Transformative innovation for better climate change adaptation : case study : Granada - Andalucia, Spain.
Date: 2025-03-12
Institutions: Joint Research Centre
Subjects: Andalusia, EU environmental policy, EU regional policy, EU research policy, adaptation to climate change, case study, decision-making, environmental risk prevention, innovation, market prices, multi-level governance, regional development, report, smart specialisation

Transformative Innovation for better 
Climate Change Adaptation –  
Case Study: Granada - Andalucia, Spain 

Author: M. Chioncel 
Editor: G. Carat 

2025 

 
 
  
 
 
This publication is an External Study report prepared for the Joint Research Centre (JRC), the European Commission’s 
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How to cite this report: European Commission: Joint Research Centre, Chioncel, M., Transformative Innovation for better Climate Change 
Adaptation - Case Study: Granada - Andalucia, Spain, Carat, G. editor(s), Publications Office of the European Union, Luxembourg, 2025, 
https://data.europa.eu/doi/10.2760/104672, JRC137324. 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Contents 

1.1.1 
1.1.2 
1.1.3 

Abstract ................................................................................................................................................................................................................................... 3 
Acknowledgements .......................................................................................................................................................................................................... 4 
Executive summary .......................................................................................................................................................................................................... 5 
1  Introduction to the case study territory ................................................................................................................................................... 10 
1.1  Profile of the territory .............................................................................................................................................................................. 10 
Spain ................................................................................................................................................................................................... 10 
Andalucia.......................................................................................................................................................................................... 10 
Granada ............................................................................................................................................................................................ 12 
1.2  Climate change risks and vulnerabilities ..................................................................................................................................... 13 
1.2.1 
Temperature increase and heatwaves .......................................................................................................................... 13 
1.2.2  Droughts and floods ................................................................................................................................................................. 14 
State of surface waters and marine waters ............................................................................................................. 15 
1.2.3 
Impacts on fauna and flora ................................................................................................................................................. 15 
1.2.4 
1.3  Impact ................................................................................................................................................................................................................ 15 
Spain ................................................................................................................................................................................................... 15 
Andalucia.......................................................................................................................................................................................... 16 
Temperature ....................................................................................................................................................................... 16 
Precipitation ........................................................................................................................................................................ 17 
Granada ............................................................................................................................................................................................ 17 
2  State-of-play of CCA and innovation strategies................................................................................................................................. 18 
2.1  Spain ................................................................................................................................................................................................................... 18 
2.2  Andalusia ......................................................................................................................................................................................................... 20 
2.3  Granada ............................................................................................................................................................................................................ 20 

1.3.2.1 
1.3.2.2 

1.3.1 
1.3.2 

1.3.3 

3  Analysis against conceptual framework: Transformative Innovation for better Climate Change Adaptation

3.3.1 
3.3.2 
3.3.3 

3.1.1 
3.1.2 
3.1.3 

3.2.1 
3.2.2 
3.2.3 

3.4.1 
3.4.2 
3.4.3 

23 
3.1  Directionality: defining goals and expected impacts for society .................................................................................. 24 
Spain ................................................................................................................................................................................................... 24 
Andalucia.......................................................................................................................................................................................... 25 
Granada ............................................................................................................................................................................................ 26 
3.2  Articulating instrument portfolios and defining synergies between funding sources .................................... 27 
Spain ................................................................................................................................................................................................... 28 
Andalusia ......................................................................................................................................................................................... 31 
Granada ............................................................................................................................................................................................ 35 
3.3  Ensuring cross domain synergies ..................................................................................................................................................... 35 
Spain ................................................................................................................................................................................................... 36 
Andalucia.......................................................................................................................................................................................... 37 
Granada ............................................................................................................................................................................................ 37 
3.4  Increasing breadth and depth of stakeholder involvement ............................................................................................. 41 
Spain ................................................................................................................................................................................................... 43 
Andalucia.......................................................................................................................................................................................... 44 
Granada ............................................................................................................................................................................................ 45 
3.5  Setting up effective multi-level governance models ........................................................................................................... 46 
Spain ................................................................................................................................................................................................... 47 
Andalucia.......................................................................................................................................................................................... 48 
Granada ............................................................................................................................................................................................ 48 
3.6  Making room for experimentation ................................................................................................................................................... 50 
Andalusia ......................................................................................................................................................................................... 50 
Granada ............................................................................................................................................................................................ 51 
3.7  Securing high levels of policy intelligence, learning and strategic capacity ......................................................... 54 
Awareness and understanding of CCA .......................................................................................................................... 54 
SPAIN ...................................................................................................................................................................................... 54 
3.7.1.1 
3.7.1.2 
Andalucia .............................................................................................................................................................................. 56 
3.7.1.3  Granada ................................................................................................................................................................................ 57 
Knowledge base for CCA ........................................................................................................................................................ 57 
Spain ....................................................................................................................................................................................... 58 
Andalucia .............................................................................................................................................................................. 59 

3.5.1 
3.5.2 
3.5.3 

3.7.2.1 
3.7.2.2 

3.6.1 
3.6.2 

3.7.2 

3.7.1 

1 

 
 
 
 
3.7.3 

3.7.3.1 
3.7.3.2 

3.7.2.3  Granada ................................................................................................................................................................................ 60 
Strategic capacity ....................................................................................................................................................................... 60 
Spain ....................................................................................................................................................................................... 61 
Andalusia – Granada .................................................................................................................................................... 61 
4  Conclusions ................................................................................................................................................................................................................ 62 
4.1  Directionality ................................................................................................................................................................................................. 63 
4.2  Articulating instrument portfolios and defining synergies between funding sources .................................... 63 
4.3  Ensuring cross-domains synergies .................................................................................................................................................. 64 
4.4  Increasing breadth and depth of stakeholder involvement ............................................................................................. 65 
4.5  Setting up effective multi-level governance models ........................................................................................................... 67 
4.6  Making room for experimentation ................................................................................................................................................... 67 
4.7  Securing high levels of policy intelligence, learning and strategic capacity ......................................................... 68 
Awareness and understanding of CCA .......................................................................................................................... 68 
Knowledge base for CCA ........................................................................................................................................................ 69 
Strategic capacity ....................................................................................................................................................................... 70 
References .......................................................................................................................................................................................................................... 72 
List of abbreviations and definitions ................................................................................................................................................................. 76 
List of boxes ...................................................................................................................................................................................................................... 79 
List of figures ................................................................................................................................................................................................................... 80 
List of tables ..................................................................................................................................................................................................................... 81 
Annexes ................................................................................................................................................................................................................................ 82 
Annex 1. Interviews ............................................................................................................................................................................................... 82 
Annex 2. List of case studies .......................................................................................................................................................................... 82 

4.7.1 
4.7.2 
4.7.3 

2 

 
 
Abstract 

The aim of this report is to investigate the potential for harnessing key features of Transformative 
Innovation to improve the design and the implementation of Climate Change Adaptation (CCA) 
strategies, based on empirical analyses. The study draws on the conceptual framework on this 
question previously defined for the JRC (European Commission, 2024), and the methodology for 
case studies articulated in the same report. The case study research comprises overall 14 case 
study reports covering 16 different territories from across the EU and beyond, casing various insti-
tutional contexts, a variety of biogeographical regions within different climate risks, different ranges 
of population sizes, and representing a diversity of approaches to CCA and transformative innova-
tion.  

The framework takes the form of an analytical grid, structured into seven sections, each of them 
representing a key feature of the ‘transformative innovation’ approach where the features are un-
derstood as essential conditions for the design and implementation of CCA strategies with this high 
level of ambition. Each section sets out the main question(s) to be addressed in relation to its re-
spective transformative innovation feature. This report provides the findings for the region of Anda-
lusia, Spain, with a particular focus on the city of Granada, as of November 2023. It is the result of 
a collaboration between the Joint Research Centre (JRC), DG CLIMA and DG RTD.   

3 

 
 
 
Acknowledgements 

The author would like to thank to those who participated in the interviews and shared their expertise to write 
this case studies report (list in annex 1), as well as staff of the European Commission’s Joint Research Centre 
in charge of this project, both from JRC (Karel Hageman, Gérard Carat) and from DG CLIMA (Irene Bonvissuto) 
and DG RTD (Prisca Haemers). 

4 

 
 
 
  
  
Executive summary 

Policy context 
Spain, like many other countries worldwide, had its share of severe weather events, such as the re-
cent Depresión Aislada en Niveles Altos (DANA), that struck the Valencia region on October 29, 
2024. This isolated high-altitude depression caused catastrophic flash floods, resulting in over 200 
deaths and widespread damage.  
Adapting to climate change has become an increasingly urgent priority for the EU and its territories.  
Given this urgency, and the systemic nature of climate resilience, new ways to accelerate adapta-
tion are considered. Transformative innovation (TI) is at the focus of this report, particularly how it 
can help support and accelerate adaptation to climate change. The analysis in this report draws les-
sons for Andalusia region in Spain and the city of Granada, on how a TI approach is already helping 
the territory in increasing climate resilience, and what can be done in addition, to further accelerate 
adaptation. The analysis is based on a theoretical framework along seven dimensions designed to 
compare TI and Climate Change Adaptation. It is one out of a series of 14 different case study re-
ports in European territories. 

Main findings 

Spain is experiencing declining annual rainfall, reduced river flow, and diminished water resources, 
leading to increased water stress and expansion of semi-arid areas. Spain’s surface and marine wa-
ters are affected by warming, increased salinity, acidification, and rising sea levels, with noticeable 
impacts on both the Atlantic and Mediterranean coasts. The Mediterranean Sea, in particular, has 
shown variable sea level trends but an overall rise in recent decades. Rising temperatures and in-
tensified heatwaves have contributed to longer, hotter summers, with projections of further warm-
ing. These environmental shifts heighten risks of forest fires, soil dryness, and more frequent ex-
treme weather events, posing ongoing challenges for Spain's climate resilience. Semi-arid climate 
conditions are expanding, seawater temperatures are rising, and sea levels are increasing. While 
similar vulnerabilities exist in Andalusia and Granada as those at the national level, some impacts 
are expected to be more severe locally. These climate changes affect key sectors like tourism, agri-
culture, and livestock, while also threatening cultural heritage, particularly in coastal areas.  

Goals and directionality 

The National Plan for Adaptation to Climate Change (PNACC) has been the guiding framework for 
climate change adaptation (CCA) in Spain since 2006. PNACC aims to reduce climate-related dam-
ages and build resilience through coordinated actions across multiple sectors, with objectives rang-
ing from enhancing climate observation to integrating CCA into public policies. Various autonomous 
communities, including Catalonia, the Balearic Islands, and Andalusia, have developed their own cli-
mate change laws and strategic plans. Andalusia's Climate Action Plan (PAAC), based on Law 
8/2018, aims to integrate climate change mitigation and adaptation into regional and local plan-
ning, aligning with national, European, and global initiatives like the European Green Deal and the 
Paris Agreement. In Granada, the Plan for Adaptation to Climate Change (PPACCGr), approved in 
April 2023 introduced a unique methodology combining scientific climate analysis, vulnerability as-
sessment, and stakeholder participation, filling the gap in supra-municipal adaptation planning. 

Articulating instrument portfolios and defining synergies between funding sources.  

Spain’s climate adaptation funding draws significantly from EU instruments. Specific initiatives like 
the PIMA Adapta programme (since 2015) target vulnerability reduction. In Andalusia, the PAAC and 
the Smart Specialization Strategy for Sustainability (S4Andalucia) 2021-2027 drive regional climate 
adaptation and mitigation efforts, promoting collaboration in EU programmes like Horizon Europe, 
LIFE, and Interreg. The PPACCGr implement projects drawing funds from various funding pro-

5 

 
 
grammes. In Spain, it is evident that significant efforts were invested in articulating various instru-
ments. However, certain bottlenecks continue to hinder an efficient implementation. For instance, 
engaging the private sector effectively requires more tailored incentives. Improved policy alignment 
and dialogue across governance levels  could ensure streamlined action. Municipalities would bene-
fit from simplified processes to access funding, facilitating their participation. Addressing specific 
regional data needs and strengthening coordination between regional and local bodies could further 
enhance the cohesiveness and impact of adaptation strategies. 

Ensuring cross domain synergies 

PNACC 2021-2030 prioritizes coordinated action across 13 key sectors like water, biodiversity, en-
ergy, and urban planning, promoting collaboration among institutions, consistency in policies, and 
accessible climate information. This interdisciplinary approach is also supported by the Strategy for 
Science, Technology, and Innovation 2021-2027. In Andalucía, managed by the Andalusian Climate 
Change Office and backed by intersectoral working groups, the Andalusian Climate Action Plan 
(PAAC) and Law 8/2018 strengthen regional and local alignment with national climate policies. Gra-
nada’s Adapta Granada Plan focuses on 11 specific sectors aligned with the PNACC. Some chal-
lenges still remain and include, resource disparities across government levels, siloed operations 
within sectors, and limited local (at the level of municipalities) resources for implementing complex 
adaptation projects, which can impact cohesive strategy application and slow progress in areas like 
urban planning and tourism. 

Increasing breadth and depth of stakeholder involvement 

The (PNACC) 2021-2030 in Spain was developed through an inclusive process involving experts, 
public administration, private sector representatives, and civil society, ensuring a broad stakeholder 
representation. Similarly, the Spanish Strategy of Science, Technology, and Innovation (EECTI) 2021-
2027 was co-designed with diverse stakeholders. In Andalucía, the Andalusian Climate Action Plan 
(PAAC) was designed with public participation and transparency at its core. Public workshops and 
consultations shaped a collaborative plan involving economic, social, and administrative stakehold-
ers. In Granada, the Provincial Council developed a tailored approach for climate adaptation, estab-
lishing Territorial Management Units and committees to involve local representatives in the planning 
and monitoring phases. Challenges include a need for more structured guidelines for stakeholder 
involvement at local levels. 

Setting up effective multi-level governance models 

Spain has established robust coordination mechanisms and organizational structures to support cli-
mate adaptation across national, regional, and local levels. This framework includes structured com-
mittees, commissions, and offices that promote cross-sector collaboration and integrate local in-
sights into broader climate strategies. Key national bodies, such as the Spanish Climate Change Of-
fice within MITERD, the National Climate Council, the Climate Change Policy Coordination Commis-
sion (CCPCC), and the Interministerial Commission for Climate Change and Energy Transition, play 
crucial roles in overseeing climate adaptation policies and fostering inter-institutional coordination. 
The Andalusian Office of Climate Change, the Interdepartmental Commission on Climate Change 
ensure alignment and collaboration across local, regional, and national levels, in coordination with 
national bodies. In Granada, coordination is supported through a Technical Committee of experts 
and Territorial Committees within nine Territorial Management Units, which focus on gathering local 
data and addressing adaptation needs with diverse stakeholder input. Challenges include potential 
complexity from multiple coordinating bodies, which could lead to overlapping responsibilities and 
slower communication. In some cases, local entities, especially smaller municipalities, may need ad-

6 

 
 
ditional methodologies, technical resources, and funding to fully engage in climate adaptation ef-
forts, potentially causing inconsistencies in regional implementation. 

Making room for experimentation 

PNACC places limited emphasis on experimentation. In Andalusia, interviews reveal minimal experi-
mentation. Some projects, though not widely visible, exist. The Government of Andalucía is imple-
menting an innovative risk management model. Seville's CartujaQanat project takes an innovative 
approach to urban heat mitigation by creating adaptable, socially inclusive spaces. Granada’s Pro-
vincial Climate Adaptation Plan itself can serve as an example of policy experimentation. In terms 
of opportunities for experimentation, Granada’s Provincial Climate Adaptation Plan implement vari-
ous adaptation projects, enabling the region to gather insights for refining adaptation measures 
that are sustainable, scalable, and tailored to local needs. While there is some interest in experi-
mentation in climate adaptation initiatives, the lack of visible examples and a public database of 
successful practices limits their broader impact and potential for scalability. 

Securing high levels of policy intelligence, learning and strategic capacity 

The Climate Change Adaptation Plans at national, regional level stongly emphasise stakeholder en-
gagement. The Action Plan for Environmental Education for Sustainability (2021-2025) supports the 
integration of climate education across all levels and sectors. Portal Andaluz de Cambio Climático, a 
dedicated climate change portal, provides information, practical tips, and examples of sustainable 
practices for citizens. The AdaptaGranada Plan includes a specific objective to increase local climate 
awareness. The “Campaign for Raising Awareness about Climate Change” offers some public re-
sources, although limited information is currently available.  

There is a clear emphasis on data-driven adaptation, comprehensive monitoring, and accessible in-
formation sharing at all leveles (national, regional, local). Yet, information gaps are acknowledged. 
Climate projections and digital tools like the AdapteCCa platform, Portal Andaluz de Cambio Climát-
ico and SICMA platform provide accessible, region-specific information. These resources support 
stakeholders with localized climate projections and future scenario mapping. 

Key conclusions 

Spain’s established framework for climate change adaptation (CCA) provides a robust foundation 
for addressing climate risks. However, the devastating impacts of the recent DANA (Depresión 
Aislada en Niveles Altos) in the Valencia region highlight significant gaps and challenges in imple-
mentation and preparedness. DANAs are naturally occurring meteorological phenomena, but their 
frequency and intensity are exacerbated by climate change. While national frameworks set broad 
objectives, the translation of these goals into localized and actionable measures is often incon-
sistent. Decades of urban expansion into vulnerable areas, including floodplains, have increased the 
exposure and susceptibility of populations and infrastructure to extreme weather events. These his-
torical decisions often limit the efficacy of current adaptation efforts. Despite national frameworks, 
local infrastructures, particularly in urban areas, often lack the capacity to manage extreme rainfall 
events, such as vulnerabilities in urban drainage systems and land-use planning, such as develop-
ments in flood-prone zones. Coordination gaps between national, regional, and municipal levels hin-
der the effectiveness of CCA strategies in addressing specific vulnerabilities like those exposed by 
the recent DANA. While Spain has a strong policy framework, the pace of implementation can lag 
behind the urgency of climate risks. Efforts to enhance infrastructure, update regulations, and inte-
grate climate data into planning processes may not be sufficient to prevent or mitigate the impacts 
of extreme phenomena. 

7 

 
 
Suggested below are potential pathways for enhancing the adoption of a transformative climate 
adaptation approach, aligned with each of the seven key transformative innovation features. 

Directionality. Set clear, measurable CCA targets and prioritize innovative adaptation approaches. 
Build a strong base of expertise in CCA, across national, regional, and municipal administrations, 
with a focus on cross-collaboration. Leverage insights gained from other EU regions to refine and 
enhance adaptation strategies.  

Articulation. Clarify the responsibilities of local, regional, and national governments in adaptation 
projects to minimize overlaps and ensure accountability at each level. Develop incentives to encou-
rage private sector participation in CCA initiatives. Introduce green certifications or awards recogni-
zing businesses that adopt and implement adaptation practices. Encourage public-private partner-
ships that can leverage private sector innovation and investment to complement public resources. 
Establish a dedicated funding mechanism tailored to smaller municipalities, offering straightfor-
ward application processes and providing technical assistance to support project development and 
management.  

Ensuring cross domain synergies. Provide increased support to multi/inter/trans disciplinary CCA 
research. Identify and address any strategic silos that may hinder collaborative efforts across sec-
tors. Engage communities in CCA initiatives, including in research projects, with a focus on responsi-
ble research practices. Leverage the potential of a “climate adaptation economy” by incorporating 
business-oriented innovation tools into the adaptation project portfolio.  

Increasing breadth and depth of stakeholder involvement. Continue and expand the stake-
holders engagement efforts already established. Design detailed recommendations for involving 
distinct groups, including vulnerable, marginalized, and underrepresented communities. Ensure that 
stakeholder involvement is not limited to the initial stages of planning but includes regular feedback 
loops throughout implementation. Establish channels for continuous input from diverse groups to 
refine CCA strategies over time. Encourage greater business participation in CCA. 

