White paper - Adapting to climate change : towards a European framework for action {SEC(2009) 386} {SEC(2009) 387} {SEC(2009) 388}
Date: 2009-04-01
Institutions: European Commission
Subjects: EU action, EU environmental policy, climate change, international cooperation, prevention of pollution

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 1.4.2009 
COM(2009) 147 final 

WHITE PAPER 

Adapting to climate change: Towards a European framework for action 

{SEC(2009) 386} 
{SEC(2009) 387} 
{SEC(2009) 388} 

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TABLE OF CONTENTS 

1. Introduction ............................................................................................................................ 3 

2. Why do we need an adaptation strategy? Why at EU level?.................................................. 4 

2.1 

2.2 

2.3 

The impact of a changing climate ................................................................................ 4 

The economic case for a strategic approach to adaptation........................................... 6 

Why is action needed at EU level? .............................................................................. 6 

3. The proposed EU Framework: Objectives and Action .......................................................... 7 

3.1 

3.2 

Developing the knowledge base................................................................................... 7 

Integrating adaptation into EU policies........................................................................ 8 

3.2.1 

Increasing the resilience of health and social policies ................................................. 9 

3.2.2 

Increasing the resilience of agriculture and forests...................................................... 9 

3.2.3 

Increasing the resilience of biodiversity, ecosystems and water................................ 10 

3.2.4 

Increasing the resilience of coastal and marine areas……………………………….13 

3.2.5 

Increasing the resilience of production systems and physical infrastructure............. 11 

4. Instruments - Financing........................................................................................................ 13 

5. Working in partnership with the Member States ................................................................. 14 

6. External dimension and ongoing work under the UNFCCC................................................ 15 

7. Conclusions - next steps....................................................................................................... 16 

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1. INTRODUCTION 

Climate  change  increases  land  and  sea  temperatures  and  alters  precipitation  quantity  and 
patterns, resulting in the increase of global average sea level, risks of coastal erosion and an 
expected increase in the severity of weather-related natural disasters. Changing water levels, 
temperatures  and  flow  will  in  turn  affect  food  supply,  health,  industry,  and  transport  and 
ecosystem integrity. Climate change will lead to significant economic and social impacts with 
some regions and sectors likely to bear greater adverse affects. Certain sections of society (the 
elderly, disabled, low-income households) are also expected to suffer more. 

Addressing climate change requires two types of response. Firstly, and importantly, we must 
reduce  our  greenhouse  gas  emissions  (GHG)  (i.e.  take  mitigation  action)  and  secondly  we 
must take adaptation action to deal with the unavoidable impacts. The EU’s recently agreed 
climate change legislation puts in place the concrete measures to reach the EU's commitment 
to reduce emissions to 20% below 1990 levels by 2020 and is capable of being amended to 
deliver  a  30%  reduction  if  agreed  as  part  of  an  international  agreement  in  which  other 
developed  countries  agree  to  comparable  reductions  and  appropriate  contributions  by 
economically  more  advanced  developing  countries  based  on  their  responsibilities  and 
capabilities.  However,  even  if  the  world  succeeds  in  limiting  and  then  reducing  GHG 
emissions,  our  planet  will  take  time  to  recover  from  the  greenhouse  gases  already  in  the 
atmosphere. Thus we will be faced with the impact of climate change for at least the next 50 
years. We need therefore to take measures to adapt. 

Adaptation is already taking place but in a piecemeal manner. A more strategic approach is 
needed to ensure that timely and effective adaptation measures are taken, ensuring coherency 
across different sectors and levels of governance. 

This  White  Paper  sets  out  a  framework  to  reduce  the  EU’s  vulnerability  to  the  impact  of 
climate  change.  It  builds  on  the  wide-ranging  consultation  launched  in  2007  by  the  Green 
Paper on Adapting to Climate Change in Europe1 and further research efforts that identified 
action to be taken in the short-term. The framework is designed to evolve as further evidence 
becomes  available.  It  will  complement  action  by  Member  States  and  support  wider 
international efforts to adapt to climate change, particularly in developing countries. The EU 
is  working  with  other  partner  countries  in  the  UNFCCC2  towards  a  post-2012  climate 
agreement which will address adaptation as well as mitigation. The Commission's proposals 
in this context are set out in the Communication entitled “Towards a comprehensive climate 
change agreement in Copenhagen”3. 

Enhancing  the  EU's  resilience  to  the  impacts  of  climate  change  also  means  the  chance  to 
invest in a low-carbon economy, for instance, by promoting energy efficiency and the uptake 
of green products. This is one of the key objectives of the European Economic Recovery Plan, 
which outlines the EU's response to the economic crisis, leading us to a creative, knowledge-
based  economy.  At  the  same  time,  we  can  facilitate  structural  changes  through  the 
modernisation of European infrastructure and enhance the competitiveness of our economy. 

1 
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COM(2007) 354. 
United Nations Framework Convention on Climate Change. 
COM(2009) 39, 28.1.2009. 

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Developing  this  framework  has  been  a  cross-cutting  exercise  and  this  white  paper  is 
accompanied  by  three  sectoral  papers  on  agriculture4,  health  5and  water,  coasts  and  marine 
issues6. Further sectoral papers may be presented in the future. 

