Opinion of the European Economic and Social Committee on the 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 COM(2007) 354 final
Date: 2007-12-12
Institutions: European Economic and Social Committee
Subjects: EU action, EU environmental policy, EU financing, climate change, environmental cooperation, greenhouse gas, prevention of pollution, public awareness campaign

C 120/38

EN

Official Journal of the European Union

16.5.2008

the European Economic and Social Committee on the ‘Green Paper from the
Opinion of
Commission to the Council,
the European Economic and Social
Committee and the Committee of the Regions: Adapting to climate change in Europe — Options for
EU action’

the European Parliament,

COM(2007) 354 final

(2008/C 120/09)

On 29 June 2007 the European Commission decided to consult the European Economic and Social
Committee, under Article 262 of the Treaty establishing the European Community, on the

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.

The Section for Agriculture, Rural Development and the Environment, which was responsible for preparing
the Committee's work on the subject, adopted its opinion on 27 November 2007. The rapporteur was
Mr Osborn.

At its 440th plenary session, held on 12 and 13 December 2007 (meeting of 12 December 2007), the
European Economic and Social Committee adopted the following opinion by 127 votes to one with
two abstentions.

1. Summary and recommendations

Climate change is one of the greatest challenges facing
1.1
the world in the 21st century. Action to limit these changes by
limiting emissions of greenhouse gases is the top priority. But it
is also important to plan in good time for adapting to such
changes as have now become unavoidable. The Green Paper is a
welcome first step for Europe in facing up to this.

1.2
The EESC recommends that an over-arching European
adaptation strategy should now be put in place as a framework,
outlining the actions that will need to be taken at European
level, at national level, and by other actors.

In the EESC's view the following key points should be
1.3
covered in the development of the European and national adap-
tation strategies:

— Strategies should deal with planning for all the topics identi-
fied in the Green Paper including coast protection, floods
and droughts, water resources,
fires, public health, agri-
culture and biodiversity,
land-use and infrastructure plan-
ning, building and construction etc.

— The need for adaptation should take a much larger share of
European budgets in future programmes, and should be
built into the criteria for assessment of programmes and
projects.

— Substantial new and additional

should be
committed by Europe and its members states to assist adap-
tation in the developing world.

resources

— European civil society, including consumers and the general
public, should be more extensively engaged in order to
spread wider public understanding of
the problems of
climate change and the behavioural changes that will be
needed to limit further climate change and to adapt to the
changes that are now unavoidable.

— An independent body should be established to monitor
progress on adaptation to climate change and mitigation
measures in Europe, and to maintain pressure for the neces-
sary action and implementation of commitments.

2. General comments

Climate change is one of the greatest challenges facing

2.1
the world in the 21st century.

2.2
The world has so far concentrated primarily on trying to
mitigate the impact of climate change by limiting the emission
of greenhouse gases. It is now however becoming increasingly
clear that past emissions alone will cause a significant further
warming of the atmosphere and seas over the next century and
beyond. This will have major impacts on climate and weather
related events, and on the physical and natural environment
throughout the world. We now therefore need to focus more
closely on these unavoidable impacts of global warming and
climate change, and how best to adapt to them.

— Mitigation and adaptation strategies must match up and
complement one another. Risk assessment and management
should be a crucial tool in establishing priorities.

— European research into adaptation climate change impacts

and adaptation should be substantially increased.

2.3
Such action must not diminish the efforts to limit emis-
sions so as to mitigate further climate change. On the contrary,
a proper understanding of how difficult adaptation could
become should help to reinforce everyone's determination to
achieve substantial reductions in emissions. To allow emissions
to continue to rise unchecked would condemn future genera-
tions to much more painful and expensive adaptation.

16.5.2008

EN

Official Journal of the European Union

C 120/39

2.4 Mitigation and adaptation strategies must match up and
complement one another. We need to establish credible and
deliverable strategies for restricting greenhouse gas emissions to
tolerable target levels or ranges over realistic time-scales. The
adaptation strategies must then map out how the world can
best adapt to the most probable ranges of unavoidable climate
change which those mitigation targets imply. Risk assessment
and management will be a crucial tool in establishing the level
of action needed and the order of priorities.