Setting up effective multi-level governance models. Define clear roles and responsibilities of 
each coordinating body within the local-regional-national framework. Develop a digital platform to 
facilitate information sharing, decision-making, and responsibility tracking among these bodies, en-
hancing accountability, clarity of information and decision making flow.   

Making room for experimentation. Introduce policy "labs" that serve as change agents and inno-
vation catalysts within governance structures. These policy labs are particularly well-suited to ad-
dress complex issues, such as CCA, through innovative approaches. Establish a centralized, accessi-
ble database that documents and showcases successful adaptation practices and experimentation 
initiatives. Foster a culture of innovation. 

Awareness and understanding of CCA. Use surveys and public consultations to assess public un-
derstanding and misconceptions regularly. Provide enhanced support for the organisation of work-
shops and seminars  to explain climate change causes, impacts, and necessary actions. Develop ed-
ucational materials tailored to local contexts. Produce mini-documentaries  featuring stories of peo-
ple affected by climate change. Partner with influencers and public figures to broaden the cam-
paign’s reach. Establish funding opportunities and technical assistance for small municipalities to 
help them actively participate in climate awareness initiatives. Set up regional “training of trainers” 
programs where municipal staff and local volunteers learn to lead climate awareness activities 
within their communities. 

8 

 
 
Knowledge base for CCA. Constantly update the dedicated platforms with information regarding 
the implementation of the CCA plans, relevant projects, programmes etc. Ensure budgetary resour-
ces and timely update of the monitoring platforms. Collect and incorporate granular, locally relevant 
data that can inform regional adaptation strategies. Develop mechanisms for integrating region-
specific data into national climate risk reports, ensuring they address unique local vulnerabilities 
and conditions. Provide funding and technical support to municipalities for installing data collection 
infrastructure. 

Strategic capacity. Establish a technical assistance programme and dedicated funds for training 
workshops to enhance local officials' expertise. A centralized platform is essential for sharing infor-
mation about training opportunities, while enhanced collaboration between regional and local au-
thorities can ensure standardized processes meet local needs. Create a database of relevant CCA 
good practices for the national, regional, local context. Tailored training programmes for regions, 
municipalitioes like Granada should address specific climate risks. Financial and technical support 
for smaller municipalities and regular evaluations of training impact will further enhance local stra-
tegic capacity and climate resilience. 

9 

 
 
 
 
 
 
1 

Introduction to the case study territory 

1.1  Profile of the territory  

1.1.1  Spain 

Spain, the second-largest country in the European Union, encompasses a total land area of 
506,9941 square kilometres. It shares the Iberian Peninsula with Portugal. Spain's mainland is pri-
marily surrounded by the Mediterranean Sea to the south and east, with a minor land boundary 
shared with Gibraltar. To the north and northeast, it is bordered by France, Andorra, and the Bay of 
Biscay, and to the west and northwest, it abuts Portugal and the Atlantic Ocean. Beyond the Spanish 
mainland, the country also includes the Canary and the Balearic Islands archipelagos, in addition to 
the autonomous cities of Ceuta and Melilla. According to the data provided by the National Statis-
tics Institute (INE), as of January 1, 2022, Spain's resident population stands at 47,432,893 inhabit-
ants. This figure represents a substantial growth of 16% since 2002.  

Spain's geographical location exposes it to the influences of two different bodies of water: the ex-
pansive and open Atlantic Ocean, and the Mediterranean Sea, which connects to the Atlantic 
through the narrow Strait of Gibraltar. The strait facilitates the exchange of waters with distinct sa-
linity and temperature characteristics. The Spanish coastline, stretching over 7,876 kilometres, is 
distributed across the mainland, the Balearic Islands, and the Canary Islands. Spain is one of the 
most biologically diverse countries in the European Union and belongs to an area designated as one 
of the 25 biodiversity hotspots on the planet. The Natura 2000 network in Spain has around 1500 
protected sites and is one of the largest national networks in the EU 2 and comprise in total the area 
of more than 222,000 km2. Of this total area, more than 138,000 km2 correspond to land surface, 
which represents approximately 27.35% of the Spanish territory, and about 84,300 km2, to marine 
surface. These sites protect a wide range of habitats, including wetlands, coastal dunes, forests, 
grasslands, and mountain areas. 

Given its topography and geographical position, the country experiences a wide range of climatic 
conditions, from humid Atlantic regions with annual rainfall exceeding 2,000 millimetres to vast 
semi-arid areas characterized by severe hydrological stress. Additionally, isolated areas in Spain ex-
hibit cold alpine climates. Spain's great climatic diversity, together with other morphological and 
geological aspects, explains the great hydrological contrasts that exist. The natural regime of rivers 
depends mainly on rainfall, either through surface runoff or through underground contributions.  

1.1.2  Andalucia 

Andalusia, autonomous community (comunidad autónoma)  and historical region of Spain, encom-
passes the provinces (provincias)  of Huelva, Cádiz, Sevilla, Málaga, Córdoba, Jaén, Granada and Al-
mería. Covering 87,268 km², Andalusia is Spain’s second largest Autonomous Region and accounts 
for 18% of the country's total population. Andalusia comprises a total of 778 municipalities and is 
distinguished by a dense network of diverse population centres. Slightly more than half of the popu-
lation resides in 29 municipalities with over 50,000 inhabitants; the average density is around 100 
inhabitants per square kilometre. 

1 wikipedia 
2 https://www.miteco.gob.es/es/biodiversidad/temas/espacios-protegidos/red-natura-2000/rn_espana.html  

10 

 
 
 
 
 
Figure 1. Andalusia Region 

Andalusia borders at the north with the regions of Estremadura and Castilla-La Mancha with the Si-
erra Morena Mountain range forming the southern border of the “Meseta Central” plateau. Its main 
river system is the Guadalquivir River basin that stretches throughout the autonomous region. In the 
west, the Guadiana River acts as the dividing line between Andalusia and Portugal, in the province 
of Huelva. Along the southern coast, Andalusia is bordered by the Atlantic Ocean, and the Mediterra-
nean Sea. The eastern boundaries are delineated by the Mediterranean coast of Almería and the Le-
vante region in eastern Spain. Approximately half of Andalusia's terrain is mountainous, with over a 
third of its land situated at elevations surpassing 600 meters above sea level. The region boasts an 
expansive high plateau and is home to 46 peaks above 1,000 meters (Britannica). 

In terms of GDP, Andalusia contributes 13.3% to the national GDP, making it the third-largest Au-
tonomous Community in terms of GDP, and the 16th in GDP per capita. For the period 2021-2027, 
it has been classified as a "less developed region" under cohesion policies, as it falls below 75% of 
the EU GDP per capita. In 2021 (Q3) the unemployment rate rose to 22.4% and the region GDP con-
tracted by 11.0% in 2020 (10.0% according to the INE Regional Accounting), being strongly af-
fected by the COVID pandemics. The regional economy has already recovered pre-crisis employ-
ment levels, although the unemployment rate remains at 19% [BBVA, 2022]. 

Andalusia, while rich in agricultural output, is comparatively less developed and contributes a 
smaller share to Spain's overall gross domestic product (GDP). The GDP by sector is primarily con-
centrated in services and tourism (75.4% of the region's GDP, compared to the national average of 
75.1%). The industry sector contributes 11.5% to Andalusia's regional GDP, which is lower than the 
15.9% national average. Agriculture is a significant sector in Andalusia, accounting for 6.1% of the 
region's Gross Value Added (GVA), which is more than double the 2.8% contribution of agriculture to 
the national GVA. Andalusia contributes 29.1% to the national agriculture total  [S4 Andalucia, 
2021-2027]. The manufacturing sector in the region is relatively underdeveloped and is primarily 
centered on processing agricultural products, fishing, and mining. While Andalusia's mining industry 
has experienced a decline from its peak in the late 19th century, mines in the Sierra Morena still 
yield substantial quantities of coal, iron, copper, and lead. Despite abundant coal deposits in the Si-
erra Morena and the utilization of hydroelectric resources along the upper reaches of the Guadal-
quivir River and the lower regions of the Baetic Cordillera, Andalusia faces an energy deficit. To-

11 

 
 
 
 
  
 
 
 
 
 
 
 
 
wards the end of the 20th century, the region turned to solar and wind power plants as an alterna-
tive energy source.  Andalusia’s service sector has benefited from tourism, with visitors attracted to 
the hotels along the Mediterranean coast as well as the architecturally rich cities of Granada, Cór-
doba, and Sevilla.  

The agricultural landscape in Andalusia is dominated by large estates known as "latifundios," which 
have become increasingly mechanized over time. However, the region still lags behind the national 
average in terms of the adoption of modern agricultural practices such as the use of tractors, irriga-
tion, and fertilizers. Oranges are cultivated throughout the region, while mountainous areas are ded-
icated to the cultivation of cork trees. Andalusia is renowned for its wine and brandy production, 
with notable centers in Jerez, Niebla, Montilla, and Málaga. The provinces of Sevilla, Córdoba, and 
Jaén are significant producers of olive oil and collectively account for about two-thirds of Spain's 
total olive oil production. 

The Natura 2000 Network in Andalusia covers, within the jurisdiction of the Government of An-
dalusia, 2.67 million hectares, of which 2.59 million are terrestrial and 0.07 million are marine. It is 
one of the richest and diverse of the European Union. For its management and conservation, it is 
fully included in the Network of Protected Natural Spaces of Andalusia (RENPA), by virtue of Decree 
95/2003, of April 8. It is made up of 197 protected spaces: (a) 63 Special Protection Areas for Birds 
(ZEPA); (b) 190 Places of Community Interest (SCI), of which 176 are declared Special Areas of Con-
servation (Natura2000). Among these are the Doñana National Park declared Ramsar Wetland 
(1982) and a UNESCO World Heritage Site (1994) and Sierra Nevada National Park, two of the most 
important and extensive national parks in Spain. 

Most of lowland Andalusia experiences a Mediterranean climate characterized by mild, rainy winters 
and hot, dry summers. Annual precipitation levels vary, ranging from approximately 80 inches 
(2,000 mm) in the Sierra Nevada and the Grazalema Mountains to as little as 8 inches (200 mm) in 
the arid Andalusian steppes. The coastal and lowland areas of Andalusia enjoy approximately 3,000 
hours of sunshine per year. While the lower part of the Guadalquivir River basin features fertile soil, 
the relatively low rainfall necessitates irrigation in certain areas. Temperature averages in different 
cities throughout the region vary, with some as low as 15.1 °C. Along the Guadalquivir valley and 
the Mediterranean coast, the average temperature hovers around 18 °C. January is the coldest 
month, with Granada at the base of the Sierra Nevada experiencing an average temperature of 6.4 
°C. The hottest months are July and August. Córdoba ranks as the hottest provincial capital, closely 
followed by Seville. The Guadalquivir valley has witnessed some of the highest temperatures ever 
recorded in Europe, the mountains of Granada and Jaén experience the coldest temperatures in 
southern Iberia, although they do not reach continental extremes and are surpassed by certain 
mountains in northern Spain. 

1.1.3  Granada 

Granada is the capital city of the province of Granada, located in the autonomous community of An-
dalusia, Spain. Positioned at the base of the Sierra Nevada mountains, Granada sits at the conflu-
ence of four rivers: the Darro, the Genil, the Monachil, and the Beiro. It is situated at an average ele-
vation of 738 meters above sea level. As of the 2021 national census, the population of Granada 
city was 227,383, while the estimated population of the entire municipal area was 231,775, ranking 
it as the 20th largest urban area in Spain.  

Granada experiences a hot-summer Mediterranean climate, with distinct seasons. In the summer 
the temperatures are high and the conditions are arid, with daily averages reaching around 34°C in 
July, and temperatures often exceeding 40°C. Winters in Granada are characterized by cooler and 

12 

 
 
 
wetter conditions, marked by annual rainfall concentrated between November and January. Frost is 
a regular occurrence, while snowfall is a rare event in the city, typically happening once every few 
years. Granada's spring and autumn seasons are characterized by unpredictability. In the recent 
years, the city has witnessed extreme heatwaves during the summer. In 2017, Granada experienced 
two significant heatwaves. In 2023, Granada faced yet another July heatwave. 

1.2  Climate change risks and vulnerabilities  

A summary of the climate change impacts and vulnerabilities are listed below, as highlighted by the  
National Climate Change Adaptation Plan, 2021 · 2030, the GreenPeace report, 2023 and other re-
levant academic studies. 

1.2.1 

Temperature increase and heatwaves 

▪  According to the Greenpeace report, “The Mediterranean, which includes Spain, is heating faster 
than many other world regions and has already experienced climate change impacts such as 
drought, floods, heatwaves, temperature extremes and increased forest fire risk [Greepenpeace 
Report, Miller K, Santillo D, 2023]“. On a global scale, the average annual temperature has in-
creased by approximately 1.15 degrees C compared to the nineteenth century (data comparison 
between the years 2011– 2020 with the years 1850–1900 (IPCC, 2023)). Since the 1980s, the 
rate of atmospheric warming in the Mediterranean has outpaced the global average. The projec-
tion is that the Mediterranean region will experience a warming of 2 degrees Celsius within the 
coming two decades, unless there are rapid and substantial reductions in global greenhouse gas 
emissions [Zittis et al., 2019]. This has been evidenced through events like the unusual spring 
heatwave in southern Spain in 2023, where temperatures at Córdoba airport reached 38.8°C on 
April 27, making it the hottest April day ever recorded in the country (McGrath & Hedgecoe, 
2023). 

▪  Length of summers has increased by an average of nine days per decade (AEMET).  

▪ 

Increase of the number of heat wave days: since 1984, the number of days per year in which 
heat wave temperature thresholds are exceeded has doubled (AEMET). 

Figure 2. Temperature change in Spain, relative to average 1971-2000.  

Source: https://showyourstripes.info/c/europe/spain/all (accessed October 2023) 

13 

 
 
 
 
 
 
1.2.2  Droughts and floods 

•  Decrease in annual rainfall/ Decrease in the average flow of rivers/ Decrease in water resources. 
Spain has been witnessing a decline in annual rainfall, with a decrease of approximately 3 to 11 
millimeters per decade since the 1950s [Cherif et al., 2020]. This trend has led to significant 
water stress in several regions.  In particular, the south and central regions of Spain have seen 
a decline in the amount of annual precipitation, including both rain and snow. A 2019 study 
shows that 11 out of Spain's 15 river basin districts were experiencing water stress [Vargas, J. 
& Paneque, P., 2019]. While changing weather patterns played a role, the primary factors contri-
buting to this stress were the increased demand for water in agriculture (approximately 80%), 
urban water consumption (16%), and industrial use (4%). In 2023, the three districts facing the 
most severe water stress are Guadiana, Gualdalquivir, and the interior basins of Catalonia 
[Greenpeace, 2023]. In 2023, during the heatwave, the fight over who gets Spain’s water in Do-
nana Park has even become a matter of national political dispute. Water police was searching 
for illegal wells in Donana Park.3 

•  Expansion of semi-arid climate. When comparing Spanish climate maps for the periods 

1961-1990 and 1981-2010, it becomes evident that semi-arid areas have expanded. Approxi-
mately 30,000 square kilometers, which constitute around 6% of Spain's total surface area, 
transitioned to a semi-arid climate. This change is particularly notable in the southeast of the 
Iberian Peninsula. [Magrama, 2016] 

•  Decrease in the recharge of aquifers: the recharge of aquifers would be worth 15% of the 
amount of water that is extracted annually for irrigation from rivers and aquifers estimates 
that, for a global warming of 2 °C [Bisselink, B. et al. 2018].  

• 

Increased fire danger: increased soil dryness or elevated temperatures, in turn, increase the 
danger of forest fires. 

•  Torrential rains and floods: an increase in episodes of torrential rains and flooding is ex-

pected in some areas. DANAs (Depresión Aislada en Niveles Altos), also known as "cold drops 
(la gota fria)," are feared meteorological phenomena in Spain, particularly in the Mediterranean 
region, due to their history of causing severe flooding. A DANA occurs when a pocket of cold air 
becomes isolated at high altitudes, contrasting with warm surface temperatures, especially over 
a warm Mediterranean Sea. This temperature gradient creates atmospheric instability, leading 
to intense storms and torrential rains that often result in flooding. While these events are most 
frequent in summer and autumn, they can occur year-round, though with less intensity. Climate 
change is believed to exacerbate their severity. Studies suggest that rainfall is now less fre-
quent but more extreme, aligning with higher levels of precipitable water in the atmosphere. 
Notably, the 1973 DANA in Almería, Granada, and Murcia was among the most destructive, with 
record rainfall and significant loss of life. In autumn 2024, heavy rainfall has caused 150 liters 
of water per square meter to fall in just a few hours. The DANA caused devastating floods in 
Valencia, resulting in over 200 deaths and the destruction of thousands of vehicles and homes 

3 https://www.bloomberg.com/news/features/2023-07-22/spanish-climate-election-what-s-at-stake-as-country-suffers-
heat-drought#xj4y7vzkg  

14 

 
 
 
 
 
1.2.3  State of surface waters and marine waters 

• 

Increase of seawater temperature: The surface water temperature has risen in all Spanish 
marine regions. Sea surface temperature shows warming rates between 0.2 and 0.7°C per de-
cade, with an average of 0.34°C per decade since the 1980s for the Mediterranean. 

•  Salinity changes in surface waters/acidification of marine waters show high spatio‐tempo-
ral variability, with an increasing trend in salinity in intermediate and deep waters. During the 
last century ocean pH has decreased ~0.1 units; acidification is more noticeable in surface wa-
ters in direct contact with the atmosphere.  

•  Rise in average sea level has been especially notable since 1993. The mean sea level rise 
along the Atlantic-Cantabrian coast has generally followed the global average trend. Between 
1900 and 2010, it rose at a rate of 1.5 to 1.9 millimeters per year and increased to 2.8 to 3.6 
millimeters per year from 1993. In the Mediterranean Sea, sea level changes have displayed 
variable trends. From the 1960s to the 1990s, there were periods of negative or decreasing 
trends in sea levels. From the 1990s onwards, the sea level rates increased from 2 to 10 milli-
meters per year. 

1.2.4 

Impacts on fauna and flora 

Changes in the distribution of terrestrial and aquatic species, which move towards habitats with a 
more favourable climate. Climate change also enhances the colonization by invasive exotic species 
that act as vectors of disease transmission, impacts on fauna and flora and other elements of the 
natural heritage. For example a study showed that “Andalusian oak forest” and the “Corylus wet fo-
rest” types were the most vulnerable to climate change. High-elevation forest types and those with 
high moisture requirements were more vulnerable to climate change. [Hidalgo-Triana N, et al 2023]. 

1.3  Impact 

1.3.1  Spain 

Climate change has far-reaching impacts on various aspects of society and the environment. Here 
are some of the key impacts in different sectors: 

Health. Climate change affects health directly through extreme weather events and indirectly 
through increased air pollution, aeroallergens, changes in disease-transmitting vectors' distribution, 
and water and food quality loss. Human exposure to elevated environmental temperatures can 
cause an insufficient response of the thermoregulatory system. Specific age groups, such as the el-
derly population and young children are more vulnerable, due to greater difficulty in controlling 
temperature regulation mechanisms. The World Health Organization (WHO) estimated that heat 
stress contributed to over 4,000 excess deaths in Spain in 2022.  

Agriculture, Livestock, and Forestry. These sectors are highly dependent on climate and soil 
conditions. An analysis showed that the water cost in ES, is the most determinant factor in shaping 
agricultural land, offsetting the impact of the driver of water availability. In contrast, irrigation wa-
ter use is driven not only by water cost but also by irrigation efficiency. The magnitude of the sensi-
tivity to these drivers differs significantly across crops. [Martinez, P. Blanco et al 2023] 

Tourism. Climate change impacts the tourism industry, with changes in weather patterns affecting 
travel destinations and tourism-related activities. 

