COMMISSION STAFF WORKING DOCUMENT Analysis of the recovery and resilience plan of France Accompanying the document Proposal for a COUNCIL IMPLEMENTING DECISION amending Implementing Decision (EU) (ST 10162 2021 INIT; ST 10162 2021 ADD 1) of 6 July 2021 on the approval of the assessment of the recovery and resilience plan for France
Date: 2023-06-26
Institutions: European Commission, Secretariat-General
Subjects: EU aid, France, digital transformation, economic recovery, economic reform, green economy, hydrogen production, investment, renewable energy, structural adjustment

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 26.6.2023  SWD(2023) 236 final  COMMISSION STAFF WORKING DOCUMENT Analysis of the recovery and resilience plan of France Accompanying the document Proposal for a COUNCIL IMPLEMENTING DECISION amending Implementing Decision (EU) (ST 10162 2021 INIT; ST 10162 2021 ADD 1) of 6 July 2021   on the approval of the assessment of the recovery and resilience plan for France {COM(2023) 374 final}  
 
 
Table of contents 
1. 

Executive summary ............................................................................................................................... 2 

2.  Objectives of the modification of the plan ........................................................................................... 2 

3. 

Summary of the assessment of the plan ............................................................................................ 12 

3.1. 

Comprehensive and adequately balanced response to the economic and social situation ...... 12 

3.2. 

Link with country-specific recommendations and the European Semester ............................... 15 

3.3.  Growth potential, job creation, economic, institutional and social resilience,  European Pillar of 
Social Rights, mitigating the impact of the crisis, and social territorial cohesion and convergence ...... 21 

3.4. 

The principle of ‘do no significant harm’ .................................................................................... 21 

3.5.  Green transition .......................................................................................................................... 22 

3.6. 

Digital transition .......................................................................................................................... 23 

3.7. 

Lasting impact of the plan ........................................................................................................... 25 

3.8.  Milestones, targets, monitoring and implementation................................................................ 25 

3.9. 

Costing ........................................................................................................................................ 27 

3.10.  Controls and audit ....................................................................................................................... 28 

3.11.  Coherence ................................................................................................................................... 29 

3.12.  REPowerEU ................................................................................................................................. 30 

3.13.  Cross-border or multi-country dimension or effect ................................................................... 32 

ANNEX I: Climate tracking and digital tagging ........................................................................................ 33 

1 

 
 
 
 
 
 
 
 
 
 
 
 
1.  EXECUTIVE SUMMARY  

In 2022, Russia’s invasion of Ukraine led to a surge in energy and commodity prices in France. 
Inflation remained high  and economic growth  slowed sharply due to  supply bottlenecks, rising 
energy and commodity prices, and supply shortages. To tackle these challenges, France submitted 
on  20  April  2023  a  modified  national  Recovery  and  Resilience  Plan  (RRP),  including  a 
REPowerEU chapter to the Commission. For the modification of its RRP, France has relied on the 
following legal bases: Article 18(2) of Regulation (EU) 2021/241 (RRF Regulation) to take into 
account the updated maximum financial contribution published on 30 June 2022 and Article 21(1) 
of  the  RRF  Regulation,  requesting  the  Commission  to  make  a  proposal  to  amend  the  Council 
implementing  decision  considering  that  its  RRP  is  partially  no  longer  achievable  because  of 
objective circumstances. In addition, with the view to support measures of its REPowerEU chapter, 
France  relied  on  Article  21c  of  the  RRF  Regulation,  requesting  the  allocation  of  the  amount 
available from the Emissions Trading System (ETS) revenues and Article 21b(2) in order to use 
the  resources  transferred  from  the  Brexit  Adjustment  Reserve  (BAR)  under  Article  4a  of 
Regulation (EU) 2021/1755. 

The modification submitted by France affects 13 measures on the basis of Article 18(2) of the RRF 
Regulation and 18 measures on the basis of Article 21(1) of the RRF Regulation. In addition, errors 
of a clerical nature that do not reflect the content of the initial plan submitted by France have been 
identified in the text of the Council Implementing Decision and France proposed corrections.  

The REPowerEU chapter submitted by France includes three new reforms, three new investments 
and  one  scaled-up  measure  from  the  initial  RRP  that  increase  the  resilience,  the  security  and 
sustainability of the Union’s energy system. The reforms concern (1) the law on the acceleration 
of renewable energy production, (2) the ‘energy sobriety plan’, and (3) the setting up of a General 
Secretariat  for  Ecological  Planning.  The  new  investments  include  (1)  the  decarbonisation  of 
industry, (2) the production and uptake of renewable and fossil-free hydrogen and (3) the energy 
renovation of public buildings belonging to the state. Finally, the scaled-up measure concerns the 
energy renovation of private housing.  

Based on the assessment of the submitted modification and the REPowerEU chapter, the French 
modified  plan  receives  an  A-rating  on  all  criteria  (including  the  two  additional  criteria  for  the 
REPowerEU chapter), except for costing, where the plan receives a B-rating (unchanged from the 
assessment of the initial plan). 

(1) 
Balanced 
Response 

(2) 
CSRs 

(3) 
Growth, 
jobs… 

(4) 
DNSH 

(5) 
Green 
target 

(6) 
Digital 
target 

(7) 
Lasting 
impact 

(8) 
M & T 

(9) 
Costing 

(10) 
Control 
Systems 

(11) 
Coherence 

(12) 
REPowerEU 

(13) 
Cross-
border  

A 

A 

A 

A 

A 

A 

A 

A 

B 

A 

A 

A 

A 

2.  OBJECTIVES OF THE MODIFICATION OF THE PLAN  

In 2022, Russia’s invasion of Ukraine led to a surge in energy and commodity prices in France 
and the EU as a whole. The French government’s measures largely mitigated the impact of the 

2 

 
 
 
 
 
 
energy crisis on both households and businesses and France’s inflation remained below other EU 
countries.  However,  inflation  remained  high  at  +5.9%  in  2022  and  economic  growth  slowed 
sharply (2.2% vs. 6.8% in 2021) amid supply chain disruptions and high energy and commodity 
prices.  The  2023  Country  Report1  for  France  identified  challenges  related  to  inequalities  in 
education,  industry’s  transition  towards  net  zero,  the  deployment  of  renewable  energies,  the 
extensive renovation of buildings, and skills necessary for the green transition, among others. In 
addition, France faces macroeconomic vulnerabilities, which are assessed in the In-depth Review 
2023, related to the high public debt and weak competitiveness. The implementation of the reform 
on public finance management – which entered into force in 2022 – and the new mechanism to 
conduct annual public spending evaluations are expected to help curb public expenditure and put 
public debt on a sustained downward trend. In addition, the implementation of the productivity-
enhancing investment in the RRP (to support the green and digital transitions and research) will 
be key to addressing the persisting structural competitiveness challenges. In the context of France’s 
current  challenges,  the  proposed  revision  of  its  RRP  is  twofold:  including  a  new  REPowerEU 
chapter to the original plan and modifying existing measures in line with the provisions of the RRF 
Regulation.  

The French modified RRP adds a new REPowerEU chapter pursuant to Article 21c of the RRF 
Regulation. It includes three new reforms and three new investments (fossil-free industry, IPCEI 
hydrogen and the energy renovation of public buildings) to deliver on the REPowerEU objectives, 
as well as the upscale of one existing measure related to the energy renovation of private buildings. 
This  chapter  will  further  France’s  green  transition  and  help  address  the  current  challenges,  in 
particular  those  identified  in  the  ‘energy’  recommendation  addressed  to  France  in  2022  in  the 
framework of the European Semester. 

Pursuant  to  Article  18(2)  of  the  RRF  Regulation,  France  requested  modifications  due  to  the 
downward revision of its maximum financial contribution, from EUR 39.37 billion to EUR 37.45 
billion. The revision is part of the June 2022 update to the calculation of the maximum financial 
contribution and reflects France’s comparatively better economic outcome in 2020 and 2021 than 
initially  foreseen.  Therefore,  several  investments  have  been  removed  or  downsized  and  these 
adjustments amount to a total of EUR 1 912 million.  

Pursuant to Article 21(1) of the RRF Regulation, France requested to modify existing measures of 
the plan considering that they were no longer achievable based on objective circumstances. These 
include the need to factor in the high inflation experienced in 2022, supply chain disruptions as 
well  as  the  extended  duration  of  the  COVID-19  crisis.  This  both  entails  a  modification  in  the 
format  or  implementation  timeline  of  seven  measures.  In  addition,  France  proposed  to  modify 
seven measures because of unexpected legal or technical difficulties as well as five measures in 
order to implement better alternatives to achieve or increase their original ambition. 

1 SWD(2023) 610 final 

3 

 
 
 
 
 
 
                                                           
 
The main elements of the amended RRP and REPowerEU chapter are listed below: 

Component 1 (Buildings renovation)  

France proposes to modify two reforms on the basis of Article 21 of the RRF Regulation. First, 
the reform concerning housing policy (C1.R1) has been modified to reflect France’s new approach 
regarding public support to affordable housing supply. This led to a change in the description of 
the  measure  and  the  milestone  (M1-2).  Second,  the  milestone  related  to  the  reform  addressing 
thermal regulation of new buildings (C1.R2) has been split into two milestones to reflect the later 
entry into force of the regulation for some specific tertiary buildings (M1-3 split into M1-3a and 
M1-3b), following the consultation process with the stakeholders. This also led to a change in the 
description  of  the  measure.  In  addition,  France  proposes  to  adapt  the  timeline  of  the  related 
investment  regarding  energy  renovation  and  major  rehabilitation  of  social  housing  (C1.I2):  the 
start and end dates of renovation operations (in the description of the measure) have been aligned 
with the implementation date of a technical platform managing grant allocation, and with legal and 
regulatory requirements of the ‘construction and housing code’. 

Component 2 (Ecology and biodiversity)  

In accordance with Article 18(2) of the RRF Regulation, France proposes to reduce the investment 
on securing water network (C2.I6) by EUR 20 million and to adapt the term ‘sewage sludge’ to 
‘dry sludge’. Other modifications have been introduced under Article 21 of the RRF Regulation 
for the following measures: for the Climate and Resilience Law (C2.R1), milestone 2-2 aiming at 
the entry into force of a decree on low emission zones is no longer relevant, since the setting up of 
such zones is directly applicable in the already adopted Law (M2-1); therefore, the decree on low 
emission zones becomes obsolete and is replaced by a target (T2-2) on the number of cities that 
will finalise the regulatory studies needed to implement such zones, in order to allow the tracking 
of progress on implementing the reform. This led to a change in the description of the measure. 
Concerning the decrees implementing the Law on circular economy (C2.R2), two out of three have 
been adopted and published in the Official Journal (O.J.), but the application of some provisions 
on recycling give more time to the industry to invest in new equipment, which needs to amend the 
description of the measure, and postpone the milestone by three  years, as the formal entry into 
force of those decrees is postponed (namely M2-3, with the introduction of another milestone M2-
3a ). Finally, for the measure related to the prevention of seismic risks in the DOM (C2.I5), some 
works will not be achievable in the original timeframe and therefore the description of the measure 
needs to be adapted to current circumstances, without impacting the ambition of the target to be 
achieved.   