2. WHY DO WE NEED AN ADAPTATION STRATEGY? WHY AT EU LEVEL? 

2.1 

The impact of a changing climate 

The severity of the impacts of climate change varies by region. The most vulnerable regions 
in Europe are Southern Europe, the Mediterranean Basin, Outermost regions and the Arctic. 
Furthermore,  mountain  areas  in  particular  the  Alps,  islands,  coastal  and  urban  areas  and 
densely  populated  floodplains  are  facing  particular  problems.  Outside  Europe,  developing 
countries (including small island states) will remain particularly vulnerable. 

Climate  change  will  impact  a  number  of  sectors.  In  agriculture  projected  climatic  changes 
will affect crop yields, livestock management and the location of production. The increasing 
likelihood and severity of extreme weather events will considerably increase the risk of crop 
failure. Climate change will also affect soil by depleting organic matter – a major contributor 
to soil fertility. The effects of climate change on forests are likely to include changes in forest 
health and productivity and changes to the geographic range of certain tree species. Climate 
change will be an added stress for the fisheries and aquaculture sectors. Effects will also be 
severe  on  coasts  and  marine  ecosystems.  Coastal  erosion  rates  will  increase  and  existing 
defences  may  provide  insufficient  protection.  In  this  context,  islands  and  outermost  regions 
deserve special consideration. 

In the energy sector, climate change will have a direct effect on both the supply and demand 
of energy. The projected impact of climate change on precipitation and glacier melt indicate 
that hydropower production could increase by 5% or more in northern Europe and decrease 
by  25%  or  more  in  southern  Europe7.  Decreased  precipitation  and  heat  waves  are  also 
expected to influence negatively the cooling process of thermal power plants. On the demand 
side,  increasing  summer  peaks  for  cooling  and  impacts  from  extreme  weather  events  will 
affect in particular electricity distribution.  

Extreme climate events cause huge economic and social impacts. Infrastructure (buildings, 
transport, energy and water supply) is affected, posing a specific threat to densely populated 
areas. The situation could be exacerbated by the rise in sea level. A more strategic and long-
term  approach  to  spatial  planning  will  be  necessary,  both  on  land  and  on  marine  areas, 
including in transport, regional development, industry, tourism and energy policies.  

Tourism is likely to suffer from decreasing snow cover in Alpine areas and from increasing 
temperatures  in  Mediterranean  regions.  Unsustainable  forms  of  tourism  can  exacerbate  the 
negative effects of climate change. 

Changing  weather  conditions  will  also  have  profound  effects  on  human  health  and  on 
animal and plant health. As extreme events become more frequent, weather-related deaths 

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SEC(2009)417. 
SEC(2009)416 
SEC(2009)386 
EEA-JRC-WHO — Impacts of Europe’s Changing Climate — 2008 Indicator-based assessment Report 
4/2008. 

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and  diseases  could  rise.  Climate  change  could  also  increase  the  spread  of  serious  infectious 
vector-borne transmissible diseases including zoonoses8. Climate change will threaten animal 
wellbeing and could also impact plant health, favouring new or migrant harmful organisms, 
which could adversely affect trade in animals, plants and their products.  

Climate  change  will  cause  significant  changes  in  the  quality  and  availability  of  water 
resources, affecting many sectors including food production, where water plays a crucial role. 
More  than  80%  of  agricultural  land  is  rain-fed.  Food  production  also  depends  on  available 
water  resources  for  irrigation.  Limited  water  availability  already  poses  a  problem  in  many 
parts of Europe and the situation  is likely to deteriorate further due to climate change, with 
Europe’s high water stress areas expected to increase from 19% today to 35% by the 2070s. 
This could also increase migration pressures. 

Climate  change  will  increasingly  drive  ecosystem  including  marine  ecosystems  and 
biodiversity  loss,  affecting  individual  species  and  significantly  impacting  ecosystems  and 
their  related  services,  on  which  society  depends.  Ecosystems  play  a  direct  role  in  climate 
regulation with peat lands, wetlands and the deep sea providing significant storage for carbon. 
In  addition,  salt  marsh  ecosystems  and  dunes  provide  protection  against  storms.  Other 
ecosystem  services  will  also  be  affected  such  as  the  provision  of  drinking  water,  food 
production and building materials and oceans can deteriorate through acidification. Some land 
use  practices  and  planning  decisions  (e.g.  construction  on  flood  plains),  as  well  as 
unsustainable use of the sea (e.g. overfishing) have rendered ecosystems and socioeconomic 
systems more vulnerable to climate change and thus less capable of adapting. 

The  challenge  for  policy-makers  is  to  understand  these  climate  change  impacts  and  to 
develop and implement policies to ensure an optimal level of adaptation.  Strategies focused 
on  managing  and  conserving  water,  land  and  biological  resources  to  maintain  and  restore 
healthy, effectively functioning and climate change-resilient ecosystems are one way to deal 
with the impact and can also contribute to the prevention of disaster as addressed in a recent 
Commission  Communication9.  Evidence10  suggests  that  working  with  nature’s  capacity  to 
absorb or control impact in urban and rural areas can be a more efficient way of adapting than 
simply  focusing  on  physical  infrastructure.  Green  Infrastructure11  can  play  a  crucial  role  in 
adaptation in providing essential resources for  social and economic purposes under extreme 
climatic conditions. Examples include improving the soil’s carbon and water storage capacity, 
and  conserving  water  in  natural  systems  to  alleviate  the  effect  of  droughts  and  to  prevent 
floods, soil erosion and desertification. 

