Assessment of climate action : How to assess the mainstreaming of climate action in operational programmes ERDF and CF : European Regional Development Fund and Cohesion Fund 2014-2020.
Date: 2015-11-23
Institutions: Directorate-General for Climate Action
Subjects: Cohesion Fund, EU environmental policy, EU financial instrument, European Investment Fund, European Social Fund, Structural Funds, adaptation to climate change, climate change, climate change policy, economic growth, environmental policy, environmental protection, financial aid, reduction of gas emissions, sustainable development

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Assessment of climate action

How to assess the mainstreaming 
of climate action in Operational 
Programmes

ERDF and CF

European Regional Development 
Fund and Cohesion Fund
2014-2020

Climate Action

Introduction

Priority axes and investment priorities

This  Fact  Sheet  outlines  the  main  issues  to  be  considered  when 
assessing  the  mainstreaming  of  climate  action  in  the  European 
Regional  Development  Fund  (ERDF)  and  the  Cohesion  Fund  (CF) 
Operational Programmes for the period 2014-2020.

Two  separate  Fact  Sheets  describe  the  potential  for  mainstreaming 
climate action in ERDF and CF Operational Programmes.

The  ERDF  and  the  CF  are  part  of  the  five  European  Structural  and 
Investment  Funds  (ESIF).  The  Common  Provisions  Regulation  (CPR)1 
defines 11 Thematic Objectives (TOs) for all ESIF.

The  CPR  and  the  fund-specific  regulations  define  the  content  of  the 
ERDF and CF Operational Programmes (OPs), The regulations establish 
the TOs and investment priorities that apply to each of the two funds.2

The mainstreaming of climate action across the programmes will be 
assessed, with a focus on those investment priorities which have the 
greatest potential for climate action. 

For  each  of  the  priority  axes,  the  climate  assessment  will  cover  the 
relevant  investment  priorities,  the  types  of  actions,  and  selection  of 
operations.

The  assessment  will  verify  consistency  between,  on  the  one  hand, 
the strategic approach and the anticipated contribution to the Europe 
2020  strategy  and,  on  the  other,  the  specific  objectives,  anticipated 
actions and principles for selection of operations. 

The  assessment  will  furthermore  investigate  how  the  principle  of 
sustainable development has been addressed. 

Guidance  issued  by  the  Commission  provides  details  on  programme 
document structure and contents.

Financing plan

A key indicator for climate action at Member State level is the share 
of ESIF support that will be used for climate change objectives. This 
relates to the target that climate related expenditure will correspond 
to  at  least  20  %  of  the  EU  budget  in  the  period  2014-2020.  The 
indicative share envisaged for the programme will be assessed against 
this objective and against the programme scope.

Territorial development aspects

The  overall  approach  to  territorial  development  will  be  assessed  for 
exploiting  opportunities  arising  from  synergies  in  climate  action.  If 
relevant within the programme scope, an assessment will be made as 
whether the Programme properly addresses the climate challenges of 
urban areas.   

Implementation arrangements

The  assessment  of  implementation  arrangements  will  only  include 
the  climate  aspects  of  the  proposed  plan  for  meeting  the  ex-ante 
conditionalities  of  TO4  and  TO5.  In  addition,  it  will  be  verified  as  to 
whether  action  has  been  taken  to  involve  relevant  partners  in  the 
preparation and implementation of the programmes.

The  assessment  of  mainstreaming  of  climate  action  in  the  OPs  will 
focus on five areas of the programme document:

 -
 -
 -
 -
 -

Strategic approach
Priority axes and investment priorities
Financing plan 
Territorial development aspects
Implementation arrangements.

It is essential that the assessment considers the specific country, sector 
and/or  regional  context,  relevant  climate  mitigation  and  adaptation 
aspects and the fund(s) concerned.

The  assessment  will  investigate  how  climate  action  has  been 
incorporated  and  indicate  areas  where  further  climate  action  would 
be required. 

Strategic approach

The  climate  assessment  will  address  the  programme’s  contribution 
to  the  climate  change  objectives  of  the  Europe  2020  Strategy  for 
smart, sustainable and inclusive growth and examine whether relevant 
Country Specific Council Recommendations (CSR) have been taken into 
account.  Consistency  with  the  relevant  provisions  of  the  Partnership 
Agreement and with national and/or regional strategies in the area of 
climate change will also be checked.