Component 3 (Infrastructure and green mobility)  

In  accordance  with  Article  18(2)  of  the  RRF  Regulation,  France  proposes  to  remove  the  sub-
measure supporting the purchase of clean heavy-duty vehicles (estimated cost of EUR 100 million) 
under measure C3.I2 ‘Support to demand for clean vehicles (automobile plan)’. 

An  additional  two  modifications  under  component  3  are  based  on  Article  21  of  the  RRF 
Regulation. The first postpones the deadline of target 3-30 (new electrical connections on docks) 

4 

 
 
 
 
 
 
for measure C3.I6 ‘Greening of harbours’ due to an increase in the cost of components and raw 
materials,  causing  delays  in  supply  and  difficulties  with  providers.  The  second  updates  the 
description of the measure C3.I5 ‘Greening of the State car fleet’ to reflect the final number of 
vehicles purchased (without changing the associated target and costs). 

 Component 4 (Green energies and technologies)  

France proposes to scale down the investment concerning the first sub-measure for support to the 
aeronautics  sector  (C4.I3)  by  EUR  126  million  and  to  adjust  its  targets  (T4-10  and  T4-12) 
accordingly based on Article 18(2)  of the RRF Regulation. Furthermore, the description of the 
selection procedure has been clarified. 

In addition, France proposes to entirely remove the sub-measure related to the launch of a State 
aid support scheme for the production of renewable and low-carbon hydrogen (M4-5, T4-6, T4-
7),  worth  EUR 650  million  based  on  Article  18(2)  (C4.I2).  The  other  sub-measure  of  this 
investment (M4-8, T4-9) related to the IPCEI remains unchanged.  

Component 5 (Financing of businesses)   

In accordance with Article 18(2) of the RRF Regulation, France proposes to remove from the plan 
the investment concerning the ‘contribution to regional investment funds’ (C5.I1), leading to the 
removal of two targets (T5-3 and T5-4) and to a reduction of EUR 250 million.  

Component 6 (Technological sovereignty and resilience)  

The target (6-4) concerning the preservation of employment in private R&D (C6.I1) is decreased 
and the cost proportionally adapted, on the basis of Article 18(2) of the RRF Regulation.  

In accordance with Article 21(1) of the RRF Regulation, ‘BpiFrance’s support scheme is taken out 
of  the  list  of  PIA  measures  supporting  innovative  businesses  (C6.I3)  due  to  the  administrative 
constraints induced by its specific granting procedures. The measure’s initial cost is left unchanged 
as this withdrawal is compensated by the scale-up of the two other support schemes within the 
same measure. 

Component 7 (Digitalisation of State, territories, enterprises, Culture)   

The  modified  plan  includes,  following  the  changes  in  application  of  Article  21  of  the  RRF 
Regulation, a new milestone (7-14a) on the assessment of the quality of public spending (C7.R5) 
to increase the ambition of the underlying measure by improving its monitoring. The original RRP 
included a milestone (7-14) on the annual assessment of the measures taken to improve the quality 
of public spending implemented in the 2023 budgetary law, but its timing did not coincide with 
the new spending review framework which  entered into force in  January  2023 and  whose first 
results will only start to be factored in the 2024 budget law. This new milestone, due by 2025, will 
provide further assurance as to the effective implementation of this new mechanism to ensure that, 
as of 2023, regular public expenditure evaluations are duly conducted and their results factored 
into financial laws, so that they translate into expenditure savings and efficiency gains. 

5 

 
 
 
 
 
 
The investment in Culture (C7.I11) is deeply revamped with three sub-measures (press, book, and 
cinema  sector  plans)  and  targets  (7-32,  7-33,  7-34)  removed  under  Article  18(2)  of  the  RRF 
Regulation  for  a total  of EUR 309.5 million.  Two additional sub-measures  are  adjusted  on the 
basis  of  Article  21  of  the  RRF  Regulation  to  reflect  delays  in  renovation  works  linked  to 
administrative  constraints  (T7-30)  and  a  reduction  in  the  number  of  renovation  projects  of 
cathedrals linked to rising construction costs (T7-28). 

The measure on the Digital upgrade of companies (C7.I1) is revised under Article 18(2)  of the 
RRF Regulation: the target 7-16 is decreased and costs adjusted downward by EUR 10.2 million 
to reduce the level of ambition and reflect implementation delays. 

In accordance with Article 21(1) of the RRF Regulation, the description of the target (7-21) linked 
to the C7.I4 (Digital upgrade of the State Digital ID) is adjusted due to the technical impossibility 
to check the private usage of an application as captured by the previous indicator. The description 
of  Investment  C7.I8  (Administrative  continuity:  digital  upgrading  of  the  administration  of  the 
education system) is adjusted to reflect the implementation of an alternative more conducive to 
reaching  the  policy  objective  of  the  measure,  in  particular  to  address  the  need  for  secure  data 
exchange with private companies working with the ministry of education. 

Component 8 (Job protection, youth, disability, vocational training) 

France proposes to downsize and modify five measures on the basis of Article 18(2) of the RRF 
Regulation, concerning five targets for a total of EUR 326.3 million.  

Target 8-9 is reduced from 90 000 beneficiaries to 9 000 and investment C8.I2 (Reskilling through 
dual  training  programmes  ‘Pro  A’)  is  downsized  by  an  amount  less  than  proportional  to  the 
reduction in the target because the training programmes had to be adapted to labour market needs 
and their real costs are much higher than anticipated. More than one third of the dual trainings are 
in the health care sector, facing severe labour and skills shortages, and their cost is especially high.  

Target 8-13 is reduced from 2 500 jobs created to 2 000 and investment C8.I6 (Creation of jobs 
for youth in the sports sector) is downsized by an amount less than proportional to the reduction 
in the target because the aid was increased by EUR 2 000 in 2023, to make it more attractive in 
comparison to alternative schemes. 

Target 8-16 is reduced from 100 000 beneficiaries to 36 000 and investment C8.I9 (State-backed 
guarantees for student loans) is downsized by an amount more than proportional to the reduction 
in  the  target,  in  order  to  reflect  adjustments  made  to  the  measure  to  address  its  lack  of 
attractiveness. The maximum amount that can be borrowed has been increased from EUR 15 000 
to 20 000 euros to make loans more attractive for students compared to loans that can be offered 
by banks.  

The description of investment C8.I10 (Personalised pathways for youth aged 16-18 who do not 
observe training requirements) is changed without reducing the ambition because the overnight 
stays foreseen in the programme could not take place due to the COVID-19 crisis.  

6 

 
 
 
 
 
Target  8-25  is  reduced  from  15 000  to  11 000  training  centres  having  implemented  digitalised 
training  and  is  postponed  until  2025.  France  also  proposes  to  adjust  and  downsize  related 
investment  C8.I18  (Digital  educational  content:  platforms  for  digital  content)  in  line  with 
feasibility studies suggesting to re-focus the investment on only two of the four envisaged strands 
of activity. The name of the measure is also modified to reflect those adjustments.  

France proposes to modify three measures on the basis of Article 21(1) of the RRF Regulation.   
First,  the  description  of  investment  C8.I6  (Creation  of  jobs  for  youth  in  the  sports  sector)  is 
modified to take into account that the age limit of the support scheme has been increased from 25 
to 30, because associations using the scheme are de facto looking for people who are typically 
older than 25, who have completed their studies. Second, the achievement of target 8-14, relating 
to  investment  C8.I7  (Boarding  schools  for  excellence)  is  postponed  by  15  months  because 
construction and renovation works were interrupted during the COVID-19 crisis and delayed by 
disruptions on supply chains. The description of the investment is modified accordingly.  Third, 
the reference to the jobseekers ‘starter pack’ is deleted from the description of investment C8.I22 
(Increase  of  resources  for  Pôle  Emploi)  because  the  COVID-19  crisis  prevented  its 
implementation.  

Component 9 (Research, Health and Dependence, Territorial cohesion) 

Two measures (C9.I2 Modernization and restructuring of hospitals and healthcare provision and 
C9.I3 Renovation of medico-social establishments) are modified on the basis of Article 21(1) of 
the RRF Regulation  (delays in  construction works and increase  in  construction  costs) and  as a 
consequence two targets are adapted: the intermediary target 9-8 ‘Number of investment projects 
in the construction, energy renovation and modernisation of medical establishments’ is downsized 
from 20 to 10 by the end of 2024, and the baseline of the final target (T9-9) is hence modified from 
20 to 10 as well. But the ambition of the final target 9-9 of 30 investment projects by mid-2026 
remains for investment C9.I2 (Modernisation and restructuring of hospitals and care supply)). For 
investment C9.I3 (Renovation of medical and social establishment, target 9-12 is downsized from 
36 000 residential units built or renovated to 32 200 due to inflation and supply chain disruption. 

Component 10 (REPowerEU) 

Under  the  REPowerEU  chapter  and  based  on  Article  21c  of  the  RRF  Regulation,  France  has 
proposed measures amounting to EUR 2.8 bn in total costs for three new investments, one upscaled 
measure and three new reforms.  

New measures:  

  Fossil-free industry (C10.I1) 

EUR  294  million  of  the  REPowerEU  chapter  finances  the  decarbonisation  of  industry.  The 
measure  aims  to  support  investments  in  decarbonising  industrial  heat,  energy  efficiency  and 
process  change  investments  in  industry  to  reduce  fossil  energy  consumption  and  therefore 
greenhouse gas emissions. The scheme is implemented by ADEME (Agency for the Ecological 
Transition), which acts as an operator on behalf of the General Secretariat for Investment (SGPI). 

7 

 
 
 
 
 
The measure contributes to the objectives described under Article 21c(3), points (b) and (d) of the 
RRF Regulation. The measure comprises three categories: 

1)  production  of  biomass  heat:  investment  projects  consisting  of  the  installation  of  a  new 
biomass  boiler  replacing  a  fossil  fuelled  unit.  The  biomass  solution  shall  meet  the 
sustainability and greenhouse gas emission savings criteria set out in Articles 29-31 and 
the rules on food and feed-based biofuels set out in Article 26 of the Renewable Energy 
Directive 2018/2001/EU (REDII), and related implementing and delegated acts. 

2)  large-scale  projects  (over  EUR  3  million)  on  energy  efficiency  and  improvement  of 
industrial processes: projects to reduce greenhouse gas emissions and energy consumption 
through single or combined investments such as investments in energy efficiency, waste 
heat recovery, changes in production processes, electrification.  

3)  small decarbonisation projects mainly carried out by SMEs: projects covering similar types 
of investments to sub-measure 2, but for smaller projects (less than EUR 3 million). 

