30% by 2020 and called for a global reduction of up to 50 % 
by 2050 compared to 1990 levels. 

change 

climate 

already 
Second,  with 
happening,  societies  worldwide  face 
the 
parallel  challenge  of  having  to  adapt  to  its 
impacts as a certain degree of climate change 
is  inevitable  throughout  this  century  and 
beyond, even if global mitigation efforts over 
the  next  decades  prove  successful.  While 
adaptation  action  has  therefore  become  an 
unavoidable and indispensable complement to 
mitigation  action,  it  is  not  an  alternative  to 
reducing  GHG  emissions.  It  has  its  limits. 
Once  certain 
thresholds  are 
temperature 
exceeded,  certain  climate  impacts  (e.g.  major 
displacement  of  populations)  are  expected  to 
become severe and irreversible.  
The  European  Union  has  to  take  on  the 
challenge 
in 
its  Member  States  and 
partnership  with 
globally  with  partner  countries.  A  European 
approach  is  necessary  to  ensure  proper  co-
ordination  and  the  efficiency  of  policies  that 
address 
impacts  of  climate  change. 
Adaptation  actions  must  be  consistent  with 
mitigation  actions  and  vice  versa.  These  are 
also necessary to secure the benefits obtained 
from the Lisbon strategy for growth and jobs.  

adaptation,  working 

the 

of 

  What is adaptation? 

Adaptation actions are taken to cope with a 
changing climate, e.g. increased rainfall, higher 
temperatures, scarcer water resources or more 
frequent storms, at present or anticipating such 
changes in future. Adaptation aims at reducing 
the risk and damage from current and future 
harmful impacts cost-effectively or exploiting 
potential benefits. Examples of actions include 
using scarce water more efficiently, adapting 
existing building codes to stand future climate 
conditions and extreme weather events, 
construction of flood walls and raising levels of 
dykes against sea level rise, development of 
drought tolerant crops, selection of forestry 
species and practices less vulnerable to storms 
and fires, development of spatial plans and 
corridors to help species migrate. Adaptation 
can encompass national or regional strategies as 
well as practical steps taken at community level 
or by individuals. Adaptation measures can be 
anticipatory or reactive. Adaptation applies to 
natural as well as to human systems. Ensuring 
the sustainability of investments over their entire 
lifetime taking explicit account of a changing 
climate is often referred to as 'climate proofing'. 
(More adaptation related terms are explained in 
Annex 5.) 

This Green Paper examines climate change impacts in Europe, the case for action and policy 
responses in the EU. It focuses on the role of  the  EU,  but  takes  account  of  the  prominent 
role of Member State, regional and local authorities in any efficient adaptation strategy. As 
the adaptation challenge is global by its very nature, the Green Paper also raises the external 
dimension and looks at adaptation measures in Europe that could also apply to other parts of 
the  world,  and  the  opportunity  for  the  EU  to  provide  international  leadership  in  this  area. 
The  recent  G8  Summit  at  Heiligendamm  welcomed  the  adoption  of  the  Nairobi  work 
programme  on  adaptation  and  emphasised  the  participants'  commitment  to  enhance 
cooperation with and support for developing countries in this area.  

EN 

3 

   EN 

 
 
2. 

REASONS FOR GLOBAL CONCERN  

Many areas in the world are already struggling today with the adverse effects of an increase in 
global  average  temperatures  of  0.76  °C  since  1850.  Without  an  effective  global  climate 
change mitigation policy, best estimates for global warming in the 4th Assessment Report of 
the Intergovernmental Panel on Climate Change (IPCC 4AR,  Working Group I) range from 
1.8°C to 4°C compared by 2100 to 1990 levels (see Annex 1). This is three to six times the 
temperature increase the globe has experienced since pre-industrial times. Even the low end 
of  a  business  as  usual  scenario  would  take  the  temperature  rise  since  pre-industrial  times 
above  2°C.  The  Annex  to  this  Green  Paper  explains  the  temperature  changes  and  global 
impact in more detail. 

Over  the  last  three  decades  climate  change  has  already  had  a  marked  influence  on  many 
physical and biological systems worldwide:  

•  Water: Climate change will further reduce access to safe drinking water. Glacier 
melt  water  currently  supplies  water  to  over  a  billion  people;  once  it  disappears, 
populations will be under pressure and are likely to migrate to other regions of the 
world,  causing  local  or  even  global  upheaval  and  insecurity.  Drought-affected 
areas are likely to increase. 

•  Ecosystems  and  biodiversity:  Approximately  20  –  30  %  of  plant  and  animal 
species assessed so far are likely to be at increased risk of extinction if increases 
in global average temperature exceed 1.5 – 2.5°C.  

•  Food:  Climate  change  is  expected  to  increase  the  risk  of  famine;  the  additional 

number of people at risk could rise to several hundred millions. 

•  Coasts: Sea level rise will threaten the Nile delta, the Ganges/Brahmaputra delta 
and  the  Mekong  delta  and  displace  more  than  1  million  people  in  each  delta  by 
2050. Small Island states are already affected.  

•  Health:  Climate  change  will  have  direct  and  indirect  impacts  on  human  and 
animal health. The effects of extreme weather events and an increase in infectious 
diseases are amongst the most important risks to be taken into account. Climate-
sensitive diseases are among the most deadly worldwide. Diarrhoea, malaria and 
protein-energy malnutrition alone caused more than 3.3 million deaths globally in 
2002, with 29 % of these deaths occurring in Africa.  

3. 

EUROPE WILL NOT BE SPARED 

The effects of climate change in Europe and the Arctic are already significant and measurable. 
Climate  change  will  heavily  affect  Europe's  natural  environment  and  nearly  all  sections  of 
society and the economy. Because of the non-linearity of climatic impacts and the sensitivity 
of  ecosystems,  even  small  temperature  changes  can  have  very  big  effects.  The  impacts  in 
Europe's major geographical regions are described in Annex 3. 

Europe  has  warmed  by  almost  1°C  in  the  last  century,  faster  than  the  global  average.  A 
warmer atmosphere contains more water vapour but new precipitation patterns differ strongly 
from  one  region  to  another.  Rainfall  and  snowfall  has  significantly  increased  in  northern 
Europe,  whereas  droughts  are  more  frequently  observed  in  Southern  Europe.  Recent 
temperature  extremes,  such  as  the  record-breaking  2003  summer  heat  wave  are  consistent 

EN 

4 

   EN 

 
with man-made climate change. While single weather events cannot be attributed to a single 
cause,  statistical  analyses  have  shown  that  the  risk  of  such  events  has  already  increased 
considerably  as  a  consequence  of  climate  change.  There  is  overwhelming  evidence  that 
almost all natural, biological and physical processes (e.g. trees are blossoming earlier, glaciers 
are  melting)  are  reacting  to  climatic  changes  in  Europe  and  worldwide.  More  than  half  of 
Europe’s plant species could be vulnerable or threatened by 2080. 

The most vulnerable areas in Europe are (see Figure 1 and 2):  

•  Southern Europe and the entire Mediterranean Basin due to the combined effect of 
high temperature increases and reduced precipitation in areas already coping with 
water scarcity.  

•  Mountain  areas,  in  particular  the  Alps,  where  temperatures  increase  rapidly 

leading to widespread melting of snow and ice changing river flows.  

•  Coastal zones due to sea level rise combined with increased risks for storms. 

•  Densely  populated  floodplains  due  to  increased  risks  for  storms,  intense  rainfall 
and  flash  floods  leading  to  widespread  damages  to  built-up  areas  and 
infrastructure.  

•  Scandinavia  where  much  more  precipitation  is  expected  and  a  larger  part  in  the 

form of rain instead of snow. 

•  The  Arctic  region  where  temperature  changes  will  be  higher  than  in  any  other 

place on Earth. 