15 

 
 
 
 
Coastal Resources. Rising sea levels and more powerful coastal storms lead to coastal retreat, 
alterations in sedimentary and erosions, and impacts on coastal ecosystems. 

Energy Production and Consumption. Climate change affects various components of the energy 
system, from changes in the availability of renewable resources (e.g., wind, solar, and water) to the 
generation, transportation, distribution, and storage of energy. 

Cultural Heritage. Many properties, particularly those near coastlines, are at risk due to rising sea 
levels and the need for adaptation measures. 

Infrastructure Operability. Climate change can disrupt the operability of transport and social in-
frastructure systems. It affects not only these systems directly but also the adaptation measures 
required to mitigate these impacts. 

1.3.2  Andalucia 

The analysis of the impact of the climate change in region of Andalucia, using various scenarios, 
foresees uneven warming, more noticeable in the interior, off the coast and more pronounced in 
mountain areas, especially in the Betic mountains. The projections performed with distinct scena-
rios, during the ex-ante phase of the elaboration of the Andalucia Plan for CCA identify similar vul-
nerabilities as those at national level (as detailed above), but some with higher impacts. 

1.3.2.1  Temperature 

By mid-century (2041-2070) the most sustainable scenarios foresee a rise of between 2 and 4.5°C, 
while those with highest emissions (SSP3-7.0 and SSP5-8.5) show increases of between 2.5°C in 
the area around the Strait to 5.5°C in the Betic mountain. 

Figure 3. Prediction of (a) the increase of the average annual maximum temperature; (b) change 
of the heatwaves length using various greenhouse gas  emission. 

Source: AEMET4, accessed on 21 October 2023 

4 https://www.aemet.es/es/serviciosclimaticos/cambio_climat/result_grafi-
cos?w=0&opc1=and&opc2=Tx&opc4=0&opc6=0&opc3=Anual  

16 

 
 
 
 
 
By the end of the century (2071-2100) the most optimistic scenarios show increases of between 2 
and 5.5°C, while those with highest emissions show increases between 4 and 9°C. This corresponds 
to a maximum average temperature higher than 25°C on the coast (with a high humidity index) and 
higher than 30°C in the Guadalquivir plains. [Analysis of Future Evolution under Climate Change 
Scenarios of Climate Variables and Derived Variables]5  

The most probable scenarios predict average annual maximum temperatures of 24 to 26°C for the 
end of the century in the Guadalquivir area, 22 to 24°C on the coast, while in the interior depends 
strongly on the altitude, going from a range of 10-18°C to 15-24°C. The most pessimistic scenario 
raises these averages to 25-28°C (Guadalquivir area), 23-25°C (coast), 16-25°C (interior) for the 
aforementioned regions.  

1.3.2.2  Precipitation 

For the middle of the century (2040-2070), in the first emissions scenario (SSP1-2.6) moderate re-
lative increases are estimated, between 0 to 5% in localized regions, while in the rest of the Andalu-
sian territory a decrease is observed between 0 to 5%. In the other scenarios (SSP2-4.5 -> SSP5-
8.5) a generalized estimate of declines is observed that gradually intensifies as the future scenario 
becomes more pessimistic. A very similar situation is obtained in the two most pessimistic future 
scenarios, with a decrease from -1% to -15%, and can even reach -15 to -20% very locally in 
SSP5-8.5. 

1.3.3  Granada 

The main risks identified using various emissions scenarios are: higher temperatures, longer lasting 
heat waves, decrease of in rainfall, more intense periods of drought, increase in the concentration 
of precipitation, and greater frequency of downpours [PLAN PROVINCIAL DE ADAPTACIÓN AL 
CAMBIO CLIMÁTICO DE GRANADA, 2019]. 

In Granada province, the temperature increase is greater in the interior area of the province, es-
pecially in those more arid territories and with less vegetation cover.  

5 https://www.ficlima.org/intercambio/indexed/Escenarios_Andalucia/Entrega_03/00_Documentacion/Entrega-03-
1_Análisis_Futuros_Variables.pdf 

17 

 
 
 
 
 
2  State-of-play of CCA and innovation strategies 

The National Plan for Adaptation to Climate Change (PNACC 2021-2030) serves as Spain's foun-
dational framework for climate adaptation efforts, promoting coordinated action across sectors 
like water, biodiversity, energy, and urban planning. Approved in 2020, it outlines two work pro-
grams (2021-2025 and 2026-2030) that assign responsibilities to various entities and establish 
mechanisms for monitoring and evaluation. Additional national plans complement the PNACC, in-
cluding strategies for energy, health, sustainable finance, and coastal protection, each integrating 
climate mitigation and adaptation goals. Spain’s 2030 Sustainable Development Strategy and 
sector-specific frameworks like the Circular Economy and Industrial Strategies also align with cli-
mate objectives. Notably, Spain achieved significant EU recognition in climate action, with five of 
its cities labeled as EU Mission Climate-Neutral and Smart Cities in 2023. 

In Andalucía, the Andalusian Climate Action Plan (PAAC), established under Law 8/2018, aims to 
incorporate climate adaptation into regional and local planning, aligning with national and EU 
frameworks, and contributing to the 2030 Agenda. Approved in October 2021, the PAAC provides 
the legal and strategic structure for climate action in the region. 

In Granada, the Adapta Granada Plan (PLAN PROVINCIAL DE ADAPTACIÓN AL CAMBIO CLIMÁTICO 
DE GRANADA, 2019), approved in April 2023, was developed using a unique methodology that 
combines scientific data analysis with climate vulnerability assessment and coordination among 
local stakeholders. The plan, initiated in 2018 with support from the Biodiversity Foundation, is 
designed to address the adaptation needs of supra-municipal entities in the province. 

2.1  Spain 

The National Plan for Adaptation to Climate Change (PNACC 2021-2030) has been, since 
2006, the reference framework for public efforts at national level, for the generation of knowledge 
and design of measures for adaptive responses. The National Plan for Adaptation to Climate 
Change (PNACC 2021-2030) constitutes the basic planning instrument to promote coordinated and 
coherent action against the effects of climate change in Spain.  

After going through a period of public consultation, the Council of Ministers, at the proposal of the 
Ministry for the Ecological Transition and the Demographic Challenge, approved on September 22, 
2020 the second National Plan for Adaptation to Climate Change for the period 2021-2030.  

The PNACC 2021-2030 will be implemented through two main programming instruments:  

▪  The 2021-2025 Work Programme of the National Climate Change Adaptation Plan 

(PNACC) details the actions to be implemented during the first five years of the plan and the 
Second Programme will cover the period 2026-2030. The Working assigns responsibilities to var-
ious entities for executing these actions and establishes mechanisms for information sharing, 
monitoring, and evaluation of the plan's progress. Developed with input from 18 ministries, along 
with several state agencies and autonomous organizations, the programme underwent a period 
of public consultation to ensure broad stakeholder engagement in shaping its goals and actions. 
The PNACC-2 Work Programmes will: 

▪  Detail the planned measures,  

▪  Identify, where appropriate, priority measures, taking into account the level of risk asso-

ciated and potential benefits of the proposed adapta- tion measures.  

18 

 
 
 
 
▪  Identify the organisations responsible for the development of the measures and collabora-

ting organisations.  

▪  Include compliance indicators with the defined measures in order to facilitate monitoring 

and evaluation.  

▪  Sectoral and Territorial Adaptation Plans. These plans are instruments for detailed adapta-

tion planning in specific areas of work or territories. The plans:  

▪ 

Include a diagnosis of the main risks posed in the sectoral or territorial area in question  

▪  Define objectives to be met in order to respond to the described risks  

▪  Detail a set of measures to meet the defined objectives  

▪ 

▪ 

Identify the organisations responsible for the development of the measures and collabora-
ting organisations  

Include compliance indicators with the defined measures in order to facilitate monitoring 
and evaluation.  

Other important Strategies and Plans defined at national level, which integrate actions relevant for 
climate change mitigation and adaptation are: 

▪  National Integrated Energy and Climate Plan 2021-2030: Defines national goals for greenhouse 
gas emission reductions, renewable energy integration, and energy efficiency improvements. 

▪ 

Long-Term Strategy for a Modern, Competitive, and Climate-Neutral Spanish Economy by 2050: 
Analyzes options for decarbonizing the economy and proposes a trajectory to achieve climate 
neutrality based on available technology and scientific knowledge. 

▪  Sustainable development Strategy 2030: The strategy, shaped as a long-term national plan, 
fosters political and social consensus to drive the structural transformations required for the 
2030 Agenda, aiming to position Spain as an international leader in its implementation. 

▪  National Health and Environment Plan (Plan Estratégico de Salud y Medio Ambiente (PESMA) 

2022-2026): The plan aims to reduce the impact of environmental factors on public health by 
promoting healthy and sustainable environments. Aligned with the Agenda 2030 and the 
European Green Deal, the plan focuses on areas like air quality, water, climate change, and 
chemical management. 

▪ 

Environmental Education Action Plan for Sustainability (2021-2025) (Plan de Acción de 
Educación Ambiental para la Sostenibilidad (PAEAS) 2021-2025): Focuses on education for 
sustainability. 

▪  Spanish Strategy for Science, Technology, and Innovation 2021-2027 (english version) 

(Estrategia Española de Ciencia, Tecnología e Innovación 2021-2027 (EECTI 2021-2027): 
Incorporates climate change objectives into science and technology policies. 

▪  Desertification Strategy, National Forest Strategy, and Demographic Challenge Strategy 

(Estrategia Nacional de Lucha contra la Desertificación (ENLD). Approved in June 2022, the 
ENLD updates the 2008 National Action Program against Desertification. Its objective is to 
establish a framework for policies and initiatives related to desertification in Spain, ensuring 
compliance with international commitments. 

19 

 
 
▪  Circular Economy Strategy (España Circular (EEEC) 2030 y Planes de Acción): Approved on June 
2, 2020, it establishes the foundation for transitioning from a linear economy to a circular 
model, aiming to retain the value of products, materials, and resources within the economy for 
as long as possible, minimize waste generation, and maximize the utilization of unavoidable 
waste Integrates climate objectives into circular and industrial economic processes. 

▪ 

Industrial Strategy (Política Industrial Española 2030): Supports sustainable and decarbonized 
industrial progress, accompanied by a new Industrial Law. 

▪  Sustainable Tourism Strategy of Spain 2030 (Estrategia de Sostenibilidad Turística en Destinos): 

Addresses the relationship between climate change and tourism. 

▪  Spanish Coastal Protection Strategy against Climate Change (Plan Estratégico Nacional para la 
Protección de la Costa Española considerando los Efectos del Cambio Climático - PEN). This 
strategy aims to increase the resilience of the Spanish coastline to climate variability and 
change, integrating adaptation measures into coastal planning and management. It provides a 
framework for assessing vulnerabilities and implementing actions to mitigate adverse effects 
on coastal ecosystems and communities. 

▪  National Strategy for Green Infrastructure, Connectivity, and Ecological Restoration. Spain's 

strategic framework for implementing and developing green infrastructure across its territory, 
including its maritime waters. Approved on July, 2021. 

Given the significant impact of climate change in Spain, five out of ten cities that received the label 
EU Mission for Climate-Neutral and Smart Cities on October 2023 are from Spain: Madrid, Valencia, 
Valladolid, Vitoria-Gasteiz and Zaragoza (Spain), together with  Klagenfurt (Austria), Cluj-Napoca 
(Romania) and Stockholm (Sweden), Sønderborg (Denmark), Mannheim (Germany).6 

2.2  Andalusia  
In Spain, although there is no national requirement to create regional plans, all autonomous com-
munities have developed their own strategic frameworks, plans and/or programs regarding adapta-
tion to climate change. Some autonomous communities, such as Catalonia, the Balearic Islands and 
Andalusia, have reinforced the legal framework by approving their own climate change laws [Law 
16/2017 of August 1 (Catalonia), Law 8/2018 of October 8 (Andalusia) and Law 10/2019 of Fe-
bruary 22 (Balearic Islands). The majority of large Spanish cities have approved their own strategies 
or plans to combat climate change that include, in many cases, objectives and lines of work on 
adaptation. 
The Andalusian Climate Action Plan (PAAC) is the general strategic planning instrument in Anda-
lusia for the fight against climate change, and is derived from Law 8/2018 on climate change of 
Andalusia. It has the aim to integrate climate change into regional and local planning, align them 
with the national strategic plans, the European Green Deal and the Paris Agreement, contributing to 
achieving the Sustainable Development Goals set by the 2030 Agenda. 
The PAAC was approved by the Government Council on October 13, 2021 and published by Decree 
234/2021, of October 13, which approved the Andalusian Climate Action Plan Climate in BOJA num-
ber 87 of October 23, 2021. 

2.3  Granada 

Given that there were no methodologies for the preparation of Climate Change Adaptation Plans for 
supra-municipal entities, the Granada Provincial Council has designed its own methodology, which 

6 https://ec.europa.eu/commission/presscorner/detail/en/ip_23_4879  

20 

 
 
 
 
 
combines, on one hand, the scientific analysis of climatic data in each territory, and the evaluation 
of its vulnerability to climate change, according to the climatic scenarios, and on the other hand, the 
necessary institutional coordination and participation of the territory's agents in the process of pro-
posing and selecting adaptation actions. The Plan ADAPTA GRANADA (PPACCGr) was approved on 27 
/4/2023). The work undertaken for the design of the Plan was carried out through the ADAPTA Gra-
nada Project between the months of September/2018 and June/2019, and had the support of the 
Ministry for the Ecological Transition through the Biodiversity Foundation.7 

7 http://www.adaptagranada.es/gallery/resumen%20ejecutivo%20ppaccgr%20adapta-granada-una%20pagina.pdf  

21 

 
 
 
 
 
 
Table 1: Status of the relevant strategic documents and actions  

National level 
item 

Status 

Link 

Climate Law (including adaptation) 

 adopted 

National Adaptation Strategy 
(NAS) 

National Adaptation Plan (NAP) 

adopted 

Sectoral Adaptation Plan (SAP) 

adopted 

▪ Law 7/2021, of 20 May, on Climate Change and Energy 

Transition 

▪ National Climate Change Adaptation Plan 2021-2030 
▪ National Climate Change Adaptation Plan  

▪ Climate Change Adaptation: Work Programme 2021-2025 
▪ Climate Change Adaptation: 3º Work Programme 
▪ Climate Change Adaptation: 2º Work Programme 
▪ Climate Change Adaptation: 1º Work Programme 

▪ Adaptation Strategy for the Spanish Coast 
▪ Strategic Guidelines on water and climate change 
▪ Climate Change Plan 2018-2030 of ADIF (Administrator of 

Railway Infrastructures) 

▪ A preliminary General Assessment of the Impacts in Spain 

Climate Risk Assessment (CRA) 

Finalised 

Due to the Effects of Climate Change 

▪ Impacts and risks derived from climate change in Spain 

Meteorological observations 

Established 

State Meteorological Agency (AEMET) 

Climate projections and services 

Established 

Adaptation portals and platforms 

Established 

Monitoring, reporting & evaluation 
indicators & methodologies 

Established 

▪ Climate projections for the XXI Century (AEMET) 
▪ The AdapteCCa Climate Change Scenario Viewer 
▪ "Climate Change on the Spanish Coast" (C3E) - WEB viewer 
▪ Assessment of the impact of climate change on water re-

sources and droughts in Spain - CAMREC 

▪ Spanish Autonomous Communities viewers of climate 

change in coastal areas 

▪ Spanish Climate Change Platform AdapteCCa 
▪ The AdapteCCa Climate Change Scenario Viewer 

▪ Executive Summary of the Evaluation Report of the PNACC 

(2019) 

▪ 2021 Art. 19 (1) reporting 
▪ 2023 Art. 17 (2)(d) reporting 
▪ 2023 Art. 19 (1) reporting 

Governance regulation adaptation 
reporting 

ANDALUSIA  

Andalusian Climate Action Plan 

Climate projections and Sce-
narious for Climate Change An-
dalusia 

Adaptation portals and platforms 

GRANADA 
Plan ADAPTA GRANADA. Plan Pro-
vincial de Adaptación al Cambio 
Climático de Granada (PPACCGr)  

Adaptation portals and platforms 

Source : Author compilation 

Adopted 2021 

done 

▪  https://www.juntadeandalucia.es/medioambiente/portal/docu-

ments/20151/27181420/PAAC.pdf/e4761b37-e5ea-1204-9364-
3f25bbd39be3?t=1635167310439  

▪  https://www.juntadeandalucia.es/medioambiente/portal/areas-tematicas/cam-
bio-climatico-y-clima/escenarios-locales-de-cambio-climatico/que-son-los-
escenarios-locales-de-cambio-climatico 

▪  https://www.juntadeandalucia.es/medioambiente/portal/areas-tematicas/cam-
bio-climatico-y-clima/escenarios-locales-de-cambio-climatico/escenarios-lo-
cales-de-cambio-climatico-actualizados-6-informe-ipcc 

▪  https://andalucia.sicma.red/ 

▪  https://www.juntadeandalucia.es/medioambiente/portal/web/cambio-climatico  

▪  http://www.adaptagranada.es/gallery/resumen%20ejecutivo%20ppac-

cgr%20adapta-granada-una%20pagina.pdf  

▪  http://www.adaptagranada.es  

Established 

adopted 

22 

 
 
 
 
 
3  Analysis against conceptual framework: Transformative Innova-

tion for better Climate Change Adaptation 

A previous report on this subject for the European Commission JRC had defined an analytical fra-
mework identifying seven key features of Transformative Innovation as essential conditions for the 
design and implementation of CCA strategies with high ambition level (European Commission, 
2024). These features can be summarised as follows:   

Directionality: defining goals and scope of strategic action, as well as articulating impacts, in a 
way which reflects societal challenges with wide appeal, formalised through endorsement at 
highest political level to secure engagement of all relevant authorities and stakeholders. 

Articulating instrument portfolios and defining synergies between funding sources: esta-
blishing all-encompassing instrument portfolios addressing the whole innovation cycle and the va-
rious aspects of CCA, paired with adequate funding resources. 

Ensuring cross domain synergies: favouring whole-of-government approaches to ensure greater 
horizontal coherence between various thematic policy areas (R&I, agriculture, environment, mobility, 
health etc.), resulting in coordinated mixes of instruments of different types. 

Increasing breadth and depth of stakeholder involvement: working towards social acceptance 
of new solutions and shaping of innovative developments, as well as improving public trust, opening 
up public debates, managing diverse and sometimes conflicting views over alternative pathways. 

Setting up effective multi-level governance models: maximising potential of vertical syner-
gies, recognising complementary roles for various governance levels - local, regional, national and 
EU; 

Making room for experimentation: providing adequate spaces for risk-taking and creativity - en-
suring a risk-tolerant environment to facilitate development of new and/or radical solutions. 

Securing high levels of policy intelligence, learning and strategic capacity: building strong 
evidence-based policy learning capacities, based on a solid knowledge base and special skills to 
manage transitions, as necessary companions to the transformative innovation approach. 

The analysis below follows this framework.  The key characteristics of the territory’s approach to 
CCA strategy development and implementation and their linkages with innovation policies and stra-
tegies, as revealed by the case study research, are explored in turn, in relation to the above seven 
features.  Each feature constitutes a core section of the Report. 