 

IPCEI Hydrogen (C10.I2) 

The aim of the investment is to develop the industrial sector from an ecological, technological and 
economic point of view. Its ambition is to reduce emissions while enabling industries to better 
store energy and promoting the emergence of renewable energy. The hydrogen envelope of the 
‘France 2030’ plan allows for the financing of IPCEI Hydrogen projects. The REPowerEU chapter 
finances  four  IPCEI  projects  on  hydrogen  for  a  total  of  EUR  651  million.  Project  Genvia 
contributes  to  the  objective  described  under  Article  21c(3),  point  (b)  of  the  RRF  Regulation. 
Genvia is a research, development and innovation (RDI) project of a solid oxide electrolyser cell 
(SOEC)  which  would  significantly  improve  performance  as  compared  to  current  electrolyser 
technology. The remaining three projects, that is Hyvia, Faurecia and Arkema, contribute to the 
objective described under Article 21c(3), point (e) of the RRF Regulation. Hyvia is a development 
and  industrialisation  project  of  light  commercial  hydrogen  vehicles  (Renault  models  Kangoo, 
Master  and  Traffic)  and  development  and  industrialisation  of  four  generations  of  fuel  cells. 
Faurecia works on the development and industrialisation of two generations of carbon fibre light 
gaseous hydrogen tanks and one generation of reservoirs to store hydrogen in cryogenic form. The 
project Arkema is expected to develop advanced materials for mobility, such as new generation 
polymeric membranes for fuel cells. 

  Energy renovation of public buildings belonging to the state (C10.I3) 

EUR  100  million  of  the  REPowerEU  chapter  are  to  support  the  energy  renovation  of  public 
buildings  belonging  to  the  state,  with  the  objective  of  reducing  energy  consumption  of  such 
buildings in the very short term, i.e., for the next winter 2023-2024. The aim of this new investment 
is to reduce energy consumption as well as the dependence on fossil fuels of the state’s building 
stock, by selecting the most efficient projects under two calls for projects (‘Resilience 1 and 2’).  

This  measure  contributes  to  the  objective  described  in  article  21c,(3),  point  (b)  of  the  RFF 
Regulation.  

8 

 
 
 
 
 
  
Upscaled measure: 

 

 Energy renovation of private housing, including energy sieves (C10.I4) 

France adds EUR 1.8 billion for the years 2024 and 2025 to the measure for the energy renovation 
of  private  housing,  including  energy  sieves  (C1.I1),  known  as  ‘MaPrimeRénov’.  This  support-
scheme is currently being revised in order to strengthen the dynamics of decarbonisation of the 
heating  systems  and  accelerate  the  deployment  of  larger-scale  renovations  and  the  gradual 
elimination of thermal sieves. This measure contributes to the objectives described under article 
21c(3), points (b) and (c) of the RRF Regulation. 

New reforms:  

  The law on the acceleration of renewable energy production (C10.R1) 

The law aims at simplifying permitting procedures and speeding up the planification of renewable 
energy projects and contributes to objective 21c(3)(b), (c) and (e) and (f). The Law, which was 
adopted  on  March  10,  2023,  aims  at  solving  the  main  bottlenecks  that  currently  hinder  the 
deployment of renewable energy: it will in particular facilitate the granting of permits and define 
‘acceleration zones’ conducive to the rapid development of projects, in particular for wind power, 
solar (including thermal, photovoltaic and agrivoltaic) and methanization. 

  The General Secretariat for Ecological Planning (C10.R2) 

The  General  Secretariat  for  Ecological  Planning,  set  up  in  July  2022,  is  placed  under  the 
responsibility of the Prime Minister. It will coordinate national strategies in the field of ecological 
transition  (energy,  climate,  biodiversity,  circular  economy,  etc),  mobilise  Ministries  as  well  as 
stakeholders  and  measure  the  performance  of  actions  taken  in  those  fields  and  contributes  to 
objective 21.3(b), (c) (d), (e) and (f). 

  Energy sobriety plan (C10.R3) 

Adopted in October 2022, the ‘energy sobriety plan’ aims at reducing energy consumption by 10% 
by 2024 in comparison to winter 2018-2019 in all sectors and contributes to objective 21.3 (b), (c) 
and (d). It includes 15 flagship initiatives covering a range of sectors (housing, transport, industry, 
etc.) and targeting public and private actors. 

Table 1: New and modified components and associated costs. 

Component 
Buildings renovation 
Ecology and biodiversity 
Infrastructure and green mobility 
Green energies and technologies 
Financing of businesses 

Status 
Modified 
Modified 
Modified 
Modified 
Modified 

Costs (EUR million) 
5 825 
2 066 
6 930 
4 519 
0 

9 

 
 
 
 
 
 
 
Modified 
Technological sovereignty and resilience 
Digitalisation of State, territories, enterprises, Culture  Modified 
Job protection, youth, disability, vocational training  Modified 
Modified 
Research,  Health  and  Dependence,  Territorial 
cohesion 
REPowerEU 

New 

3 095 
1 781 
7 152 
7 671 

 2 826 

Other elements not covered by assessment criteria 

The  description  of  aspects  related  to  administrative  organisation,  gender  equality  and  equal 
opportunities for all, consultation process, security self-assessment for digital investments and the 
planned communication strategy as reflected in the previous Staff Working Document (2021) 173 
final remains relevant. 

State aid and competition rules fully apply to the measures funded by the Recovery and Resilience 
Facility (RRF). Union funds channelled through the authorities of Member States, like the RRF 
funds, become state resources and can constitute State aid. When this is the case and State aid is 
present, these measures must be notified and approved by the Commission before Member States 
can grant the aid, unless those measures are covered by an existing aid scheme or comply with the 
applicable conditions of a block exemption regulation, in particular the General Block Exemption 
Regulation  (GBER)  declaring  certain  categories  of  aid  compatible  with  the  internal  market  in 
application of Articles 107 and 108 TFEU2. When State aid is present and it requires notification, 
it is the duty of the Member State to notify State aid measures to the Commission before granting 
them, in compliance with Article 108(3) TFEU. In this respect, the State aid analysis carried out 
by France in the RRP cannot be deemed a State aid notification. In as far as France considers that 
a  specific  measure  contained  in  the  RRP  entails  de  minimis  aid  or  aid  exempted  from  the 
notification  requirement,  it  is  the  responsibility  of  France  to  ensure  full  compliance  with  the 
applicable rules. 

3.  SUMMARY OF THE ASSESSMENT OF THE PLAN 

3.1.  Comprehensive  and  adequately  balanced  response  to  the  economic  and  social 

situation 

Table 2: Coverage of the six pillars of the Facility by the new or modified components 

2 Annex to the Communication to the Commission of 9 March 2023 on the Approval of the content of a draft for a 
Commission Regulation amending Regulation (EU) No 651/2014 declaring certain categories of aid compatible with 
the internal market in application  of Articles 107 and 108 of  the Treaty and Regulation (EU)  2022/2473 declaring 
certain categories of aid to undertakings active in the production, processing and marketing of fishery and aquaculture 
products  compatible  with  the  internal  market  in  application  of  Articles  107  and  108  of  the  Treaty;  available  at: 
https://competition-policy.ec.europa.eu/system/files/2023-
03/GBER_amendment_2023_EC_communication_annex_0.pdf 

10 

 
 
 
 
 
 
                                                           
 
Green 
transition 

Digital 
transform
ation 

Smart, 
sustainable 
& inclusive 
growth 

Social and 
territorial 
cohesion 

Health, 
and 
economic, 
social and 
institution
al 
resilience 

Policies 
for the 
next 
generati
on 

● 
● 

● 

● 

● 

○ 

● 

● 

● 
● 

● 

● 

● 

● 

● 

○ 

● 

● 

● 

● 

● 

● 

● 

● 
● 

● 

○ 

○ 

○ 

○ 

● 

● 

● 

● 

● 

○ 

● 

○ 

● 

○ 

○ 

● 

● 

C1. Buildings renovation 
C2. Ecology and 
biodiversity 
C3. Infrastructure and 
green mobility 
C4. Green energies and 
technologies 
C5. Financing of 
businesses 
C6. Technological 
sovereignty and resilience 
C7. Digitalisation of State, 
territories, enterprises, 
Culture 
C8. Job protection, youth, 
disability, vocational 
training 
C.9 Research, Health and 
Dependence, Territorial 
cohesion 
REPowerEU 

○ 
Key: “●” investments and reforms of the component significantly contribute to the pillar; “○” the component 
partially contributes to the pillar 

● 

● 

● 

The modified RRP including the REPowerEU chapter covers in a comprehensive manner the six 
pillars structuring the scope of application of the Facility (Article 3): (i) green transition, (ii) digital 
transformation, (iii) smart, sustainable and inclusive growth, (iv) social and territorial cohesion, 
(v)  health  and  economic,  social  and  institutional  resilience,  and  (vi)  policies  for  the  next 
generation. The coverage of the French plan’s components toward the six pillars is summarised in 
Table 2. All pillars are covered by at least one component, while a component may contribute to 
several pillars. 

The range of actions of the modified RRP including the REPowerEU chapter corresponds to the 
objectives of the Facility with an appropriate overall balance between pillars. Allocations to the 
green and digital transitions (of  respectively 48.9% and 21.6%) exceed the requirements of the 
RRF Regulation (respectively 37% and 20%), and the modified plan therefore contributes to these 
pillars significantly.  

11 

 
 
 
 
 
 
 
  
  
  
 
 
 
 
 
 
 
 
 
 
Green transition 

France’s modified plan - including the REPowerEU chapter - focuses significantly on supporting 
the green transition, with now five components (1 to 4 and 10) dedicated to this pillar, (see also 
section 3.5) 

The REPowerEU chapter - Component 10 - presents reforms and investments amounting to EUR 
2.8  billion  that  France  intends  to  deploy  in  order  to  strengthen  its  independence  and  energy 
efficiency. This chapter will reinforce the investments contained in the initial plan for the energy 
renovation of private housing (MaPrimeRénov). In addition, the REPowerEU chapter also contains 
three  new  investments  aimed  at  decarbonising  the  industry,  fostering  green  R&I  and  boosting 
energy  efficiency  in  buildings:  the  Hydrogen  IPCEI,  the  fossil-free  industry  measure,  and  the 
measure related to the energy renovation of public buildings belonging to the state.    

The  removal  of  the  sub-measure  ‘support  to  the  production  of  decarbonised  hydrogen’  (sub-
measure  of  C4.I2)  from  the  initial  plan  is  counterbalanced  by  the  addition  of  projects  in  the 
hydrogen sector under the REPowerEU chapter. Similarly, measures addressing the REPowerEU 
objectives in the transport sector have been added to the REPowerEU chapter, thus compensating 
for the removal of the sub-measure supporting the purchase of clean heavy vehicles (C3.I2) from 
the initial plan. These projects will contribute indirectly to fostering the deployment of renewable 
energies by increasing demand, hence contributing to the green transition. It must be noted that 
while the modification of the plan reduces the ambition of certain measures regarding the green 
transition, with the inclusion of the REPowerEU chapter, France’s modified plan bolsters its green 
ambition and responds to REPowerEU objectives (see also 3.5 ‘Green Transition’).  