Many economic sectors depend strongly on climatic conditions and will feel the consequences 
of  climate  change  on  their  activities  and  businesses  directly:  agriculture,  forestry,  fisheries, 
beach  and  skiing  tourism,  and  health.  Reduced  water  availability,  wind  damages,  higher 
temperatures, increased bushfires and greater disease pressure will lead to damage to forests. 
Increase  in  frequency  and  intensity  of  extreme  events  such  as  storms,  severe  precipitation 
events,  sea  floods  and  flash  floods,  droughts,  forest  fires,  landslides  cause  damage  to 
buildings,  transport  and  industrial  infrastructure  and  consequently  impact  indirectly  on 
financial  services  and  insurance  sectors.  Even  damage  outside  the  EU  could  significantly 
affect its economy, e.g. reduced timber supply to European processing industries. 

Changing  climate  conditions  will  for  instance  affect  the  energy  sector  and  energy 
consumption patterns in several ways:  

•  In  regions  where  precipitation  will  decrease  or  where  dry  summers  will  become 
more frequent, water flow for cooling of thermal and nuclear power plants and for 
hydropower  production  will  reduce.  The  cooling  capacity  of  water  will  also 
decrease because of the general warming of water and discharge thresholds may 
be crossed.  

•  River  flow  regimes  will  be  altered  due  to  changed  precipitation  patterns  and  in 
mountain  areas  due  to  reduced  ice  and  snow  cover.  Silting  of  dams  for 
hydropower may accelerate due to increased risks of erosion.  

•  Demand  for  heating  will  drop  but  the  risk  of  power  disruptions  will  raise  as 
summer  heat  pushes  up  demand  for  air-conditioning  resulting  in  an  increased 
demand for electricity. 

•  Increased risk for storms and floods may threaten energy infrastructure. 

EN 

5 

   EN 

 
Major  transport  infrastructure  with  long  lifetimes  such  as  motorways,  railways,  waterways, 
airports, ports and railway stations, its functioning and related means of transport are weather 
and climate sensitive and therefore affected by a changing climate. For example: 

•  Sea-level rise will reduce the sheltering effect of breakwaters and quays wall.  

•  Risks  for  damage  and  disruption  due  to  storms  and  floods  but  also  due  to  heat 

waves, fires and landslides are generally expected to increase.  

This  demonstrates  that,  whilst  there  may  be  some  positive  aspects  of  climate  change  (eg 
agricultural  production  in  some  limited  parts  of  Europe),  these  are  by  far  exceeded  by 
negative impacts. 

Key questions: 

1)  What  will  be  the  most  severe  impacts  on  Europe's  natural  environment, 

economy and society? 

2)  Which  of  the  adverse  effects  of  climate change  identified  in  the  Green  Paper 

and its Annex concern you most? 

3)  Should further important impacts be added? If yes, which ones? 

EN 

6 

   EN 

 
 
 
Figure 1: Change in mean annual temperature by the end of this century1 

1 

EN 

Figures 1 and 2 are based on IPCC SRES scenario A2. The projected climate impacts are estimated for 
are  based  on  DMI/PRUDENCE  data 
2071-2100 
(http://prudence.dmi.dk),  and  processed  by  JRC  within 
funded  PESETA  study 
(http://peseta.jrc.es) 

to  1961-1990.  The  maps 

the  JRC 

relative 

7 

   EN 

 
                                                 
Figure 2: Change in mean annual precipitation by the end of this century 

EN 

8 

   EN 

 
4. 

EUROPE  MUST  ADAPT  -  CHALLENGES  FOR  EUROPEAN  SOCIETY  AND  EUROPEAN 
PUBLIC POLICY 

The case for action – saving on future costs 
The Stern review2 on the economics of climate change concludes that adaptation could reduce 
the costs, provided policies are put in place to overcome obstacles to private action. Market 
forces  alone  are  unlikely  to  lead  to  efficient  adaptation  because  of  a  certain  degree  of 
uncertainty  in  the  climate  projections  and  lack  of  financial  resources.  Cost-effective 
adaptation is therefore the most appropriate solution.  

Preliminary  estimates  from  the  Stern  review  suggest  that,  with  a  3-4°C  global  average 
temperature  rise,  the  additional  costs  of  adapting  infrastructure  and  buildings  could  already 
amount to 1-10% of the total costs invested in construction in OECD countries. The additional 
cost  of  making  new  infrastructure  and  buildings  more  resilient  to  climate  change  in  OECD 
countries  could  range  from  $15-150  billion  each  year  (0.05–0.5%  of  GDP).  If  temperatures 
are allowed to rise by 5-6°C, the costs of adaptation measures are likely to rise sharply, and 
indeed their relative effectiveness then diminishes. 

As shown in Figure 3, damage caused by sea-level rise without adaptation can be up to four 
times  higher  than  the  costs  with  additional  flood  defences.  With  no  action,  damage  costs 
increase steeply from 2020s until 2080s. 

When to adapt? 

Early  action  will  bring  clear  economic  benefits  by  anticipating  potential  damages  and 
minimizing  threats  to  ecosystems,  human  health,  economic  development,  property  and 
infrastructure. Furthermore competitive advantages could be gained for European companies 
that are leading in adaptation strategies and technologies. 

Sufficient knowledge on time dimensions of impacts is important when setting priorities. The 
exact  level  of  temperature  increase  is  uncertain  and  will  also  depend  on  global  mitigation 
action taken over the next few decades. This is particularly the case for the longer time frames 
for which uncertainties are larger. 

If there is no early policy response, the EU and its Member States may be forced into reactive 
un-planned  adaptation,  often  abruptly  as  a  response  to  increasingly  frequent  crises  and 
disasters, which will prove much more costly and also threaten Europe's social and economic 
systems  and  its  security.  For  impacts  where  we  have  enough  confidence  in  the  forecasts, 
adaptation must therefore start now. 

2 

http://www.hm-treasury.gov.uk/independent_reviews/stern_review_economics_climate_change/stern_ 
review_report.cfm 

EN 

9 

   EN 

 
                                                 
Figure 3: Impact of adaptation measures on damage due to low and high sea level rise. 
Costs with and without adaptation measures3 

r
a
e
y

r
e
p

n
o

i
l
l
i

b

€

20,00

18,00

16,00

14,00

12,00

10,00

8,00

6,00

4,00

2,00

0,00

2080s

2080s

2020s

2020s

2020s

2080s

2020s

2080s

without

with

without

with

without

with

without

with

sea level rise of 25,3 cm

sea level rise of 56,4 cm

Total residual damage costs 

Adaptation Costs 

How should Europeans adapt?  

EU private sector, businesses, industry and services' sectors, as well as individual citizens will 
be  confronted  with  the  consequences  of  climate  change  and  can  play  an  important  role  in 
adaptation measures. Concrete action could range very widely, covering e.g.:  

•  Soft,  relatively  inexpensive  measures,  e.g.  water  conservation,  changes  in  crop 
rotations,  sowing  dates  and  use  of  drought  tolerant  crops,  public  planning,  and 
awareness raising. 

•  Costly  defence  and  relocation  measures,  e.g.  increasing  the  height  of  dykes, 
relocating  ports,  industry  and  entire  cities  and  villages  from  low-lying  coastal 
areas  and  flood  plains,  and  building  new  power  plants  because  of  failing 
hydropower stations.  

Action is needed by the public sector, e.g. adapting spatial and land use planning to risks of 
flash  floods;  adapting  existing  building  codes  ensuring  that  long-term  infrastructure  will  be 
proof  to  future  climate  risks;  updating  of  disaster  management  strategies,  early  flood  and 
forest fire warning systems.  

Adaptation will also bring about new economic opportunities including new jobs and markets 
for innovative products and services such as: 

3 

IPCC SRES scenario A2; costs by 2100 in 1995 €. Results from EC JRC PESETA study.  

EN 

10 

   EN 

 
 
 
 
 
 
 
                                                 
•  New markets for climate-proof building techniques, material and products.  

•  Beach  tourism  in  Mediterranean  countries  would  be  expected  to  shift  to  spring 
and  autumn  where  tourist  resorts  may  become  too  hot  during  summers,  while 
favourable  climate  conditions  during  summer  would  turn  the  Atlantic  and  North 
Sea into potential new tourist destinations for beach holidays.  