23 

 
 
 
 
 
 
3.1  Directionality: defining goals and expected impacts for society 

The National Plan for Adaptation to Climate Change (PNACC 2021-2030) (PNACC-2) aims 
to minimize current and future climate change damages and build resilience through coordinated 
efforts. It continues PNACC 2006-2020, incorporating new international commitments and recent 
climate risk knowledge. PNACC-2 sets nine objectives, including enhancing climate observation, gen-
erating knowledge, building capacity, identifying risks, integrating adaptation into public policies, in-
volving stakeholders, coordinating administratively, fulfilling international commitments, and moni-
toring and evaluating policies. It outlines 81 action lines across various sectors, organized into 18 
work areas.  

The Andalusian Climate Action Plan (PAAC) serves as the primary strategic framework for ad-
dressing climate change in the region and is based on Andalusia's Law 8/2018 on climate change. 
The plan includes 44 adaptation strategies within a 2021-2030 timeframe, divided into three oper-
ational phases. Law 8/2018 marked a key environmental milestone, creating the Andalusian Office 
of Climate Change to support efforts in mitigation, adaptation, and communication. However, chal-
lenges remain in fully engaging the private sector and ensuring the effective implementation of ad-
aptation measures.  

The PAAC identifies knowledge gaps in adaptation and highlights the importance of fostering ap-
plied research and knowledge management. It includes a section called "dimensions of adaptation," 
which provides the rationale for selecting the strategic adaptation lines. 

The Plan Provincial de Adaptación al Cambio Climático de Granada (PPACCGr) focuses on 
identifying climate threats, assessing impacts, evaluating municipal and territorial vulnerabilities, 
proposing mitigation measures, and encouraging stakeholder participation.  

Bottleneck. At the supra-municipal and municipal levels, there was no predefined methodology for 
designing Climate Change Adaptation (CCA) Plans. In this context, Granada developed tailored ap-
proaches. This gap could lead to inconsistencies in how adaptation is implemented at these levels. 
The plan aims to monitor implementation. The operationalisation plans include various source for 
funding.  

3.1.1  Spain 

The PNACC 2021-2030 (PNACC-2) main objective is to avoid or reduce present and future damages 
derived from climate change and build a more resilient economy and society, through coordinated, 
coherent and consistent efforts. The PNACC-2 is the continuation of the previous PNACC 2006-
2020, coordinated by the Spanish Office of Climate Change (OECC), which was implemented 
through three successive work programs. PNACC-2 incorporates the new international commitments 
and the most recent knowledge on the risks derived from climate change, taking advantage of the 
experience obtained in the development of the first PNACC.8  

PNACC 2021-2030 defines objectives, criteria, areas of work and lines of action to promote adapta-
tion and resilience to climate change. Nine specific objectives have been outlined to complement 
the overarching goal. 

8 https://adaptecca.es/nacional  

24 

 
 
 
 
 
•  Enhanced Climate Observation: Strengthen the systematic observation of climate patterns 
and improve the production and updating of region-specific climate change projections for 
Spain. Develop climate services to provide valuable information. 

•  Knowledge Generation: Promote a continuous process of knowledge generation on climate 
change impacts, risks, and adaptation in Spain. Develop methodologies and tools for analy-
zing potential climate change impacts. 

•  Capacity Building: Enhance capacities for adaptation by supporting the acquisition and 

development of expertise in climate change adaptation. 

•  Risk Identification: Identify the primary climate change risks in Spain, considering their na-
ture, urgency, and magnitude. Support the formulation and implementation of appropriate 
adaptation measures. 

• 

Integration into Public Policies: Integrate adaptation into public policies to ensure that cli-
mate change considerations are embedded in governmental actions. 

•  Stakeholder Involvement: Encourage the active participation of all stakeholders, including 
various levels of government, the private sector, social organizations, and the general pu-
blic, in shaping responses to climate change risks. 

•  Administrative Coordination: Ensure administrative coordination and strengthen governance 

related to adaptation to climate change. 

•  European and International Commitments: Fulfill and expand Spain's commitments in the 

European and international context regarding climate change adaptation. 

•  Monitoring and Evaluation: Promote the monitoring and evaluation of adaptation policies 

and measures to assess their effectiveness and make necessary improvement 

PNACC defines and describes 81 lines of action to be developed in the different natural systems 
and socioeconomic sectors of the country, organized in 18 work areas, including human health, 
water and water resources, natural heritage, biodiversity and protected areas, coasts. and marine 
environment, forest protection, fight against desertification, or agriculture, livestock and food secu-
rity. In addition to the sectoral guidelines, the plan proposes seven key lines of work to be inte-
grated transversally into all areas. 

3.1.2  Andalucia 

“It should be noted that policies concerning CC in Andalusia are defined for all territorial units as a 
whole, this meaning that they apply equally on the regional, provincial, and municipal level, defining 
the framework for Climate Action. Support to smaller territorial units is provided by the central ser-
vices of Andalusia ministry and territorial/provincial delegations.” (interview with staff of Junta de 
Andalucia). 

The  Andalusian Climate Action Plan (PAAC) defines the strategic objective in terms of adaptation 
as" Reducing the risk of the impacts of climate change, minimizing its effects" within the framework 
of a vision of change and transformation of society directed towards "sustainable development and 
climate neutrality in 2050 in Andalusia through shared responsibility of Public Administrations, com-
panies and citizens " in line with the path taken by Europe in the European Green Deal. 

25 

 
 
 
The achievement of the objectives of the PAAC is addressed from the delimitation of a series of 
strategic lines, up to a total of 44 in the case of adaptation, distributed among the set of strategic 
areas stipulated by Law 8/2018, art 11. 

This social transformation is framed within a time horizon of the PAAC between 2021 and 2030, 
which will be divided into three operational programs covering the periods 2021-2022, 2023-2026. 
and 2027-2030. 

Adaptation Programme. The Adaptation Programme aims to reduce the economic, environmental, 
and social risks derived from climate change through the incorporation of adaptation measures in 
the autonomous provincies and local planning instruments: 

▪  Guide and establish the programming of actions to adapt to the climate change of the An-

dalusian society, the Andalusian business, the Administration of the Junta de Andalucía and 
the local entities, according to an evaluation of risks based on a common scenario. 
Expand the knowledge base about the impacts of climate change in the territory of the Au-
tonomous Community. 
Incentive for the participation of private sectors in the identification of opportunities and 
threats. 

▪ 

▪ 

In the fight against climate change, municipalities play a very important role as local authorities are 
in an ideal position to satisfy citizen needs and preserve public goods. Being aware of the above, 
Law 8/2018 positions local entities in a central place in its strategic design, establishing as another 
planning instrument the Municipal Plans against Climate Change (PMCC) and defining, through 
the PAAC, a planning system that connects the regional level with the local level to address the fight 
against climate change. 

‘The PAAC acknowledges the presence of knowledge gaps in adaptation and emphasizes the need to 
promote applied research and knowledge management. It dedicates a specific section, "dimensions 
of adaptation" to address these gaps, providing the foundation for selecting the strategic adaptation 
lines’. (interview with staff of Junta de Andalucia). 

3.1.3  Granada 

”Municipalities play a very important role as local authorities are in an ideal position to satisfy citi-
zen needs and preserve public goods. Being aware of the above, Law 8/2018 places local entities in 
a central place in its strategic design, establishing as another planning instrument the Municipal 
Plans against Climate Change and defining, through the PAAC, a planning system that connects the 
regional level with the local level to address the fight against climate change.” (interview with staff 
of Junta de Andalucia) 

The objectives of the Provincial Plan for Adaptation to Climate Change of Granada (PPAC-
CGr) are: 

• 

Identify climate threats in the territory. 

•  Know the potential impacts that may occur in the provincial territory according to the propo-

sed scenario. 

•  Evaluate the response capacity or vulnerability of municipalities and Territorial Management 

Units to potential threats and impacts. 

26 

 
 
 
•  Propose lines of work and measures aimed at reducing/alleviating the detected threats, 

both supralocal and local, as well as sectoral. 

•  Encourage the participation of experts and social agents so that a document agreed upon 

by all is formed and that adjusts to reality. 

•  Monitor the implementation of the project and its actions. 

3.2  Articulating instrument portfolios and defining synergies between funding sources 

The funding landscape for climate adaptation in Spain is supported by various EU financial instruments, 
with Spain being a significant recipient of Horizon Europe funding. Initiatives like the PIMA Adapta plans, 
implemented under the National Plan for Adaptation to Climate Change (PNACC) since 2015, aim to reduce 
vulnerability to climate impacts. Additionally, synergies between national and regional plans through the 
PNRR Complementary Plans focus on strategic areas such as energy, green hydrogen, biodiversity, and ma-
rine science. In Andalusia, the Andalusian Climate Action Plan (PAAC) and the Smart Specialization Strategy 
for the Sustainability of Andalusia (S4Andalucia) 2021-2027 are crucial in guiding climate change mitiga-
tion and adaptation efforts. These initiatives promote cooperation across regional and national levels, as 
well as with European programs like Horizon Europe, LIFE, and Interreg. 

Bottlenecks 
-  Despite available funding, several bottlenecks may hinder the effective implementation of climate ad-

aptation projects.  

-  One challenge is the limited involvement of the private sector, where more incentives are needed to 

- 

- 

encourage business participation in adaptation measures.  
There is also a need for better alignment and coordination between national, regional, local, and sec-
toral policies, which may to fragmented efforts and inadequate responses to the scale of climate risks. 
For instance, smaller municipalities often face difficulties in implementing complex funding mecha-
nisms due to the complexity of application processes.  
Furthermore, the PAAC, while applicable across various levels of government, does not fully address 
the unique challenges smaller municipalities face, leading to potential inefficiencies.  

-  Other bottlenecks include knowledge gaps related to climate impacts, particularly region-specific data, 
and coordination challenges between regional and local governments, which can result in fragmented 
actions.  

27 

 
 
 
 
 
3.2.1  Spain 

Among the European funds and other instruments 
associated with the Multi-Financial Framework 
2021- 2027, that include climate change adaptation 
actions in their scope, the following, as described be-
low, are highlighted by the PNACC 2021-2027 as 
complementary EU funding sources for its imple-
mentation.  

EUROPEAN SOCIAL FUND PLUS (ESF+) 2021- 
2027 includes climate change as a transversal ele-
ment.  MITERD will collaborate with the Ministry of 
Labour and Social Economy in defining measure for 
climate change adaptation in the strategic docu-
ments, especially those related to training and capa-
city building for technical and professional perfor-
mance with adaptive criteria, including the possibility 
of specific financing programmes such as Emplea-
verde. 

the 

The  Empleaverde  Programme    of  the 
Ministry for the Ecological Transition and 
the Demographic Challenge is the initia-
tive of the Biodiversity Foundation to pro-
mote  and  improve  employment,  entre-
preneurship  and 
environment. 
Through  the  Empleaverde  Program,  the 
Biodiversity Foundation acts as a bridge 
between employment policy and environ-
mental policy with a double objective: (1) 
the  environment  and  sustainability  be-
comes the basis for better jobs and more 
competitive  companies;  (2)  employees 
and companies are key actors in improv-
ing  the  environment.  The  programme  is 
an example of social innovation. 
Source:  https://www.empleaverde.es/pro-
grama-empleaverde 

Source: https://www.empleaverde.es/pro-

grama-empleaverde  
EUROPEAN REGIONAL DEVELOPMENT FUND 
(ERDF). At least 30% of ERDF reources in Spain must be invested in Policy Objective 2: Greener Eu-
rope, which includes Specific Objective IV, aimed at promoting climate change adaptation, risk pre-
vention and disaster resilience. At least 6% of ERDF resources will have to be dedicated to sustai-
nable urban development, and part of these ac-tions are climate-related.  

EUROPEAN AGRICULTURAL GUARANTEE FUND GUARANTEE FUND (EAGF) AND EUROPEAN 
AGRICULTURAL FUND FOR RURAL DEVELOPMENT (EAFRD).  EAGF and EAFRD are the funds 
that finance the Common Agricultural Policy (CAP) through direct payments to farmers. At least 
40% of the overall financial envelope should be dedicated to environmental and climate change ob-
jectives. The introduction of 'eco-schemes' 
can be used to incentivise additional prac-
tices that promote greater adaptation to cli-
mate change. 

EUROPEAN MARITIME AND FISHERIES 
FUND (EMFF). EMFF can contribute to cli-
mate change adaptation through diversifica-
tion of traditional fisheries, reducing the im-
pact of fishing on vulnerable marine ecosys-
tems, or supporting aquaculture to diversify 
its production and protect itself against cli-
mate-induced risks. At the regional and local 
level, the EMFF can support community-led 
development in fishing villages, which can 
involve local approaches to adaptation. The 
implementation of a similar plan to Pleamar 
is sought. Pleamar is one of the programme 
funded by EMFF during the cycle 2014-
2020. 

To  date,  the  Climate  Change  strand  has  co-fi-
nanced 72 projects in Spain with a total funding of 
€224  million,  of  which  the  EU  has  contributed 
€122 million. These projects have addressed  key 
areas such as greenhouse gas reduction, renewa-
ble energy development, management  of natural 
resources,  resilient  communities,  carbon  seques-
tration, and the mitigation of natural risks. 
PLEAMAR  Programme.  211  projects  selected 
Source:https://cinea.ec.europa.eu/system/files/202
for  co-financing,  supported  the  fishing  sector  in 
3-04/Spain_Update_EN_Final_March23.pdf  
its commitment to sustainability through collabo-
ration with environmental and scientific organiza-
tions and R&D&I. and thus reinforce the involve-
ment with the protection and conservation of the 
https://cinea.ec.europa.eu/sys-
Source: 
marine environment in which they carry out their 
tem/files/2023-04/Spain_Up-
activity. 
date_EN_Final_March23.pdf  
Source: https://www.programapleamar.es/resulta-
dos-del-programa-pleamar-periodo-2014-2020  

28 
Source: https://www.programapleamar.es/resulta-
dos-del-programa-pleamar-periodo-2014-2020 

 
 
 
    
 
 
 
 
 
 
 
 
 
LIFE Programme funds climate change mitigation, adaptation, governance and information pro-
jects. The LIFE Climate change mitigation and adaptation strand will support actions which help im-
plement the 2030 energy and climate policy framework and meet the European Union’s commit-
ments under the Paris Agreement on Climate Change. The budget for the period 2021–2027 is set 
at €5.4 billion.  

Horizon Europe 2021-2027 includes, wi-
thin Pillar II Global Challenges and Euro-
pean Industrial Competitiveness, a cluster 
dedicated to "Climate, Energy and Mobility". 
In addition, Horizon Europe also incorpo-
rates several "missions", one of which is 
specifically dedicated to climate change 
adaptation and social transformation. The 
allocation against climate change has been allocated a budget target of 35% of the total pro-
gramme budget out of an agreed total of EUR 75.billion for 2021-2027.  

A search on the Horizon Europe Dashboard using the 
keyword "climate adaptation" reveals that Spain has 
participated in 1,462 projects related to climate ad-
aptation. 

Source:  Horizon  Europe  Dashboard    (accessed  23 
October 2023) 

The European Investment Bank (EIB) finances climate action, mitigation and adaptation, mea-
sures. Technical and financial advice and contributes, together with other sources, to the financing 
of projects on renewable ene-gies, rational use of energy, technological efficiency, sustainable 
transport, efficient water supply and management. Support for projects is mainly provided through 
loans.  

NATIONAL FUNDING INSTRUMENTS  

Sectoral budgets. A significant part of the efforts dedicated to adaptation involves adjusting or 
rethinking existing lines of action so that they incorporate climate change. Hence, these will be im-
plemented largely through the budgets of the department involved. 

The PIMA Adapta plans contribute to the improvement of the environment, encouraging low-carbon 
economic activity and strengthening the resilience of the systems where they intervene. 

Box 1. PIMA Adapta Programme 

The PIMA programme has two general lines of work:  
Mitigation PIMA, which promote measures to reduce greenhouse gas emissions into the atmosphere in dif-
ferent sectors 
PIMA  Adapta, which are framed within the National Plan for Adaptation to Climate Change (PNACC) and 
aim to implement projects that reduce vulnerability to the effects of climate change, anticipating the ex-
pected impacts. PIMA Adapta has been in operation since 2015 in order to support the fulfilment of the ob-
jectives of the PNACC. PIMA Adapta funds may be allocated to units within the Central Government or dis-
tributed to Autonomous Communities for project management purposes.  PIMA Adapta initiative contem-
plates actions in different areas: 
- PIMA Adapta Agua: Water resources and public hydraulic domain 
- PIMA Adapta Costas 
- PIMA Adapts National Parks 
- PIMA Adapts Ecosystems 
- PIMA Adapta Biodiversity 

Source: PIMA Adapta. Knowledge and action against the risks derived from climate change (2020)   

29 

 
 
 
 
 
 
 
 
MOBILISING PRIVATE FUNDING. Actions envisa-
ged include the integration of adaptation to climate 
change into lines of public funding that involve the 
leverage of private financing and the creation of in-
centives for adaptation in companies. 

Both the Spanish Science and Technology and Inno-
vation Strategy (EECTI) and the State Plan for Scien-
tific and Technical Research and Innovation, are 
aligned with the European objectives. The national 
strategic lines follow the Horizon Europe themes, 
hence among the six themes, there are two targe-
ting explicitly CCA: 

•  Climate, energy and mobility: climate 

change, decarbonization, mobility and sus-
tainability  

In Andalucia, the following two plans were 
identified: 
▪  Pablo de Olavide University. The 'Biodi-
versity' plan focuses on the exploration, 
analysis  and  foresight  of  biodiversity, 
as  well  as  possible  responses  to  the 
2030  sustainable  development  strat-
egy in a scenario of global change. 
▪  University  of  Cádiz  (UCA)  The  'Marine 
Sciences' plan has the objective of pro-
moting the development of a research 
and  innovation  strategy  that  will  ad-
dress  new  challenges  in  marine-mari-
time  monitoring  and  observation,  cli-
mate  change,  aquaculture  and  other 
sectors of the blue economy. 

•  Food, bioeconomy, natural resources and the environment: from biodiversity to use of food 

of the land and seas. 

The National Plan for Resilience and Recovery package, NPRR and the NextGenerationEU tem-
porary instrument designed to promote recovery have investements of more than 3.4 billion euros 
aimed to strengthen the Spanish Science, Technology and Innovation System (SECTI), through nine 
investment programmes.  The PNRR Complementary Plans, in which common priorities of the state 
and regional plans converge, allow synergies in strategic areas reflected both in the state and regio-
nal Smart Specialisation Strategy (RIS3).  Among the 8 scientific areas identified, the following have 
direct relevance for CCA: Energy and Green Hydrogen, Agrifood, Biodiversity, Marine Science. In order 
to build territorial synergies, the Complementary Plans envisage the participation of several Autono-
mous Regions in a programme, with the possibility of participating in several projects.  
While all the programmes must align to the SDG, some explicitly target climate change mitigation 
and adaptation.  
Investment 7 Environment, climate change and energy9. This PNRR investment develops mea-
sures linked to environmental protection, the fight against climate change, research on new energy 
sources and technologies, and key materials for the energy transition. The following research pro-
jects will be implemented: 
•  Sustainable plastics for a circular economy;  
•  Climate change and impact on water reserves; 
•  Renewable energies; 
•  Development and integration of key high-tech components in the transition in the energy cycle 

towards a green and resilient economy:  

•  Favourable areas for the environmentally sustainable exploitation of raw materials of mineral 

origin critical for the energy transition both on land and at sea 

The Strategy for Science, Technology and Innovation 2021-2027 and its implementing Na-
tional Plan recognize the importance of addressing climate change and promoting the efficient 
use of resources and raw materials. This is evident in the inclusion among the six challenges, two 
which are focused on: 

9 https://www.ciencia.gob.es/en/Estrategias-y-Planes/Plan-de-Recuperacion-Transformacion-y-Resiliencia-PRTR/Medio-
ambiente--Cambio-climatico-y-energia.html  

30 

 
 
 
 
• 

climate, energy and mobility:  

o  climate change, decarbonization  
o  sustainable mobility 
o  sustainable cities and ecosystems 

• 

food, bioecnomy, natural resources and enviroment.  
o  Exploration, analysis and forecast of biodi-

versity 

o  Sustainable and smart food chain 

Spain  and  Portugal  collaborated  on 
the topic CCA, in the framework of the 
LIFE  SHARA  project  (Sharing  aware-
ness and governance of adaptation to 
climate  change).  The  project  took 
place between September 2016 and 
October  2021  with  the  aims  to 
strengthen the governance of climate 
change adaptation and increase resil-
ience in Spain and Portugal. 