Digital transformation 

The  digital  transformation  still  represents  a  significant  part  of  France’s  modified  plan  and  the 
ambition  has  not  been  reduced  compared  to  the  initial  plan.  The  modified  RRP  continues  to 
significantly contribute to the digital transition of the businesses and the administration, to improve 
the country’s connectivity, and to the development of digital skills of the workforce, the pupils, 
and the population, with an expected lasting impact. The main impact of the revision concerns 
measures  from  component  8  with  a  decrease  in  the  contribution  to  the  digital  target  of 
EUR 205 million. However, the digital contribution of the modified plan remains similar to the 
one of the initial plan as the decreases brought by the revision are proportional to the decrease in 
allocation.  The  digital  challenges  identified  for  France  -  such  as  connectivity,  skills,  and 
digitalisation of businesses - are still covered by the modified plan (see also section 3.6). 

Smart, sustainable and inclusive growth 

Modifications of three measure (C4.I3 - Support plan to the aeronautics sector; C5.I1- Contribution 
to regional investment funds and C6.I1- Preserving R&D employment) have resulted in a slight 
reduction of the contribution of the modified plan to this pillar. 

12 

 
 
 
 
 
Despite these changes, the modified plan still includes several measures spread across different 
components aiming to strengthen France’s competitiveness and productivity, as well as to improve 
research, development and innovation. Investments and reforms in green, research, innovation and 
digitalisation  projects,  are  set  to  bring  about  an  immediate  positive  effect  on  GDP  growth. 
Moreover, beyond their short-term effects on growth derived from higher investment expenditure, 
the measures in the plan in the areas of digitalisation and research and innovation are expected to 
entail positive effects on total factor productivity and on labour productivity and thus on overall 
potential growth. 

Social and territorial cohesion 

Despite a number of changes affecting component 8 (job protection, youth, disability, vocational 
training), the expected contribution of the modified plan to social and territorial cohesion remains 
of the same magnitude as in the initial plan. The reform to strengthen territorial cohesion is still 
included in component 7. Territorial cohesion is supported by the entry into force of Law ‘3Ds’ to 
enhance  the  efficiency  of  public  services  by  promoting  differentiation,  decentralisation, 
deconcentration  and  simplification.  Together  with  the  constitutional  law  on  the  ‘right  to 
differentiation’, these reforms allow for a transfer of powers from the state to local communities. 
Component 8 is still dedicated to social and territorial cohesion through investments earmarked to 
fostering worker mobility on the labour market through access to training, in line with current and 
future skills needs, as well as to supporting the labour market integration of the youth and persons 
with disabilities.  

Health, and economic, social and institutional resilience  

Measures of the initial plan contributing to health have not been altered or have been amended to 
a marginal extent. In particular, the measure C9.I3 Renovation of medico-social establishments 
has been modified on the basis of  Article 21(1)  of the RRF Regulation (delays in  construction 
works  and  raise  in  construction  costs).  Concerning  institutional  resilience,  the  revised  plan 
includes a new milestone (7-14b) on the assessment of the quality of public spending (C7.R5). 
This new milestone, due by 2025, will provide further assurance as to the effective implementation 
of their new mechanism to ensure that, as of 2023, regular public expenditure evaluations are duly 
conducted  and  their  results  factored  into  financial  laws,  so  that  they  translate  into  expenditure 
savings and efficiency gains.   

Policies for the next generation 

The  sixth  pillar  remains  covered  by  the  measures  and  investments  proposed  mainly  under 
component  8.  Modifications  of  three  measures  (C8.I6:  Creation  of  jobs  for  youth  in  the  sports 
sector, C8.I9: State-backed guarantees for student loans and C8.I10: Personalised pathways for 
NEET  youth  aged  16-18)  have  slightly  decreased  the  contribution  of  the  modified  plan  to  this 
pillar. 

Youth employment is and remains one of the priorities of the plan, with a large number of measures 
intended to facilitate  young people’s integration into the labour market (notably through hiring 

13 

 
 
 
 
 
subsidies for apprenticeships and professionalisation contracts and recruitment of young people 
under 26 years old) and to provide training towards future-oriented sectors and to help those who 
are far from the labour market by offering reinforced and personalised support.   

Conclusion 

Overall,  the  measures  proposed  in  France’s  modified  plan  pursue  the  general  objective  of  the 
Facility by promoting the Union’s economic, social and territorial cohesion, structured in the six 
pillars of Article 3 of the RRF Regulation. 

Taking into consideration all reforms and investments envisaged by France, its modified RRP – 
including its REPowerEU chapter – is expected to represent to a large extent a comprehensive and 
adequately  balanced  response  to  the  economic  and  social  situation,  thereby  contributing 
appropriately to all six pillars referred to in Article 3 of the RRF Regulation, taking the specific 
challenges and the financial allocation of France into account. This would warrant a rating of A 
under the assessment criterion 2.1 in Annex V to the RRF Regulation. 

3.2. Link with country-specific recommendations and the European Semester  

The modified  plan continues to  effectively  address  all or  a significant subset  of the challenges 
identified in the relevant country-specific recommendations (CSRs). As compared to the initial 
plan’s assessment, the challenge ‘Firms access to finance’ (CSR 2020.3.1) was considered fully 
implemented in the latest 2023 CSR assessment3 and thus not relevant anymore. France also made 
substantial progress on the following challenges (notably through the implementation of measures 
included  in  the  RRP),  that  renders  them  no  longer  relevant  as  well  for  the  assessment  of  the 
modified plan: 

Improve connectivity across the territory (CSRs 2019.3.3, 2020.3.7); 

 
  Resilience of the health system (CSR 2020.1.2);  
  Decrease emissions in the transport sector (CSR 2020.3.4); 
 
Invest and simplify R&D (CSRs 2019.3.1, 2020.3.8); 
  Complex pension system (CSRs 2019.1.4, 2022.1.4); 
  Simplify the tax system and reduce taxes on production (CSRs 2019.4.1, 2020.4.3) 
  Mitigate the employment  and social impact  of the crisis,  including by promoting skills 

(CSRs 2020.2.1 and 2020.2.2); 

  Front-load mature public investment projects and promote private investment to foster the 

economic recovery (CSRs 2020.3.2, 2020.3.3); 

  Expand public investment for the green and digital transitions (CSR 2022.1.2). 

3 COM(2023) 610 final 

14 

 
 
 
 
 
 
                                                           
 
However,  the  finalisation  of  the  investments  and  reforms  of  the  revised  RRP  (including  those 
present in the REPowerEU chapter), could help further address these challenges. 

As  regards  the  main  changes  brought  by  the  modification  of  the  plan,  the  removal  of  the  sub-
measure  ‘support  to  the  production  of  decarbonised  hydrogen’  (sub-measure  of  C4.I2)  is 
counterbalanced by additional projects in the hydrogen sector under the REPowerEU chapter. In 
a similar manner, the removal of the sub-measure supporting the purchase of clean heavy vehicles 
(C3.I2) which contributed to the decarbonisation of the transport sector, is now addressed by the 
hydrogen project Hyvia in the REPowerEU chapter. These projects will contribute indirectly to 
fostering the deployment of renewable energies by increasing demand, hence contributing to CSRs 
2019.3.2  and  2020.3.5.  In  the  initial  plan’s  assessment,  the  measure  ‘contribution  to  regional 
investment  funds’  (C5.I1),  which  is  removed  in  the  modified  plan,  was  considered  relevant  to 
achieve CSR 2020.3.1. This challenge is currently assessed as ‘fully implemented’ and thus not 
considered as relevant for the revised RRP assessment. The sub-measure ‘bonus for clean heavy 
vehicles’ (C3.I2), which is  removed  in the modified  plan, and the support plan for  aeronautics 
(C4.I3), which is reduced, contributed to the challenge ‘Decrease emissions in the transport sector’ 
(CSR  2020.3.4).  This  challenge  is  considered  no  longer  relevant  for  this  assessment  as  the 
corresponding  country-specific  recommendation  (CSR 2020.3.4)  is  currently  assessed  at 
‘substantial  progress’.  Despite  reductions  of  some  measures  (e.g.  C8.I2,  C8.I6,  C8.I9,  C8.I10, 
C8.I18),  the  overall  ambition  of  the  component  8  is  preserved  and  it  is  still  considered  as 
addressing challenges of high unemployment (CSRs 2019.2, 2020.2), labour market integration 
(CSR  2019.2.1,  2020.2.3),  skills  mismatches  (2019.2.2,  2020.2.2),  and  education  of  vulnerable 
groups (2019.2.1). The rest of the revision does not impact significantly the coverage of the CSRs 
by the plan. 

The addition of the REPowerEU chapter will contribute to reinforce the ambition of the plan as 
regards  the  relevant  CSRs  related  to  the  energy  transition.  Notably,  efforts  to  improve  energy 
efficiency and reduce fossil fuel dependence (CSRs 2019.3.2, 2020.3.5, 2022.3.1, 2022.3.3) will 
be considerably increased with the renovation measures (the scale-up measure on the renovation 
of private housing, and the new measure concerning the renovation of state-owned buildings) as 
well as the decarbonisation of industry (measure ‘fossil-free industry’). The IPCEI on hydrogen 
will  also  contribute  to  developing  and  increasing  the  demand  for  renewable  energy  (CSRs 
2019.3.2,  2020.3.5,  2022.3.2).  It  will  also  contribute  to  the  decarbonisation  of  transport  (CSR 
2020.3.4). The law on the acceleration of renewable energy production will contribute to foster the 
deployment  of  renewable  energies  and  improve  the  legal  framework,  as  mentioned  in  CSR 
2022.3.2.  

Taking into consideration the reforms and investments envisaged by France, its modified recovery 
and resilience plan is expected to contribute to effectively addressing all or a significant subset of 
challenges  identified  in  the  country-specific  recommendations,  or  challenges  in  other  relevant 
documents officially adopted by the Commission under the European Semester, and the modified 
recovery and resilience plan represents an adequate response to the economic and social situation 
of France. This would warrant a rating of A under the assessment criterion 2.2 in Annex V of the 
RRF Regulation 

15 

 
 
 
 
 
3.3. Growth  potential,  job  creation,  economic,  institutional  and  social  resilience, 
European  Pillar  of  Social  Rights,  mitigating  the  impact  of  the  crisis,  and  social 
territorial cohesion and convergence  

The nature and extent of the proposed modifications to the French RRP, which consist mostly in 
reducing  some  measures  in  line  with  the  revised  financial  envelope  while  retaining  the  overall 
ambition of the initial plan, do not have an impact on the previous assessment (Rating of A) of the 
plan’s  impact  on  the  growth  potential,  job  creation,  and  economic,  social  and  institutional 
resilience of the Member State, on contributing to the implementation of the European Pillar of 
Social  Rights,  including  through  the  promotion  of  policies  for  children  and  youth,  and  on 
mitigating  the  economic  and  social  impact  of  the  COVID-19  crisis,  thereby  enhancing  the 
economic, social and territorial cohesion and convergence within the Union, as reflected in the 
previous assessment (rating of A) of the plan and detailed in the Staff Working Document (2021) 
173 under criterion 2.3 of Annex V to the RRF Regulation. 