•  Adapting  local  agricultural  management  practices  in  Scandinavia  to  longer 

growing seasons. 

•  Insurance  sector  could  develop  new  insurance  products  for  reducing  risks  and 
vulnerability  before  disasters  strike.  Insurance  premiums  anticipating  climatic 
changes could provide incentives for private adaptation actions. 

The role of Member States, regional and local authorities 

Adaptation  is  complex  because  the  severity  of  the  impacts  will  vary  from  region  to  region, 
depending on physical vulnerability, the degree of socio-economic development, natural and 
human adaptive capacity, health services, and disaster surveillance mechanisms. 

Multilevel governance is therefore emerging on climate change adaptation involving all actors 
from the individual citizens and public authorities to the EU level. Action should be taken at 
the  most  appropriate  level  and  be  complementary,  based  on  joint  partnerships.  Division  of 
competence  between  states  and  their  regions  varies  significantly  across  the  EU  and  the 
examples below should therefore be adapted to the national situation. Many of the examples 
would anyhow require close coordination between and involvement of national, regional and 
local authorities and other authorities such as river basin administrations. 

•  National level 

Improving disaster or crisis management 

The frequency and intensity of major large-scale disasters such as fires, landslides, droughts, 
heat  waves,  floods  or  outbreaks  of  disease  will  increase.  Disaster  prevention,  preparedness, 
response  and  recovery  should  become  even  more  of  a  priority  for  Member  States.  Rapid 
response capacities to climate change would need to be accompanied by a strategy for disaster 
prevention and alert both at national and European level. 

Risk management tools could be further strengthened and new tools developed: for example 
mapping  of  vulnerable  areas  in  accordance  with  the  types  of  impacts,  development  of 
methods  and  models,  hazards  assessment  and  forecasting,  assessment  of  health, 
environmental, economic and social impacts, satellite and earth observation in support of risk 
management  technologies.  Experience  and  good  practice  including  contingency  planning 
could be shared. 

Developing adaptation strategies 

Experience  and  expertise  in  designing  effective  adaptation  strategies  and  implementing 
policies  is  still  limited.  Information-sharing  on  adaptive  response  measures  could  greatly 
reduce learning costs across Member States, regions, municipalities, and communities. 

The  poorer  segments  of  society  will  be  more  vulnerable  to  the  changes.  Attention  therefore 
needs  to  be  paid  to  the  social  aspects  of  adaptation,  including  threats  to  employment  and 
impact on living and housing conditions. For example, young children and elderly are more 
vulnerable to heat waves. 

•  Regional level 

EN 

11 

   EN 

 
Adaptation  to  climate  change  constitutes  a  challenge  for  planning  authorities  in  Europe, 
notably at regional level. Spatial planning is a cross-sectoral issue which makes it a suitable 
tool to define cost-effective adaptation measures. Minimum requirements for spatial planning, 
land use and land use change, with respect to adaptation could play a key role for awareness 
raising  among  the  public,  decision  makers  and  professionals  and  for  triggering  a  more 
proactive  approach  at  all  levels.  The  development  of  specific  technical  guidance  documents 
and case studies and good practice could be considered. EU support for implementation could 
be provided to regions for exchanging good practices. 

•  Local level 

Many  decisions  influencing  directly or indirectly climate change adaptation  are taken  at  the 
local level. This is also where detailed knowledge on the local natural and human conditions 
is  available.  Therefore  local  authorities  have  an  important  role  to  play.  Behavioural  change 
within societies and communities depends largely on awareness of the problem. Citizens and 
actors may not yet be aware of the scale and magnitude of what is to come as well as their 
impacts on their activities. 

For  example  detailed  land  management  and  land  use  practices  could  be  explored  in 
partnership with farmers to prevent erosion and mud streams reaching houses and settlements. 
In Southern Europe some municipalities have developed, together with the farmers, initiatives 
for  saving  water  through  electronic  management  and  distribution  systems  for  irrigation  of 
crops. 

In regions with rising rainfall and rainfall spells, separate collecting systems for sewage and 
stormwater  could  be  considered  to  reduce  the  otherwise  increasing  need  for  sewage 
overflows. 

Why is action needed at EU level?  

There are clear benefits in approaching adaptation in an integrated, coordinated manner at EU 
level. Europe's physical, biological and human systems are very rich in diversity and climate 
change  will  magnify  this.  Whilst  a  “one-size-fits-all”  approach  to  adaptation  is  clearly  not 
appropriate, climate change will nevertheless impact everywhere and those impacts will not 
follow  administrative  boundaries.  In  many  areas  adaptation  will  require  a  cross-boundary 
approach,  e.g.  on  river  basins  and  bio-geographic  regions.  While  measures  will  have  to  be 
taken  or  implemented  at  a  national  or  local  level,  where  operational  capacities  exist,  it  is 
essential  that  efforts  be  co-ordinated  in  a  cost-effective  manner.  Actors  will  need  to  be 
mobilised at all levels. 

Furthermore,  certain  sectors  (e.g.  agriculture,  water,  biodiversity,  fisheries,  and  energy 
networks) are largely integrated at EU level through the single market and common policies 
and it makes sense to integrate adaptation goals directly into them. It could also be considered 
how  adaptation  can  be  taken  into  account  in  EU  spending  programmes  (e.g.  research, 
cohesion,  trans-European  networks,  rural  development,  agriculture,  fisheries,  social  fund, 
external  actions  and  the  European  Development  Fund).  Adaptation  will  require  solidarity 
among EU Member States in order to ensure that the poorer and disadvantaged regions and 
those  regions  that  will  be  hit  hardest  by  climate  change  will  be  able  to  take  the  necessary 
measures.  

Adaptation  policies  are  emerging  in  nearly  all  Member  States.  It  is  essential  to  share 
experiences  from  early  adaptation  action  and  results  from  research.  Adaptation  to  climate 

EN 

12 

   EN 

 
change is likely to benefit from experience gained in reaction to extreme climate events and 
from implementation of specific and proactive climate change risk management plans. 

Europe  has  the  human  capacity,  technical  skills  and  financial  resources  to  take  a  strong 
leadership role. Adaptation is largely a question of political coherence, forward planning and 
consistent  and  coordinated  action.  The  EU  should  show  how  adaptation  is  to  be  taken  into 
account in all the relevant EU policies. The EU can thus set an example and intensify its co-
operation with its partners around the globe in adapting to this global threat. 

This  Green  Paper  focuses  on  a  first  and  most  urgent  set  of  options  for  priority  actions  at 
Community level within the sphere of Community competence. In this context four lines of 
action can be considered.  

•  Where current knowledge is sufficient, adaptation strategies should be developed 
in  order  to  identify  optimal  resource  allocation  and  efficient  resource  use  which 
will  guide  actions  at  EU  level,  through  EU  sectoral  and  other  policies  and  the 
available Community Funds.  

•  The EU needs to recognise the external dimension of impacts and adaptation and 
to build  a  new alliance with  its  partners all  around the  world  and  particularly in 
developing countries. Adaptation action should be coordinated with its neighbours 
and cooperation with international organisations should be further strengthened.  

•  Where  there  are  still  important  knowledge  gaps,  Community  research,  exchange 
of  information  and  preparatory  actions  should  further  reduce  uncertainty  and 
expand  the  knowledge  base.  Integration  of  research  results  into  policy  and 
practice should be reinforced.  

•  Coordinated  strategies  and  actions  should  inter  alia  be  further  analysed  and 
discussed, in a European Advisory Group on Adaptation to Climate Change under 
the European Climate Change Programme. 

Under each of these four main headings a number of priority options for action at EU level are 
outlined below for further consideration. 

Key questions:  

4)   Does  the  green  paper  place  the  right  urgency  and  emphasis  on  the  matter  of 

adaptation in Europe?  

5)  What should be the different roles of EU, national, regional, local authorities and 

the private sector?  

6)  Which economic, social and environmental impacts of climate change should be 

addressed at EU level as a matter of priority?  