The assessment will evaluate the needs identified and the proposed 
approach  for  contributing  to  the  fulfilment  of  these  objectives.  Also 
included is an assessment of the promotion of sustainable development 
and climate action in programme preparation and implementation.

The consistency between the selection of TOs and investment priorities 
and the indicative funding allocation to TOs with programme climate 
objectives will also be assessed.

The assessment will also take stock of the conclusions of the relevant 
supporting documents that accompany the programmes, e.g. the ex-
ante evaluation and the Strategic Environmental Assessment (SEA). 

1 Regulation (EU) No 1303/2013, published in the Official Journal, OJ 347 20.12.2013 
2 Regulation (EU) No 1300/2013 (CF) and Regulation (EU) No 1301/2013 (ERDF), published in the Official Journal, OJ 347

2

 
ERDF / CF Operational Programmes – assessment of the climate mainstreaming

Programme part

Main areas for climate assessment

1

Strategic approach

1.1

Strategy for the OPs’ 
contribution to the delivery 
of the Europe 2020 
Strategy and for achieving 
economic, social and 
territorial cohesion

1.2

Justification for the 
selection of TOs and 
corresponding investment 
priorities

1.3

Justification for the 
financial allocation

Assess the proposed strategy regarding the:
 -

 Identification  of  relevant  needs  for  climate  change  mitigation 
concerning the national Europe 2020 targets and CSR
 Approach  to  deliver  on  the  Europe  2020  targets  related  to 
climate change and on the related CSR
 Expected  climate  change  impacts  on  the  region  and  sectors 
covered by the Programme 
 Vulnerability to climate change, whether in the form of a gradual 
change or more extreme weather events
 National  and/or  regional  needs  regarding  the  adaptation  to 
climate change 
 Approach to ensure climate resilience in support of the Europe 
2020 strategy
 Approach  to  ensure  that  that  disaster  resilience  and  risk 
prevention and management are promoted 
 Relevant  national/regional  climate  change  strategies  and/or 
action plans and their objectives   
 Promotion  of  the  principle  of  sustainable  development  in  the 
area of climate change (CPR 8)  
 Consistency of proposed strategy in the area of climate change 
with the findings of the ex-ante evaluation 
 Consistency  with  climate  change  objectives  and  other  climate 
related provisions of the Partnership Agreement 

 -

 -

 -

 -

 -

 -

 -

 -

 -

 -

This  part  of  the  climate  assessment  will  focus  on  the  TOs  and 
investment  priorities  that  are  of  particular  relevance  to  climate 
change. Furthermore, it will be assessed whether climate action has 
been adequately mainstreamed into the other programme areas.
 -

 Assess  whether  the  selection  of  TOs  and  related  investment 
priorities address the needs arising from Europe 2020 targets, 
the  transition  to  a  low-carbon  and  climate-resilient  economy, 
and relevant CSR
 Assess overall whether the selection of TOs is consistent with 
the Programme needs in the area of climate change
 Assess  the  mainstreaming  of  climate  action  into  TOs  and 
investment priorities which do not directly target climate action
 Assess the selection and justifications for investment priorities 
addressing the needs for climate action
 Verify that justifications take into account the relevant national 
or regional climate action plans and the findings of the ex-ante 
evaluations

 -

 -

 -

 -

The assessment will consider :
 -

 Justification  regarding  the  contribution  to  reach  the  Europe 
2020 climate related targets and the CSR 
 Justification that allocation by TOs is consistent with the climate 
action programme needs 
 Any impact on allocation for climate action from availability of 
other public and private funding 
 Allocations  to  the  climate  related  specific  objectives  of 
investment priorities, as appropriate  
 Consistency of allocation with ex-ante evaluation findings

 -

 -

 -

 -

Reference3

CPR 27.1
CPR Annex I

CPR 96.2(a)
CPR 8
CPR 27.5

Template4

Section 1

Section 1.1

CPR 96.2(a)
CPR 8

Section 1.1 
Table 1

CPR 96.2 (a)
CPR 27.2
CPR 27.6

Section 1.2
Table 2

2

3 Reference to the Regulation (EU) No 1303/2013 Common Provisions Regulation (CPR), where e.g. CPR 8.1 refers to CPR article 8.1
4 Template refers to the Commission Implementing Regulation (EU) No 288/2014 with its Annex I published in the Official Journal OJ 87 22.3.2014

3

Programme part

Main areas for climate assessment

2

For each priority axis and 
investment priority:

This part will assess the mainstreaming of climate action across the 
Programme and will further focus on the priority axes and investment 
priorities with climate action potential.

