COMMISSION STAFF WORKING DOCUMENT Summary of the Impact Assessment Accompanying the document Communication An EU Strategy on adaptation to climate change
Date: 2013-04-16
Institutions: European Commission
Subjects: EU financing, adaptation to climate change, common strategy, joint implementation, natural disaster, public awareness campaign

EUROPEAN 
COMMISSION 

Brussels, 16.4.2013  
SWD(2013) 131 final 

COMMISSION STAFF WORKING DOCUMENT 

Summary of the Impact Assessment 

Accompanying the document 

Communication 

An EU Strategy on adaptation to climate change 

{COM(2013) 216 final} 
{SWD(2013) 132 final} 
{SWD(2013) 133 final} 
{SWD(2013) 134 final} 
{SWD(2013) 135 final} 
{SWD(2013) 136 final} 
{SWD(2013) 137 final} 
{SWD(2013) 138 final} 
{SWD(2013) 139 final} 

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COMMISSION STAFF WORKING DOCUMENT 

Summary of the Impact Assessment 

Accompanying the document 

Communication 

An EU Strategy on adaptation to climate change 

PROCEDURAL ISSUES AND CONSULTATION OF INTERESTED PARTIES 

1. 
The EU Adaptation Strategy is included in the Commission Work Programme 20131. It builds 
on  the  White  Paper  "Adapting  to  climate  change:  Towards  a  European  framework  for 
action"2.  Directorate  General  Climate  Action  drafted  the  Impact  Assessment.  It  benefited 
from the recommendations of the Impact Assessment Board. 

The  preparation  of  the  report  included  consultation  with  the  Adaptation  Steering  Group, 
composed  of  representatives  from  Member  States  and  stakeholders,  an  online  public 
consultation, and various workshops organised with Member States and stakeholders.  

Overall, stakeholders were supportive of additional EU-promoted action on adaptation, while 
acknowledging  that  most  climate  change  impacts  are  to  be  addressed  at  local  level. 
Mainstreaming  adaptation  into  key  EU  initiatives  is  seen  by  all  as  a  priority,  as  well  as 
providing  the  right  framework,  information  tools,  and  EU  funds  that  allow  for  the  effective 
integration  of  adaptation  issues  at  all  levels  of  government.  Some  Member  States  would 
oppose  an  EU  legislative  instrument  for  promoting  the  adoption  of  national  adaptation 
strategies. 

2. 

PROBLEM DEFINITION, POLICY CONTEXT AND SUBSIDIARITY 

2.1. 

Setting the scene 

Even  if  all  greenhouse-gas  emissions  were  to  stop  today,  we  would  still  see  major 
changes  in  the  climate.  We  therefore  have  no  choice  but  to  deal  with  unavoidable 
climate impacts and their economic, environmental and social costs. Early action will 
save on damage costs later. 

Managing the risks of climate change implies coupling mitigation efforts with adaptation, 
since the results of today's mitigation efforts will determine the degree of adaptation required 
in the future. At the same time, reaching levels of adverse impacts that will be impossible to 
address through adaptation must be prevented through mitigation.  

Climate change adaptation is a horizontal issue, affecting all economic sectors, environmental 
systems and citizens, to varying degrees. Because of Europe's diversity, climate impacts and 
vulnerabilities vary from region to region and are also very specific to the local situations. 

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COM(2009) 147 final 

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2.2. 

Policy context 

The  2009  White  Paper  on  adaptation  included  33  actions.  Most  actions  have  now  been 
implemented. Further efforts are needed to address knowledge gaps and on mainstreaming, 
where adaptation needs to be reinforced into key EU policies.  

By January 2013, 15 EU Member States have adopted an adaptation policy (strategy and/or 
plan).  Although  these  strategies  and  action  plans  are  undoubtedly  a  good  starting  point  for 
adaptation action, they are often not operationalised or only partly so. 

The  2011  Commission  proposal  for  the  next  Multiannual  Financial  Framework  (MFF) 
2014-2020  recognises  mainstreaming  as  the  MFF’s  favoured  approach  to  facilitate  the 
necessary contribution to a low-carbon and climate resilient economy3. 

2.3.  What are the specific problems and added value of EU action  

There is a possibility to step up the EU's adaptation action by tackling the following issues: 

The EU can help inform decisions about adaptation at all levels by bringing added-
value and economies of scale in filling knowledge gaps and sharing knowledge.  

The EU can support national and/or regional level action on adaptation to cover the 
whole of the EU territory.  

Finally, the EU has a responsibility to integrate adaptation into its own policies and 
financial programmes.  

3. 

OBJECTIVES  

–  The  general  aim  of  the  EU  Adaptation  Strategy  is  to  contribute  effectively  to  a  more 
climate  resilient  Europe.  Particular  attention  is  given  to  transboundary  issues  and  sectors 
that are closely integrated at EU level through common policies. This means meeting the 
following specific objectives.  