Action (EU and Member States) 

–  To promote strategies which increase the resilience to climate change of health, property 
and  the  productive  functions  of  land,  inter  alia  by  improving  the  management  of  water 
resources and ecosystems.  

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Zoonoses are diseases that can be transmitted from animals to humans. 
COM(2009) 82 : A Community approach on the prevention of natural and man-made disasters. 
See Impact Assessment, the Green Infrastructure Approach, chapter 4.1, page 29. 
Green  Infrastructure  is  the  interconnected  network  of  natural  areas  including  some  agricultural  land, 
such  as  greenways,  wetlands,  parks,  forest  preserves  and  native  plant  communities,  and  marine  areas 
that naturally regulate storm flows, temperatures, flooding risk, and water, air and ecosystem quality. 

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2.2 

The economic case for a strategic approach to adaptation 

Some  individuals  or  businesses  (  insectors,  such  as  agriculture  and  tourism)  may  be  able  to 
respond  to  market  signals  or  environmental  changes  brought  about  by  climate  change 
('autonomous  adaptation').  However,  this  autonomous  adaptation  is  unlikely  to  be  optimal 
because of uncertainty, imperfect information or indeed financial constraints. This means that 
we cannot leave adaptation efforts to individuals or businesses. 
In  addition,  some  adaptation  actions  that  are  taken  may  increase  vulnerability  rather  than 
reduce  it.  Some  examples  of  this  "mal-adaptation"  are  sea  level  rise  or  flood  protection 
infrastructure  that  may  disturb  the  natural  dynamic  nature  of  coastal  and  river  systems,  or 
cooling or water supply technologies that may increase energy consumption. 

Preventive  action  brings  clear  economic,  environmental  and  social  benefits  by  anticipating 
potential  impacts  and  minimising  threats  to  ecosystems,  human  health,  economy  and 
infrastructure.  Although  more  specific  information  on  the  costs  of  adaptation  is  needed, 
several  sources12  already  indicate  that  the  costs  of  taking  action  to  address  climate  change 
(including mitigation and adaptation measures) will be much lower than the costs of inaction 
over the medium to long term. 

2.3 

Why is action needed at EU level? 

Due to the regional variability and severity of climate impact most adaptation measures will 
be  taken  at  national,  regional  or  local  level.  However  these  measures  can  be  supported  and 
strengthened by an integrated and coordinated approach at EU level. 

The  EU  has  a  particularly  strong  role  when  the  impact  of  climate  change  transcends  the 
boundaries  of  individual  countries  (e.g.  river  and  sea  basins  and  bio-geographic  regions). 
Adaptation  will  require  solidarity13  among  EU  Member  States  to  ensure  that  disadvantaged 
regions and regions most affected by climate change will be capable of taking the measures 
needed  to  adapt.  Moreover,  coordinated  EU  action  will  be  necessary  in  certain  sectors  (e.g. 
agriculture, water, biodiversity, fisheries, and energy networks) that are closely integrated at 
EU level through the single market and common policies. 

Article  4  of  the  UNFCCC14  stipulates  that  every  effort  must  be  made  to  adopt  national  or 
regional adaptation strategies. While a number of EU Member States have prepared national 
adaptation strategies, others have yet to do so. The EU is well placed to facilitate coordination 
and the exchange of best practices between Member States on climate. 

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Economic  Aspects  of  Adaptation  to  Climate  Change  (OECD,  2008)  and  The  Stern  Review  on  the 
Economics of Climate Change, (HM Treasury, 2006). 
Article 2 of the EU Treaties. 
Article 4 stipulates that All Parties, taking into account their common but differentiated responsibilities 
and  their  specific  national  and  regional  development  priorities,  objectives  and  circumstances  shall  … 
(b)....Formulate,  implement,  publish  and  regularly  update  national  and,  where  appropriate,  regional 
programmes containing measures to mitigate climate change by addressing anthropogenic emissions by 
sources  and  removals  by  sinks  of  all  greenhouse  gases  not  controlled  by  the  Montreal  Protocol,  and 
measures to facilitate adequate adaptation to climate change. 

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3. THE PROPOSED EU FRAMEWORK: OBJECTIVES AND ACTION 

The objective of  the EU’s  Adaptation Framework is to improve the EU’s resilience to deal 
with  the  impact  of  climate  change.  The  framework  will  respect  the  principle  of  subsidiarity 
and support overarching EU objectives on sustainable development.  

The  EU’s  framework  adopts  a  phased  approach.  The  intention  is  that  phase  1  (2009-2012) 
will  lay  the  ground  work  for  preparing  a  comprehensive  EU  adaptation  strategy  to  be 
implemented during phase 2, commencing in 2013. 

Phase 1 will focus on four pillars of action: 1) building a solid knowledge base on the impact 
and consequences of climate change for the EU, 2) integrating adaptation into EU key policy 
areas;  3)  employing  a  combination  of  policy  instruments  (market-based  instruments, 
guidelines,  public-private  partnerships)  to  ensure  effective  delivery  of  adaptation  and  4) 
stepping  up  international  cooperation  on  adaptation.  For  phase  1  to  be  a  success,  the  EU, 
national, regional and local authorities must cooperate closely. 