7)  Apart  from  the  main  priority  areas  identified  in  the  four-action  approach,  are 

there other areas that have been missed out? If yes, which? 

EN 

13 

   EN 

 
 
 
 
 
5. 

FOCUSING  EU  ACTION  –  PRIORITY  OPTIONS  FOR  A  FLEXIBLE  FOUR-PRONGED 
APPROACH 

5.1. 

The first pillar: Early action in the EU 

Early action covers policy options in the following areas:  

– 

– 

– 

Integrate  adaptation  when 
forthcoming legislation and policies 

implementing  and  modifying  existing  and 

Integrate adaptation into existing Community funding programmes 

Develop new policy responses 

5.1.1. 

Integrate  adaptation  when  implementing  existing  and  upcoming  legislation  and 
policies 

Adaptation to climate change will impact on many EU policy areas. The following provides 
an initial overview of how adaptation to climate change has or can be taken into account in 
these policies. As many of the policies are based on framework legislation, the success of the 
EU's approach to adaptation depends on enhanced co-operation during implementation among 
Member States and between the EU and Member States. 

Agriculture and rural development 

European agriculture will face many challenges over the coming years such as international 
competition, further liberalisation of trade policy and population decline. Climate change will 
add to these pressures and will make the challenges more difficult and costly. The projected 
climate changes will affect crop yields, livestock management and location of production with 
important  risks  for  farm  income  and  land  abandonment  in  certain  parts  of  Europe.  Food 
production risks could become an issue in certain parts of Europe as heat waves, droughts and 
pests  are  likely  to  increase  the  incidence  of  crop  failures.  As  yield  variability  increases,  the 
global  food  supply  will  be  at  increasing  risk.  In  this  context,  the  potential  impact  of  the 
possible  increase  of  biomass  for  energy  production  on  the  global  food  supply  should  be 
assessed. 

Under  a  changing  climate,  the  role  of  EU  agriculture  and  forestry  as  providers  of 
environmental and ecosystem services will further gain importance. Agricultural and forestry 
management  have  a  major  role  to  play  regarding,  among  others,  efficient  water  use  in  dry 
regions, protection of water courses against excessive nutrient inflow, improvement of flood 
management, maintenance and restoration of multifunctional landscapes such as high nature 
value grassland that provide habitat and assist migration for numerous species. Promotion of 
climate  resilient  forest  management,  soil  management  measures  related  to  maintenance  of 
organic  carbon  (e.g.,  no  or  minimum  tillage)  and  protection  of  permanent  grasslands  are 
mitigation measures that should also help adaptation to climate change risks.  

Community support to agriculture, forestry and rural development plays an important role in 
food  production,  the  maintenance  of  rural  landscapes  and  the  provision  of  environmental 
services. The recent reforms of the Common Agricultural Policy (CAP) have been a first step 
towards a framework for the sustainable development of EU agriculture. Future adjustments 
of  the  CAP  and  the  'Health  check'  of  2008  could  provide  opportunities  to  examine  how  to 
better integrate adaptation to climate change in agriculture support programmes. It should for 
instance be considered to what extent the CAP can promote good farming practices which are 

EN 

14 

   EN 

 
compatible  with  the  new  climate  conditions  and  which  contribute  proactively  to  preserving 
and protecting the environment. 

Industry & services 

EU  industry  and  services'  sectors  will  be  confronted  both  with  the  need  to  adapt  to  climate 
change and opportunities to bring to market the products and services to assist this process. 
Climate change will affect industries and services like construction and tourism, may provoke 
restructuring and create damage to industrial infrastructure. Companies will need to adapt to 
changing  conditions  for  example  by  integrating  climate  change  adaptation  needs  into  their 
business  plans.  At  the  same  time,  co-benefits  between  mitigation  and  adaptation  measures 
should  be  exploited.  For  example  investments  in  insulation  do  not  only  reduce  the  need  for 
heating  in  winter  but  protects  against  heat  and  limits  the  need  for  air-conditioning  during 
warmer summers. 

In the forthcoming mid-term review, the Commission will examine how industrial policy can 
contribute to adaptation efforts. It will be followed by an Action Plan in early 2008. 

Energy  

Changing  climate  conditions  opens  new  opportunities  such  as  for  solar  and  photovoltaic 
energy. On the other hand, longer and drier summers could affect other energy sources, such 
as nuclear power and hydro power, while at the same time increasing the need for electricity 
for  air-conditioning.  This  underlines  the  need  for  diversification  of  energy  sources, 
development  of  renewable  energy,  increased  demand-response  management  and  a  grid  that 
can  cope  with  greater  fluctuations  in  both  electricity  demand  and  production.  The 
Commission  is  working  towards  a  Strategic  Energy  Technology  Plan  which  will  aim  to 
accelerate innovation of energy technologies to match the double challenge of climate change 
mitigation  and  adaptation.  A  key  issue  is  buildings.  These  are  prime  examples  of  the 
immediate need for adaptation, to make them more liveable in a hotter climate, and to reduce 
the energy demand, which will also address  mitigation. The  Commission will start work on 
revising  the  relevant  regulatory  framework  in  the  near  future,  in  particular  the  Directive  on 
energy performance of buildings.  

Transport 

Adapting  existing  transport  infrastructure  to  changing  climate  conditions,  while  ensuring  its 
continued and safe functioning, will require substantial additional investments. New transport 
infrastructure and related transport means should be made climate proof from the early design 
phase. For example, the variation in hydraulic regime and water level along navigable rivers 
has  already  had  an  impact  on  the  architecture  of  inland  water  boats.  Sound  planning, 
including the spatial aspects of site selection, should take into account expected future climate 
conditions.  Guidance  on  the  interpretation  of  the  existing  community  framework  for  port 
authorities  and  managers  of  waterborne  infrastructures  would  also  be  helpful  for  the 
adaptation of such infrastructure.  

EN 

15 

   EN 

 
Health 

Climate  change  clearly  has  detrimental  impacts  on  health  through  heat  waves,  natural 
disasters,  air  pollution  and  infectious  vector-borne  diseases.  In  addition,  waterborne,  food 
borne and zoonotic diseases in humans can potentially be affected by climate change. These 
effects can be amplified by other stressors, e.g. exposure to ozone and fine particles during a 
heat  wave.  Long-term  exposure  to  fine  particles  in  ambient  air  worsens  a  number  of  health 
problems  such  as  chronic  obstructive  pulmonary  disease,  which  makes  people  more 
susceptible  to  further  climate-induced  stress.  Various  projects  developed  under  EU  funding 
programmes  (in  particular  the  Community  Public  Health  Programme  and  the  Research 
Framework Programmes) have focused on the effects of heat waves on human health, public 
health  responses,  the  prevention  of  acute  health  effects  due  to  other  weather  conditions  and 
adaptation  strategies  for  health.  The  mid-term  review  of  the  European  Environment  and 
Health Action Plan (2004-2010) also includes recommendations for appropriate actions. 

Animal  health  is  very  likely  to  be  affected  by  impacts  on  living  conditions  and  by  the 
potential  increase  of  transmissible  infectious  diseases.  Climate  change  may  directly  or 
indirectly impact animal vector-borne diseases. 

Adaptation is a key response strategy to make sure that the potential effects of climate change 
on  health  are  reduced  and  kept  to  a  minimum.  The  European  Commission  recognises  that 
such  effects  are  rapidly  and  dangerously  increasing.  It  is  therefore  planning  to  adopt  a 
Communication in 2008 focusing specifically on this issue, which will establish a framework 
to tackle the impact of climate change on human and animal health. The Communication is 
expected  to  look  at  different  aspects  of  mortality  and  morbidity  due  to  climate  change 
including  the  changes  in  the  means  of  transmission  of  certain  infectious  diseases  affecting 
human  and  animals;  changes  in  the  dissemination  of  airborne  allergens  due  to  atmospheric 
changes and the risks due to ultraviolet radiation as climate change delays the recovery of the 
stratospheric ozone layer. 