Moreover, R&D&I actions in the field of climate change 
mitigation are regarded as horizontal in nature, meaning 
they have broad relevance across various sectors of 
economic activity. These sectors encompass transportation, residential, commercial, institutional, 
waste management, forestry, energy, agriculture, and livestock, among others. The goal is to align 
R&D&I activities and sectoral policies to facilitate the transition to a low-carbon economy, thereby 
promoting progress towards sustainable development. 

3.2.2  Andalusia 

Law 8/2018, art. 8 states that the Andalusian Climate Action Plan (PAAC) as the general planning 
instrument of the Autonomous Community of Andalusia for the fight against climate change. This is 
approved by the Government Council on October 13, 2021. Monitoring and climate action reports 
are published on the Andalusian Climate Change Portal. This law considers as "other planning instru-
ments" the Municipal Plans against Climate Change and collaboration with the General Administra-
tion of the State on climate change. 

Box 2. Andalucia extra-regional cooperation 

The PAAC promotes interterritorial cooperation between different regions and/or countries in a space of col-
laboration and synergy. For Andalusia, extra-regional cooperation is fundamentally focused on the Euro-
pean Union space as a collaborative territory. These collaborations are set with different cooperation tools 
and financial instruments. Through these associations, cooperation projects can develop, design and apply 
joint solutions to common problems and challenges inherent to a large part of their international coopera-
tion space, sharing experiences, good practices, ways of working and a wide dissemination of the results 
obtained.In the field of climate action, Andalusia mainly participates in European projects and ini-
tiatives (Interreg; Horizon 2020, LIFE, etc. ), cooperation networks (EIT Climate -KIC Spain, Confe-
rence of Peripheral and Maritime Regions of Europe, European Committee of the Regions or Glo-
bal Pact of Mayors for Climate and Energy) and Andalusian development cooperation (Union for 
the Mediterranean). 

In the risk assessment exercise carried out within the framework of preparing the PAAC, the impacts 
related to the alteration in the rainfall regime as a consequence of climate change stood out floods, 
droughts, availability of water resources.  

31 

 
 
 
NACAO Interreg Project 

The  Ministry  of  Sustainability,  Environment  and  Blue  Economy  of  the  Government  of  Andalusia 
through the Andalusian Office of Climate Change of the General Directorate of Environmental Sus-
tainability  and  Climate  Change,  leads  the  Interreg  Europe  NACAO  (Nature-based  Carbon  Offsets) 
project, approved in the 1st call of the new Interreg Europe 2021-2027 programme. The consortium 
consists of  five  European public  administrations:  the Regional Government of Marche  (Italy), the 
Regional Government of Świętokrzyskie (Poland), the Regional Government of Central Finland, the 
City Council of Bremen (Germany) and the Environment and Energy Agency of the Auvergne-Rhône-
Alpes region (France). Good practices on the topic of the project will be shared and integrated in the 
knowledge for public policies formulation. The NACAO project aims to support these regional gov-
ernments by promoting nature-based solutions for carbon offsetting. These solutions focus on pre-
serving, restoring, and enhancing natural sites, such as forests, wetlands, and mires, which can act 
as carbon sinks and help offset greenhouse gas emissions. Throughout the project, partner regions 
will  exchange  experiences related  to carbon  credits, emissions  markets,  and  relevant  policies,  all 
with the goal of fostering nature-based approaches to reduce carbon emissions and combat climate 
change. 
Source: https://www.interregeurope.eu/nacao  

’In line with this, the Junta de Andalucía participates as a partner in the Horizon Europe project, 
Climepower along with 13 others partners from 6 different countries. The objective of this project is 
to identify and test tools for modeling the impact/effect of possible adaptation measures related to 
the water environment (drought and floods).’ (interview with staff of Junta de Andalucia). 

The General Directorate of Environmental Quality and Climate Change (DGCACC) is participating in 
two climate adaptation projects funded by Climate KIC:. 

▪  DEEP DEMONSTRATION IN REGIONS: FORGING RESILIENCE – Focused on building 

resilience in Andalucía. The project offers specialized participatory processes in adaptation, 
potentially enhancing the content of the Andalusian Climate Action Plan (PAAC) and its public 
information processes. The final output will be a Project Portfolio, comprising a selection of 
pilot adaptation projects that integrate into Andalusian policies. 

▪ 

CRISI-ADAPT-II – Provides climate risk information to support adaptive planning. The project 
finalised in 2022 and focused on the impact of drought in Andalucía and other regions. FIC is 
working on simulating drought effects using various variables and conducting simulations to 
understand potential outcomes. 

The Andalucian Government also implemented PIM projects: 

▪ 

The PIMA Adapta Costas project, extended to 2021, provided input for Spain's National Climate 
Change Adaptation Plan (PNACC) and the Strategy for Adapting Spain's Coastline to Climate 
Change. It focused on conducting detailed regional studies along the Spanish coast, ensuring a 
consistent methodology for data collection and vulnerability assessment. The work of the 
Andalucian Directorate was focused on: (1)   A cartographic viewer to integrate collected data 
with climate change projections for coastal risk assessment; (2) A coastal risk study to assess 
the vulnerability and exposure of natural and socio-economic assets. (3) A Climate Change 
Adaptation Plan for public maritime-terrestrial areas in Andalucía, primarily focused on ports. 

32 

 
 
 
 
▪ 

PIMA PIMA Climate Change  The goal of PIMA Climate Change is to promote and support 
climate adaptation in urban and peri-urban areas, enhancing synergies between adaptation 
and mitigation strategies. In Andalucía, after the Andalusian Climate Action Plan is approved, 
grants will be made available to support municipal climate initiatives. 

The LIFE programme in Andalucia. Blue Natura Andalucía is part of the Climate Action subpro-
gramme within LIFE, focusing on climate change mitigation. The spanish partners in the project are 
the Environment and Water Agency of Andalusia (AMAYA), which is a public agency attached 
to the Government of Andalusia, which provides essential services in environmental and water mat-
ters in the Andalusia territory. Another partner is the SPANISH NATIONAL RESEARCH COUNCIL 
(CSIC), specifically the Group of Aquatic Macrophytes Ecology (GAME) from the Centre for Ad-
vanced Studies of Blanes (CEAB), a research centre belonging to the CSIC, and the association 
Man and Territory (Asociación Hombre y Territorio HYT) which has a wide experience in conservation, 
research, dissemination, and citizen participation. 

The project aims to quantify carbon storage and sequestration rates in Andalucía's seagrass mead-
ows and salt marshes, analyze their long-term CO2 capture potential, and assess their role in cli-
mate change mitigation. The project also supports funding for blue carbon habitat restoration, pro-
motes stakeholder engagement through training and outreach, and develop tools, including carbon 
credit verification standards and project models, to integrate these efforts into international carbon 
markets.The Smart Specialization Strategy for the Sustainability of Andalusia, S4Andalu-
cia 2021-2027, approved in July 2023, will benefit of 498,042,287 euros from ERDF Andalusia 
2021-2027 Programme. S4Andalucia is the evolution of RIS3Andalucía for the period 2021-2027 
and represents the regional instrument for planning, execution, development and evaluation of pu-
blic actions in research, innovation and industrial transition, digitalization, training, entrepreneurship 
and cooperation for specialization with a transversal perspective of sustainability and fight against 
Climate Change. It places sustainability as a central element of its actions and incorporates a new 
industrial policy guided by the framework of the European Green Deal.  

The S4 areas are listed below. 

▪  E.1. Intelligent, resilient and healthy society 
o  E1.S1. Health and social well-being 
o  E1.S2. Tourism and culture 
o  E1.S3. ICTCE sector. 

▪  E2. Agrotechnology 

o  E2.S1. Green and blue economy 
o  E2.S2. Agri-Food Industry – Functional Food  

▪  E.3. Natural resources: Mining and the water cycle 

o  E3.S1. Mining resources 
o  E3.S2. The water cycle 
▪  E.4. Transportation industries 

o  E4.S1. Advanced transportation and mobility systems industry 
o  E4.S2. Industrialized construction 

▪  E.5. Ecological Transition 

o  E5.S1. Energy Transition 
o  E5.S2. Industries linked to mitigation and adaptation to climate change 

33 

 
 
A transversal axis is the sustainability and 
circularity. The actions that are incorporated 
into S4Andalucia through this axis respond 
to the challenges aimed at supporting the 
sustainability of processes, products and 
services in a general framework of commit-
ment to a circular economy, activities that 
contribute to increasing the culture of sus-
tainability and circularity in the Andalusian 
innovation ecosystem, to generating innova-
tive developments in companies and public services, and especially to the protection of biodiversity, 
environmental quality and the sustainable use of resources.  

The modification of Law 10/2021 will allow com-
panies registered in the community environmental 
management and audit system (EMAS) and those 
registered in the Registry of the Andalusian Emis-
sions  Compensation  System  (SACE)  to  benefit 
from a 30% reduction in the fee for the prevention 
and control of pollution as of January 1, 2023.  

The S4 provides support for collaborative public-private actions. 

The Andalusian Research, Development, and Innovation Strategy (EIDIA) 2021-2027 highlights key 
elements related to climate change. Among the identified weaknesses is the limited number of re-
search, technological development, and testing centers in Andalucía, particularly in critical areas like 
energy and climate change. Andalucía’s strong potential for renewable energy presents a major 
strength, offering opportunities to attract industrial and RDI investments related to climate and en-
ergy. The Andalusian government has prioritized climate change and the energy transition through 
its "Green Revolution," establishing a cross-sectoral commission under the Presidency to stimulate 
RDI activities. This initiative aims to attract investment and improve coordination among regional 
departments and public companies. Social innovation is also seen as a vital opportunity, comple-
menting technological innovation as a driver for developing the social and collaborative economy, 
particularly in areas such as energy transition and climate action.  

Box 3. The Andalusian Climate Change Observatory Network Programme 

The Andalusian Climate Change Observatory Network Programme (CAGPDS02), with a budget of €17.6 mil-
lion, is dedicated to enhancing data availability for studying and monitoring biodiversity and its adaptation 
to global changes. This goal is supported by developing a strong scientific and technical infrastructure to 
improve biodiversity management. 

The programme's core actions include: 
 - Developing the LifeWatch-ERIC e-infrastructure, which will serve as a platform for virtual laboratories 
and services. 
- Establishing a regional infrastructure to support a distributed work environment, enabling effective moni-
toring of global change impacts on biodiversity. 
- Research organizations will operate as observatories, while the regional administration will provide the 
necessary infrastructure to ensure that knowledge generated is available in formats suited for integration 
into public administration processes and environmental policies. 
- The programme aligns with other strategic initiatives, such as the Andalusian Sustainable Development 
Strategy 2030, the Air Quality Strategy, the Environmental Employment Generation Strategy 2030, S4 An-
dalucía, and the Rural Development Program 2014-2022. 

Key initiatives within the program include: 
- Launching a knowledge transfer node within the REDIAM network. 
- Converting public administration data into FAIR (findable, accessible, interoperable, and reusable) formats 
for R&D centers. 
- Developing projects that comply with EU environmental information access directives. 
- Managing biodiversity and ecosystem data repositories. 
- Generating information to support climate adaptation, mitigation policies, and risk management. 
- Creating a prototype e-infrastructure for environmental data. 

34 

 
 
 
 
 
Overall, these efforts aim to improve climate data management and support effective climate action in An-
dalucía. 

Source: https://www.juntadeandalucia.es/sites/default/files/2021-11/EIDIA%202021-
2027%20Borrador%20%281%29_2.pdf  

3.2.3  Granada 

Provincial Climate Change Adaptation Plan for the Province of Granada (Plan Provincial de Adapta-
ción al Cambio Climático de Granada (PPACCGr)) proposes also a Catalogue of Adaptation Measures 
for the Province of Granada, clustered on eleven thematic areas. The Plan clearly distinguishes be-
tween (1) measures that are under the Exclusive Competence of the Provincial Council/City Coun-
cils, (2) Measures under Shared Competence between the Provincial Council/City Councils and 
other administrations, (3) Measures Outside the Competence of the Provincial Council/City Coun-
cils, which fall under the responsibility of other administrations. Thus the Provincial Climate Change 
Adaptation Plan for the Province of Granada consists exclusively of the measures that, within each 
thematic area, fall under the Exclusive Competence of the Provincial Council/City Councils, along 
with those under Shared Competence between the Provincial Council and other administrations. 

3.3  Ensuring cross domain synergies 

The National Plan for Adaptation to Climate Change (PNACC 2021-2030) emphasizes coordinated and 
transparent actions across multiple domains, advocating for collaboration between institutions, consistency 
in sectoral policies, and public access to climate information. Strategic areas identified for climate adapta-
tion include water, biodiversity, energy, agriculture, urban planning, infrastructure, tourism, and coastal 
management, among others. The plan integrates interdisciplinary approaches aligned with the Strategy for 
Science, Technology, and Innovation (EECTI) 2021-2027, fostering high-impact research and collaboration 
with Horizon Europe. 

In Andalucía, Andalusian Climate Action Plan (PAAC) and Law 8/2018 reinforce these principles by requiring 
regional and local adaptation plans to align with climate change policies. The Andalusian Climate Change 
Office oversees coherence across policies, while intersectoral working groups foster collaboration in climate 
adaptation. 

Granada’s Provincial Council has adopted eleven thematic areas from the PNACC, focusing on sectors such 
as agriculture, biodiversity, energy, and tourism, as part of its Adapta Granada Plan. The Council's catalog 
of projects supports the implementation of these areas, involving both provincial and municipal responsibil-
ities. 

Bottlenecks 

Although all the relevant plans, at national, regional and local levels, emphasize cross-domain collabora-
tion, achieving effective coordination between sectors like water, energy, and infrastructure may be difficult 
due to varied objectives and priorities within each domain. 

While the PAAC and Law 8/2018 call for alignment in adaptation plans, differences in resources and capac-
ities between regional, provincial, and municipal levels can lead to inconsistent policy application, poten-
tially reducing overall adaptation effectiveness. 

Although intersectoral working groups are established, true integration across diverse areas remains chal-
lenging. These sectors may operate in silos, limiting the impact of coordinated adaptation strategies. 

35 

 
 
 
 
 
Granada’s focus on specific sectors within the PNACC through the Adapta Granada Plan is promising, but 
the complexity of aligning local initiatives with broader regional and national strategies can hinder cohesive 
implementation. 

Municipalities, may face constraints in implementing complex adaptation projects due to limited technical 
or financial resources, slowing progress in key adaptation areas such as urban planning and tourism. 

3.3.1  Spain 

▪  PNACC 2021-2030, acknowledging the need for coherent actions across distinct domains, 

sets as guiding principles, among others: 

▪  Collaboration among institutions: acknowledging that efforts to adapt to climate change 

should occur across various scales and sectors, strategic cooperation between institutions is 
seen as essential for effective and coordinated responses. 

▪  Consistency in sectoral policies: all policies should integrate climate change adaptation, 

working towards the common objective.  

▪  Transparency: Information related to climate change impacts, vulnerability, and adaptation 
policies and actions should be disseminated to relevant individuals and organizations. 

Figure 4. Coordinated actions for in PNACC 

Source: PNACC 2021-2030, pag 50. 

The following strategic areas will be considered for adaptation: 1. Water resources; 2. Flood preven-
tion; 3. Agriculture, livestock, aquaculture, fishing and forestry; 4. Biodiversity and ecosystem ser-
vices; 5. Energy; 6. Urbanism and territorial planning; 7. Buildings and housing; 8. Mobility and road, 
railway, port and airport infrastructures; 9. Commerce; 10. Tourism; 11. Coastline; 12. Migrations as-
sociated with climate change. 

The Strategy for Science, Technology and Innovation 2021-2027 EECTI 2021-2027 (EECTI 
2021-2027) explicitly encourages inter-disciplinarity that generates high-impact science and 
knowledge and multi-disciplinarity to allow the development of scientifc missions. 

36 

 
 
 
 
The implementation of the EECTI promotes the alignment with Horizon Europe, and support for par-
ticipation in international projects and joint programming actions of Horizon Europe and internatio-
nal facilities, favouring, for this purpose, the use of adequate, agile and effcient instruments, as 
well as the availability of specifc funding.  

3.3.2  Andalucia 

The Andalusian government (Junta de Andalucía) has set governance structures aimed to ensure 
coordination and collaboration between the different Ministries within the framework of the Anda-
lusian Climate Action Plan (PAAC) . On the other hand, Law 8/2018 states that regional and local 
planning activities related to strategic areas for adaptation to climate change require the inclusion 
of content that ensures the full coherence with CC policies. Based on this, the Andalusian Climate 
Change Office develops a line of work aimed at ensuring full coherence with the PAAC of regula-
tions, plans and other materials submitted to the public information process. 

The PAAC in terms of adaptation, promotes the creation of intersectoral work groups to enhance sy-
nergies in terms of adaptation of different strategic areas that develop interrelated policies, in order 
to favor solutions that maximize the needs raised and minimize the resulting conflicts. The PAAC, on 
the other hand, in terms of adaptation recognizes the existence of knowledge gaps, urging the pro-
motion of applied research and knowledge management, to which it dedicates a section: "dimen-
sions of adaptation", which serves as a basis of reasoning for the choice of the package of strategic 
lines regarding adaptation. 

Andalusia has a research, Development and Innovation Strategy (Estrategia de Investigación, Desar-
rollo e Innovación de Andalucía (EIDIA) 2021-2027), with a time horizon 2027, approved by Govern-
ment Council Agreement dated June 14, 2022, fully aligned with the criteria and approaches in-
cluded in the Horizon Europe programme. 

3.3.3  Granada 
The Provincial Council of Granada has selected eleven thematic areas from the thirteen proposed by 
the National Climate Change Adaptation Plan. These areas are (1) Agriculture, covering Livestock, 
Fishing, and Aquaculture; (2) Water; (3) Biodiversity; (4) Energy, including Industry; (5) Infrastructure; 
(6) Health and Social Aspects; (7) Soils and Coastal Areas; (8) Cross-cutting Issues; (9) Tourism; (10) 
Urban Planning, including Housing; and (11) Forestry. This selection aims to guide the region's ef-
forts in adapting to climate change across a wide range of sectors. (Proyecto Adapta Granada).  
The Catalog of Projects for the Development of the Adapta Granada Plan includes a portofolio of 
projects with various themes. These projects aim to facilitate the implementation of actions outlined 
in the Adapta Granada Plan that fall under the exclusive responsibility of the Provincial Council of 
Granada's Delegations, as well as those involving the City Councils within the province. Additionally, 
the catalog addresses actions that are a shared responsibility between the Provincial Council, City 
Councils, and other administrations. 
Author analysis of these projects reveals that some are primarily focused on mitigation, other on 
adaptation actions, while certain projects have objectives addressing both mitigation and adaptation 
to climate change, as indicated below. 

37 

 
 
 
 
 
 
 
Adaptation 

Incorporation of permeable pavements (SUDS) in green areas. The project aims finding solutions to 
manage the runoff  water generated by the impermeability of urban pavements, and if possible, 
capture this rainwater for reuse in various municipal services. As part of the AdaptaGranada 
Plan, Installation of Sustainable Urban Drainage Systems (SUDS), has been incorporated as a solu-
tion for adaptation in the urban planning area. 