Reference3

CPR 27.2 
CPR 27.4

Template4

Section 2

CPR 96.2 (b)

Section 2.A

CPR 96.2 (b)(i) 
CPR 96.2 (b)(ii)

Section 2.A.5

CPR 96.2 (b)(iii)
CPR 8

Section 2.A.6
Section 2.A.6.1
Section 2.A.6.3
Section 2.A.6.4
Section 1.1
Table 27

 Assess  whether  the  priority  axis  appropriately  reflects  the 
relevant policy targets and needs identified in terms of climate 
change
 If  the  priority  axis  covers  more  than  one  TO/fund/categories 
of  regions,  assess  whether  the  explanation  for  increased 
impact and effectiveness of a thematically coherent integrated 
approach is duly justified in relation to climate change

 Assess whether the specific objectives mirror the climate action 
targets of Europe 2020 and the climate action potential of the 
TOs and the scope of the priority axis 
 Also  assess  whether  any  objective  may  lead  to  a  significant 
increase in GHG emissions
 Assess whether the expected results in terms of climate change 
targets seem reasonable in view of the specific objectives

 Assess  action  description  in  support  of  reaching  the  climate 
objectives of the investment priority
 Assess  whether  the  actions  proposed  adequately  incorporate 
their climate action potential
 Assess whether the description considers the impacts of actions 
on the climate
 Assess  how  the  sustainable  development  principle  concerning 
climate change is taken into account
 Assess any expected use of financial instruments in relation to 
climate action
 Assess descriptions of major projects intended to contribute to 
reaching climate objectives of the investment priority
 Assess descriptions of major projects to identify measures for 
reduction of GHG emissions and climate resilience

 Assess promotion of climate change mitigation and adaptation 
in principles for project selection (CPR 8)
 Assess whether the guiding principles ensure that investments 
with significantly adverse climate impacts are not supported

CPR 96.2 (b)(iii)
CPR 96.7 (a)
CPR 8

Section 2.A.6.2
Section 11.1

 Verify that the support for the fulfilment of climate objectives is 
appropriate within the scope of the Programme and the target 
that climate related expenditure should correspond to at least 
20 % of the EU budget in the period 2014-2020

 Assess  whether  the  proposed  approach  adequately  reflects 
climate  action  needs  and  the  opportunities  to  benefit  from 
integrated action in the area of climate change
 Assess the contribution of this approach to reaching the climate 
objectives of the Programme 

CPR 27.2

CPR 96.2 (d)
CPR 27.6

Section 3

Section 3.2
Table 19

CPR 27.1

Section 4

CPR 96.3

Section 4

Verify  that  arrangements  for  sustainable  urban  development 
and ITI consider climate challenges of urban areas

CPR 96.3 (b)
CPR 96.3 (c)

Section 4.2
Table 20

Verify that relevant partners have been involved and consulted 
in  the  preparation  of  the  climate  change  aspects  of  the 
Programme  and  that  planned  actions  are  described  to  ensure 
their involvement in implementation of programmes

CPR 96.5
CPR 96.6

Section 7

CPR 96.5 (c)

Section 7.2.