3.4. The principle of ‘do no significant harm’  

The modifications of the measures included in the RRP do not have an impact on the assessment 
of the principle of ‘do no significant harm’ which remains identical. 

France’s REPowerEU chapter includes a systematic assessment of each measure against the 
principle of ‘do no significant harm’ (DNSH), for each of the six environmental objectives 
within the meaning of Article 17 of the Taxonomy Regulation. While France’s assessment often 
stresses the environmental and climate benefits of measures in this assessment, it also provides 
information  allowing  to  assess  that  measures  will  comply  with  the  ‘do  no  significant  harm’ 
principle – for instance by providing reassurance that the implementation of the existing EU and 
French legislative framework will prevent any significant harm, or by indicating that any measure 
that could have had a significant impact has been carved out from funding under the Recovery and 
Resilience Facility. 

For some measures where calls for projects or calls for interest are necessary to select specific 
projects,  ensuring  adherence  with  the  ‘do  no  significant  harm’  principle  will  require 
introducing specific safeguards in the milestones associated with each measure, to monitor 
the implementation of the measures. This is the case for instance for the ‘fossil-free industry’ 
measure (C10.I1). 

Specific  safeguards  have  also  been  introduced  for  measures  included  in  the  Plan  that  could 
potentially  lead  to  investments  being  made  in  installations  falling  within  the  scope  of  the  EU 
Emission Trading System (ETS). This is the case in particular for the measure ‘fossil-free industry’ 
(C10.I1).  To  comply  with  the  ‘do  no  significant  harm’  principle,  the  selected  projects  need  to 
ensure  that  greenhouse  gas  emissions  following  the  investment  end  up  below  the  relevant 
benchmark for free allocation relevant to the activity concerned. To that end, it has been necessary 
to reflect this requirement in the relevant provisions and milestones.  

In addition, specific requirements have been included to ensure that biomass solutions under the 
measure fossil-free industry (C10.I1) meet the sustainability and greenhouse gas emission savings 

16 

 
 
 
 
 
criteria set out in Articles 29-31 and the rules on food and feed-based biofuels set out in Article 26 
of  the  Renewable  Energy  Directive  2018/2001/EU  (REDII),  and  related  implementing  and 
delegated acts.   

Taking  into  consideration  the  assessment  of  all  the  measures  envisaged,  no  measure  for  the 
implementation of reforms and investments projects included in France’s modified RRP, including 
its REPowerEU chapter, is expected to do a significant harm to environmental objectives within 
the meaning of Article 17 of Regulation (EU) No 2020/852 (the principle of ‘do no significant 
harm’). This would warrant a rating of A under the assessment criterion 2.4  of Annex V to the 
RRF Regulation. 

3.5. Green transition 

The modifications did not impact the contribution of the plan to the green transition as well as the 
initial assessment. With the REPowerEU chapter, France responds to the REPowerEU objectives 
and increases its ambitions regarding the green transition, overall compensating for the withdrawn 
or reduced measure. The modified RRP continues to significantly contribute to the green transition, 
including  biodiversity,  as  well  as  to  the  achievement  of  the  Union  2030  climate  targets  while 
complying with the objective of EU climate neutrality by 2050.  

The measures withdrawn or reduced do not impact the overall ambition of the plan regarding the 
green transition while the REPowerEU chapter brings a significant effort to further support the 
green transition of France.  

The REPowerEU chapter is deemed ambitious as regards the green transition since all the reforms 
and investments contribute integrally to reducing the reliance on fossil fuels,  increasing energy 
efficiency and improving the regulatory framework enabling the fight against climate change. 

For the climate target, the main impact concerned the withdrawal of two sub-measures (1) Support 
scheme for renewable and low-carbon hydrogen production (sub-measure of C4.I2) and (2) Eco-
bonus for  clean heavy vehicles  (sub-measure of  C3.I2), that removed  in  total  EUR 750 million 
from the climate contribution of the French RRP. However, this deduction is nearly proportional 
to the decrease in the grant allocation. The climate contribution of only the revised part of the plan 
(components 1 to 9, without REPowerEU chapter) thus remains comparable to the one of the initial 
plan and stands at EUR 17.3 billion or 46.3% (46.0% for the original plan) of the revised RRF 
grant allocation (see Annex I).  

The climate contribution of the REPowerEU chapter is of 91.6% (EUR 2.59 billion) of the total 
estimated cost of the REPowerEU chapter of EUR 2.82 billion which is well above the 37% target 
set out in the RRF Regulation. 

In total, the whole RRP (including revised measures and the REPowerEU chapter) contributes at 
49.5% (EUR 19.94 billion) of France’s total contribution (including the REPowerEU allocation 
amount  and  the  and  transfer  from  the  Brexit  Adjustment  Reserve)  of  EUR 40.27 billion  to  the 
climate target, which is also well above the target of 37% required by the RRF Regulation. 

17 

 
 
 
 
 
Taking  into  consideration  the  assessment  of  all  the  measures  envisaged,  the  modified  RRP, 
including its REPowerEU chapter, is expected, to a large extent, to make a significant contribution 
to the green transition or to address the challenges resulting from it and ensures that at least 37% 
of its total allocation contribute to the climate target. At least 37% of the total estimated costs of 
the REPowerEU chapter contribute to the climate target. This would warrant a rating of A under 
criterion 2.5 of Annex V to the RRF Regulation 

3.6. Digital transition 

The modification of the plan did not impact its ambition towards the digital transition as well as 
the  initial  assessment.  The  modified  RRP  continues  to  significantly  contribute  to  the  digital 
transition of the businesses, the administration and to increasing the digital skills of the workforce, 
the pupils, and the population, with an expected lasting impact.  

The measures withdrawn or reduced do not impact the overall ambition of the plan regarding the 
digital transition. The main impact of the revision concerns measures from component 8 with a 
decrease  in  the  contribution  to  the  digital  target  of  EUR 205 million.  However,  the  deductions 
caused by the revision of the plan are nearly proportional to the decrease in the maximum financial 
contribution. Hence, the contribution to the digital transition of the modified RRP (excluding the 
REPowerEU  chapter)  stands  at  21.6%  (EUR 8.1 billion)  of  France’s  revised  maximum 
contribution of EUR 37.5 billion, which is above the required target of 20% set out in the RRF 
Regulation.  None  of  the  measures  included  in  the  REPowerEU  chapter  were  identified  as 
contributing to the digital transition. 

Taking  into  consideration  the  assessment  of  all  the  measures  envisaged,  the  modified  RRP  is 
expected, to a large extent, to make a significant contribution to the digital transition and ensures 
that  at  least  20%  of  its  total  allocation  (excluding  the  measures  in  the  REPowerEU  chapter) 
contribute to support digital objectives. This would warrant a rating of A under criterion 2.6 of 
Annex V to the RRF Regulation. 

3.7. Lasting impact of the plan 

The modified RRP does not reduce the ambition of the initial plan as a whole. It takes into account 
the reduced grant allocation, the prolonged impact of the COVID-19 crisis4, inflation and supply 
chain disruptions, as well as some unexpected legal or technical difficulties for the implementation 
of some measures. It also includes a new REPowerEU chapter which, in addition to the existing 
measures, is also expected to have lasting positive effects on the French economy and further boost 
its green transition. In particular, the REPowerEU measures are expected to contribute to the green 
transition by supporting France’s decarbonisation effort, energy transition and reduce its energy 
dependence. The REPowerEU measures for the decarbonisation of industry and energy renovation 

4 The prolonged impact of the COVID-19 crisis for example delayed construction works (for example for investment 
C8.I7 boarding schools for excellence) or prevented the organisation of in-person trainings (for example related to 
investment C8.I22 on the increase of Pôle Emploi). 

18 

 
 
 
 
 
                                                           
 
of private and public buildings are expected to have a lasting impact on the reduction of greenhouse 
gas  emissions.  The  REPowerEU  chapter  will  also  contribute  to  the  financing  of  the  IPCEI 
(Important Project of Common European Interest) on hydrogen, contributing to the development 
of the renewable and fossil-free uptake of hydrogen production pathway with an expected long-
lasting impact on reducing long-term emissions.  Reforms included in the REPowerEU chapter are 
also expected to have a long-lasting impact on France by helping to reduce energy consumption 
of all sectors in France under the ‘energy sobriety plan’ (Plan de sobriété énergétique), simplifying 
permitting  procedure  for  renewables  under  the  law  on  the  acceleration  of  renewable  energy 
production (Loi d'accélération de la production des énergies renouvelables), and establishing the 
General Secretariat for Ecological Planning (SGPE), increasing policy consistency and supporting 
France’s commitment to European Green Deal objectives. 

The nature and extent of the proposed modifications to the French RRP do not have an impact on 
the  previous  assessment  (rating  of  A)  of  the  lasting  impact  of  the  plan  under  criterion  2.7  of 
Annex V to the RRF Regulation.   

3.8. Milestones, targets, monitoring and implementation 

The milestones and targets of the modified French RRP enable an adequate monitoring of 
the plan’s implementation. Each of the new reforms and investments introduced under the new 
REPowerEU chapter includes at least one target and/or milestone that contains the key elements 
of the measure and allows for the assessment of the achievement of its objectives. This new chapter 
includes a set of twelve new milestones and targets (reforms will be monitored by three milestones, 
investments by five milestones and four targets). For reforms taking the form of a new legal act 
such as the law on the acceleration of renewable energy production (C10.R1), the milestone is the 
entry  into  force  of  the  new  piece  of  legislation,  capturing  the  actual  implementation  of  new 
provisions. Other milestones set for reforms are based on the achievement of decisive steps in the 
implementation  process,  such  as  the  setting  up  of  a  new  General  Secretariat  for  Ecological 
Planning (C10.R2) with new missions and prerogatives or the publication of an ‘energy sobriety 
plan’ (C10.R3) outlining concrete actions adapted to each sector of activity. These milestones are 
clear  and  realistic  as  they  reflect  decisive  steps  towards  the  complete  implementation  of  each 
reform.  

The  performance  of  the  investments  included  in  the  new  REPowerEU  chapter  will  be 
assessed on the basis of  the achievement of  multiple milestones and  targets  monitored by 
each public entity in charge of implementing the measures. Milestones are also foreseen to 
monitor  the  key  implementation  stages  of  the  hydrogen  projects  and  fossil-free  industry 
measure. The targets chosen – some of which build on existing targets for the upscaled measure - 
are consistent with the objectives, cost estimates and implementation schedule of each measure 
and quantified by specific indicators reflecting the result of the works undertaken (for example, 
the  number  of  hydrogen  light  commercial  vehicles  manufactured  or  the  number  of  completed 
renovation projects of public sites belonging to the state). 