Consumer  protection,  public  health  and  food  and  feed  regulations  will  have  to  be  screened 
and  "proofed"  against  climate  sensitivity.  The  Commission  may  call  upon  its  EU  Scientific 
Committees  and  Agencies  to  inform  about  specific  health  risks  associated  with  climate 
change. 

Water  

The  Water  Framework  Directive  provides  a  consistent  framework  for  integrated  water 
resources  management.  It  does  not  however  address  climate  change  directly.  The  challenge 
will  be  to  incorporate  measures  to  cope  with  climate  change  as  part  of  its  implementation, 
starting  with  the  first  planning  cycle  for  2009.  In  particular,  economic  instruments  and  the 
user  pays  principle  should  be  applied  across  all  sectors,  including  households,  transport, 
energy,  agriculture,  and  tourism.  This  will  provide  strong  incentives  to  reduce  water 
consumption and increase efficiency of use.  

The  Commission  is  working  on  a  Communication  on  water  scarcity  and  droughts  which  is 
closely  linked  to  climate  change  and  adaptation.  Some  regions  of  Southern  Europe,  where 
freshwater  resources  are  already  scarce,  will  suffer.  Droughts  could  become  more  frequent 
across the entire EU and water quality will deteriorate. Sustainable demand management is of 

EN 

16 

   EN 

 
utmost  importance  throughout  the  EU.  Inadequate  water  pricing,  inconsistent  land-use 
planning  and  bad  water  allocation  automatically  lead  to  overuse.  Applying  efficient  pricing 
policies,  making  water-saving  a  priority  and  improving  efficiency  in  all  sectors  are  already 
essential elements of the EU's approach.  

Likewise, the proposed legislation on the assessment and management of floods will focus on 
prevention, protection and preparedness. Implementation should include assessing the extent 
of possible extreme events in the future in order to reduce risks. Soft non-structural measures 
should be  prioritised, i.e.  using natural processes  to the maximum  to reduce  flood risks e.g. 
working  with  wetlands,  maximising  retention  capacities  at  source,  sustainable  land  use  and 
spatial planning limiting exposure and vulnerability. However, hard structural flood defences 
will continue to be important to cope with extreme flooding.  

Marine and fisheries 

In the context of its work on the EU Maritime Policy, the Commission will examine climate 
change  issues.  The  Marine  Strategy  and  related  legislation,  which  will  constitute  the 
environmental  pillar  of  the  Maritime  Policy,  will  integrate  climate  and  adaptation  measures 
into implementing programmes and plans. 

It is an important objective of the Common Fisheries Policy to ensure sustainability of fishing 
stocks.  Climate  change  can  affect  the  distribution  patterns  and  abundance  of  species  from 
plankton  to  top  predators,  which  may  result  in  major  changes  in  ecosystem  functions  and 
geographical  ranges  in  stocks.  Important  changes  in  water  temperatures  might  also  have  an 
impact  on  aquatic  animal  farming.  The  necessary  adaptation  measures  should  be  fully 
reflected in the implementation of current programmes.  

Ecosystems and biodiversity 

Climate  change  will  significantly  affect  economies  and  societies  through  its  impacts  on 
ecosystems,  more  specifically  on  natural  capital,  biodiversity  and  the  flow  of  ecosystem 
services  in  terrestrial,  freshwater  and  marine  ecosystems.  This  is  because  the  impacts  of 
climate change on man are largely mediated by natural systems. Healthy ecosystems will be 
more  resilient  to  climate  change  and  so  more  able  to  maintain  the  supply  of  ecosystem 
services  on  which  our  prosperity  and  wellbeing  depend.  They  lie  at  the  centre  of  any 
adaptation  policy.  Consequently  'conventional'  pressures  that  cause  the  fragmentation, 
degradation,  over-exploitation  and  pollution  of  ecosystems  must  be  reduced  ('ecosystem 
climate-proofing'). 

Climate  change  will  have  profound  impacts  on  the  physical  and  biological  components  of 
ecosystems:  water,  soil,  air  and  biodiversity.  For each  of  these  areas  EU  legislation  and 
policies  are  in  place,  or  in  the  pipeline.  They  will  need  to  be  implemented  on  schedule  to 
allow early action to strengthen ecosystem resilience to climate change. However, it will be a 
major  challenge  to  maintain  healthy,  functioning  ecosystems,  as  a  changing  climate  could 
undermine past and present efforts. Thus policies may need further adjustment.  

Effective implementation of the 2006 Biodiversity Communication and its 'EU Action Plan to 
2010  and  beyond'  will make  an important contribution to safeguard and restore biodiversity 
and  ecosystems.  Emphasis  must  be  placed  on:  ensuring  the  integrity,  coherence  and 

EN 

17 

   EN 

 
connectivity of the Natura 2000 network; conserving and restoring biodiversity and ecosystem 
services  in  the  wider  countryside  and  marine  environment;  making  regional  and  territorial 
development compatible with biodiversity; reducing the undesirable impacts of invasive alien 
species. 

Sustainable  use  means  that  development  and  exploitation  should  not  result  in  a  decline  in 
natural capital or ecosystem services. In this context, compensatory measures are important to 
ensure  that  development  projects  preserve  the  natural  capital.  Comprehensive  cost/benefit 
analysis  and  impact  assessments  should  gradually  and  systematically  internalise  the 
environmental costs of declining ecosystems.  

Other natural resources  

The  2003-2006  Forest  Focus  programmes  include  studies  on  predicting  changes  in  forest 
growth, carbon stocks and tree species migration. Community-wide forest and soil monitoring 
programmes must be supported as their results should be used as a basis for the development 
of  response  measures.  The  Forest  Action  Plan  includes  research  and  training  on  adaptation, 
assessment of impacts, and exchange of practices, and promotes more carbon-conscious forest 
management, similar to soil management in terms of both mitigation and adaptation. 

The Soil strategy and its related legislation aims to protect soil functions across the EU. Areas 
at risk of organic matter decline will have to be identified so that climate change can be taken 
into  account  in  the  programmes  designed  to  reverse  unsustainable  trends.  Net  loss  of  soil 
organic matter in a warming climate is a major concern as soil is the largest terrestrial pool of 
carbon. 

The Thematic Strategy on the sustainable use of natural resources aims to reduce the negative 
impacts of resource use in a growing economy and improve resource efficiency, taking a life-
cycle  approach.  Climate  change  makes  natural  resources  scarcer  and  aggravates  the 
environmental  impacts  of  resource  use.  The  forthcoming  Sustainable  Consumption  and 
Production  Action  Plan  will  consider  actions  to  improve  the  coherence  of  existing  policies 
and to use less resources and energy.  

Cross-cutting issues 

Climate-proofing  must  be  integrated  into  the  Environmental  Impact  Assessment  (EIA) 
Directive  and  the  Strategic  Environmental  Assessment  (SEA)  Directive.  EIAs,  SEAs  and 
policy impact assessments must address impacts on ecosystems supported by instruments that 
internalise the costs of damages to natural capital and ecosystem services. 

Member States and EU civil protection mechanisms should focus more on prevention, early 
warning and preparedness. 

The  Integrated  Coastal  Zone  Management  (ICZM)  Recommendation  calls  for  a  strategic 
approach  to  coastal  planning  and  management.  Coastal  zones  are  increasingly  exposed  to 
climate change risks and should be a major focus  of  mitigation  and  adaptation  measures.  A 
coherent  and  integrated  approach  to  coastal  planning  and  management  should  provide  a 
context for synergies and address potential inconsistencies between economic development of 
coastal  zones  and  necessary  adaptation  to  climate  change.  Guidance  should  be  given  for 

EN 

18 

   EN 

 
planning  and  management,  and  the  best  principles  and  practices  should  be  applied  when 
developing approaches and strategies. 

5.1.2. 