Incorporation of species better adapted to climatic conditions in Municipal Gardens. The design and 
planning of vegetation adapted to the new conditions generated by climate change.  

Design of the Prevention and Management Plan for invasive species. Due to the increasing threats 
posed by climate change, particularly rising temperatures, decreased rainfall, and intense droughts, 
there is a loss of biodiversity, a disconnection between urban and natural green spaces, and the in-
troduction of invasive species that displace native ones. These invasive species often have water 
and land resource needs that are not suitable for the region's climatic conditions. The aim is to pro-
vide municipalities with a set of guidelines and tools to address this issue, laying the foundation for 
the management of invasive exotic species within each locality. 

Bioclimatization actions for spaces, itineraries and tourist resources: Measures required to adapt 
municipalities to new climate conditions, ensure citizens' comfort and protect vulnerable sectors 
such as tourism. 

Comprehensive water cycle management plan in small municipalities: inventory and evaluation of 
the state of infrastructure. This project aims to implemet tools for optimizing water use and improv-
ing the efficiency of supply networks to prevent losses, in the context of ongoing decrease in rain-
fall and resulting water shortages. These tools include monitoring and awareness campaigns in the 
context of increased water consumption, especially for domestic use due to rising temperatures.  

Incorporation of rainwater use systems in municipal buildings and facilities: In the context of drop 
of the rainfall, the project aims the implementation of water collection systems designed to store 
and maintain water quality at a level suitable for reuse in various urban applications that do not re-
quire potable water, such as garden irrigation, street cleaning, or use in ornamental fountains and 
ponds. Any uncontaminated water that is not utilized to be returned to the natural environment or 
directed into the ground 

Mitigation 

Municipal electricity microgeneration plan. The plan involves producing electricity through numerous 
small sources located near consumption points, operating in cooperation with conventional power 
plants, creating in this way a more balanced energy system and reducing reliance on large power 
stations. This approach often uses renewable energy, helping to lower CO2 emissions. 

Design of local strategies for smart territories (Smart Villages): Action plan for the use of smart sys-
tems applied to urban management. 

Creation of a local/regional energy community. Implementation of  measures aimed at building re-
silience in local energy management, ensuring a reduced impact from potential climate change ef-
fects while also contributing to decarbonization efforts. In this context, local energy communities 
can engage in a variety of activities, including producing, consuming, storing, sharing, or selling en-
ergy. 

Mitigation and adaptation to Climate Change 

38 

 
 
Design of green corridors as a tourist resource at the municipal level : The design and planning of 
green corridors aiming to connect municipality green spaces, to create new tree-covered areas, and 
provide shaded zones. 

Design and preparation of a Tourism Sustainability Plan: The objectives of this plan include the in-
troduction of actions aimed at mitigating the effects of climate change, focusing on the renaturali-
zation and protection of ecosystems, as well as improving urban areas to enhance comfort for tour-
ists in the face of heat waves, rising average maximum summer temperatures, and other extreme 
weather events. 

Training and awareness in extensive farming with less impact on climate change: Adaptation. This 
initiative aims to adapt extensive livestock farming to climate change by addressing expected 
changes in temperature, rainfall, and other atmospheric phenomena. The goal is to make the live-
stock industry more resilient by efficiently utilizing resources and ensuring the sustainable manage-
ment of pastures, animals, and farms to cope with shifting climate conditions. Mitigation: In addi-
tion to adaptation, the initiative seeks to reduce greenhouse gas emissions from livestock farming. 
By minimizing waste and fostering agricultural-livestock synergies, the project aims to contribute to 
climate change mitigation through more sustainable farming practices. 

Good agricultural practices to improve soil conservation and carbon sequestration: Training and 
raising awareness in sustainable agricultural practices with lower environmental impact, which in-
crease carbon sequestration, and adaption of soils to climate change. 

Catalog of technical solutions for aquifer recharge: Measures to adapt to the effects of climate 
change on water availability, Establishing strategic water reserves, intentional aquifer storage to 
address potential shortages caused by climate change and ensure long-term water security. This 
measure is particularly relevant in the province of Granada, which heavily depends on groundwater 
for its drinking water supply. 

Response, communication and citizen participation plan in health matters for adaptation to climate 
change: Design of a Local Health and Emergency Plan that includes mechanisms for raising aware-
ness and responding to climate emergencies, with a strong focus on preventive measures aimed at 
the most vulnerable groups identified in the municipality.  

Creation of friendly spaces in urban environments: incorporation of resilient infrastructure: The Ur-
ban Green Infrastructure project aims to address flooding in urban areas by creating green spaces 
that temporarily store rainwater, thereby reducing flood risks. A key component is the creation of a 
network of peri-urban parks with significant ecological and landscape value, connected by eco-rec-
reational corridors. Additionally, the project involves planting native herbaceous species in tree pits 
and parks to attract fauna for the biological control of pests, reducing the need for chemical pesti-
cides. The initiative also includes remodeling avenues and public spaces to improve both ecological 
and social connectivity, with a focus on prioritizing pedestrians and increasing accessibility. 

Recovery of degraded non-agricultural soils through organic amendments from organic waste: Local 
actions are proposed along riverbanks, streams, urban road embankments, unpaved streets, and 
even vacant spaces to mitigate the risks of flooding and erosion. Additionally, these measures are 
intended for other non-agricultural landscapes to combat desertification, improve soil stabilization 
and restoration, and enhance ecosystem services. 

Adaptation measures for outdoor areas of schools to enable them as climate shelters: Measures to 
improve climate change adaptation in schools, particularly in outdoor spaces. Additionally these 
measures go beyond specific actions by integrating them into the overall functioning of the school 

39 

 
 
and  are linked to the school's educational project through a collaborative process involving admin-
istrations, organizations, and schools. Pedagogical projects engage students in deciding the specific 
actions to be taken.  

Project for the implementation of measures for bioclimatization of educational centers:  Various 
measures to improve climate change adaptation in schools focus on indoor space; the measures are 
also linked to energy savings, thereby contributing to the reduction of greenhouse gas emissions. 

Forestation of Monte Público: The primary goal of creating a CO2 absorption zone is to reduce car-
bon dioxide emissions. In addition to this, the presence of the forested area will bring indirect social 
benefits by enhancing the landscape value, making the area more visually appealing with tree cover 
replacing the current barren land. Furthermore, the increased tree structure and plant diversity will 
improve soil infiltration and reduce runoff speed, thereby decreasing erosion and soil loss 

Design of parks and gardens. The main goal of this project is to create new parks in peri-urban ar-
eas, to serve as CO2 sinks, reduce the urban heat island effect, mitigate noise pollution, act as fil-
ters to reduce air pollution, and enhance biodiversity. The project proposes a plan for the creation 
and environmental management of ornamental tree-lined avenues, considering geographic location, 
climate, soil, and other biotic and abiotic factors to ensure the successful implementation of these 
green spaces. 

Trees in playgrounds and municipal parking lots : The purpose of the project is to plant trees in pub-
lic play and recreational areas for children, as well as in uncovered municipal parking lots. The main 
objective is to achieve greater CO2 sequestration, leading to a reduction of carbon footprint. Addi-
tionally, the aim is to lower urban temperatures by creating more shaded area  

Creation of green walls and roofs: The 
primary objective of this project is to 
cover municipal public buildings with 
vegetation. The creation of new green 
spaces enhances CO2 absorption in ur-
ban areas, reducing heat islands by puri-
fying the air, minimizing dust swirls, sta-
bilizing temperature fluctuations, and regulating humidity levels. Additionally, the project will help 
lower energy demand in the buildings where it is implemented.  

Recovery of degraded channels: The recovery of degraded channels aims to address significant al-
terations in river ecosystems, which greatly impact the biotic communities within them. This project 
plan is applicable to any degraded watercourse in Granada that requires restoration. A traditional 
method being used involves public or private entities financing ecosystem management projects 
that provide CO2 sink services. 

Maintenance of crop land and pastures: The goal of this project is to restore grasslands and agricul-
tural lands, leveraging their high potential for CO2 sequestration, as well as the soil microorganisms 
associated with them. The restoration plan considers environmental factors such as soil, climate, 
and topography, and selects vegetation that can adapt to the local conditions without the need for 
harmful chemicals or herbicides. The aim is to create healthy crop and pasture areas 

Carbon dioxide sequestration in wetlands and peatlands: The project aims to create new, environ-
mentally high-quality aquatic spaces while improving the conservation of existing wetlands and 
peatlands. Key considerations for the project include biodiversity indicators, balance in trophic 
chains, and monitoring the quality of aquatic systems and soil. Special attention will be given to 

40 

 
 
public or private water bodies at risk of degradation due to natural or human factors, with a focus 
on enhancing their CO2 absorption capacity. 

Rooftop gardens: Provide support to encourage new rooftop greenhouse projects. These green roof-
tops act as CO2 sinks and help absorb pollutants, contributing to improved environmental quality.  

Heat Networks: This project focuses on the implementation of district heating networks in urban ar-
eas. These underground systems provide heating and hot water to cities by integrating renewable or 
residual energy sources. The primary goal is to reduce carbon dioxide emissions associated with 
electricity generation and fossil fuel consumption. The project involves installing a large-scale heat 
distribution infrastructure that serves an entire neighborhood or urban area, similar to the smaller 
systems already in place for individual buildings or homes.  

Incentive for carbon sequestration in the olive grove. This project aims to transition existing olive 
groves to align with the new environmental policies under the PAC 2023-2027. Olive groves are 
highly effective at capturing organic carbon from the atmosphere, making them a key player in car-
bon sequestration efforts. A central part of the project is the maintenance of live vegetation (cover 
crops) cover in olive groves. By preserving or planting herbaceous species in the olive fields, the pro-
ject seeks to boost the groves' ability to capture CO2. This live plant cover, whether naturally grow-
ing or deliberately introduced, improves soil health and increases the overall carbon sequestration 
capacity of the olive groves, helping to combat climate change more effectively. 

Regeneration of poplar groves :  This project aims to restore poplar 
groves, not only as effective carbon sinks but also as sources of bi-
odiversity and drivers of the local economy through sustainable 
timber extraction. The initiative encourages participation from local 
entities and private landowners in regenerating poplar plantations, 
whether on public or private land, with the primary function of serv-
ing as carbon sinks.  

Recovery of degraded areas: This project aims to 
create a forest cover in degraded mountainous ar-
eas affected by erosion, desertification, and forest 
fires.  A restoration plan for the vegetation will be 
developed, taking into account the environmental 
factors of the area (such as soil, climate, and to-
pography) and the recommended vegetation 

3.4  Increasing breadth and depth of stakeholder involvement 

Spain. The The National Plan for Adaptation to Climate Change (PNACC 2021-2030) was developed 
through an inclusive process, gathering input from experts and key figures in climate adaptation. Methods 
included deliberative workshops, online expert submissions, surveys, and interviews, involving stakeholders 
from public administrations, the private sector, and civil society. This participatory approach aligns with 
UNFCCC guidelines, ensuring representation across diverse groups. The PNACC promotes collaboration 
among sectors through forums, support for self-assessments by key actors, and establishment of collabo-
rative working groups. The Spanish Strategy of Science, Technology and Innovation (EECTI) 2021-2027 also 
followed a participatory co-design process involving business, research, public administration, and civil soci-
ety stakeholders. 

41 

 
 
 
 
 
 
Andalucía. The Andalusian Climate Action Plan (PAAC) emphasizes public participation and transparency, 
established through Law 8/2018 and structured with participatory frameworks. The preparation process 
included public workshops, technical assessments, and consultations with stakeholders, resulting in a plan 
developed collaboratively with economic, social, and administrative entities. Two commissions—the Interde-
partmental Commission on Climate Change and the Climate Change Monitoring Commission—oversee coor-
dination, governance, and monitoring of the PAAC. Another notable example of participatory policymaking 
in Andalucía is the Smart Specialisation Strategy for Sustainability (ESTRATEGIA DE ESPECIALIZACIÓN 
INTELIGENTE PARA LA SOSTENIBILIDAD DE ANDALUCÍA 2021-2027, S4ANDALUCIA), which involved a 
multi-phase engagement process. 

Granada. Without existing methodologies for Climate Change Adaptation Plans at the supramunicipal 
level, the Provincial Council of Granada created its own approach, integrating scientific climate data analy-
sis with local stakeholder participation. Granada was divided into nine Territorial Management Units (UTGs), 
each with a Territorial Committee involving representatives from the Provincial Council, municipalities, and 
social groups. These committees participate in the design, development, monitoring, and evaluation phases 
of the Provincial Climate Change Adaptation Plan (PPACCGr) (PLAN PROVINCIAL DE ADAPTACIÓN AL 
CAMBIO CLIMÁTICO DE GRANADA, 2019) 

Bottlenecks 
While the national and Andalusian CCA policy design processes emphasized stakeholder involvement, there 
is a lack of specific guidance on how to incorporate distinct groups effectively. This can result in certain 
voices being underrepresented in adaptation planning. 

Overlapping responsibilities among national, regional, and local authorities lead to delays in decision-mak-
ing and implementation. Public involvement in disaster preparedness and climate adaptation remains lim-
ited. While in theory actions are taken, there is often limited contribution to policy discussions or action 
plans. 

Although a rigorous co-creation process was followed at both national and Andalusian levels, ensuring 
structured consultation and engagement, the absence of a unified framework for stakeholder involvement 
at local and regional levels could hinder the depth of stakeholder integration, particularly for smaller mu-
nicipalities. 

Financial and technical resource constraints limit the capacity of smaller municipalities, especially in rural 
Andalusia, to engage in broad-scale climate adaptation measures. 

Stakeholders often lack the technical knowledge or data needed to participate effectively in climate adap-
tation and disaster mitigation. 

Private sector involvement, such as businesses and developers, is often inconsistent, particularly when 
short-term economic interests conflict with long-term sustainability goals. In Granada, urban expansion 
projects often disregard flood-prone zones, exacerbating risks during heavy rainfall events. 

Existing infrastructure and governance systems are not sufficiently resilient to handle extreme weather 
events. The recent DANA phonemenon in Valancia revealed vulnerabilities in urban drainage systems and 
disaster response mechanisms. 

42 

 
 
 
 
 
 
 
 
 
 
 
 
3.4.1  Spain 

According to the information provided by The National Plan for Adaptation to Climate Change 
(PNACC 2021-2030), the document  has been developed through a collaborative process.10 

Before the initial drafting of the PNACC, preliminary concepts and suggestions were collected from 
experts and influential figures in the field of adaptation. Several consultation were employed: 

▪  Expert input via an online form: Subsequent to the workshops, all attendees were given the 
chance to submit additional reflections and recommendations through an online submission 
form. 

▪  Deliberative workshops: Four workshops were conducted, allowing participants to communi-
cate, compare viewpoints, discuss critical elements, and prioritize proposals related to the 
various aspects of the Plan. 

▪  Supplementary inputs, such as the insights, appraisals, and recommendations of individuals 
actively engaged in the field of adaptation in Spain, were gathered through surveys and in-
depth interviews. In the second phase aimed at formulating the new Plan, input from ex-
perts and stakeholders in the field of adaptation was collected through various means, in-
cluding workshops, online forums, and one-on-one consultations with major public adminis-
trations tasked with implementing adaptation policies and measures.  

The adoption of a participatory approach in climate change adaptation planning and development 
has ensured the involvement of stakeholders from various sectors, including the private sector, civil 
society, local communities, migrants, children, youth, persons with disabilities, and vulnerable popu-
lations. The participation process ensures the inclusion of women, gender-focused organizations, 
people with disabilities. 

To encourage the active involvement of societal actors within the framework of the PNACC, several 
measures have been implemented. Key actors, including businesses, trade unions, and social organi-
zations, will receive support to carry out self-assessments on climate change risks, impacts, and ad-
aptation. Sector-specific and cross-sectoral forums have been established to facilitate discussions 
and exchanges. Collaborative bodies and working groups are being maintained and promoted to 
strengthen cooperation. Additionally, collaboration agreements are being encouraged to enable co-
ordinated efforts between public and private organizations. The PNACC-2 continues to focus on pro-
moting information dissemination, capacity building, research, innovation, and social participation to 
enhance overall engagement and effectiveness.  

Preparation process of the Spanish Strategy of Science, Technology and Innovation (Estrategia Es-
pañola de Ciencia y Tecnología y de Innovación – EECTI) 2021-2027:  Another example of co-de-
sign was the preparation of the EECTI, which followed an open and inclusive process, involving the 
main RDI actors, through the constitution of interest groups that respond to a quadruple helix model 
(Businesses, Research and Public Administration, Civil Society and Innovation Users). Prior to the 
preparation of the EECTI, bilateral meetings were held with the ministerial departments with secto-
ral actions in R&D&I. 

10 Programa de Trabajo 2021-2025 del PNACC. Informe de participación pública 

43 

 
 
 
 
 
 
3.4.2  Andalucia 

“The Andalusian government (Junta de Andalucía) is committed to fostering participatory processes 
in policy development and planning” (Interview with staff Junta de Andalucia)  

Box 4. Stakeholders involvement in the preparation of PAAC 

To ensure alignment with public interests, the Andalusian government introduced the Citizen Participa-
tion Law (Law 7/2017) and established organizations like the Andalusian Institute of Public Admin-
istration (IAAP). This framework promotes integrating citizen participation, transparency, and accountabil-
ity into planning processes. Notably, within the participatory development of the Andalusian Climate Action 
Plan (PAAC), the Workshop on the Diagnosis and Scope Document of the PAAC exemplifies an innovative 
approach. Law 8/2018 emphasizes public participation, citizen information, and governance as core princi-
ples, requiring diverse channels to encourage civil society's involvement in shaping climate policies. To en-
hance coordination and cooperation, it mandates the formation of two key structures: the Interdepart-
mental Commission on Climate Change of Andalusia and the Climate Change Monitoring Commission, both 
of which play vital roles in participation, governance, and monitoring of the PAAC. Similarly, the approbation 
of Municipal Plans against Climate Change (PMCC) makes it compulsory to inform the public, as well as 
the organization of workshops in many municipalities 

The actions undertaken in the co-design process are described in the Annex III of PACC – results of the par-
ticipatory actions process. The Annex includes: 
- Report on the Public Participation workshop (June/July 2020) 
- Technical Assessment of the Prior Public Consultation procedure (02/04-05/22/2020) 
- Technical Assessment of the Public Consultation procedure within the framework of the PAAC Strategic 
Environmental Assessment procedure (06/08-08/12/2020) 
- Technical Assessment of the Hearing and Public Information Processing procedure of the draft Decree 
approving the Andalusian Climate Action Plan and its Strategic Environmental Assessment Study 
(12/04/2020 - 02/11/2021 ). 
During the first stage, from the approval of Law 8/2018 to beginning the drafting of the PAAC, various par-
ticipation, coordination and governance actions related to the areas of the affected administrations were 
carried out, with experts in different areas related to the contents developed in the PAAC, JASPERS (Joint 
Assistance to Support Projects in Europe Regions) and innovative participatory tools were implemented for 
the generation and improvement of content, highlighting the holding of sectoral Workshops on the Dia-
gnosis and Scope Document with the participation of more than a hundred representatives from 79 enti-
ties, with the support of the European Innovation and Knowledge Community, Climate -KIC. 

Another relevant example of the participative involvement in the policy making, is the design of the 
Smart Specialisation Strategy for Sustainability (ESTRATEGIA DE ESPECIALIZACIÓN INTELIGENTE 
PARA LA SOSTENIBILIDAD DE ANDALUCÍA 2021-2027, S4ANDALUCIA) strategy which has required a 
process in phases, involving participation, social dialogue and, ultimately, seeking maximum consen-
sus. 