2.5
The Commission's Green Paper helpfully maps out many
of the sectors that will be affected by climate change, and the
kind of issues that will arise.

2.6
In the EESC's view there is now a strong case for the
establishment of an over-arching European framework strategy
dealing with the whole range of adaptation issues, and outlining
the actions that will need to be taken at European level, at
national level and by other actors.

— Develop methodologies for assessing impacts and devel-
and promote

oping appropriate
exchange of experience and best practice on this.

adaptation strategies,

— Stimulate the development of national, regional and local
adaptation strategies and implementation plans, and encou-
rage the dissemination of best practice and experience
building on what has already been done at the different
levels.

— Identify trans boundary issues where co-ordination of action
between neighbouring countries or across Europe may be
necessary (for example relocation of communities or of agri-
cultural or other economic activities; the protection of habi-
tats and biodiversity; practical support in the event of major
floods, fires, pandemics etc.).

— Assess the differential economic impacts of climate change
as between different parts of the Union and the need for
cohesion or
adaptation
programmes.

fund support

structural

for

2.7
This European Adaptation Strategy should itself call for
the creation of National Adaptation Strategies by an appropriate
date followed by regular national reporting on their implemen-
tation.

— Assess the differential impacts of climate change as between
households and individuals, and as between SMEs and the
adequacy of
insurance and compensation arrangements
throughout the Union.

2.8
A European adaptation strategy will need to have a
robust external dimension setting out how Europe plans to help
the world to cope with their adaptation
other parts of
problems.

— Identify any areas where European legislation or initiatives
could play a useful part, e.g. by establishing standards for
assessment of potential climate change related impacts and
appropriate responses.

2.9
Europe will need strong and independent institutional
arrangements to organise the necessary research and moni-
toring, and to hold the political bodies to account to deliver the
necessary actions in good time. Civil society needs to be fully
involved in the work of these institutions.

4. Comments on specific topics

3. Specific Comments

3.1
The EESC believes that the specific action areas identified
in the Green paper are broadly the right ones. Following the
Green Paper the EESC recommends that the European Union
should now develop concrete
and its Members
programmes and actions on each of these topics within the
framework of their overall strategies. Timetables and plans need
to be established, and appropriate financial resources mobilised.

states

3.2
On most of the topics the primary responsibilities for
organising the necessary works will lie with national and local
authorities. But
there should be an important role for the
European Union in setting the framework and in stimulating
and supporting the national efforts on adaptation. In particular
the Committee suggests that the EU should:

— Undertake detailed research and monitoring to provide more
the likely pace and
detailed forecasts and scenarios of
impact of climate change in the different parts of Europe
and help to co-ordinate the separate research undertaken at
many different levels on these issues throughout Europe.

4.1
Coast Protection — Sea levels will rise as ice melts and
sea temperatures increase. In some places it may be necessary to
construct or reinforce physical barriers to protect
land and
settlements. In others managed retreat and the recreation of
protective sea marshes may be the more appropriate strategy
coupled with relocation of occupiers of vulnerable properties.

4.2
Flooding — Climate change is likely to lead to more
variable weather patterns with longer periods of drought punc-
leading to rapid
tuated by episodes of more intense rainfall
run-off and flooding. Flood defence plans need to be updated to
take account of these new weather conditions. In some cases
new programmes of flood defence works will be needed. In
others appropriate flood plains or catchment areas may need to
be created or re-established to receive flood waters. Develop-
ment may need to be restricted in such areas, and relocation
considered.