Integrate adaptation into existing Community funding programmes  

When  preparing  their  programmes  for  Community  support,  Member  States  should  integrate 
adaptation  activities.  This  is  particularly  relevant  for  infrastructure  projects.  Major 
infrastructure such as bridges, ports and motorways have lifetimes of 80-100 years, so today's 
investments  must  take  full  account  of  the  conditions  projected  for  the  end  of  the  century. 
Buildings  and  other  infrastructure  designed  to  last  20-50  years  will  also  have  to  withstand 
future  climate  conditions.  Investments  that  are  optimal  under  current  conditions  may  not 
necessarily be economically viable under future climatic conditions or when their impacts on 
the health of ecosystems are taken into account. Therefore medium and long-term investments 
should  be  "climate  proof".  For  example,  in  The  Netherlands  state-of-the-art  knowledge  on 
effects  of  climate  change  on  river  flows  and  sea  level  rise  is  already  taken  into  account  in 
infrastructure design. In the US architects assume a one metre sea level rise when designing 
bridges in coastal areas. 

The  Fourth  Cohesion  report  highlighted  the  importance  of  climate  change  in  EU  cohesion 
policy.4  The  Commission  will  examine  how  climate  proofing  can  be  reflected  and  made 
operational  in  the  programmes  and  projects  adopted  under  the  Cohesion  Fund,  Regional 
Development Fund (e.g. as part of Regional Innovation Strategies), pre-accession instruments, 
Trans-European  Networks  Programmes,  and  infrastructure  measures  under  the  Rural 
Development Fund.  

The European Social Fund foresees a wide range of actions that have a major role to play in 
raising public awareness for climate change, building capacity, training, and whenever people 
are forced to move. Examples of such actions could be a training programme for architects on 
the  climate-proofing  of  buildings,  new  job  opportunities  for  youngsters  in  a  low-carbon 
economy,  or  preventive  health  care  for  children  and  the  elderly  in  the  event  of  heat  waves. 
Member  States  should  already  take  advantage  of  the  current  operational  programmes  to 
include such measures. 

The Fisheries Structural Fund sets out the policy priorities and the terms of assistance for the 
fisheries  and  aquaculture  sector.  It  is  designed  to  help  achieve  the  aims  of  the  common 
fisheries policy by providing structural assistance. It thus strengthens the competitiveness of 
the  operating  structures  and  the  development  of  economically  viable  enterprises.  Climate 
change impacts should increasingly be taken into account. 

LIFE+ should fund pilot projects promoting adaptation across national borders, for example 
demonstrating cost-efficient adaptation technologies, innovative approaches, spatial planning 
for  adaptation,  and  exchange  of  good  practice.  Furthermore,  it  should  support  sustained 
communication and raise public awareness about climate impacts and adaptation. 

This Green Paper provides an opportunity to examine to which extent climate change, and in 
particular adaptation needs, are appropriately dealt with in the existing funding programmes. 

4 

http://ec.europa.eu/regional_policy/sources/docoffic/official/reports/cohesion4/index_en.htm 

EN 

19 

   EN 

 
                                                 
5.1.3.  Develop new policy responses  

There  are  several  Community  policies  that  will  be  directly  or  indirectly  affected  by  the 
impacts  of  climate  change  and  for  which  the  EU  still  needs  to  develop  an  appropriate 
response.  For  these  policies,  the  Commission  should  consider  providing  appropriate 
incentives for cost-effective adaptation. A systematic check of how climate change is going to 
impact  on  all  Community  policy  areas  and  legislation  should  be  conducted  by  2009  and 
followed up with further concrete action.  

As  a  matter  of  example,  targeted  action  is  needed  on  building  codes  and  methods,  and 
climate-resilient  crops.  Adaptation  is  also  an  opportunity  for  innovation  and  new 
technologies, with a growing potential for exporting technological solutions developed in the 
EU. This should be explored in close co-operation with the private sector. 

Climate change and the effects it generates in terms of property damage, business interruption 
and  forest  fires  presents  a  substantial  financial  risk  for  individuals,  companies  and  the 
financial sector, Financial services and insurance markets will have to find innovative ways to 
respond  efficiently  to  increasing  exposure  to  climate-related  risks.  There  are  already  new 
financial  products  coming  to  the  market,  such  as  weather  derivatives  and  catastrophe  bonds 
and these need to be further developed. The further integration of European insurance markets 
under the EU Financial Services Policy and the Solvency II Directive should be pursued as it 
presents  more  opportunities  both  in  terms  of  supply  and  demand  of  insurance  products. 
Moreover,  the  future  risk  structure  of  existing  public  and  private  natural  disaster  funds, 
including the EU Solidarity Fund, needs to be assessed. 

Spatial  planning  could  provide  an  integrated  framework  to  link  up  vulnerability  and  risk 
assessment  with  adaptive  capacities  and  adaptation  responses 
the 
identification of policy options and cost-efficient strategies. Consideration should be given to 
setting  up  innovative  financing  arrangements  dedicated  to  adaptation  to  support  the 
implementation of coordinated adaptation strategies, especially in the most vulnerable regions 
and  sections  of  society  in  Europe.  The  EU  has  a  role  in  establishing  and  coordinating 
assessment frameworks and platforms or networks for information exchange.  

thus  facilitating 

EN 

20 

   EN 

 
Key questions: 

8)  Does  section  5.1  correctly  and  comprehensively  identify  the  needs  and  policy 
priorities for early adaptation actions that should either be taken or coordinated 
at the EU level?  

9)  How  do  policy  priorities  need  to  change  for  different  sectors?  Which  policy 
approaches  should  be  taken  at  national,  regional  or  local  level?  Where  is 
European action needed?  

10) How  can  EU  agriculture  and  fisheries  policy  be  adapted  to  help  these  sectors 
adjust to the impacts of climate change? What will be the likely consequences of 
climate change for trade in agricultural products?  

11) How  should  the  EU  express  its  solidarity  with  regions  suffering  most  heavily 

from the consequences of climate change?  

12) How  could  a  collective  European  response  help  coastal  Europe  to  tackle  the 

effects of rising sea levels?  

13) How should EU policy on public health take the impact of climate change into 

account?  

14) What  will be  the consequences  of climate change for Member States' potential 

energy mix and for European energy policy?  

15) Please rank the listed options under each of the areas of the four-action approach 

for EU adaptation into the following three categories: 

a) Most  urgent  and  to  be  implemented  by  the  Commission  as  a  matter  of 

priority. 

b) Low priority for Commission implementation. 

c) Irrelevant for Commission implementation. 

16) What  are  the  possible  synergies  between  adaptation  and  mitigation  measures? 

How can these synergies be strengthened?  

17) In the context of EU policy, how can companies and citizens be encouraged to 

participate in adaptation actions? 

5.2. 

The second pillar: Integrating adaptation into EU external actions 

The  growing  concern  about  climate  change  impacts  and  resulting  adaptation  needs  will 
influence EU relations with third countries. Dialogue and partnerships on adaptation must be 
initiated  with  developing  countries,  neighbouring  and  industrialised  countries.  While 
differences in the economic, political, social and environmental situation of partner countries 
call for specific adaptation strategies, a large number of adaptation actions are similar to all 
countries, and therefore provide ample opportunity for cooperation. 

EU Common Foreign and Security Policy (CFSP) has an important role to play in enhancing 
the EU's capacity to prevent and deal with conflicts such as border disputes and tensions over 
access to natural resources and natural disasters accentuated by climate change as well as their 
potential  consequences  such  as  forced  migration  and  internal  displacements  of  persons.  EU 

EN 

21 

   EN 

 
 
 
migration policy should also take the impacts of climate change into account, in particular in 
migration management. 

Developing countries  

Climate  change  is  a  serious  challenge  to  poverty  reduction  in  developing  countries  and 
threatens  to  undo  many  development  achievements.  Poor  communities  in  these  countries 
depend  highly  on  the  direct  use  of  local  natural  resources.  They  have  restricted  choice  for 
their  livelihoods  and  limited  capacity  to  cope  with  climate  variability  and  natural  disasters. 
The  least  developed  countries  in  Africa,  parts  of  Latin  America  and  Asia,  and  small  island 
states  will  be  hit  hardest.  Climate  change  could  lead  to  vast  displacement  of  populations, 
including in regions close to Europe.  