44 

 
 
 
 
 
3.4.3  Granada 

Since no existing methodologies for Climate Change Adaptation Plans for supramunicipal (neither 
municipalities) entities) were available, the Provincial Council of Granada developed a tailored 
methodology. This method combines scientific analysis of each municipality's climate data and 
vulnerability assessment based on global scenarios with institutional coordination and local 
stakeholder participation in proposing and selecting adaptation actions. The plan's design is based 
on Convocatoria Comités Territoriales. Granada was divided into nine Territorial Management Units 
(UTGs). For each UTG, a Territorial Committee was established to serve as a participatory body 
throughout the design, development, monitoring, and evaluation phases of the PPACCGr. These 
committees include representatives from the Provincial Council of Granada, municipal 
representatives within the UTG, and identified social groups and stakeholders. 

45 

 
 
 
 
 
3.5  Setting up effective multi-level governance models 

In theory, coordination mechanisms and organizational structures are well-established, ensuring both verti-
cal and horizontal coordination for climate adaptation efforts across all levels. National, regional, and local 
entities are aligned through structured committees, commissions, and offices, facilitating cross-sectoral 
collaboration and integration of local insights into broader climate strategies. These entities aim to ensure 
inter-institutional coordination, foster cross-sectoral cooperation, and support participation from civil soci-
ety, alongside active involvement in European and international climate platforms. 

Spain 
The Spanish Climate Change Office within MITERD coordinates the National Climate Change Adaptation 
Plan (PNACC) 2021-2030, overseeing information, monitoring, and evaluation. Key national bodies support-
ing climate action include: 
- Spanish Climate Change Office (General Directorate level) 
- National Climate Council: Advises on climate policies and strategies. 
- Climate Change Policy Coordination Commission (CCPCC): Coordinates between state and autono-
mous communities, comprising technical groups focused on emissions trading, mitigation, and adaptation. 
- Interministerial Commission for Climate Change and Energy Transition: Monitors and proposes 
public policies for ecological and climate objectives. 

Andalucía 
Effective climate adaptation governance in Andalucía involves coordination between local, regional, and 
national authorities, facilitated through mechanisms such as: 
- Andalusian Office of Climate Change: Established by Law 8/2018 to support adaptation and commu-
nication on climate policies. 
- Interdepartmental Commission on Climate Change: Created to ensure collaboration across Anda-
lusian government departments (Decree 44/2020). 
- Municipal Plans Against Climate Change: Connect local efforts with regional strategies, with Provin-
cial Councils supporting municipalities under Law 8/2018. 
- Coordination with National and Autonomous Entities: Andalucía participates in various national 
structures, including the CCPCC, ensuring alignment with broader state policies and initiatives. 
Granada 
Granada ensures vertical and horizontal coordination for climate adaptation through two main committees: 
- Technical Committee: Comprising experts from relevant provincial and regional bodies, this committee 
addresses adaptation needs, challenges, and solutions, contributing specialized knowledge. 
- Territorial Committees: Established across nine Territorial Management Units (UTGs), these committees 
gather local data, fill information gaps, and represent diverse stakeholders, including municipal representa-
tives, social groups, environmental technicians, and regional entities. 

Bottlenecks 
Complexity of Coordination Across Multiple Levels: While coordination structures exist, the involve-
ment of numerous bodies (e.g., the Spanish Climate Change Office, National Climate Council, CCPCC, and 
Interministerial Commission) can create complexity, potentially leading to overlapping responsibilities and 
communication delays. 

The lack of established methodologies for supramunicipal and municipal levels (e.g., in Granada) requires 
local entities to develop their own approaches, which can lead to inconsistencies in adaptation planning and 
implementation across regions. 

Smaller municipalities may lack the technical and financial resources needed to actively participate in 
multi-level governance structures, leading to uneven engagement and potential gaps in local adaptation 
measures. 

46 

 
 
 
 
 
 
 
 
 
During the recent floods events in Spain (autumn 2024), the lack of coordination between municipalities 
and regional bodies slowed emergency response efforts and complicated resource allocation. 

3.5.1  Spain 

The Spanish Climate Change Office of the MITERD, as co- ordinator of the PNACC 2021-2030, is 
responsible for organising the information, monitoring and evaluation actions . 
Among other organizations that, at the national level, perform different functions in the fight 
against climate change, the main are: 

•  Spanish Climate Change Office (Oficina Española de Cambio Climático) 
The National Climate Council (El Consejo Nacional del Clima – CNC) 
• 
The Climate Change Policy Coordination Commission (CCPCC) (La Comisión de Coordinación 
• 
de Póliticas de Cambio Climático - CCPCC) 
Interministerial Commission for Climate Change and Energy Transition (Comisión Interminis-
terial para el Cambio Climático y la Transición Energética) 

• 

Spanish Climate Change Office (Oficina Española de Cambio Climático) was established by Royal 
Decree (Real Decreto 376/2001). Its subsequent revisions Article 4.2 of Royal Decree 500/2020 es-
tablishes that the following management bodies depend on the Secretary of State for the Environ-
ment: 

•  The General Directorate of Water. 
•  The Spanish Office of Climate Change, with the rank of general directorate. 
•  The General Directorate of Quality and Environmental Assessment. 
•  The General Directorate of the Coast and the Sea. 
•  The General Directorate of Biodiversity, Forests and Desertification 
•  The National Climate Council (El Consejo Nacional del Clima (CNC). This Council is at-

tached to the Ministry of Public Works, Transport and Environment, and had the objective to 
coolaborate in the development of the National Climate Program, advising the Government 
on policy regarding climate change and response strategies. 

Box 5 Climate Change Policy Coordination Commission 

Law 1/2005, of March 9, creates the Climate Change Policy Coordination Commission (CCPCC), (La 
Comisión de Coordinación de Póliticas de Cambio Climático - CCPCC), as a coordination and collabo-
ration body between the General Administration of the State and the Autonomous it.  

The CCPCC is made up of seventeen members, representing the General Administration of the State, one 
member designated by each Autonomous Community, one member designated by each of the cities of 
Ceuta and Melilla and one member representing the local entities. 

This Commission comprises three Technical Groups: one dedicated to the Emission Rights Trading Regime, 
another to Mitigation and Inventory, and a third to Impacts and Adaptation. Subgroups, stemming from 
these Technical Groups, include representatives from Autonomous Communities with a particular interest in 
specific topics within these areas, such as the evaluation of climate risks. This structure of Technical 
Groups and the Commission operates effectively in terms of institutional coordination at both the manage-
rial and technical levels. 

Interministerial Commission for Climate Change and Energy Transition (Comisión Intermin-
isterial para el Cambio Climático y la Transición Energética) was established with the aim to achieve 

47 

 
 
 
 
 
 
the best treatment of public policies regarding the transition towards a more ecological productive 
and social model, and is assigned a wide variety of functions, which correspond to the monitoring 
and formulation of proposals that serve as a basis for decision-making related to climate change 
and energy policies, and among others: 

The coordination, advisory, and participation forums outlined in the plan are important components 
of its governance system, aiming to achieve the following key objectives: 

•  Enhance inter-institutional coordination, encompassing both cross-sectoral collaboration (in-
volving various thematic departments) and territorial coordination (with a focus on linking 
the Central Administration, autonomous communities, and local administrations). 

• 

• 

Foster participation and cooperation with various stakeholders from civil society. 

Facilitate technical and scientific guidance and promote the exchange of knowledge and in-
sights. 

Active involvement in European forums and other international platforms, particularly those with 
neighboring nations and Latin American countries, are also supported by PNACC. 

3.5.2  Andalucia 

 Effective multi-level governance for climate change adaptation involves coordinated efforts across 
different levels of government.  

Box 6. Multi level coordination governance 

A clear coordination mechanism between different levels of government, including local, regional, and 
national authorities, with specific roles and responsibilities to avoid overlaps and ensure a smooth flow of 
information. At regional and local levels, climate action plans that align with national strategies were devel-
oped.  The plans consider specific vulnerabilities and capacities of each region or locality. 

At the regional level, through the Interdepartmental Commission on Climate Change, created and regulated 
by Decree 44/2020, of March 2, as a collegiate body of the Administration of the Government of Andalusia 
for coordination and collaboration on climate change. 

Law 8/2018 art. 7 stipulates the creation of the Andalusian Office of Climate Change, as an adminis-
trative unit to support and promote mitigation, adaptation and communication policies on climate change 

The Municipal Plans against Climate Change (stipulated by Law 8/2018) connects the regional level with 
the local level to address the fight against climate change. In this exercise, the Law itself has the Provincial 
Councils, as a governance structure with the responsibility to provide the necessary support in this task. 

The Andalucian Government (Junta de Andalucía) actively participates in the coordination of the climate 
change policies with the General State Administration (AGE) and other Autonomous Governments, within 
governance structures, such Commission of Coordination of Climate Change Policies, its Technical Groups 
for Mitigation and Adaptation, as well as in the ad hoc working groups created for the coordinated develop-
ment of specific topics. 

3.5.3  Granada 

Two distinct types of committees, set at the level of Granada province, aim to ensure the horizontal 
and vertical coordination. 

48 

 
 
 
 
 
The Technical Committee provides specific expert knowledge on the themes of the Plan, both in 
the needs and problems and in the proposal of adaptation solutions. The committee is made up of 
technical-experts from all the organizations involved in the province such as the different Delega-
tions and Services of the Provincial Council of Granada, Provincial Energy Agency of Granada, De-
partments of the Government of Andalusia (Agriculture, Livestock, Fisheries and Sustainable Deve-
lopment, Health and Families), Ministry of Ecological Transition (Provincial Coastal Service, Guadal-
quivir Hydrographic Confederation), University of Granada, Motril Port Authority, IGME (Geological 
and Mining Institute of Spain), IFAPA (Agrarian and Fisheries Research and Training Institute) , Sierra 
Nevada National Park, etc.  

Territorial committees: Nine Ter-
ritorial Committees were created, 
one for each Territorial Manage-
ment Unit (UTG). The committee 
has the responsibility to assess and 
provide information, quantitative 
data, covering and better defining 
the lack of official data for each 
Technical Management Unit. Repre-
sentatives of the Provincial Council 
of Granada and the municipalities 
that make up the corresponding 
UTG, municipal environmental tech-
nicians, as well as members of the social fabric and identified interest groups such as the GDR (Ru-
ral Development Group), social inclusion technicians, Seprona - Civil Guard, technical staff of pro-
tected natural spaces, Protection Agents of the Andalusian Health Service, technicians of the Regio-
nal Agrarian Offices (OCAs), Andalusian Entrepreneurship Centers (CADEs), associations of the terri-
tory, etc. 

49 

 
 
 
 
 
3.6  Making room for experimentation 

Spain. The Spanish National Climate Adaptation Plan (PNACC) lacks a strong focus on experimentation. The 
PNACC’s platform, AdapteCCa, serves as a national tool for sharing data and experiences, facilitating 
knowledge exchange that could potentially encourage more experimental climate adaptation projects. 

Andalusia. The interviews identified little about experimentation. An innovative risk management model is 
being implemented by the Government of Andalucía. Some projects may exist, yet they are not very visible. 
For example. the CartujaQanat in Seville project highlights an innovative approach to addressing urban heat 
while creating socially inclusive, adaptable urban spaces. 

Granada. Granada’s Provincial Climate Adaptation Plan (Adapta Granada) identifies opportunities for ex-
perimentation within several adaptation projects. These experimental approaches allow Granada to gather 
data and insights for refining adaptation measures that are sustainable, scalable, and tailored to local 
needs. 

Bottlenecks 

There is a certain degree of interest and willingness for experimentation in climate change adaptation initi-
atives. However, the absence of visible examples and a publicly accessible database of these good prac-
tices limits their broader impact and scalability. 

Legal and administrative frameworks are often inflexible, making it difficult to test and scale innovative 
solutions in climate adaptation. 

Rigid frameworks conflict with the need for localized adaptation strategies tailored to local unique climate 
risks. 

Experimentation often requires additional funding that municipalities or regions lack, particularly in rural 
Andalusia. 

Experimental projects often lack community involvement, reducing public acceptance of innovative 
measures. Residents may resist changes like floodplain restoration if they are not engaged in the planning 
process. 

Given the transversal nature of the fight against climate change, the operational development of 
the PAAC requires the need to integrate adaptation into society as a whole, for this it requires a 
necessary sectorization exercise in order to facilitate the implementation of adaptation policies in 
each of the different strategic areas. 

3.6.1  Andalusia 

Interviewes with the Junta de Andalucia evidentiate little about experimentation. The interviews 
identify as a novel solution in the field of adaptation, « its own risk management model, which in-
volves the coordination of all its strategic areas » (interviews with Junta de Andalucia). To facilitate 
this work, the Ministry of Sustainability, Environment and Blue Economy (CSMAEA) has developed a 
climate risk assessment methodology, which together with its support tool also aims to normalize 
this process throughout the Andalusian Administration. 

Box 7. CartujaQanat – Recovering the street life in a climate changing world  

CartujaQanat is essentially an innovative urban climate governance project that can be described as a co-
creational leadership project for urban climate transformation.   

50 

 
 
 
 
 
 
Context: Seville faces extreme summer temperatures that can 
surpass 50ºC, and future projections indicate a 4.5ºC increase in 
average temperature and a 20% reduction in rainfall. The Isla de 
la Cartuja, where the project is located, initially showcased inno-
vative bioclimatic architecture and temperature control solutions 
during Expo'92. Nowadays, the University and the Cartuja Tech-
nology Park coexist in this space, grouping public entities such as 
JRC Sevilla, 442 companies, 10,000 university students and 
other activities (leisure spaces, museums, etc.). People is attend-
ing this area for working or studying, but there are no spaces with good conditions for street life, especially 
in summer. 

RESULTS 
Spaces 
- The Thomas Alva Edison Avenue, in the Cartuja Technology Park, has been renovated and transformed 
through the combination of historic climate control technologies (the qanat) with cotemporary technologies 
targeting NetZero energy consumption. Innovative components as variable solar control, nocturnal dissipa-
tion towards the sky, dissipation towards the ground with nocturnal evaporative regeneration, thermal stor-
age in qanats  and solar electricity production are used throughout this area. An open air amphitheatre 
- A semi-underground events area 
- A technology demonstration area 
- Open-space recreation area. A 10°C reduction of the temperature in open spaces.  

Social innovation 
- A new model of public-private-social partnerships is being developed to enhance local climate change re-
silience and adaptation. This initiative explores co-management approaches to ensure the newly trans-
formed spaces are actively rediscovered and utilized by citizens and stakeholders. Partnerships have been 
established between the Seville City Council, PCT Cartuja, the University of Seville, and EMASESA, designat-
ing them as co-managers to oversee this process. 
- Additionally, innovative collaborations with private companies and other stakeholders have been formed 
to expand the application of the cooling model. These partnerships aim to implement the model in other 
spaces, such as outdoor gym areas and playgrounds, broadening its impact and utility. 
- Developed new partnerships with private companies and other stakeholders interested to apply the new 
cooling model to additional spaces such as outdoor gym areas or playgrounds. 

Innovation 
- Experimentating with new materials 
- Re-inventing an ancient old water cooling technique, the Qanat, which derives from the Persian empire. 

Programme Scalability. Number of public spaces where the new cooling techniques will be scaled: Al-
ready during the project lifecycle, there have been indications that the solution will be replicated to at least 
two new locations in the city, including bus-stops and open-air gyms. playgrounds. 

3.6.2  Granada 

The analysis of the projects implemented within Adapta Granada Plan (PLAN PROVINCIAL DE 
ADAPTACIÓN AL CAMBIO CLIMÁTICO DE GRANADA, 2019) identifies opportunities for experimen-
tation within the listed projects, particularly in integrating innovative practices, testing alterna-
tive solutions, and refining methodologies for climate adaptation and mitigation. Here are some 
examples: 

•  Permeable Pavements and Sustainable Urban Drainage Systems (SUDS): 

Experiment with different materials and designs for permeable pavements and SUDS in 
green areas to optimize rainwater capture, storage, and reuse. Testing various types of soil 

51 

 
 
 
 
 
 
 
 
 
and vegetation cover in SUDS could help determine the best combinations for stormwater 
management in diverse urban environments. 

•  Adaptation of Plant Species in Municipal Gardens: Conduct trials with different 
climate-resilient plant species to identify the most suitable options for local climates. 
Experimenting with diverse vegetation mixes in municipal gardens can provide data on 
water needs, growth rates, and overall resilience. 

• 

Invasive Species Management: Pilot test preventive and control measures for managing 
invasive species, focusing on species-specific strategies and assessing their impact on local 
biodiversity and resources. This could involve exploring bio-control methods or natural 
deterrents to evaluate their effectiveness in diverse municipal settings. 

•  Bioclimatization for Tourist and Public Spaces: Experiment with various bioclimatic 

measures in different types of public spaces (e.g., parks, tourist sites, walkways) to evaluate 
how they impact comfort levels, energy efficiency, and cooling effects. Testing these 
measures in various configurations could yield insights for broader urban adaptation 
planning. 

•  Water Cycle Management in Small Municipalities: Trial the use of different water 
management technologies and awareness campaigns tailored to smaller municipalities. 
Experiments could focus on the integration of advanced monitoring systems to track water 
consumption patterns and assess their effectiveness in reducing waste and improving water 
conservation. 

•  Smart Village and Microgeneration Initiatives: Pilot different configurations of local 

energy production, storage, and consumption models within "smart villages" to evaluate 
how these systems enhance resilience and reduce emissions. Experimenting with small-
scale microgeneration systems and community energy-sharing models could help optimize 
local energy grids. 

•  Agricultural Practices for Soil Conservation and Carbon Sequestration: Test various 
sustainable farming techniques, such as cover cropping, no-till farming, and rotational 
grazing, to determine the most effective practices for enhancing soil health and carbon 
storage in different soil types and climates. 

•  Green Corridors and Urban Green Infrastructure: Experiment with different tree 

species, layout designs, and maintenance approaches in green corridors to improve air 
quality, reduce heat, and support biodiversity. Testing the ecological and social connectivity 
of these corridors could help refine green infrastructure strategies. 

•  Carbon Sequestration in Olive Groves and Poplar Groves: Test the impact of different 

cover crops and tree planting densities in olive and poplar groves to maximize carbon 
capture. Experimenting with combinations of natural vegetation and low-impact 
management techniques could also support biodiversity while enhancing soil quality. 

•  Rooftop Gardens and Green Walls: Experiment with various plant species and soil 

substrates in rooftop gardens and green walls to optimize CO₂ absorption, urban cooling, 
and energy savings. Testing different irrigation and maintenance methods could also 
improve sustainability and reduce costs. 

52 

 
 
By implementing pilot projects and experimental approaches within these areas, valuable data and 
insights can be gathered to refine adaptation and mitigation strategies, making them more 
effective, sustainable, and scalable. 

53 

 
 
 
 
3.7  Securing high levels of policy intelligence, learning and strategic ca-

pacity 

3.7.1  Awareness and understanding of CCA  

At national level, The National Climate Change Adaptation Plan (PNACC) 2021-2030 emphasizes stake-
holder engagement across sectors, including vulnerable groups, private businesses, and civil society, align-
ing with UNFCCC guidance. Key actions include: 

- Public Engagement and Education. The PNACC aims to monitor public perception, knowledge, and atti-
tudes toward climate change and identify social barriers. It also aims to develop resources like guides, exhi-
bitions, and audiovisual materials to improve climate change awareness.  

- Institutional Initiatives: Programmess by the National Center for Environmental Education 
(CENEAM) and Institute for Energy Diversification and Saving (IDAE) provide educational materials, aware-
ness programs, and promote renewable energy use.  

- Platforms and Tools: Multi-actor platforms like #PorElClima and the Cero CO2 initiative engage diverse 
stakeholders in climate action, offering resources to reduce emissions and raise awareness. 