The proposals set out in this paper cover actions to be taken in the first phase and are without 
prejudice to the future structure of the EU budget and to the current and future multi-annual 
financial framework. 

3.1 

Developing the knowledge base 

To be able to take decisions on how best to adapt, it is essential to have access to reliable data 
on the likely impact of climate change, the associated socio-economic aspects and the costs 
and benefits of different adaptation options. More knowledge is needed on climate impact and 
vulnerability so that appropriate policy responses can be developed. The knowledge generated 
on  adaptation  should  also  be  made  available  to  other  countries,  in  particular  developing 
countries. 

A  considerable  amount  of  information  and  research  already  exists,  but  is  not  shared  across 
Member States. An effective way to improve knowledge management would be to establish a 
Clearing  House  Mechanism  as  an  IT  tool  and  database  on  climate  change  impact, 
vulnerability  and  best  practices  on  adaptation.  The  Clearing  House  Mechanism  would 
contribute to the Shared Environmental Information System15, the collaborative initiative by 
the  European  Commission  and  the  European  Environment  Agency  (EEA)  to  establish  with 
the  Member  States  an  integrated  and  shared  EU-wide  environmental  information  system16. 
The Clearing House Mechanism would also rely on geographical information provided by the 
Global Monitoring for Environment and Security (GMES).  

A  pro-active  research  and  education  policy  is  necessary  to  promote  better  understanding  of 
climate change impacts and the development of skills, methods and technologies to cope with 
the  consequences  of  climate.  A  recent  Commission  Staff  Working  Document17  provides 
detailed  information  on  research  needs,  including  on  the  impacts  of  climate  change  and 

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COM(2008) 46. 
The Clearing House Mechanism would be linked to other data repositories such as the European Marine 
Observation  and  Data  Network,  the  Droughts  Observatory,  the  European  Forest  Fire  Information 
System, EuroHeat (heat-wave probability tool). It will require the full support and active participation 
of  Member  States.  Other  organisations  such  as  the  European  Institute  of  Innovation  and  Technology 
could contribute to the Clearing House Mechanism. 
Commission Staff Working Document SEC(2008) 3104. 

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adaptation. Moreover, climate change will be an important issue for the recently inaugurated 
European  Institute  of  Innovation  and  Technology  which  is  setting  up  a  Knowledge  and 
Innovation Community on climate change and adaptation. 

Methods,  models,  data  sets  and  prediction  tools,  which  can  be  enabled  by  information  and 
communication  technologies,  assist  in  understanding  and  forecasting  climate  impact,  in 
identifying vulnerabilities and in developing appropriate adaptation measures. Further work is 
necessary to develop these tools. In cooperation with the Member States, vulnerability must 
be assessed against a wide range of climate scenarios and on different geographical scales so 
that adaptation measures can be defined as precisely as possible. The Commission is currently 
examining  ways  to  improve  the  monitoring  of  impacts  and  adaptation  measures  in  order  to 
develop  vulnerability  indicators.  More  quantified  information  on  the  costs  and  benefits  of 
adaptation is also urgently needed.  

In  addition,  coordination  should  be  enhanced  where  Member  States  spearhead  important 
adaptation research. 

Action (EU and Member States) 

–  Take the necessary steps to establish by 2011 a Clearing House Mechanism 

–  Develop methods, models, data sets and prediction tools by 2011 

–  Develop indicators to better monitor the impact of climate change, including vulnerability 

impacts, and progress on adaptation by 2011 

–  Assess the cost and benefit of adaptation options by 2011 

3.2 

Integrating adaptation into EU policies 

Adaptation  needs  to  be  mainstreamed  into  EU  policies.  This  exercise  has  to  be  carefully 
prepared, based on solid scientific and economic analysis. In each policy area there should be 
a review of how policies could be re-focused or amended to facilitate adaptation. Adaptation 
options will vary by sector and will, in some cases, require financing. For each sector, further 
work  needs  to  be  done  to  improve  understanding  of  the  impact  of  climate  change,  assess 
appropriate responses and secure the necessary funding. This review should commence during 
Phase 1(2009-2012). 

In each policy area, the following key questions must be answered: 

•  What are the actual and potential impacts of climate change in the sector? 

•  What are the costs of action/inaction? 

•  How do proposed measures impact upon and interact with policies in other sectors? 

Notwithstanding  these  questions,  in  view  of  the  projected  impact,  particularly  on  key  EU 
policy sectors, early action on adaptation is essential. The sectors below are those with strong 
EU  policy  involvement  for  which  adaptation  strategies  outlining  the  types  of  action  are 
needed. Priority should be given to adaptation measures that would generate net social and/or 
economic benefits irrespective of uncertainty in future forecasts (no-regret measures). Priority 
should also be given to measures that are beneficial for both mitigation and adaptation. 

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3.2.1 

Increasing the resilience of health and social policies 

The EU Health Strategy18 foresees action on adaptation. While main policy actions should be 
taken by the Member States, the EU should use measures to assist Member States under the 
EU  Health  Programme19and  through  other  means  in  accordance  with  article  152  of  the 
Treaty20.  It  should  explore  with  the  WHO  and  EU  agencies  ways  of  ensuring  adequate 
surveillance and control of the impact of climate change on health, such as epidemiological 
surveillance, the control of communicable diseases and the effect of extreme events. Further 
details  are  provided  in  a  specific  working  document  on  health  and  adaptation  to  climate 
change. 