Being  responsible  for  most  of  the  historic  accumulation  of  anthropogenic  greenhouse  gas 
emissions  in  the  atmosphere, developed countries will need to support adaptation  actions in 
developing countries. Adaptation will be fundamental in securing the achievement of the UN 
Millennium  Development  Goals  after  2015,  especially  in  sub-Sahara  Africa.  The  European 
Union must further assess how to integrate adaptation to climate change into existing external 
policies  and  funding  instruments,  and  where  appropriate  design  new  policies.  The  EU's 
experiences  with  adaptation  measures  should  be  shared  with  developing  countries' 
governments  and  assistance  provided  to  them  to  develop  equally  inclusive  approaches. 
Adaptation  should  also  be  integrated  into  strategies  for  poverty  reduction  (i.e.  Poverty 
Reduction Strategy  Paper, PRSP), as well as development  planning and budgeting. Existing 
partnerships,  such  as  the  ones  with  China,  India  and  Brazil,  provide  a  good  basis  for 
broadening the EU's cooperation on climate change with developing economies. 

Adaptation policies and programmes in developing countries can take many different forms 
depending  on  countries'  specific  needs,  e.g.  diversification  of  agriculture  or  livelihoods, 
improved  land-use  planning  and  reforestation,  enhanced  coastal  protection  working  with 
wetlands and coastal ecosystems, or strengthening disaster prevention mechanisms. Reducing 
conventional pressures on ecosystems and making them more resilient to climate change must 
be  the  basis  for  forceful  action,  together  with  "climate  proofing"  to  ensure  sustainability  of 
investments. 

To promote adaptation in developing countries, the European Union should act at both global 
and European level: 

•  In  the  context  of  the  UNFCCC,  the  EU  will  continue  to  advance  the  issue  of 
adaptation,  and  promote  the  integration  of  adaptation  into  national  development 
plans  (e.g.  through  the  National  Adaptation  Programmes  of  Action  (NAPA)  and 
also the 5-Year Work Programme on Adaptation recently adopted in Nairobi). EU 
leadership  will  be  required  to  help  ensure  the  availability  of  sufficient  financial 
and technical resources, including through the Adaptation Fund under the Kyoto 
Protocol,  the  Global  Environment  Facility  and  bilateral  channels,  to  implement 
NAPAs and similar strategies. 

•  The 2004 EU Action Plan on Climate Change and Development already includes 
support strategies for adaptation in developing countries that can, for instance, be 
supported  under  the  Environment  and  Natural  Resources  Thematic  Programme 
and  through  geographical  funds  at  country  and  regional  level.  The  inclusion  of 

EN 

22 

   EN 

 
adaptation  measures  in  geographical  programming  will  have  to  be  strengthened. 
The  next  occasion  for  this  is  the  mid-term  review  of  country  and  regional 
strategies in 2010. The ongoing mid-term evaluation of the Action Plan provides 
the  first  opportunity  for  review  of  the  plan  in  the  light  of  accelerating  climate 
change.  

•  The  Commission  is  examining  how  to  promote  an  enhanced  dialogue  and 
cooperation between the EU and developing countries on climate change, through 
the  building  of  a  Global  Climate  Change  Alliance.  The  Commission  has 
earmarked  a  total  of  €  50  million  over  the  period  2007-2010  for  dialogue 
activities,  and  to  support  developing  countries  through  targeted  mitigation  and 
adaptation  measures.  Actions  could  include  providing  follow-up  to  the  National 
Adaptation  Programmes  of  Action  through  concrete  pilot  projects  in  particular 
regarding  integration  of  adaptation  activities  in  key  sectoral  policies.  Moreover, 
the  forthcoming  EU  strategy  on  Disaster  Risk  Reduction  will  build  a  bridge 
between adaptation and disaster response. 

Neighbouring countries  

The  EU  should  involve  Russia,  Europe's  far  North,  Greenland,  the  Black  Sea,  the 
Mediterranean Basin, the Arctic and the Alpine region into adaptation efforts. This applies in 
particular  to  cross-border  issues  such  as  regional  seas,  river  basin  management,  ecosystem 
functioning, research, biodiversity and nature, disaster management, human health, economic 
transition,  trade  and  energy  supplies.  Neighbouring  countries  should  be  encouraged  and 
supported in analysing impacts, risks, vulnerabilities and suitable responses and in including 
adaptation in their development plans. Actions with neighbours should build on strengthening 
of existing cooperation, dialogues and processes, in particular in the context of the European 
Neighbourhood Policy (ENP) where regular and structural dialogue, including with regard to 
climate change related issues, takes place already in the context of the mutually agreed action 
plans  established  to  date.  The  European  Neighbourhood  and  Partnership  Instrument  (ENPI) 
could  support  adaptation  projects  for  the  ENP  countries  and  Russia.  In  the  candidate  and 
potential candidate countries, the Instrument for Pre-Accession Assistance could be used. 

Industrialised countries 

Impact  analysis  and  good  adaptation  practices  should  be  exchanged  between  industrialised 
regions  facing  similar  problems,  for  example,  in  Japan,  Southeast  Australia,  and  Southwest 
US. Cooperation strategies with these countries should be further elaborated. 

Enhancing trade in sustainable goods and services 

The  Commission  is  working  towards  a  global  market  for  environmental  technologies  that 
fosters  trade  in  sustainable  goods  and  services  as  well  as  technology  transfer,  especially 
between  industrialised  and  developing  countries.  An  important  way  of  achieving  this  is  by 
using  our  multilateral  and  bilateral  trade  negotiations  to  address  the  question  of  trade  and 
investment in green technologies and environmental goods and services in a cooperative and 
incentive-based approach.  

EN 

23 

   EN 

 
  Key questions: 

18) How  will  climate  change  affect  the  policy  priorities  of  the  EU's  external 

policies? 

19) Which  priorities  should  the  EU  set  for  its  co-operation  programmes  in  the 
different parts of the World with respect to adaptation to climate change?  

20) Which are the main opportunities and obstacles for adaptation in different parts 

of the World?  

21) What  are  the  best  options  to  make  the  EU’s  external  action  more  resilient  to 

climate change?  

22) What could be the value added  for EU action compared to other international 
initiatives  including,  for  instance,  the  UNFCCC  and  multi-lateral  funding 
instruments? 

5.3. 

The  third  pillar:  Reducing  uncertainty  by  expanding  the  knowledge  base 
through integrated climate research 

Sound  scientific  results  are  paramount  in  the  development  of  climate  policy.  Although 
considerable progress has been made in understanding the earth-climate system, uncertainties 
remain  particularly  in  relation  to  more  accurate  and  detailed  forecasts  as  to  the  impacts  of 
climate  change  at  regional  and  local  levels,  cost  and  benefits  of  adaptation  measures  for 
shorter time frames such as 2020-2030. An integrated, cross-sectoral and holistic approach is 
to be promoted together with internalisation of environmental costs of physical and biological 
system  degradation.  Research  should  address  the  complexity  of  interrelated  factors  which 
cannot be analysed independently. The EU's 7th Framework Programme for Research (2007-
2013)  places  a  strong  emphasis  on  climate  change,  both  in  terms  of  predictive  capacity, 
modelling  and  adaptation  strategies.  Major  projects  are  described  in  Annex  4.  The  research 
agenda on adaptation and climate change will consider, inter alia, the following aspects:  

•  Develop  comprehensive  and  integrated  methodologies  for  the  assessment  of  impacts, 
vulnerabilities and cost effective adaptation. Develop indicators to measure the success of 
responses. Improve European-wide risk, impact and cost/benefit assessment for adaptation 
responses,  as  compared  with  "no  action".  Compare  integrated  EU-wide  responses  with 
sectoral  approaches  including  analysis  of  socio-economic  costs  and  benefits.  Improved 
integrated assessment and the development and use of tools for demonstrating economic, 
environmental  and  social  benefits  of  adaptation  for  European  regions  crossing  national 
boundaries. 