2.1

Assessment of priority axis

 -

 -

 -

 -

 -

 -

 -

 -

 -

 -

 -

 -

 -

 -

 -

2.2

Specific objectives 
corresponding to the 
investment priority and 
expected results

2.3

Actions to be supported 
under the investment 
priority

2.4 Guiding principles for the 

selection of operations

3

3.1

Financing plan

Indicative amount of 
support to be used for 
climate change objectives

4

Integrated approach to 
territorial development

4.1 Description of the approach 

 -

to  territorial development

Support for sustainable 
urban development and the 
use of Integrated Territorial 
Investments (ITI)

Implementation 
arrangements

Involvement of relevant 
partners

 -

 -

 -

4.2

5

5.1

5.2

Applicable ex-ante 
conditionalities
and their fulfilment 

Focus on the unfulfilled ex-ante conditionalities relating to TO4 and 
TO5.
 -

Screen  information  supplied  for  ex-ante  conditionalities  to  be 
fulfilled with regard to their climate aspects

CPR 96.6 (b)
CPR 27.1
CPR Annex XI

3 Reference to the OJ 347 20.12.2013, Reg (EU) No 1303/2013 Common Provisions Regulation (CPR), where e.g. CPR 8.1 refers to CPR article 8.1
4 Template refers to the Commission Implementing Regulation (EU) No 288/2014 with its Annex I published in the Official Journal OJ 87 22.3.2014

Section 9.1
Table 24
Section 9.2
Table 25
Table 26

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Background information

Common Provisions Regulation (CPR)

Why do we need to take climate action?

Tackling climate change is one of the great challenges facing the EU 
and its global partners.

The  need  for  urgent  action  is  clearly  reflected  in  the  Europe  2020 
Strategy and the EU’s ambitious 20/20/20 targets for climate change 
mitigation, i.e. to cut greenhouse gas emissions by 20 % (30 % if the 
conditions are right); to reduce energy consumption by 20 % through 
increased energy efficiency; and to meet 20 % of energy needs from 
renewable sources.

Climate change is already happening and its effects will become more 
severe in coming years. So we need to take action on mitigation, and we 
also need to act to protect people, buildings, infrastructure, businesses 
and ecosystems from the impacts. These adaptation measures, which 
will make us more resilient to the adverse impacts of climate change, 
will become increasingly important. Adaptation measures can be taken 
at  national,  regional  and  local  levels.  Adaptation  measures  include, 
for  example,  actions  that  can  stimulate  more  efficient  water  use, 
and  the  development  and  implementation  of  design  standards  that 
protect constructions against the impacts of future climate conditions 
and  extreme  weather  events.  Other  examples  include  building  flood 
defences,  raising  the  levels  of  dykes,  and  replacing  exposed  power 
overhead lines with underground cables. It also includes measures to 
take advantage of possible opportunities arising from climate change. 
The aim of the EU Strategy on adaptation to climate change is to help 
make Europe more climate resilient and enhance its preparedness and 
capacity to respond to the impacts of climate change.

Building  a  low-carbon  and  climate-resilient  economy  will  enhance 
Europe’s  competitiveness,  create  new,  greener  jobs,  improve  energy 
security and bring health benefits to Europe’s citizens by making the 
air cleaner.

EU funding over the period 2014-2020

The  EU  budget  has  an  important  role  to  play  in  promoting  climate 
action in all sectors of the European economy and in catalysing the 
investments needed to meet the climate targets and ensure climate 
resilience. Investment is needed in a wide range of technologies that 
improve  energy  efficiency,  in  renewable  energy  sources  and  related 
infrastructure, and in the adaptation to climate change.

Based  on  a  proposal  put  forward  by  the  Commission,  the  European 
Council  concluded  on  7-8  February  2013  that  ‘Climate  action 
objectives will represent at least 20 % of EU spending in the period 
2014-2020 and therefore be reflected in the appropriate instruments 
to ensure that they contribute to strengthen energy security, building a 
low-carbon, resource efficient and climate resilient economy that will 
enhance Europe’s competitiveness and create more and greener jobs’.

European Structural and Investment Funds (ESIF)

ESIF  include  the  European  Regional  Development  Fund  (ERDF),  the 
Cohesion  Fund  (CF),  the  European  Social  Fund  (ESF),  the  European 
Agricultural Fund for Rural Development (EAFRD), and the European 
Maritime and Fisheries Fund (EMFF).

The ultimate responsibility for implementing the EU budget lies with 
the European Commission, but the ESIF are implemented under ’shared 
management’,  with  individual  EU  countries  actually  distributing  the 
funds  and  managing  expenditure.  Checks  and  balances  are  in  place 
to  ensure  the  funds  are  managed  properly  and  in  accordance  with 
the rules.