Better  informed  decision  making:  the  EU  Adaptation  Strategy  should  further  the 
understanding  of  adaptation,  improve  and  widen  the  knowledge  base  and  enhance 
dissemination of adaptation-related information.  

Operational objective 1a: by 2020, priority knowledge gaps identified in 2013 have 
been closed. 

Operational  objective  1b:  by  2020,  communication  tools  allow  for  available 
information on climate change adaptation to be more easily accessible for decision-
makers, including Member States, local authorities and firms.  

Increasing the resilience of the EU territory: the EU Adaptation Strategy should promote 
adaptation  action  at  sub-EU  level,  and  support  and  facilitate  exchange  and  coordination.  In 
doing so, the Strategy should address cross-border climate impacts and adaptation measures. 

Operational objective 2a: by 2017, all Member States have adopted (an) Adaptation 
Strateg(y)ies,  complemented  by  regional  or  local  adaptation  strategies  when 
appropriate.  

Operational  objective  2b:  by  2020,  cities  of  more  than  150,000  inhabitants  have 
adopted an adaptation strategy.  

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http://ec.europa.eu/budget/reform/commission-proposals-for-the-multiannual-financial-framework-
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Increasing  the  resilience  of  key  vulnerable  sectors:  The  EU  Adaptation  Strategy  should 
develop  initiatives  for  a  consistent  and  comprehensive  integration  of  climate  change 
adaptation considerations into sectors closely integrated at EU level via common policies.  

Operational  objective  3a:  by  2020,  adaptation  considerations  have  been 
mainstreamed in a consistent and comprehensive way in key EU policies. 

Operational  objective  3b:  by  2020,  new  major  infrastructure  investments  are 
climate-proofed.  

4. 

POLICY OPTIONS 

The policy options cover a wide array of potential intervention tools, from soft measures to 
legislation, and including direct intervention.  

Table 1: List of options considered for this IA report 

Problem 

Drivers 

Specific 
objective 

Operational objective 

Knowledge 
and access 
to 
information 
gaps 

Uncoordinated 
research 
activities 

Incomplete 
instruments for 
knowledge 
dissemination 

Better 
INFORMED 
decision-making 

Gaps in 
adaptation 
action at 
sub-EU 
level 

Knowledge, 
financial, and 
political 
reluctance 
barriers 

Absence of 
considerations 
for cross-border 
impacts 

Increasing the 
resilience of THE 
EU TERRITORY 

Gaps in 
adaptation 
uptake in 
key sectors 

Incomplete and 
Inconsistent 
mainstreaming  

Financial and 
information 
barriers to 
resilient 
investment and 
business 
decisions 

Increasing the 
resilience of key 
VULNERABLE 
SECTORS 

By 2020, the priority 
KNOWLEDGE GAPS 
identified in 2013 have 
been closed 

By 2020, 
COMMUNICATION 
TOOLS allow for 
available information on 
climate change 
adaptation to be 
accessible for decision-
makers 

By 2017, all Member 
STATES have adopted 
an Adaptation Strategy; 

By 2020, major CITIES 
and REGIONS have 
adopted an Adaptation 
Strategy 

By 2020, a 
comprehensive and 
consistent 
MAINSTREAMING of 
adaptation in EU policies 
is achieved 

By 2020, major 
INFRASTRUCTURE 
investments are climate-
proofed 

Providing 
information 
and guidelines 
1A: 
Developing a 
common 
climate 
vulnerability 
assessment in 
the EU 

1C: Improving 
climate-
ADAPT 
beyond 
business-as-
usual; 

2A: Guidelines 
for developing 
national 
adaptation 
strategies  

2D: 
Supporting 
UNISDR 
“Making Cities 
Resilient” 
campaign 
among EU 
cities 
3A: Guidelines 
on how to 
climate proof 
Cohesion 
Policy and the 
Common 
Agricultural 
Policy 

3D: Guidelines 
for project 
developers for 
climate 
proofing 
vulnerable 
investments 

Options 

Direct 
intervention 

Regulatory 
approach 

1B: Developing a 
knowledge gap 
strategy 

1D: Supporting 
exchange 
between science 
and policy in the 
field of 
adaptation 

1E: Proposing the 
mandatory setup 
of national 
information 
platforms on 
adaptation 

2B: Using Life+ 
funding for 
supporting the 
preparation of 
adaptation 
strategies and for 
lighthouse 
projects on 
adaptation  

2C: Commission's 
proposal on the 
adoption of 
national adaptation 
strategies. Three 
sub-options: i/ 
non-legal; ii/ 
legislation later; 
iii/ legislation now 

2E: Inclusion of 
adaptation into 
the Covenant of 
Mayors 
Framework 

3B: Listing 
mainstreaming 
priorities in EU 
policies and 
engaging with 
key stakeholders  

3E: Promote 
inclusion of 
climate change 
adaptation 
considerations in 
relevant 
infrastructure 
standards 

3C: Setting new 
calendar for 
revision of key EU 
legislation as part 
of the 
mainstreaming 
exercise; 

3F: Proposal on 
mandatory 
requirements for 
climate resilience 
of infrastructure 
projects 

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5. 