•  Improve  the  basic  understanding  and  prediction  of  impacts  in  Europe,  including  in  the 
North  Atlantic,  the  Arctic,  the  Mediterranean  and  the  Black  Sea.  Downscale  climate 
models  and  improve  predictions  of  impacts  on  a  regional  and  local  scale,  including 
potential  impacts  on  the  water  sector,  the  energy  sector  (reduced  cooling  capacity  for 
power  plants,  impacts  on  hydropower,  increased  demand  for  cooling  of  buildings),  on 
transport  infrastructure,  industries  and  businesses,  land-use  planning,  agriculture  and 
human health.  

•  Clarify the expected impacts of climate change  and ozone layer  depletion  on ecosystems 
and explore ways to enhance their resilience. This should include an assessment of climate 
impacts  on  carbon  stocks  in  soils  and  the  biosphere  in  general,  impacts  on  aquatic 

EN 

24 

   EN 

 
 
ecosystems, the influence  of agro-ecological management practices and an assessment of 
the habitats, species and natural resources most at risk.  

•  Long  term  comprehensive  and  Europe-wide  high  resolution  datasets  and  models  are 
needed.  Coordination  between  data  centres,  information  systems  and  networks  should  be 
improved.  

•  Improve  access  to  existing  data  and  integrate  data  relevant  for  adaptation  into  INSPIRE 
(Infrastructure for Spatial Information in Europe), SEIS (Shared Environment Information 
System)  and  GMES  (Global  Monitoring  for  Environment  and  Security),  including  inter 
alia substantially strengthened long-term in situ monitoring of quality and quantity aspects 
of natural resources, biodiversity and ecosystem services.  

•  The use of existing Community-supported information systems, e.g. European Flood Alert 
System,  European  Forest  Fires  Information  System,  and  the  Monitoring  and  Information 
Centre  (MIC)  for  civil  protection,  the  EC  Crop  Yield  Forecasting  System  must  be 
encouraged  and  brought  to  full  potential,  e.g.  by  linking  them  to  a  suitable  European 
Meteorological data infrastructure and dedicated monitoring programmes. Improve policy-
relevant information by the European Data Centres on air quality, natural resources, human 
health, products and waste, taking a life-cycle perspective.  

•  Provide  every  4-5  years  up-to-date  synthesis  reports  on  climate  impacts,  adaptation  and 
vulnerabilities  to  be  produced  by  the  European  Environment  Agency  and  the  Joint 
Research  Centre,  based  inter  alia  on  the  results  from  the  EU  Research  Framework 
Programmes and national research.  

•  In  cooperation  with  the  private  sector,  support  research  on  adaptation  for  businesses, 
services  and  industries.  Launch  research  for  development  of  adaptation  technologies  and 
products  to  stimulate  innovation  in  different  sectors  (e.g.  agriculture,  forestry,  water, 
energy, construction, fisheries and aquaculture). 

•  Launch  Europe-wide  studies  on  the  present  and  future  plans  of  coastal  regions  to 
strengthen  coastal  protection,  the  environmental  and  economic  costs  involved  in  these 
plans, the impacts they may have on the community budget and on the economy of coastal 
regions. This should include the assessment of costs involved for ports and waterways to 
continue delivering basic transport functionalities.  

•  Improve  knowledge  on  flows  and  availability  of  resources  world-wide,  including 
renewable  energy  resources.  Provide  independent  scientific  assessment  of  environmental 
impacts due to the use of natural resources and on resource efficiency. Best use should be 
made  of  the  analysis  inter  alia  from  the  International  Panel  on  the  Sustainable  Use  of 
Natural Resources and the IPCC reports. 

•  Promote  co-operation,  partnerships  and  networking  with  the  scientific  community  in  EU 
and non-EU countries, particularly developing countries, neighbours and key partners, and 
share  research  results,  climate  models  and  other  methodological  tools,  especially  in  the 
context of the five-year work programme on adaptation under the UNFCCC.  

•  Provide  support  to  practitioners  through  guidance  on  existing  scientific  knowledge  and 
adaptation measures, options and cost-benefit analysis of these options. Promote Europe-
wide  networks  for  the  exchange  and  consolidation  of  knowledge,  experience  and 
adaptation in Europe. Facilitate transmission of knowledge  from the  research community 
to practitioners.  

EN 

25 

   EN 

 
Modern Information and Communication Technologies (ICT) and their further developments 
will  be  a  key  instrument  to  support  this  adaptation  process,  enabling  relevant,  flexible  and 
speedy  responses  to  the  adaptation  requirements  for  example  for  monitoring  environmental 
changes, anticipating and assessing risks, managing crisis situations.  

  Key questions: 

23) Do  the  listed  research  areas  address  the  most  important  knowledge  gaps?  If  not, 

please add?  

24) Which  are  the  five  most  important  research  areas  that  need  to  be  addressed  as  a 

matter of priority?  

25) How  should  research  results  be  communicated  and  made  available  to  decision 

makers and a broader public at local, national, EU-level and internationally? 

5.4. 

The fourth pillar: Involving European society, business and public sector in the 
preparation of coordinated and comprehensive adaptation strategies 

The need for adaptation could provoke significant restructuring in some economic sectors that 
are  particularly  weather  dependent,  e.g.  agriculture,  forestry,  renewable  energy,  water, 
fisheries  and  tourism,  or  specifically  exposed  to  climate  change,  e.g.  ports,  industrial 
infrastructure and urban settlements in coastal areas, floodplains and mountains. There should 
be  a  structured  dialogue  with  the  parties  and  civil  society  concerned  to  explore  these 
challenges systematically. They could exchange views and provide advice on comprehensive 
and coordinated strategies, including possible restructuring and accompanying measures.  

As part of the European Climate Change Programme (ECCP) the Commission will consider 
the  establishment  of  a  European  Advisory  Group  for  Adaptation  to  Climate  Change  which 
should operate as a Commission's Expert Group and consist of representative policy-makers, 
leading scientists and civil society organisations. It would comment on the work of a number 
of specific working groups over a period of 12 months starting in November 2007.  

This  stakeholder  consultation  process  could  cover  the  following  topics:  water,  biodiversity, 
agriculture and forestry, marine resources, industry, public health, transport, energy, research, 
technology  and  innovation,  financial  services  and  insurance,  cohesion  policy  and  regional 
funds,  external  action  and  co-operation  with  non-EU  countries,  use  of  land  use  instruments 
and  spatial  planning.  The  Commission  could  provide  a  secretariat  and  chair  the  different 
working groups. The European Advisory Group could present its first report in mid-2008 on 
which  the  Commission  may  draw  during  the  development  of  its  Communication  on 
adaptation to be presented by the end of 2008.  

EN 

26 

   EN 

 
 
Key question: 

26) Does  the  Green  Paper  foresee  sufficient  participation  of  the  different 

stakeholders in identifying and implementing EU adaptation actions?  

27) Should stakeholders from the EU's neighbours and other regions be involved? 

28) Would  the  establishment  of  a  European  Advisory  Group  on  Adaptation  be 
helpful in further exploring an EU response to the effects of climate change? If 
yes, which areas should such an Advisory Group concentrate its work on? 

6. 

NEXT STEPS 

All  parts  of  Europe  will  increasingly  feel  the  adverse  effects  of  climate  change.  Adaptation 
efforts have to be stepped up at all levels and all Community policies and need to be well co-
ordinated.  

Public feedback is requested on the key questions raised at the end of the main chapters of the 
Green  Paper.  The  European  Institutions  and  all  those  interested  –  organizations  or  private 
individuals – are invited to contribute to the public EU-wide debate that will be launched with 
the adoption of the Green Paper:  

•  The Green Paper will be launched publicly after adoption in Brussels.  

•  A web-based public consultation will be open until 30 November 2007.  

•  In  order  to  allow  for  a  more  direct  exchange  of  views,  the  Commission  will  organise 
workshops on this Green Paper in several Member States and, where appropriate, in third 
countries. 

The results of the public consultation will help shape the further work of the Commission in 
particular  regarding  the  planned  Commission  Communication  on  adaptation  and  a  further 
elaboration on other Community policies and the external policy action. 

EN 

27 

   EN