Aside from the changes made under Article 18(2) of the RRF Regulation, which reflect the 
downward  revision  of  France’s  maximum  grant  allocation,  the  adjustments  made  to  the 

19 

 
 
 
 
 
plan’s 175 original milestones and targets do not affect the plan’s overall level of ambition 
and may, in some cases, help clarify monitoring procedures and better assess the achievement of 
some  key  measures.  The  modified  plan  includes,  for  instance,  an  additional  milestone  on  the 
annual assessment of the measures taken to improve the quality of public spending (T 7-14a), due 
by 2025, to provide further assurance as to the effective implementation of France’s new spending 
review mechanism. 

In  addition,  and  as  further  developed  below  (see  3.10  Audit  and  Control),  France  has 
sufficiently  described  the  relevant  verification  mechanisms,  data  collection  systems  and 
responsibilities  that also can be qualified as clear, robust and effective to ensure effective 
completion of milestones and targets. 

The arrangements proposed by France in its modified RRP are expected to be adequate to ensure 
effective  monitoring  and  implementation  of  the  RRP,  including  the  envisaged  timetable, 
milestones  and  targets,  and  the  related  indicators.  This  would  warrant  a  rating  of  A  under  the 
assessment criterion 2.8 of Annex V to the RRF Regulation. 

3.9. Costing 

In general, France provided clear information and evidence on costs, including references to 
actual  tender  data.  For  modified  measures,  the  proportionality  of  the  cost  modifications  was 
assessed, based on the estimated unit costs in the original plan. For proportional reductions, the 
estimated costs were generally considered reasonable, plausible, cost-efficient and commensurate 
with the expected national economic and social impact, in accordance with the cost assessment of 
the initial plan. Measures with a non-proportional modification of the costs were assessed further 
together  with  the  costs  of  new  measures,  for  which  France  submitted  cost  estimates  and 
information  on  the  methodology  used  to  develop  them  and  provided  further  information  and 
evidence upon request.  

The assessment of these cost estimates and supporting documents shows that the majority of 
the  costs  of  the  new  measures  are  well  justified,  reasonable,  plausible  and  do  not  include 
costs covered by existing or planned EU financing and are commensurate to the expected 
economic and social impact of the envisaged measures. All reforms in the revised plan and the 
REPowerEU chapter do not bear any cost. 

Reasonable costs 

France provided actual data and supporting evidence for unit cost estimates, together with adequate 
explanations of the calculation methodology in a majority of cases. For modifications under article 
21, any variations in  unit costs due to  objective  circumstances, such as inflation in  the case of 
measure C3.I5 ‘Greening of the State car fleet’, were duly justified and supporting evidence was 
provided. For modifications under article 18, where the proportionality of the reduction was not 
immediately apparent, more detailed information was provided on the breakdown of the measure 
in order to ascertain whether it was indeed a proportional reduction. Non-proportional reductions 

20 

 
 
 
 
 
 
were fully justified, for example due to a more accurate method of monitoring the implementation 
of the measure. In such cases, information was provided on the calculation of the estimated costs 
supported by actual data or clear indications of the information sources. 

For the REPowerEU chapter, the cost estimates of the three new investments were justified using 
actual data, and a breakdown of the costs by sub-measure was provided where relevant. For the 
scaled-up  measure,  C10.I4  (Energy  renovation  of  private  housing,  including  energy  sieves  - 
MaPrimeRenov’) the cost increase was considered justified and proportional to the initial plan, 
taking into account the increase in the price index of building maintenance and improvement works 
for residential buildings. The cost-related information in the REPowerEU chapter was sufficiently 
exhaustive, with clear explanations related to the methodology used to derive cost estimates. 

Thus, depending on the level of evidence provided by France, the modified and new measures are 
assessed  as  having  high  or  medium  reasonability.  The  new  measures  included  in  the  French 
recovery and resilience plan, including those in the REPowerEU chapter, also comply with the 
eligibility  criteria  set  out  in  the  RRF  Regulation.  No  recurrent  costs  are  included  in  the  new 
measures.  All  costs  are  incurred  for  reforms  and  investments  after  February  2020  and  after 
February  2022  for  the  measures  in  the  REPowerEU  chapter.  Value-added  tax  (VAT)  is  not 
included in any of the cost estimates. 

Plausible costs 

The estimated costs are in line with the type of  investments envisaged. For modified measures 
under  article  18  and  21  actual  data  was  provided,  including  tender  data  and  national  statistics. 
France provided actual tender data and agreements with national agencies as reference costs for 
new investments in the REPowerEU chapter. Links to evidence were provided for the scaled-up 
measure demonstrating the increase in costs. Overall, the cost estimates of the new and modified 
measures of the RRP are assessed as plausible. 

No double Union financing 

France has indicated that new and modified measures, including those in the REPowerEU chapter, 
funded under the RRF will not be financed by other Union funding. Furthermore, the systems set 
up to prevent, detect and correct double funding from the Facility and other Union programmes 
have not changed. 

Commensurate and cost-efficient costs 

The total cost of France’s modified RRP is commensurate to the expected social and economic 
impact of the envisaged measures. The new and modified measures are expected to help effectively 
address  a  significant  subset  of  challenges  identified  in  the  country  specific  recommendations 
(CSRs) in accordance with the initial plan. In addition, new measures in the REPowerEU chapter 
are  also  expected  to  address  challenges  identified  in  climate  and  energy  relevant  CSRs 
2019.3.2, 2020.3.1, 2020.3.4, 2020.3.5, 2022.4.1, 2022.4.2, 2022.4.3. Furthermore, the modified 
plan is expected to strengthen social cohesion and social protection and the implementation of the 
European Pillar of Social Rights in line with the initial plan, while the new measures under the 
REPowerEU chapter aim to bolster France’s green transition and reduce its energy dependence. 

21 

 
 
 
 
 
Therefore, France’s modified RRP is assessed as being in line with the principle of cost-efficiency 
and is commensurate to the expected national economic and social impact. 

Conclusion 

The justification provided by France on the amount of the estimated total costs of the modified 
RRP is to a medium extent reasonable, plausible, in line with the principle of cost-efficiency and 
is commensurate to the expected national economic and social impact.   

France provided sufficient information and evidence that the amount of the estimated cost of the 
reforms and investments of the modified RRP to be financed under the Facility is not covered by 
existing or planned Union financing.  

This  would  warrant  a  rating  of  B  under  the  assessment  criterion  2.9  of  Annex  V  to  the  RRF 
Regulation. 

3.10. 

Controls and audit 

The previous assessment had concluded on the adequacy of the control and audit arrangements 
proposed by France (Rating of A) under criterion 2.10 of Annex V to the RRF Regulation, subject 
to the timely fulfilment of the milestone (M7-35) pertaining to the organisation of the system and 
the treatment of data and organisation of audits. The additional assurances referred to in the annex 
to the initial Council  Implementing  Decision  - namely  a circular signed  by the Prime Minister 
outlining  the  roles  and  responsibilities  of  the  coordinating  body  and  ministries  as  well  as  the 
procedure for collecting and storing data and a report describing the audit work on payment claims 
- were provided as part of France’s first payment request and the corresponding milestone (M7-
35) considered as satisfactorily fulfilled, as reflected in COM (2022) 1248. 

The Prime Minister’s circular of 5 August 2022 (No 6369-SG) revises the monitoring and control 
procedures set out in the previous circular (No 6300-SG) by i) transferring the coordination of the 
plan to a dedicated unit within the Directorate General of the Treasury which will remain under 
the joint authority of the Prime Minister’s office and the Ministry for the Economy, Finance and 
Industrial and Digitial Sovereignty ii) further clarifying the prerogatives and audit procedures of 
the national audit and control coordinator (CICC) to better distinguish between controls under the 
responsibility of the ‘Commission  interministérielle de coordination des  contrôles’ (CICC)  and 
those falling under the responsibility of implementing bodies (ADG) iii) adjusting the reporting 
schedule. These changes are of a procedural nature and do not affect the robustness of France’s 
audit and control arrangements.  

Similarly, the nature and extent of the proposed modifications to France’s RRP do not impact the 
positive  assessment  mentioned  above  as  the  new  investments  and  reforms  included  in  the 
REPowerEU Chapter will be subject to the same audit and control procedures as the ones currently 
in place for the other measures of the plan.  

The  arrangements  proposed  by  France  in  the  modified  RRP  to  prevent,  detect  and  correct 
corruption,  fraud  and  conflicts  of  interest  when  using  the  funds  provided  under  the  Facility, 

22 

 
 
 
 
 
 
including  the  arrangements  aimed  to  avoid  double  funding  from  the  Facility  and  other  Union 
programmes, are assessed to be adequate. This would warrant a rating of A under the assessment 
criterion 2.10 of Annex V to the RRF Regulation. 

3.11. 

Coherence 

The  modified  RRP  presented  by  France  is  structured  as  10  coherent  components,  which 
support the common objectives of stimulating the recovery of the French economy, contributing 
to the twin transition and increasing France’s resilience to meet the challenges of the twenty-first 
century on the path of sustainable and inclusive growth. The modification of the resilience plan 
amends the nine existing components, and brings an additional (10th) component, the REPowerEU 
chapter. 

Each component is built around consistent packages of both reforms and investments, with 
mutually reinforcing or complementary measures as explained hereafter.   

Mutually reinforcing measures  

The  modifications  to  the  RRP  do  not  alter  negatively  the  components’  coherence,  nor  the 
coherence of the plan as a whole. They do not alter the way they are mutually-reinforcing. The 
additional REPowerEU chapter is fully in line with the measures deployed under the initial RRP 
to support the green transition and further reinforces the ambition of some of them, in particular 
with the scale-up of the measure related to energy renovation of private housing, as well as the 
support for the decarbonisation of industry and the IPCEI Hydrogen. The REPowerEU chapter is 
built around a consistent package of both reforms and investments that are mutually reinforcing to 
support  the  decarbonisation  of  industry  and  energy  renovation  of  buildings  in  France,  as  the 
reforms are expected to improve the efficiency and impact of the proposed investments. 

Complementarity of measures 

The modifications made to the existing nine components of the RRP do not alter negatively the 
way these components are complementary. The additional component related to  REPowerEU’s 
objectives,  on  its  side,  brings  a  new  complementarity  layer  as  it  includes  new  and  scaled-up 
measures following three complementary axes focused on energy. The first axis is to develop and 
manufacture innovative technologies related to the hydrogen value chain, including electrolysers 
for the production of renewable and fossil-free hydrogen. The second axis is increase investments 
to promote energy efficiency through the scale-up measure (energy renovation of private housing 
(MaPrimeRénov)  and  one  new  measure  supporting  rapid  energy  efficiency  gains  in  public 
buildings  belonging  to  the  state.  The  last  axis  is  on  fossil-free  industry  with  investments  in 
decarbonising heat, investments in energy efficiency and reducing fossil energy consumption and 
greenhouse  gas  emissions  while  promoting  renewable  energy  (e.g.,  reform  on  simplifying 
permitting procedures). At the level of the modified plan, all components pursue complementary 
aims – with no contradictory aims. 