The  impact  on  animal  health  will  need  to  be  addressed  principally  at  farm  level  but  also  in 
relation to animal population density in certain regions and current movement patterns of live 
animals. The Community Animal Health Strategy21 aims to prioritise disease control, improve 
data  gathering  and  step  up  existing  animal  disease  surveillance.  It  focuses  on  disease 
prevention such as bio-security rather than reactive measures and will consider how climate 
change affects the occurrence of diseases. 

In  the  social  domain,  there  is  mounting  evidence  that  those  who  have  fewer  resources  are 
more vulnerable to climate change effects. It is vital for the success of adaptation policies that 
they  distribute  the  burdens  equitably  and  that  impacts  on  jobs  and  on  the  quality  of  life  of 
low-income groups are taken into account. The social dimension of adaptation policies needs 
to be pursued within existing EU processes in the social and employment fields, and all social 
partners need to be involved. 

Action (EU and Member States) 

–  Develop guidelines and surveillance mechanisms on the health impacts of climate change 

by 2011. 

–  Step up existing animal disease surveillance and control systems. 

–  Assess the impacts  of climate change and adaptation policies on employment and  on the 

well-being of vulnerable social groups. 

3.2.2 

Increasing the resilience of agriculture and forests 

As the majority of land in the EU is managed by farmers, the CAP is well placed to play a 
central  role  in  contributing  to  adaptation,  not  only  by  helping  farmers  to  adapt  their 
production  to  the  changing  climate  situation,  but  also  by  helping  provide  wider  ecosystem 
services  dependant  on  specific  land  management.  In  this  sense,  Member  States  should  be 
encouraged  to  embed  climate  change  adaptation  in  the  three  strands  of  rural  development 
aimed at improving competitiveness, the environment, and the quality of life in rural areas. In 
addition,  the  applicability  of  measures  on  a  territorial  scale  beyond  the  farm  level  could  be 
examined.  The  Farm  Advisory  System  could  be  used  to  disseminate  knowledge  and 

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Health Strategy White Paper COM(2007)630 
Decision N° 1350/2007/EC, 23.10.2007, OJ L301 
Article 152 states that "a high level of human health protection shall be ensured in the definition and 
implementation of all community policies and activities. 
COM(2007) 539. 

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encourage  the  adoption  of  new  farm  management  methods  and  technologies  that  facilitate 
climate change adaptation. 

More generally, consideration should be given to the CAP providing an adequate framework 
for sustainable production, thereby enabling the agricultural sector to deal with the challenges 
posed  by  changing  climatic  conditions.  This  will  involve,  inter  alia,  assessing  which  water 
quantity and quality requirements should be further integrated into relevant CAP instruments 
as  well  as  improving  the  efficiency  of  water  use  by  agriculture  especially  in  water  stress 
regions.  A  reflection  on  possible  support  for  farms  which  are  particularly  vulnerable  to  the 
impacts of climate change could also be undertaken. Further details are provided in a specific 
working document on agriculture and adaptation to climate change. In any case, the possible 
contribution of the CAP to adaptation to climate change will also have to be examined in the 
context of the review of the CAP after 2013.  

As regards forests, the EU forestry strategy could be updated on climate-related aspects; in the 
framework of the EU Forest Action Plan a debate should be launched on the options for an 
EU approach on forest protection and forest information systems. 

Action (EU and Member States) 

–  Ensure  that  measures  for  adaptation  and  water  management  are  embedded  in  rural 

development national strategies and programmes for 2007-2013 

–  Consider how adaptation can be integrated into the 3 strands of rural development and give 
adequate  support  for  sustainable  production  including  how  the  CAP  contributes  to  the 
efficient use of water in agriculture 

–  Examine the capacity of the Farm Advisory System to reinforce training, knowledge and 

adoption of new technologies that facilitate adaptation 

–  Update  forestry  strategy  and  launch  debate  on  options  for  an  EU  approach  on  forest 

protection and forest information systems 

3.2.3 

Increasing the resilience of biodiversity, ecosystems and water  

Ecosystem services such as carbon sequestration, flood protection and protection against soil 
erosion are directly linked to climate change and healthy ecosystems are an essential defence 
against some its most extreme impacts. A comprehensive and integrated approach towards the 
maintenance  and  enhancement  of  ecosystems  and  the  goods  and  services  they  provide  is 
needed.  A  number  of  Member  States  have  developed  initiatives  designed  to  protect  their 
land–based  and  water  infrastructure.  Greater  co-ordination  at  EU  level  could  deliver 
additional benefits. 

Regarding  water,  a  number  of  existing  EU  policies  contribute  to  adaptation  efforts.  In 
particular,  the  Water  Framework  Directive22  establishes  a  legal  framework  to  protect  and 
restore  clean  water  across  Europe  by  2015  and  to  ensure  the  long-term  sustainable  use  of 
water.  The  River  Basin  Management  Plans  due  in  2009  under  the  Directive  will  take  into 
account the impacts of climate change and the next generation of plans due in 2015 should be 
fully  climate-proofed.  In  addition,  climate  change  must  also  be  properly  integrated  in  the 

22 

Directive 2000/60/EC. 