4.3 Water Resources and Shortages — Water resources
are already under pressure in several parts of Europe and these
pressures are likely to become more acute as climate change
leads to longer periods of low rainfall and drought. Measures
may be needed to bring new sources of water to affected areas
(e.g. through such measures as desalination or long distance
transfers) and to manage the uses of water more efficiently.
Incentives to promote efficient use of water (including water

C 120/40

EN

Official Journal of the European Union

16.5.2008

pricing) need to be strengthened. It may also be necessary to
discourage activities such as intensive agriculture or tourism in
the worst affected areas. (The EESC is currently preparing a sepa-
rate more detailed opinion on water scarcity and drought.)

care and forest management will need to be adapted accord-
ingly.

fires

serious

The risk and incidence of

4.4
is already
increasing in areas such as the south of Europe that are
becoming hotter and drier and may become more severe as
temperatures rise further. Protective measures and response
capacities will need to be strengthened and co-ordinated better.
(EESC is preparing a separate more detailed opinion on natural
catastrophes and civil protection.)

4.5
Public Health — Climate change may have conse-
quences for public health in a variety of ways. It may cause
widespread dissemination of vectors of disease, including in par-
ticular a northwards movement of a number of diseases
previously confined to the tropics. Temperature extremes may
also have more direct
impacts. Plans need to be made to
prepare for these changes.

4.6
Agriculture — Agriculture will be very strongly affected
by climate change. Changes in temperature and rainfall will
affect the suitability of land for different agricultural purposes,
and will
lead to big changes in the quality and quantity of
production that can be achieved and hence on the viability of
different farming regimes in different parts of Europe.

4.6.1
The health check of the CAP to be undertaken in 2008
should provide the opportunity to make further changes to
encourage farmers to adapt
farming practices to the
changes in climate that are now in prospect.

their

Agricultural research into new crops and methods of
4.6.2
cultivation better suited to emerging climatic conditions needs
to be expanded. Similarly the impact of climate change on the
prospects for rearing animals in different parts of Europe need
to be assessed along with ways of dealing with climate change
induced spread of diseases. (The EESC will shortly be preparing
a separate more detailed opinion on climate change and agri-
culture.)

4.7
Biodiversity — Climate change will bring about major
changes in the habitats of plants and animals throughout
Europe. In some cases particular species will no longer be able
to survive in the changed habitats or will become critically at
risk. Some species may successfully migrate to new habitats
through natural processes. Other will need assistance in the
transition if they are to survive. Existing biodiversity strategies
and programmes will need to be updated and resources
committed to implementation if this transition is to be accom-
plished without major species loss.

Trees and forests will also be substantially affected by
4.8
climate change. Some areas may become less hospitable to par-
ticular species. Other areas may actually become more favour-
able for some species. Programmes of planting, replanting, tree

4.9
Land-Use Planning — The planning of urban and other
settlements and of transport and infrastructure will increasingly
need to take account of changes in temperature and weather
regimes. These considerations need to be factored into design
standards and into professional practice and training. Individual
development programmes and projects will similarly need to
take these climate change impacts into account. Impact assess-
ment methodologies will need to be adapted appropriately.

4.10
Buildings — The building and construction business
will be severely affected by climate change. We need stricter
minimum regulations for energy efficiency in buildings, better
building standards etc. Information also needs to be made more
accessible for citizens on best-practice, and on what methods,
materials and subsidies are available for renovations of older
buildings and new construction to reduce energy consumption
and make them more appropriate for changing temperature and
weather conditions.

EU Budget — In the annual budget, the EESC recom-
4.11
mends that
the heading ‘adaptation’ should appear for the
policy areas where immediate investments will be needed
(e.g. energy, research, agriculture, transport, building standards,
natural disaster assistance, biodiversity protection, public health
policy, etc.). The next Financial Framework should give a much
higher share of available resources to programmes concerned
with mitigation and adaptation to climate change. Member
States should make similar changes in their own national
budgets and spending programmes.

Structural Funds — In the European Regional Devel-
4.12
opment Fund, the Cohesion Fund and the IPA (Instrument for
Pre-Accession Assistance) there are criteria to support environ-
ment projects, but nothing is explicitly mentioned about adapta-
tion to climate change and often the impact assessments are not
adequate (many transport and energy projects are clearly
harmful
In the next
reviews of all these programmes much larger percentages of the
available funds should be devoted to supporting measures for
the mitigation of climate change and adaptation to it.

to the environment and the climate).