5.1. 

5.2. 

ANALYSIS OF IMPACTS AND COMPARISON OF OPTIONS 

Options included in the preferred policy package are presented in italic. 

Options on promoting better-informed decision making 

Option 1A – developing only a common climate vulnerability assessment would not 
allow  to  benefit  from  the  wealth  of  approaches  and  methodologies  currently 
available, and would not be adequate for specific circumstances.  

Option 1B – adopting a knowledge gap strategy entails working with stakeholders to 
identify  adaptation  research  priorities  for  the  next  seven  years.  It  will  strengthen 
knowledge generation, in particular in relation to existing policy needs expressed at 
national and sectoral level. It allows for a better streamlining of existing funds.  

Option 1C – Promoting interactions between Climate-ADAPT and other databases 
contributes to better decision-making by ensuring the dissemination of information, 
specifically  targeting  improved  data  management  and  the  integration  of  data  and 
services. Efficiency gains are expected for final users, who can benefit from a "one-
stop-shop" as Climate-ADAPT becomes the focal point on adaptation information in 
Europe.  

Option  1D  –  supporting  exchange  between  science  and  policy  makers  helps 
improve knowledge dissemination. It allows a very direct exchange between Member 
States, the Commission and stakeholders, which can increase capacity-building and 
contribute to a better understanding of adaptation.  

Option 1E – mandatory national adaptation portals, would only have limited impacts 
compared to business as usual.  

5.3. 

Options on promoting adaptation at sub-EU level 

Cost savings for each Member State are expected by providing in Option 2A – EU guidelines 
for adaptation policies various tools and information sources on all issues to be addressed to 
prepare  adaptation  strategies.  Preventive  response  actions  will  increase  coping  capacity  and 
reduce  potential  damage  costs.  Yet  the  guidelines  by  themselves  will  not  address  all  the 
barriers to effective adaptation, such as the financial  constraints  faced  by  Member  States  or 
regional authorities in developing adaptation strategies.  

Option  2B  –  Using  Life+  will  directly  contribute  to  additional  adaptation  action  by 
facilitating experience transfer between Member States and supporting adaptation strategies. 
Moreover,  this  option  also  ensures  better  informed  decision-making  by  identifying  and 
supporting relevant cross-sectoral and cross-border lighthouse projects.  

The  effectiveness,  efficiency,  and  coherence  of  the  three  approaches  under  Option  2C  – 
Commission's  proposal  on  the  adoption  of  adaptation  strategies  –  no  legal  requirement, 
legislation  later,  and  legislation  now  –  must  be  considered  in  conjunction  with  the 
implementation of option 2A – guidelines and option 2B – presented above.  

The non-legal approach is a continuation of the approach presented in the 2009 White Paper. 
Its additional effectiveness is expected to be small.  

Legislation later will give Member States the opportunity to make use of the guidelines and 
of LIFE+ funding in designing their adaptation strategy while providing political impetus for 
adaptation  action,  in  particular  to  speed  up  the  process  in  those  Member  States  that  are 
currently undertaking adaptation action. The risk is that for those Member States inactive on 
adaptation, the political incentive would be insufficient to undertake adaptation action now. 

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Combining a legislative proposal now with the adoption of the guidelines and the availability 
of  Life+  funding  opportunities  could  increase  the  likelihood  that  all  Member  States  have 
developed  an  adaptation  strategy  by  2017.  However,  some  Member  States  have  expressed 
their opposition to the use of a legal instrument, arguing that legislative approaches would be 
premature, given that many of them are already developing work programmes and putting in 
place domestic action.  

Option  2D  –  promoting  the  UNISDR  cities  resilience  campaign  is  deemed  as  of  lower 
effectiveness  in  fostering  adaptation  activities  across  all  cities  in  the  EU  than  Option  2E  – 
inclusion of adaptation in the Covenant of Mayors framework. The latter will contribute to 
increasing  resilience  at  local  level,  looking  for  synergies  with  mitigation  objectives.  The 
effectiveness  of  the  Covenant  of  Mayors'  initiative  has  already  been  established  when  it 
comes to greenhouse gas mitigation commitments.  

5.4. 