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implementation  of  the  Floods  Directive23.  Full  implementation  of  this  Directive  by  the  EU 
Member States will help increase resilience and facilitate adaptation efforts. 

For water scarcity, the Commission will assess the need to further regulate the standards of 
water using equipment and water performance in agriculture, households and buildings. When 
reviewing  in  2012  the  implementation  of  the  Water  Framework  Directive  and  the  Water 
Scarcity  and  Droughts  strategy24,  options  for  boosting  the  water  storage  capacity  of 
ecosystems to increase drought resilience and reduce flood risks should be evaluated. A more 
detailed account of water issues is provided in the accompanying document. 

Regarding habitats, the impact of climate change must also be factored into the management 
of  Natura  200025  to  ensure  the  diversity  of  and  connectivity  between  natural  areas  and  to 
allow for species migration and survival when climate conditions change. In future it may be 
necessary  to  consider  establishing  a  permeable  landscape  in  order  to  enhance  the 
interconnectivity of natural areas.  

Action (EU and Member States) 

–  Explore  the  possibilities  to  improve  policies  and  develop  measures  which  address 
biodiversity  loss  and  climate  change  in  an  integrated  manner  to  fully  exploit  co-benefits 
and avoid ecosystem feedbacks that accelerate global warming 

–  Develop guidelines and a set of tools (guidance and exchange of best practices) by the end 
of 2009 to ensure that the River Basin Management Plans (RBMP) are climate-proofed 

–  Ensure  that  climate  change  is  taken  into  account  in  the  implementation  of  the  Floods 

Directive. 

–  Assess the need for further measures to enhance water efficiency in agriculture, households 

and buildings 

–  Explore  the  potential  for  policies  and  measures  to  boost  ecosystem  storage  capacity  for 

water in Europe 

–  Draft guidelines by 2010 on dealing with the impact of climate change on the management 

of Natura 2000 sites 

3.2.4 

Increasing the resilience of coastal and marine areas 

Climate change must also be properly integrated in the implementation of the Marine Strategy 
Framework  Directive26  which  requires  the  achievement  of  good  environmental  status  of  the 
EU's  marine  waters  by  2020.  Full  implementation  of  this  Directive  will  help  increase 
resilience in the marine environment and facilitate adaptation efforts. 

A more coherent and integrated approach to maritime and coastal planning and management 
is also necessary. The Integrated Maritime Policy will provide a comprehensive framework to 

23 
24 
25 

26 

Directive 2007/60/EC. 
COM(2007) 414 final 
Natura  2000  is  an  EU  wide  network  of  nature  conservation  areas  established  under  the  EU  nature 
directives. 
Directive 2008/56/EC 

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integrate adaptation efforts coherently into sectoral and specific policies and measures. Efforts 
must be stepped up to ensure that the provisions in the Integrated Coastal Zone Management 
(ICZM)  Recommendation27  are  fully  respected  and  strengthened.  The  follow-up  to  the 
Roadmap  for  Maritime  Spatial  Planning28  will  incorporate  adaptation  to  climate  change  in 
maritime and coastal management. A more detailed account of climate change and marine and 
coastal issues is provided in the accompanying document. 

Climate change is also an additional pressure on European fisheries and should be taken into 
account  with  a  view  to  ensuring  long-term  sustainability  in  the  future  reformed  Common 
Fisheries Policy. 

In order to ensure a coordinated and integrated approach to adaptation in coastal and marine 
areas and to take into account trans-boundary issues, the Commission will develop guidelines 
on best adaptation practices in coastal and marine areas.  

–  Action (EU and Member States)  

–  Ensure  that  adaptation  in  coastal  and  marine  areas  is  taken  into  account  in  the 
framework  of  the  Integrated  Maritime  Policy,  in  the  implementation  of  the  Marine 
Strategy Framework Directive and in the reform of the Common Fisheries Policy. 

–  Develop European guidelines on adaptation in coastal and marine areas 

3.2.5 

Increasing the resilience of production systems and physical infrastructure 

Protecting  existing  and  future  infrastructure  from  the  impact  of  climate  change  will  be 
predominantly a Member State responsibility. The EU nevertheless has an important role in 
promoting  best  practice,  via  support  for  infrastructure  development  and  also  in  developing 
standards for construction29. Improving the resilience of existing transport infrastructure and 
energy networks requires a common and coordinated approach for assessing the vulnerability 
of critical infrastructure to extreme weather events. This provides a basis for strategic choices 
regarding  networks,  back-ups  and  energy  security,  and  for  maintaining  stable  transport 
networks  and  services.  Adaptation  should  be  considered  in  the  Strategic  Energy  Review 
process.  Infrastructure  projects  which  receive  EU funding  should  take  climate-proofing  into 
account  based  on  methodologies  to  be  developed.  These  methodologies  would  then  be 
incorporated  into  the  TEN-T30,  TEN-E31  guidelines  and  EU  Cohesion  Policy.  The 
implications  of  making  a  climate  impact  assessment  a  condition  for  public  and  private 
investment will be explored, as will the feasibility of incorporating sustainability criteria — 
including taking into account climate change — into harmonised standards for construction, 
with for example a possible widening or extension of the existing Eurocodes. In addition, the 