The European Investment Bank (EIB)

4.13
and the
European Bank for Reconstruction and Development
(EBRD)
should build climate change into their budgetary
processes and into their criteria for evaluating projects and
programmes.

4.14
The Insurance Industry has taken a great interest in
climate change, and is increasingly factoring climate change
considerations into its decisions on what events it is willing to
insure against and on what terms. The EU and its member states
should institutionalise an ongoing dialogue with the insurance
industry so as to ensure that the insurance sector plays its full
part in helping business and others to adapt to climate change.

16.5.2008

EN

Official Journal of the European Union

C 120/41

4.15
Developing countries — Many developing countries
will have more serious adaptation problems than Europe and
fewer resources to deal with them. Some of the least developed
countries have done very little to contribute to the problem of
climate change but will be amongst the worst affected and have
an extremely strong claim in equity and justice for co-operation
and support. They will need support from the developed world,
including human, technical and financial resources to help them
adapt appropriately. Europe should take a leading role both in
providing additional resources for adaptation measures within
its own collective
assistance
programmes, and in helping the international financial com-
munity to adjust to the adaptation challenge.

and national development

4.16
Some parts of the world will become much less hospi-
table to human settlement (and in extreme cases may even
become virtually uninhabitable) either as a consequence of sea
level rises or as a result of extreme weather conditions. Climate
change may lead to growing pressures for increased migration
into Europe from other parts of the world, as well as population
shifts within Europe. Development agencies and other relevant
Government Departments will need to be ready to help devel-
oping countries identify such situations in good time and to
help plan for any necessary relocation programmes.

4.17
The potential impacts of climate change at national and
local level in Europe, and the likely pace of change are still only
imperfectly understood, and a great deal of further research and
analysis will be needed to improve and refine the forecasts. The
European Environment Agency might have a useful role as a
coordinating point for all the relevant research, monitoring,
analysis and forecasting in this field, and as disseminator of best
available information to decision-takers and others concerned
with the detailed implementation of adaptation strategies. The
EESC itself stands ready to play its part in promoting deeper
and more widespread understanding of the impacts of climate
change in the different parts of Europe and of the adaptation
measures needed.

4.18
Civil society will need to be deeply engaged in the
process of adaptation to climate change. Local communities,
businesses and other organisations of all kinds will be increas-
ingly affected by climate change, and will need to be involved

Brussels, 12 December 2007.

with the response. People and organisations of all kinds need a
deeper understanding of the changes that are already happening
and are likely to happen in the future within their own lifetimes
and those of their children. They also need a much fuller under-
standing of what will be involved for them in mitigating climate
change and in adapting to it.
Increasingly knowledge about
these matters should become a core part of the curriculum in
formal and informal education.

The EESC stresses the importance of

4.19
involving civil
society at all levels and of communicating with consumers and
the general public. It fully supports the Green Paper's suggestion
for sectoral Working Groups with interested parties to assist in
developing the sector specific responses that will be needed.
One important task for such groups should be to develop tech-
niques for assessing risk levels, and auditing the readiness and
preparedness of organisations and communities for responding
to extreme weather events and other disasters that may become
more severe or frequent as climate change progresses.

4.20
There are important roles for regional and local govern-
ment authorities to co-ordinate and stimulate activity at their
levels, and to mobilise public response and engagement. Public
authorities at all levels can also play a crucial part in showing
the way through appropriate planning of their own buildings
and developments and in their procurement policies.

The Green Paper suggests the creation of a European
4.21
Advisory Group for Adaptation to Climate Change with repre-
sentatives of civil society, policy makers and scientists to act as
an Expert group while the strategy is being developed. The
Committee can support the idea of such a group.

4.22
In addition, the Committee suggests that the EU should
consider establishing an independent monitoring body with an
independent chairman, charged with keeping under review the
progress of the whole climate change strategy (both adaptation
It should report regularly and publicly on
and mitigation).
progress and give early warnings if action seems to be falling
behind commitments and according to the requirements of the
situation. The EESC itself also intends to keep progress in this
area under regular scrutiny.

The President

of the European Economic and Social Committee

Dimitris DIMITRIADIS