23 

 
 
 
 
 
 
In  order  to  promote  wider  coherence  across  instruments,  notably  with  the  European  cohesion 
policy funds, a balanced territorial allocation of resources is encouraged. 

Taking into consideration the qualitative assessment of all components of France’s modified RRP, 
their individual weight (importance, relevance, financial allocation) and their interactions, the plan 
contains  measures  for  the  implementation  of  reforms  and  public  investments  which,  to  a  high 
extent, represent coherent actions. This would warrant a rating of A under the assessment criterion 
2.11 of Annex V to the RRF Regulation.  

3.12. 

REPowerEU 

France’s  REPowerEU  chapter  contributes  to  the  objective  of  decarbonising  industry  and 
increasing the share and accelerating the deployment of renewable energy (Article 21c (3), 
point (b) of the Regulation). Through the IPCEI Hydrogen measure, France will contribute to 
supporting  the  uptake  of  fossil-free  and  renewable  hydrogen  by  furthering  research  in  more 
effective  hydrogen  production  and  improving  the  industry’s  production  capacity  and  market 
distribution.  By  decarbonising  heat,  improving  energy  efficiency,  and  changing  the  industrial 
processes – under the new measure ‘fossil-free industry’ – France’s investment will have a lasting 
impact  on  reducing  fossil  fuel  consumption  and  greenhouse  gas  emissions  and  increasing  the 
uptake of renewable energy in the industrial sector. The new investment on the energy renovation 
of public buildings belonging to the state aims at reducing energy consumption and dependence 
on fossil fuels in the very short term, thanks to rapid energy gains measures. The upscaled measure 
(see section 2) will also contribute to this objective by improving the energy efficiency of private 
buildings and financing more global renovations as compared to the first iteration of the measure 
MaPrimeRénov.  Furthermore,  these  investments  are  accompanied  by  three  reforms  that  will 
directly  respond  to  the  objective  described  under  Article  21c  (3)  point  (b):  the  law  on  the 
acceleration of renewable energy production will increase the share and accelerate the deployment 
of renewable energy in France, and the ‘sobriety plan’ will boost energy efficiency in buildings. 
The role of the General Secretariat for Ecological Planning (SGPE) will also contribute to France’s 
efforts in greening the energy sector (both on the production and consumption sides), in line with 
the objectives defined in article 21.3(b). All of these measures are expected to have a long-lasting 
impact. 

Energy  poverty,  under  Article  21c  (3)  point  (c),  is  addressed  most  notably  through  the 
upscaling  of  ‘MaPrimeRénov’  by  improving  the  energy  efficiency  of  private  housing,  in 
particular of thermal sieves, which will help the poorest households to reduce their energy 
bills.  The  sobriety  plan  also  encourages  households  to  keep  their  energy  consumption  under 
control by adopting better habits, thus helping reduce energy poverty. In addition, the measures 
supporting  renewable  energy  developments  through  IPCEI  Hydrogen  and  the  law  on  the 
acceleration  of  renewable  energy  production  will  transform  the  way  energy  is  consumed  and 
produced with the aim of reducing energy costs in the long-term, which will also contribute to 
tackling energy poverty.  

24 

 
 
 
 
 
 
Under  the  ‘fossil-free  industry’  measure,  the  REPowerEU  chapter  aims  to  reduce  energy 
demand of companies, contributing to the objective described under Article 21c (3) (d). This 
measure  will  reduce  energy  consumption,  in  particular  fossil  fuels,  in  the  industrial  sector.  All 
reforms included in the REPowerEU chapter also support this general objective, in particular the 
‘sobriety plan’ with the ambition to reduce energy consumption by 10% by 2024, in comparison 
to winter 2018-2019. The ‘energy sobriety plan’ includes 15 flagship initiatives covering a range 
of sectors (housing, transport, industry, etc.) and targeting public and private actors. 

Under the IPCEI Hydrogen measure, France invests in improving electricity storage through 
the  research  and  development  of  reservoirs  to  store  hydrogen  (Faurecia  project), 
contributing to the objective described under Article 21c (3) point (e). It also supports zero 
emissions transport by developing and industrialising light commercial hydrogen vehicles (Hyvia 
project) and by developing the materials required in hydrogen mobility (Arkema project). These 
measures support the  transition toward  greener technologies  and transport,  thus  having  a long-
lasting impact on France’s green transition. In addition, France will address energy transmission 
and distribution bottlenecks through the law on the acceleration of renewable energy production. 

The objective described under Article 21c(3) point (f) is also addressed thanks to the law on the 
acceleration of renewable energy production, which will support the deployment of technologies 
linked to the green transition (e.g. solar panel, wind turbines, etc). 

By  increasing  policy  consistency  and  coordination  across  ministries  and  improving 
performance  monitoring,  the  creation  of  the  General  Secretariat  for  Ecological  Planning 
(SGPE) is expected to  contribute in a cross-cutting way to the objectives described under 
Articles 21c points (3) (b), (c) (d), (e) and (f) and facilitate, in particular, the implementation 
of  the  reforms  and  investments  included  in  the  REPowerEU  chapter.  Placed  under  the 
authority of the Prime Minister, this General Secretariat will coordinate national strategies in the 
field  of  ecological  transition  (energy,  climate,  biodiversity,  circular  economy,  etc),  mobilise 
ministries as well as stakeholders and measure the performance of actions taken in those fields, 
ensuring compliance with France’s European and international commitments.  

Furthermore, the REPowerEU chapter is coherent with France’s original RRP and helps to 
extend  the  plans  ambitions  in  terms  of  green  transition.  In  addition  to  the  two  upscaled 
measures, the three new measures – IPCEI Hydrogen, fossil-free industry and energy renovation 
of  state-owned  buildings  –  complement  measures  in  the  first  plan,  namely  C4.I2  Develop 
decarbonised hydrogen and C2.I1 Decarbonisation of industry and C1.I3 Thermal renovation of 
public  buildings.  France  removed  one  sub-measure  of  C4.I2  aiming  at  introducing  a  support 
scheme for the production of hydrogen on the basis of Article 18.2 and France’s reduced allocation, 
but it is compensated with financial support to projects selected under the IPCEI Hydrogen in the 
REPowerEU chapter, ensuring a sustained commitment on hydrogen. In addition, the three reforms 
will be able to support France’s steps toward a green transition as planned in its RRP. By adding 
a  reform  aiming  at  accelerating  the  deployment  of  renewables,  France  addresses  an  aspect  of 
energy policy that was not touched upon in the original RRP.  

25 

 
 
 
 
 
Moreover, the measures in the REPowerEU chapter are part of France’s wider efforts to 
reach greater energy sovereignty and reduce its greenhouse gas emissions in view of the EU’s 
2030  climate  reduction  target  of  55%.  The  new  measures  are  fully  complementary  with  the 
France  Relance  and  France  2030  plans  which  fund  measures  to  decarbonise  industry,  improve 
energy efficiency in  buildings as well as  to  develop technologies to  produce  hydrogen  through 
electrolysis and the manufacturing of hydrogen-based technologies. 

Finally, it must be noted that consultations were held with stakeholders in the preparation 
of  this  chapter.  Representatives  of  local  and  regional  authorities  were  consulted  on  multiple 
occasions,  including  prior  to  the  final  publication  of  the  amended  RRFRegulation  in  order  to 
inform them of the European response as well as to collect comments and suggestions concerning 
measures  to  be  included  in  the  chapter.  The  outline  of  the  modified  plan  and  the  REPowerEU 
chapter were also presented to social partners in order to receive feedback. Finally, the Economic, 
Social and Environmental Council (CESE) was also consulted; indeed, the CESE is systematically 
consulted in the framework of the National Reform Programme. 

Taking  into  consideration  the  assessment  of  all  the  measures  envisaged  in  the  REPowerEU 
chapter, the chapter is expected, to a large extent, to contribute effectively to energy security, the 
diversification  of  the  Union’s  energy  supply,  an  increase  in  the  uptake  of  renewables,  energy 
efficiency, an increase of energy storage capacities, and the reduction of dependence on fossil fuels 
before  2030.  This  would  warrant  a  rating  of  A  under  criterion  2.12  of  Annex  V  to  the  RRF 
Regulation. 

3.13. 

Cross-border or multi-country dimension or effect  

All the measures included in France’s REPowerEU chapter have a multi-country or cross-border 
dimension.  

The investment ‘IPCEI Hydrogen’ is a measure with a multi-country and cross-border dimension 
with the exception of the zero-emission transport project. In addition, by adding a new measure on 
energy  renovation  of  public  buildings,  and  by  scaling-up  measure  C1.I1  Energy  renovation  of 
private housing, the plan contributes to increasing the pace of energy renovation of buildings with 
the goal of reducing dependency on fossil fuels and of reducing energy demand. These measures 
are  complemented  by  the  ‘fossil-free  industry’  measure  which  also  aims  at  reducing  the 
dependency on fossil fuels and at reducing energy demand of the industry sector.   

The total costs of these measures account for a total of EUR 2.6 billion representing more than 
30% of the estimated costs of the REPowerEU chapter. 

Taking  into  consideration  the  assessment  of  all  the  measures  envisaged  in  the  REPowerEU 
chapter, the measures in the chapter are expected, to a large extent, to have a cross-border of multi-
country dimension or effect. This would warrant a rating of A under criterion 2.13 of Annex V to 
the RRF Regulation. 

26 

 
 
 
 
 
 
REPowerEU measure 

IPCEI hydrogen 
Fossil-free industry 
Energy renovation of private housing 
Thermal renovation of public buildings 

to 

the 

(EUR 

Costs 
billion) 
0.651 
0.294 
1.781 
0.10 

Contribution 
target in % 
61.76% 
100% 
100% 
100% 

ANNEX I: Climate tracking and digital tagging5  

Measure
/ Sub-
Measure 
ID 

C1.I1 

C1.I2 

C1.I3 

C1.I4 

C2.I1 
C2.I2 
C2.I3 
C2.I4 

C2.I7 

C2.I7 

C2.I8 

C2.I8 

C2.I9 
C2.I10 

C3.I1 

C3.I1 

Measure/Sub-Measure Name 

Energy renovation of private housing, including 
energy sieves 
Energy renovation and major rehabilitation of social 
housing 
Thermal renovation of public buildings 
Energy renovation of very small enterprises (VSEs) 
and small and medium sized enterprises (SMEs) 
Decarbonisation of industry 
Urban densification: sustainable construction 
Urban densification: brownfields 
Biodiversity 
Modernisation of sorting centres: modernisation of 
sorting centres for packaging and modernisation of 
sorting centres and for waste except packaging and 
recycling equipment 
Modernisation of sorting centres: sorting at source, 
collection and valorisation of bio-waste 
Recycling and reuse: reuse or repair for non-plastic 
products 
Recycling and reuse: reduction, reuse and 
development of substitution solutions for plastic 
Plant protein plan 
Forests 
Support to the railway sector: recapitalisation of 
SNCF Réseau - regeneration of national railways 
Support to the railway sector: recapitalisation of 
SNCF Réseau - renovation of engineering structures 

Budget 
(EUR 
m) 

Climate 

Digital 

Int. 
Field 

Coeff. 
% 

Int. 
Field 

Coeff
. % 

1404.5 

025bis 

100% 

500 

025bis 

100% 

3800 

026bis 

100% 

120 

300 
350 
260 
185.5 

024 

024 
050 
050 
050 

40% 

40% 
40% 
40% 
40% 

84 

042/044 

40% 

100 

042/044 

40% 

21 

40 

70 
150 

2300 

042 

40% 

042 

047 
037 

068 

40% 

40% 
100% 

100% 

1250 

068 

100% 

5  While  the  estimated  cost  of  France’s  recovery  and  resilience  plan  exceeds  the  total  allocation  of  non-repayable 
financial support to France, France will ensure that all spending related to the measures mentioned in this table as 
contributing to climate objectives are fully financed by the funds from the Recovery and Resilience Facility. 