Options on promoting adaptation in key sectors 

Option 3A – guidance on how to climate proof CAP and Cohesion Policy will facilitate the 
into  operational  and  rural 
integration  of  climate  change  adaptation  considerations 
development programmes and projects, in line with the Commission's proposals for the next 
MFF.  It  will  help  increase  the  resilience  of  key  vulnerable  sectors,  such  as  agriculture, 
forestry,  energy,  transport  and  construction.  To  be  fully  effective,  this  approach  must  be 
complemented  by  additional  efforts  both  by  managing  authorities  at  regional  or  local  level 
and by the Commission to increase capacity building.  

Option 3B – listing mainstreaming priorities and engaging with stakeholders helps identify 
the areas and sectors where further mainstreaming is needed, such as health, energy, transport, 
insurance,  infrastructure,  fisheries,  trade,  tourism,  education  and  social  policies.  Increased 
engagement  with  the  financial  and  insurance  sectors  will  raise  awareness  of  adaptation  and 
help communicate adaptation-related information. 

A  new  calendar  for  revision  of  some  key  EU  legislation,  option  3C,  may  be  difficult  to 
carry  out  given  its  political  nature.  Moreover,  as  highlighted  by  the  developments  in  water 
policy  in  the  EU,  voluntary  action  can  pre-empt  the  need  for  legislation  to  be  revised  at  an 
earlier stage. 

–  Option  3D  –  guidelines  for  project  developers,  and  3E  –  including  adaptation 
considerations in  design standards, are important first steps for increasing the resilience 
of  key  infrastructure  investments.  Mainstreaming  climate  change  into  CEN-CENELEC 
standards will only bring effective impacts if standards are finally amended to reflect the 
potential impacts from climate change. This will require time and further interactions with 
stakeholders  in  the  impacted  sectors.  The  uncertainty  in  climate  modelling  and  potential 
lack  of  data/information  on  climate  impacts  for  specific  project  sites  makes  option  3E  – 
mandatory approach, difficult to apply in practice. 

6. 

DISCUSSION 

Adaptation  needs  input  from  R&D  programmes  and  it  needs  it  already  now,  to  face  the 
current  impacts  of  climate  change,  but  also  to  plan  and  make  decisions  for  the  short  and 
medium  term.  Additional  efforts  to  promote  coordination  for  knowledge  generation  and 
dissemination (options 1B and 1D) will greatly increase the efficiency in the use of EU funds 
made available for research on climate change adaptation. It will close knowledge gaps faster 
and  facilitate  decision  making.  By  implementing  option  1C,  Climate-ADAPT  will  become 
the main source of information on adaptation in Europe. Adaptation decisions will be sounder, 
with a positive impact on the resilience of economic, social and environmental systems. 

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Providing  support  tools  for  developing  adaptation  strategies  in  all  Member  States  means 
that the most basic tools needed to enhance Europe's resilience are available, that a minimum 
assessment  of  risks  and  vulnerabilities  is  undertaken  and  adaptation  actions  planned  for  the 
whole EU territory. Acceptability issues would hamper the selection of a legislative proposal 
now.  Still,  the  combination  of  guidelines  (option  2A)  and  Life+  funding  opportunities 
(option  2B)  can  provide  the  necessary  support  to  Member  States  willing  to  act  on  climate 
change  adaptation,  in  particular  those  who  already  started  to  develop  their  adaptation 
framework.  The  reviewing  phase  of  the  Adaptation  Strategy  will  help  decide  whether  a 
legislative  instrument  should  be  used  to  facilitate  compliance  with  overall  objectives  of  the 
EU Adaptation Strategy. The EU will also support local and regional action and will facilitate 
experience transfer and the uptake of innovative solutions via cross-border and cross sectoral 
demonstration projects, in particular in the most vulnerable areas and sectors. The key roles 
that  cities  must  play  in  climate  change  adaptation  is  also  highlighted  and  the  EU  will 
contribute to promote and facilitate adaptation at local level (option 2D).  

By  2020,  all  relevant  EU  policies  that  will  have  been  revised  will  include  climate  change 
adaptation  considerations,  and  the  Commission  will  engage  with  key  stakeholders  to  ensure 
that  even  without  revision,  considerations  on  adaptation  is  mainstreamed  (option  3B). 
Moreover, EU funds will promote climate resilient investments, in particular in the area of 
agriculture, energy, transport, and buildings infrastructure (options 3D and 3E), contributing 
to a sustainable and resilient EU economy (option 3A). Further interactions with the insurance 
and  financial  sectors  will  lead  to  more  efficient  market  functioning,  increasing  the  adaptive 
capacity of EU firms.  

7. 

MONITORING AND EVALUATION 

A review of the EU Adaptation Strategy is scheduled by 2018, assessing whether additional 
actions will be needed to meet the objectives of the Strategy.  

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