27 
28 
29 

30 

31 

Recommendation of 30 May 2002 
COM(2008) 791 
The  Eurocodes  are  a  set  of  unified  international  codes  of  practice  for  designing  buildings  and  civil 
engineering structures, which will eventually replace national codes. See Commission Recommendation 
2003/887/EC. 
Trans-European Network for Transport Program. The vulnerability of the TEN-T to climate change and 
the need for potential adaptation measures is part of the debate launched by the European Commission 
with the adoption on 4 February 2009 of the Green Paper on 'TEN-T: A policy review', COM(2009)44 
final.  
Trans-European  Energy  Networks.  See  Green  Paper  "Towards  a  secure,  sustainable  and  competitive 
European energy network", COM (2008)782 final.  

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Commission  will  work  with  Member  States  and  stakeholders  setting  guidelines  and 
exchanging  good  practice,  to  ensure  that  account  is  taken  of  climate  change  impacts  when 
implementing  the  Environmental  Impact  Assessment  (EIA)  and  Strategic  Environmental 
Assessment (SEA) Directives and spatial planning policies. 

Action (EU and Member States)  

–  Take account of climate change impacts in the Strategic Energy Review process 

–  Develop methodologies for climate-proofing infrastructure projects and consider how these 
could be incorporated into the TEN-T and TEN-E guidelines and guidance on investments 
under Cohesion policy in the current period 

–  Explore  the  possibility  of  making  climate  impact  assessment  a  condition  for  public  and 

private investment 

–  Assess the feasibility of incorporating climate impacts into construction standards, such as 

Eurocodes 

–  Develop  guidelines  by  2011  to  ensure  that  climate  impacts  are  taken  into  account  in  the 

EIA and SEA Directives 

4. INSTRUMENTS - FINANCING 

The  Stern  Review  identified  financial  constraints  as  one  of  the  main  barriers  to  adaptation. 
Climate  change  is  one  of  the  priorities  for  the  current  multi-annual  financial  framework 
(2007-2013)  and  it  is  important  to  ensure  that  the  available  funds  are  used  to  reflect  this 
priority. There is scope for improving the uptake of adaptation action by Member States and 
for targeting better the use of available financial resources and instruments. Attention should 
be paid to ensuring that public funding and state aid do not foster mal-adaptation. 

The  recently  adopted  European  Economic  Recovery  Plan  (EERP)  contains  a  number  of 
proposals  relating  to  climate  change  investments.  Examples  include  modernising  European 
infrastructure,  promoting  energy  efficiency  in  buildings  and  the  uptake  of  green  products32. 
These  proposals  will  facilitate  further  adaptation  to  climate  change  and  their  results  will  be 
evaluated to determine future needs. Member States considering investment in infrastructure 
as  a  response  to  the  economic  crisis  should  ensure  that  resulting  initiatives  take  adaptation 
needs fully into consideration. 

In the coming years it is essential that relevant sectors develop strategies and cost estimates 
for adaptive actions so that they may be taken into account in future financial decisions. 

Optimising the use of insurance and other financial services products could also be explored. 
It should be evaluated whether certain private actors/sectors (such as those providing public 
services,  critical  infrastructure)  need  to  be  covered  by  compulsory  standard  weather-related 
insurance.  In  cases  where  insurance  is  not  available,  for  example  for  buildings  located  in 
flood plains, publicly supported insurance schemes may be required. Due to the cross-border 
effects of climate change, there may be benefits in promoting EU-wide insurance as opposed 
to national or regional schemes. 

32 

Green VAT, environmental performance requirements, measures for energy savings.  

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In any adaptation framework, consideration should be given to the role of specialised Market 
Based Instruments (MBIs) and public-private partnerships should be encouraged with a view 
to the sharing of investment, risk, reward and responsibilities between the public and private 
sector in the delivery of adaptation action. Examples of MBIs include incentive schemes for 
protecting  ecosystem  services  or  for  projects  enhancing  the  resilience  of  ecosystems  and 
economic sectors in the form of Payments for Ecosystem Services (PES). 

The possibility of using revenue generated from auctioning allowances under the Community 
greenhouse  gas  emission  allowance  trading  system  (the  EU  ETS)  for  adaptation  purposes 
should be utilised. The revised Directive governing the scheme from 201333 provides that at 
least 50% of the revenue generated from auctioning allowances should be used, inter alia for 
adaptation in Member States and developing countries. This additional revenue will be crucial 
for sharing adaptation costs between the public and private sector. 

Action (EU and Member States) 

–  Estimate adaptation costs for relevant policy areas so that they can be taken into account in 

future financial decisions 

–  Further examine the potential use of innovative funding measures for adaptation 

–  Explore the potential for insurance and other financial products to complement adaptation 

measures and to function as risk sharing instruments 

–  Encourage Member States to utilise the EU’s ETS revenues for adaptation purposes 

5. WORKING IN PARTNERSHIP WITH THE MEMBER STATES 

To support cooperation on adaptation and with a view to taking this framework forward, the 
Commission intends to set up an Impact and Adaptation Steering Group (IASG) and provide 
the  secretariat  (after  the  usual  evaluation  of  the  organisational  and  resources  impact  of  this 
action). This group will be composed of representatives from the EU Member States involved 
in  the  formulation  of  national  and  regional  adaptation  programmes  and  will  consult  with 
representatives from civil society and the scientific community. 