The CPR sets out the means to achieve consistency with the economic 
policies of the EU and its Member States, coordination mechanisms 
among  the  ESI  Funds  and  with  other  EU  policies  and  instruments, 
horizontal principles and cross-cutting policy objectives. It lays down 
arrangements  to  address  territorial  challenges,  suggests  action 
with high European added value and sets out the principles and the 
priorities for action.

Each  Member  State  will  prepare  a  Partnership  Agreement,  in 
cooperation with its partners and in dialogue with the Commission. In 
preparing the Partnership Agreement, each Member State translates 
the elements set out in the CPR into the national context and sets firm 
commitments to achieve the EU’s objectives through the programming 
of the ESIF.

ESIF will be implemented through programmes in accordance with the 
Partnership Agreement. Each programme will cover the period 2014 
- 2020. It will set out a strategy explaining how the programme will 
address the national and/or regional needs and contribute to the EU’s 
strategy for smart, sustainable and inclusive growth, in line with the 
applicable regulations and the Partnership Agreement.

The CPR defines in Article 9 eleven Thematic Objectives (TOs), which 
will contribute to the implementation of the EU’s strategy for smart, 
sustainable and inclusive growth. The eleven TOs are:

1.  Strengthening  research,  technological  development  and 

innovation

2.  Enhancing access to, and use and quality of, ICT (information 

and communication technologies)

3.  Enhancing the competitiveness of small and medium-sized 
enterprises, of the agricultural sector (for the EAFRD) and of 
the fishery and aquaculture sector (for the EMFF)

4.  Supporting the shift towards a low-carbon economy in all 

sectors

5.  Promoting climate change adaptation, risk prevention and 

management

6.  Preserving and protecting the environment and promoting 

resource efficiency 

7.  Promoting sustainable transport and removing bottlenecks 

in key network infrastructures

8.  Promoting  sustainable  and  quality  employment  and 

supporting labour mobility

9.  Promoting  social  inclusion,  combating  poverty  and  any 

discrimination

10.  Investing in education, training and vocational training for 

skills and lifelong learning

11.  Enhancing  institutional  capacity  of  public  authorities  and 

stakeholders and efficient public administration

The fund-specific regulations define for each TO the corresponding
investment priorities.

TO4  and  TO5  are  dedicated  to  climate  change  mitigation  and 
adaptation. In addition, climate action issues can be mainstreamed into 
other TOs. Hence, ESIF can significantly contribute to the achievement 
of  the  climate  objectives  and  the  transition  to  a  low-carbon  and  
climate-resilient economy.

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5

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The European Regional Development Fund (ERDF) and the Cohesion Fund (CF) will make a major 
contribution to the transition to a low-carbon and climate-resilient Europe.

This Fact Sheet outlines key issues to be considered when assessing climate mainstreaming for 
these funds.

The  ERDF  and  the  CF  are  part  of  the  five  European  Structural  and  Investment  Funds  (ESIF) 
under  the  Common  Provisions  Regulation  (CPR).  These  funds  play  a  key  role  in  achie-
ving  the  Europe  2020  Strategy  for  smart,  sustainable  and  inclusive  growth.  The  five  funds 
will  contribute  to  the  target  that  climate-related  expenditure  will  represent  at  least 
20  %  of  EU  spending  in  the  period  2014-2020,  while  helping  to  improve  energy  secu-
rity,  build  a  low-carbon,  resource-efficient  and  climate-resilient  economy  that  will  boost  
Europe’s competitiveness and create more and greener jobs.

The CPR defines eleven Thematic Objectives that will contribute to the implementation of the 
Europe 2020 strategy. The ERDF covers all eleven Thematic Objectives whereas the CF focuses 
on five of them. Two of the Thematic Objectives are dedicated to climate action (mitigation, 
adaptation). However, climate action can be integrated in all of them. Through mainstreaming 
of climate action, the ERDF and the CF can contribute towards reaching at least 20 % climate-
related expenditure out of the overall EU budget.

© European Union, 2015

Further information

DG Climate Action:
http://ec.europa.eu/clima

ISBN 978-92-79-46603-8
doi: 10.2834/171809

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