27 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                           
 
084 

100% 

C3.I1 

C3.I1 

C3.I1 

C3.I2 

C3.I3 

C3.I4 

C3.I4 

C3.I5 
C3.I5 

C3.I6 

C3.I7 

C4.I1 

C4.I1 

C4.I1 

C4.I1 

C4.I1 

C4.I1 

C4.I1 

Support to the railway sector: recapitalisation of 
SNCF Réseau - regeneration of local railway lines 
Support to the railway sector: regional railway lines 
Support to the railway sector: development of rail 
freight 
Support to demand for clean vehicles: Eco-bonus for 
light vehicles  
Daily mobility: development of public transport 
Acceleration of works on transport infrastructure: 
deployment of electric charging points 
Acceleration of work on transport infrastructure: 
modernisation of the CROSS network & Revision of 
the digital system of maritime affairs 
Greening of the State’s fleet: Electric vehicles 
Greening of the State’s fleet: Plug-in hybrid vehicles 
Greening of harbours: targeted actions in harbours 
(alternative fuels infrastructure part) 
Strengthening the resilience of electricity networks 
and energy transition in rural areas 
Innovate for the green transition (PIA4): 
Decarbonised hydrogen 
Innovate for the green transition (PIA4): 
Decarbonisation of industry 
Innovate for the green transition (PIA4): Sustainable 
agricultural systems 
Innovate for the green transition (PIA4): Recycling 
and reincorporation of recycled materials 
Innovate for the green transition (PIA4): Sustainable 
cities and innovative buildings (decarbonisation part) 
Innovate for the green transition (PIA4): 
Digitalisation and decarbonisation of mobility 
(decarbonisation part) 
Innovate for the green transition (PIA4): Biobased 
Products and Industrial Biotechnologies – 
Sustainable Fuels 

250 

300 

40 

885 

900 

100 

25 

97.4 
57.6 

87.5 

50 

500 

300 

200 

150 

100 

069 

069 

069 

40% 

40% 

40% 

N/A6 

40% 

073 

077 

100% 

100% 

N/A7 
N/A8 

100% 
40% 

077 

100% 

037 

100% 

022 

100% 

022 

100% 

047 

40% 

023 

40% 

022 

100% 

100 

022 

100% 

200 

022 

100% 

6 The ‘Methodology for climate tracking’ annexed to the Recovery and Resilience Facility Regulation does not set out 
intervention  fields  that  would  allow  for  climate  or  environmental  tracking  of  electric  vehicles  or  plug-in  hybrid 
vehicles, except for vehicles for urban transport falling under intervention field 074. According to Article 18(4)(e) of 
the Regulation, the methodology should however ‘be used accordingly for measures that cannot be directly assigned 
to an intervention field listed in Annex VI’. In this context, the Commission has applied a 100% climate contribution 
coefficient for zero-emission vehicles of all categories (this includes battery electric and fuel cell/hydrogen-powered 
vehicles); a 40% climate contribution coefficient for plug-in hybrid light-duty vehicles; and, in line with the criteria 
under the Taxonomy Regulation, a 100% climate coefficient for low-emission heavy-duty vehicles. 

7 See footnote above. 

8 See footnote above. 

28 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                           
 
C4.I2 

C4.I3 

C4.I3 

C6.I1 

C6.I2 

C6.I2 

C6.I2 

C6.I2 

C6.I2 

C6.I2 

C6.I3 

C6.I3 

C6.I4 

C6.I4 
C7.I1 
C7.I2 

Develop decarbonised hydrogen: IPCEI on 
decarbonised hydrogen 
Support plan to the aeronautics sector. Support to 
R&D (part contributing directly to the low-carbon 
economy – 70%) 
Support plan to the aeronautics sector. Support to 
R&D (part contributing indirectly to the low-carbon 
economy – 30%) 
Preservation of employment in private R&D digital 
part (40%) 
Innovating for the resilience of our business models 
(PIA4): Cultural and creative industries 
Innovating for the resilience of our business models 
(PIA4) 5G and future telecommunications 
technology 
Innovating for the resilience of our business models 
(PIA4) Cloud Acceleration Strategy 
Innovating for the resilience of our business models 
(PIA4) Quantum technologies 
Innovating for the resilience of our business models 
(PIA4)_Cybersecurity 
Innovating for the resilience of our business models 
(PIA4) Education and digital 
Supporting innovative businesses (PIA4) (climate-
related part – 30%) 
Supporting innovative businesses (PIA4) (digital-
related part – 30%) 
Space Rocket launch system (digital-related part – 
40%) 
Space R&D projects 
Digitisation of companies 
Digital upgrade of the State and territories 

C7.I3 

Cybersecurity of State services 

C7.I4 

C7.I5 

State digital upgrade: digital identity 
Equipment and infrastructure of the Ministry of the 
Interior 

C7.I6  Ministry of the Interior's applications 

C7.I7 

C7.I8 

C7.I9 

C7.I10 

C7.I11 

Mobility and teleworking at the Ministry of the 
Interior 
Administrative continuity: digital upgrading of the 
administration of the education system 
Educational continuity: digital transformation of the 
school 
Developing access to higher education throughout 
the country thanks to digital 
Support for cultural sectors and heritage renovations. 
Ecological transition fund 

29 

1275 

032 

100% 

959 

022 

100% 

411 

48 

300 

300 

300 

350 

200 

350 

225 

225 

66 

170 
374.8 
500 

136 

30.3 

22.7 

76.7 

46.5 

35 

131 

35 

13 

009bis 

100% 

009bis 

100% 

021bis 

100% 

054bis 

100% 

055 

100% 

021quat
er 
021quin
quies 

100% 

100% 

012 

100% 

009bis 

100% 

021quat
er 
009bis 
010 
011 
021quin
quies 
011ter 

011 

011 

011 

100% 

100% 
100% 
100% 

100% 

100% 

100% 

100% 

100% 

011 

100% 

012 

100% 

012 

100% 

022 

100% 

026 

40% 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
C7.I11 

C7.I11 

C8.I1 

C8.I2 

Support for cultural sectors and heritage renovations. 
Modernisation plan for cultural higher education 
establishments (digital part) 
Support for cultural sectors and heritage renovations. 
Modernisation plan for cultural higher education 
establishments (renovation part) 
FNE-Training digital part (20%) 
Reskilling through dual training programmes (Pro-
A) digital part (40%) 

C8.I11  Creation of places in higher education 

C8.I12 

C8.I13 

Plan for youth: higher education for post-
baccalaureate students 
‘Personalised guidance towards employment and 
autonomy’ (PACEA) and youth guarantee 

C8.I17  Distance training courses (PIC) 

C8.I18 

C8.I19 

C8.I20 

C8.I21 

C8.I21 

C9.I1 

C9.I2 

Digital educational content: platforms for digital 
content 
Additional allocation for the ‘Pro transitions’ 
associations (AT pro) 
Top-up of individual learning accounts for digital 
skills 
Increase of resources for France Compétences 
(climate-related part – 40%) 
Increase of resources for France Compétences 
(digital-related part – 40%) 
Digital health 
Modernisation and restructuring of hospitals and 
health care supply (‘investissements structurants’ – 
50%) 

5.6 

055 

100% 

64.4 

026 

40% 

160 

54.4 

180 

76 

233 

160 

152.2 

100 

25 

300 

300 

2000 

108 

108 

100% 

100% 

099 

40% 

099 

40% 

099 

011 

011 

40% 

100% 

100% 

016 

40% 

108 

100% 

108 

095 

100% 

100% 

01 

100% 

1250 

026 

40% 

C9.I3 

Renovation of medico-social establishments (‘PAI 
immobilier’ part) 

1250 

026 

40% 

C9.I4 

C9.I5 

C9.I6 

C9.I7 

C9.I7 

National suicide prevention hotline 
High-speed broadband plan (‘France Très Haut 
Débit’) 
Digital Inclusion 
R&D recovery strategy (National Research Agency) 
(climate part – 40%) 
R&D recovery strategy (National Research Agency) 
(digital part – 40%) 

2.94 

240 

250 

013 

053 

108 

100% 

100% 

100% 

171.2 

022 

100% 

171.2 

009bis 

100% 

30 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
C9.I8 

C9.I8 

C10.I1 

C10.I1 

C10.I1 
C10.I2 

C10.I2 
C10.I2 

C10.I2 
C10.I2 

C10.I2 
C10.I2 

C10.I2 
C10.I3 

C10.I4 

Support teaching, research, development and 
innovation ecosystems (PIA4) (climate-related part – 
25%) 
Support teaching, research, development and 
innovation ecosystems (PIA4) (digital-related part – 
25%) 
Fossil-free industry – part1 - biomass heat 
Fossil-free industry – part2 - energy efficiency large 
projects 
Fossil-free industry – part3 - energy efficiency small 
projects 
IPCEI hydrogen – Hyvia - RDI 
IPCEI hydrogen – Hyvia – First industrial 
deployment (FID) 
IPCEI hydrogen – Genvia - RDI 
IPCEI hydrogen – Genvia – First industrial 
deployment (FID) 
IPCEI hydrogen – Faurecia/Hy2Tech - RDI 
IPCEI hydrogen – Faurecia/Hy2Tech – First 
industrial deployment (FID) 
IPCEI hydrogen – Arkema - RDI 
IPCEI hydrogen – Arkema – First industrial 
deployment (FID) 
Thermal renovation of public buildings  
Energy renovation of private housing, including 
energy sieves 

187.5 

022 

100% 

187.5 

009bis 

100% 

174.2 

030 

40% 

90.8 

024bis 

40% 

29.2 
51.0 

198.3 
141.5 

47.2 
35.3 

79.0 
39.2 

59.8 
100 

024 
022 

027 
022 

027 
022 

027 
022 

027 
026 

40% 
100% 

100% 
100% 

100% 
100% 

100% 
100% 

100% 
40% 

1 781 

025bis 

100% 

31