The  Steering  Group  will  be  supported  by  a  number  of  technical  groups,  who  will  deal 
specifically  with  developments  in  key  sectors  (agriculture  and  forestry,  biodiversity,  water, 
oceans and seas, energy, health etc.).  

The  Steering  Group  will  play  a  role  in  developing  the  four  pillars  identified  above  to  help 
develop the EU strategy and prepare national adaptation strategies by the Member States. The 
Steering  Group  will  also  consider  the  appropriate  level  at  which  action  should  be  best 
implemented.  

In the initial phase the Steering Group will focus on monitoring progress in strengthening the 
knowledge base, in particular setting up the Clearing House Mechanism. The Steering Group 
will  provide  a  coordinated  approach  to  building  the  evidence  base  on  the  impact  of  climate 
change,  assessing  the  risks  of  climate  change  for  the  EU,  the  scope  for  increasing  climate 
resilience and costing risks and opportunities. 

33 

To be adopted in 2009. 

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Action (EU and Member States) 

–  Take  a  decision  to  establish  by  1  September  2009  an  Impact  and  Adaptation  Steering 

Group (IASG) to step up cooperation on adaptation 

–  Encourage the further development of National and Regional Adaptation Strategies with a 

view to considering mandatory adaptation strategies from 2012 

6. EXTERNAL DIMENSION AND ONGOING WORK UNDER THE UNFCCC 

Many countries are already enduring the impact of climate change andthere is an urgent need 
to  work  with  them,  in  particular  with  neighbouring  countries  and  the  most  vulnerable 
developing  countries,  to  improve  their  resilience  and  capacity  to  adapt  to  adverse  effects. 
Adaptation  should  be  mainstreamed  in  all  of  the  EU's  external  policies.  In  trade  policy 
adaptation should be incorporated, notably through the liberalisation of trade in environmental 
goods and services and in the elaboration of Free Trade Agreements (FTAs). There is a huge 
potential for green trade which can contribute to enhancing growth and creating jobs. The EU 
should explore this and the related mutual benefits in the relationship with key partners. 

EU  external  cooperation  should  make  a  significant  contribution  to  promoting  adaptation  in 
partner countries. Bilateral and regional financial assistance programmes will aim to integrate 
adaptation  considerations  into  all  relevant  sectors.  The  ongoing  review  of  the  EU 
Environment  Integration  Strategy  will  be  a  good  opportunity  to  emphasise  the  need  for 
integrating adaptation needs, as will the Mid-Term Review of EC cooperation strategies. 

With  a  view  to  supporting  adaptation  in  developing  countries,  the  EU  is  working  with 
developing  countries  to  facilitate  effective  adaptation  policies.  The  Global  Climate  Change 
Alliance (GCCA) was launched in 2008. Through the GCCA and other programmes the EU 
will  support  developing  countries  in  particular  Least  Developed  Countries  and  Small  Island 
Developing States.  

In  the  UNFCCC,  the  EU  has  tabled  ambitious  proposals  to  foster  adaptation  in  a  post-2012 
global  agreement,  notably  via  the  comprehensive  Framework  for  Action  on  Adaptation 
(FAA)34. 

External  EU  policy  should  also  make  a  substantial  contribution  to  adaptation,  via  water 
management  (the  EU  Water  Initiative  and  the  EU-ACP  Water  Facility),  agriculture, 
biodiversity,  forests,  desertification  energy,  health,  social  policy  (including  gender  issues), 
research,  coastal  erosion,  and  disaster  risk  reduction35,  the  latter  is  an  essential  part  of 
successful adaptation. 

Failure  to  adapt  could  have  security  implications.  The  EU  is  therefore  strengthening  its 
analysis and early warning systems and integrating climate change into existing tools such as 
conflict prevention mechanisms and security sector reform. The effects of climate change on 

34 

35 

The  various  elements  of  the  EU’s  Framework  for  action  on  Adaptation  (FAA)  are  described  in  the 
Communication Towards a comprehensive climate change agreement in Copenhagen, COM(2009) 39, 
28.01.2009. 
Communication  on  EU  Strategy  supporting  Disaster  Risk  Reduction  in  Developing  Countries, 
COM(2009)82. 

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migratory  flows  should  also  be  considered  in  the  broader  EU  reflection  on  security, 
development and migration policies.  

Action (EU and Member States) 

–  Step-up efforts to mainstream adaptation into all EU external policies 

–  Strengthen dialogue with partner countries on adaptation issues 

–  Take the Framework for Action on Adaptation forward in the UNFCCC 

7. CONCLUSIONS - NEXT STEPS 

Adaptation will be a long and continuous process. It will operate at all levels and require close 
coordination  with  stakeholders.  The  EU  will  support  international  and  national  adaptation 
efforts  ensuring  that  there  are  adequate  resources  for  efficient  and  cost-effective  adaptation 
action  to  provide  a  sustainable  and  sound  economic  basis  for  future  generations.  The 
Commission will regularly review progress in implementing the first phase of the framework 
for  action  identified  in  this  White  Paper  with  a  view  to  developing  a  comprehensive 
adaptation strategy from 2013. 

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