- Action Plan for Environmental Education for Sustainability (2021-2025): Supports integrating 
climate education across all levels and sectors. 

Andalucía. The Junta de Andalucía operates a dedicated climate change portal, Portal Andaluz de Cambio 
Climático, providing information, practical tips, and examples of sustainable practices for citizens.  

Granada. The AdaptaGranada Plan includes a specific objective to increase local climate awareness. The 
“Campaign for Raising Awareness about Climate Change” offers some public resources, although limited 
information is currently available. 

BOTTLENECKS  

Insufficient Information on Local Campaigns: The AdaptaGranada Plan's awareness campaign pro-
vides limited publicly available information, potentially reducing its effectiveness in engaging the commu-
nity.  

Resource Constraints for Municipalities: Municipalities may lack the resources or capacity to partici-
pate fully engage and deploy climate awareness campaigns, resulting in variable levels of climate 
knowledge. 

 Lack of Tailored Local Outreach: While some awareness materials exist, there may be a need for more 
locally relevant, culturally adapted content that directly addresses the unique climate risks faced by Grana-
da's communities. 

Disparities in Access to Information. Rural or underserved areas may have less access to awareness 
campaigns and materials, exacerbating knowledge gaps and leaving some communities more vulnerable to 
climate risks than others. 

3.7.1.1  SPAIN 

The PNACC 2021-2030 contributes to the dissemination by elaboration of communication resources 
in different formats (informative guides, exhibitions, audiovisual materials and others), continuing 
the work already initiated into understandable and meaningful forms for the general public. The Na-
tional Climate Change Adaptation Plan includes specific objectives and work lines under "Education 
and Society," with a dedicated action line focused on integrating climate change adaptation into 
the Environmental Education Action Plan for Sustainability. 

54 

 
 
 
 
As part of the PNACC, assistance will be provided to facilitate the development of social studies 
aimed at recognising several critical aspects, including: 

•  Monitoring the changes in social perceptions related to the risks associated with climate change. 

•  Assessing the level of understanding and awareness of climate change, its impacts, and the 

need for adaptation, while identifying any misconceptions and misunderstandings. 

•  Evaluating the traditional knowledge, skills, and capacities that communities possess for coping 
with change and uncertainty, considering how these cultural heritage elements can be levera-
ged to develop innovative adaptation strategies and actions. 

•  Analysing public attitudes toward adaptation and identifying potential social barriers that may 

hinder effective action. 

Various initiatives are underway in public awareness and education, including the creation of educa-
tional materials and awareness programmes targeting institutions and the general public. On Janu-
ary 21, 2020, the Spanish Council of Ministers adopted the Government Declaration on the Climate 
and Environmental Emergency, which commits to achieving climate neutrality by 2050. Point 19 of 
the declaration calls for strengthening climate change content in the education system and approv-
ing an  Action Plan for Environmental Education for Sustainability (2021-2025). Annual Working 
Programmes outline actions scheduled to be implemented or initiated, many of the actions directly 
targeting climate change mitigation and adaptation. 

The National Center for Environmental Education (CENEAM) offers a mini-portal with extensive 
resources for climate change communication and education. The Institute for Energy Diversification 
and Saving (IDAE) ( Instituto para la Diversificación y el Ahorro de la Energia), under the Ministry of 
Energy, Tourism, and Digital Agenda, contributes with publications, audiovisual materials, thematic 
websites, exhibitions, and communication campaigns. 

The work is complemented by the regional and local energy agencies which focus on social 
empowerment, promoting energy-saving technologies and renewable energy to support climate 
change mitigation. Spanish NGOs are increasingly active in climate awareness, with major 
environmental groups providing information and resources on their websites. Additionally, trade 
unions are involved in awareness efforts, targeting workers as the primary audience for climate 
education. 

In addition to these actions important complementary actions are : 

▪ 

▪ 

The Platform #PorElClima Community , is a multi-actor platform, a hub aimed to raise 
awareness regarding the climate emergency. It serves as a space to connect those advanc-
ing climate action, offering a place to learn from best practices, gain inspiration from inno-
vative initiatives, and access tools to reduce greenh ouse gas emissions.  

The National Center for Environmental Education (CENEAM)  supports educational initiatives 
to raise environmental awareness and promote sustainability, engaging diverse audiences 
such as national park staff, biosphere reserve personnel, local communities near national 
parks, environmental educators, and the general public. It also facilitates inter-institutional 
training programs. To further enhance public participation, CENEAM organizes and supports 
seminars, working groups, and forums that provide a platform for environmental and edu-
cation professionals to reflect, debate, and collaborate. 

55 

 
 
▪ 

The Climate Change Exhibition  prepared by the National Center for Environmental Education 
(CENEAM) under the scientific guidance of the Spanish Climate Change Office, aims to edu-
cate the public on climate change, its causes, and the proposed responses. Originally cre-
ated in 2005 and fully updated in 2012, the exhibition is available in a self-editable format, 
allowing educational institutions, cultural associations, municipalities, and other organiza-
tions to create their own versions for public display.  

▪  Cero CO2 is a climate initiative by the Fundación Ecología y Desarrollo aimed at businesses, 
governments, nonprofits, and individuals. It provides practical tools for addressing climate 
change mitigation actions through greenhouse gas emission accounting, reduction, and off-
setting actions. 

▪ 

The Climate Assembly  (Asamblea ciudadana del cambio climatico) was established to rein-
force citizens’ participation in a social dialogue on the major issues involved in the ecologi-
cal transition as one of the follow ups of the Declaration on the Climate Emergency. The As-
sembly ran from November 2021 through May 2022 and engaged a total of 110 citizens. 
The assembly offers a platform for citizens to bring fresh perspectives to climate policy, 
proposing innovative solutions that reflect public needs and priorities. 

3.7.1.2  Andalucia 

The Junta de Andalucia has a specific web portal (Portal Andaluz de Cambio Climático), dedicated to 
climate change. Here relevant activities (seminars, projects, reports and updates) are presented to 
the large public. 

Box 8: Andalucia Web Portal for Climate Change  

The Andalusian government  has a specific web portal Portal Andaluz de Cambio Climático dedicated to cli-
mate change. The web portal offers information related to CCA, informing the relevant stakeholders and 
the society as large, about different types of relevant actions that are undertaken.  

A special section is dedicated to the actions that can be taken by citizens at home, at the working and 
study place, and example of good practices in professional sectors. 

Source: 
https://www.juntadeandalucia.es/medioambiente/portal/web/cambio-climatico/cambio-climatico/actua  

With the Blue Natura Life project, a Awareness and Communication plan was designed. The plan 
provides objectives and defines key messages, deducted from a SWOT analysis. It identifies target 
audiences and selects appropriate communication channels, ultimately shaping a cohesive 
communication strategy, aiming to raise awareness about the role of coastal wetlands and 
seagrass meadows as carbon sinks. These actions include organizing knowledge-sharing sessions 
for experts, training workshops for managers and technicians, and seminars for policymakers and 
the private sector to explore opportunities in blue carbon initiatives. Media events and field visits 
educate journalists on blue carbon’s benefits, accompanied by a media kit for effective 
communication. An itinerant awareness campaign targets local populations through various events, 
informational posters, and youth-focused educational sessions. Temporary information points in 
selected towns are aimed to further engage the community, while a scientific monograph 
in Chronica naturae will highlight technical aspects of the project. Networking activities aim to 
connect with related projects to maximize transferability, and five information panels will be placed 
in notable natural areas. Finally, a Layman’s report will summarize the project, its actions, and 
results for the general public. 

56 

 
 
 
 
 
The website of the Junta de Andalucía includes a portal titled "Qué puedo hacer yo?" (What can I 
do?), encouraging individuals to take action to reduce their energy consumption. It provides practical 
measures for daily life, including tips for saving water, managing waste, and conserving energy at 
home and within community spaces.  

Another good example is the CLIM-A International Congress on Climate Change in Andalusia which 
gathered global leaders, experts, and professionals to discuss climate change challenges and oppor-
tunities in Andalusia, as well as the broader European and global contexts. Recognized by the Euro-
pean Commission as a complementary event for EURegionsWeek 2024, the congress emphasized 
the critical role of regions and cities in climate action.  

3.7.1.3  Granada 

A specific transversal objective of the Granada Plan is “Increased awareness among the population 
of the province of Granada about the effects of climate change” and the foreseen measure consists 
in awareness campaigns about the effects of climate change in the province of Granada.  is dedi-
cated to these awareness campaigns11. 

AdaptaGranada has a specific section dedicated to “Campaign for raising awareness about the Cli-
mate Change” (Campaña para la Concienciación sobre el Cambio Climático). In 2022, the Granada 
Provincial Council has made a series of videos and infographics to raise awareness about climate 
change12. However, little information is available there.  

3.7.2  Knowledge base for CCA  

Spain.  
The National Climate Change Adaptation Plan (PNACC) 2021-2030 highlights the importance of data col-
lection and monitoring to guide climate adaptation policy. PNACC mandates that adaptation actions rely on 
scientific data, emphasizing robust responses to extreme events, with a comprehensive evaluation sched-
uled for 2029. Key mechanisms include: Climate Risk Reports  across Spain, Sectoral Adaptation Re-
ports, Monitoring Reports and AdapteCCa Platform. 

Andalusia. The Andalusian Climate Action Plan (PAAC) leverages updated Local Climate Change Scenarios 
(ELCCA) to guide regional adaptation efforts.  
-  Portal Andaluz de Cambio Climático provides publicly accessible climate adaptation information 

and actions undertaken across the region. 

-  SICMA Platform: An e-GIS-WEB tool offers a map-based projection of 80 climate-related variables, 
allowing stakeholders to explore future scenarios related to climate, water balance, biodiversity, and 
thermal comfort. 
Localized Knowledge and Actions offer regional climate projections that shape long-term adapta-
tion measures, focusing on anticipated challenges in Andalucía over the 21st century. 

- 

Granada 
- 

The Provincial Plan for Adaptation to Climate Change of Granada (PPACCGr) emphasizes monitoring 
and coordination for adaptation efforts. 

-  Climate Change Adaptation Observatory: A newly established observatory will oversee data col-

lection, facilitate institutional coordination, and support data sharing 

11 http://www.adaptagranada.es/Campaña-de-Concienciación/ 
12 https://www.dipgra.es/contenidos/plan-adaptacion-al-cambio-climatico/  

57 

 
 
 
 
 
 
 
 
 
-  Monitoring Committees: Comprising representatives from each Territorial Management Unit, these 
committees track the execution of planned actions, reporting to the Provincial Council of Granada. 
-  Regular Evaluation: The Provincial Council conducts evaluations of adaptation effectiveness through 

annual, biannual, and triannual reviews to ensure progress tracking. 

3.7.2.1  Spain 
The National Plan for Adaptation to Climate Change (PNACC 2021-2030) enhances the tools for 
collecting information and monitoring public adaptation policies and the Plan itself. Among the re-
porting and monitoring mechanisms are the following: 

•  Climate Risk Reports: The reports should synthesize and offer an up-to-date overview of the 

understanding of climate change-related risks in Spain. 

•  Sectoral Adaptation Reports analyze the status of various areas or sub-areas of work within 

the PNACC. They may be requested by the government or the Congress of Deputies. 

•  PNACC Monitoring Reports: These informative reviews, accessible to all, cover the actions 

carried out within the PNACC framework during a specific timeframe. They also include conclu-
sions, challenges, and prospects for the future. 

An initial set of indicators designed to provide an evolving perspective on the effects of climate 
change and the progress made in adaptation. This aims to facilitate ongoing policy improvement. 
Moreover, Climate Change Adaptation Platform (AdapteCCa), established in 2013 under the PNACC, 
should be improved, to solidify its role as a knowledge hub and ensure its full functionality. 

Box 9. AdapteCCa national platform 

The AdapteCCa platform is an online tool aimed to facilitate coordination and transfer of knowledge, expe-
riences, information on impacts, vulnerability and adaptation to climate change, between the different Spa-
nish administrations and the scientific community, planners and managers, both public and private, and 
other agents, allowing a multi-directional communication channel. It has been designed to maximize syner-
gies with the European Climate-Adapt platform, the European Commission and the European Environment 
Agency having an important role in ensuring the complementarity between both platforms. 
The platform has specific sections on: 
- 
- 
- 

Thematic focus of CCA: energy, coast and marine enviroments etc 
TRANSVERSAL ASPECTS OF DE ADAPTATION: territorial and social vulnerability, cross-border etc 
Territorial approach: mountain, island, rural, other areas   

« Adaptation decisions must be based on the best available science. However, the primary objective 
of these decisions will be to ensure a high level of environmental and health protection, even in 
cases where the available scientific data do not allow for a full risk assessment or evaluation ». 
(PNACC, pag 49).  

Beside the requirments for data monitoring, and thorough data scientific and technical analyses, 
PNACC aligns to the principle that in the evidence based policy making, the design of actions should 
be done according to scientific scenarios, including the most unfavourable, especially in relation to 
responses to extreme events.  

The PNACC 2021-2030 envisages an in-depth evaluation in 2029, in order to assess the progress, 
remaining challenges and lessons learned to date. The evaluation will include an analysis of the 
plan's relevance, effectiveness, efficiency, coherence and added value and should use a variety of 
sources, including factual information, but also the assessments of individuals and organisations 
active or interested in the field of adaptation.  

58 

 
 
 
 
 
3.7.2.2  Andalucia 

The interviews with the relevant staff from Junta de Andalucia, highlights that “Regardless of the 
existence of gaps and identified needs to deepen the knowledge of a specific sector, the Andalusian 
Climate Action Plan (PAAC) is based on the principle that with the current level of knowledge it is 
time to undertake, with the greatest possible intensity, action for adaptation to climate change. 
Along these lines, the Junta de Andalucía is making efforts to improve knowledge base related to 
the effects of climate change. »  

The Andalusian Climate Action Plan (PAAC) leverages updated Local Climate Change Scenarios 
(ELCCA) to guide regional adaptation efforts. The Portal Andaluz de Cambio Climático serves as a 
public platform providing accessible information on climate adaptation initiatives and actions across 
Andalucía.  

The Committee of Regions of the European Union (EU) has 
recognized as “good practices” in environmental matters the 
preparation of the “Climate Action Report of the Junta de An-
dalucía  2021-2022  in  development  of  the  Andalusian  Cli-
mate Action Plan”, the preparation of a “Protocol for calculat-
ing the Carbon Footprint of sustainable events”, and the prep-
aration of an “Inventory of GHG emissions of Andalusia” on 
an annual basis.  In this way, these new initiatives are now 
officially considered “good practices” recognized at the Euro-
pean  level  and  become  part  of  the  ‘European  Green  Deal 
map’ (‘EU Green Deal map’). 

The adaptation to climate change pro-
jections in Andalucia, according to the 
latest Intergovernmental Panel on Cli-
mate Change (IPCC) report (2021 and 
2022) represents an important tool for 
the development of local impact and 
adaptation scenarios that help confront 
climate change in the region. All the in-
formation is publicly available on the 
Junta de Andalucia site13. To this end, 
the Local Climate Change Scenarios 
of Andalusia (Escenarios Locales de 
Cambio Climático de Andalucía ELCCA) have been updated. These scenarios will be taken as a refe-
rence in the planning of the Autonomous Community of Andalusia and will be updated according to 
the scientific advances that occur. The projection of each of the variables allows to explore, inte-
grating local climate variability, the joint or individual output of 10 Coupled Model Intercomparison 
Projects (CMIP) global circulation models14 on the 4 mandatory emissions scenarios established by 
the VI IPCC Report in different periods, throughout the 21st century. The results are simulations that 
try to illustrate, with current knowledge, the trend of various climate variables. Its objective is not to 
serve as a tool in the evaluation of the long-term climate, but to serve as a context and framework 
to reflect on some main challenges that Andalusia may face in relation to climate change through-
out the 21st century and focus, consequently, measures that minimize its future impact. 

Complementing this, the SICMA platform, an advanced e-GIS-WEB tool, offers map-based projec-
tions of 80 climate-related variables, enabling stakeholders to visualize future scenarios concerning 

https://www.juntadeandalucia.es/medioambiente/portal/areas-tematicas/cambio-climatico-y-clima/escenarios-locales-

13 
de-cambio-climatico 
14 Climate models are one of the primary means for scientists to understand how the climate has changed in the past and 
maychange in the future. The models simulate the physics, chemistry and biology of the atmosphere, land and oceans re 
constantly being updated, as different modelling groups around the world incorporate higher spatial resolution, new physical 
processes and biogeochemical cycles. CMIP6 will consist of the “runs” from around 100 distinct climate models being pro-
duced  across  49  different  modelling  groups.  (https://www.carbonbrief.org/cmip6-the-next-generation-of-climate-models-
explained/)  

59 

 
 
 
 
 
climate, water balance, biodiversity, and thermal comfort. This localized approach is further sup-
ported by regional climate projections that inform long-term adaptation measures, addressing the 
anticipated challenges Andalucía will face throughout the 21st century. 

Box 10. SICMA. Andalusia Platform for climate change scenarios  

A publicly available e-GIS-WEB map viewer (https://andalucia.sicma.red/) has been enabled to facilitate 
geographical consultation of the results. This allows projecting future scenarios integrating 80 climate-re-
lated variables, grouped in 4 layers of information: Climate, Water Balance, Biodiversity and Thermal Com-
fort.  

3.7.2.3  Granada 

The Provincial Plan for Adaptation to Climate Change of Granada (PPACCGr) sets the following 
transversal objectives:  

•  Monitoring and coordination for the execution of the Adapta Granada Plan. The aim is to 
identify which planned actions within each measure have been implemented. This action should 
be performed every year by the Monitoring Committee, made up of the group identified in each 
UTG (who will act as representatives and will be in contact with the Provincial Council of Gra-
nada) and with the rest of the members of its Territorial Committees, Provincial Council of Gra-
nada. 

•  Evaluation of CC Adaptation Lines. The evaluation should be performed on an annual, bian-
nual and triannual base (specified for each line). The responsible body is the Provincial Council 
of Granada. The Monitoring Indicator Sheets created for each Line of Action will be used, and 
included in the Monitoring and Evaluation Plan Document.  

•  Creation of the Climate Change Adaptation Observatory in the province of Granada. 

•  Promotion of institutional coordination and the transfer of information and data bet-

ween administrations. 

3.7.3  Strategic capacity 

Spain. The PNACC 2021-2030 in Spain emphasizes strategic capacity building in climate adaptation, iden-
tifying essential skills and stakeholder needs while recommending diverse training formats such as work-
shops, experiential learning, and study visits. 

In Andalucia, targeted training programmes for technical staff within the regional administration who has 
expertise in climate change are organised, in the frame of the broader scope standardized process within 
the framework of future operational activities within the Climate Adaptation Programme in Andalucia. 

Granada. There is limited information regarding such training programmes.  

Bottlenecks 
- 

Insufficient Training and Capacity Building at the local level. While the PNACC 2021-2030 em-
phasizes strategic capacity building, there is limited implementation of targeted training programmes 
at the local level in Granada. This lack of capacity-building initiatives restricts the ability of local tech-
nical staff and stakeholders to effectively engage in climate adaptation planning and implementation. 

60 

 
 
 
 
 
 
 
 
 
 
- 

Limited Availability of Information on Training Opportunities. In Granada, there is minimal pub-
lic information about training programmes, making it difficult for local technical staff and stakeholders 
to access or participate in capacity-building initiatives. 

-  Uneven Implementation Across Regions. Training programmes appear more concentrated at the 
regional level (e.g., Andalucia), with a lack of tailored initiatives specifically addressing the unique 
needs of smaller municipalities and local contexts like those in Granada. 

-  Potential Gaps in Resources and Expertise Local administrations in Granada may lack the re-

sources or expertise to develop or sustain strategic training initiatives without additional support from 
regional or national authorities. 

3.7.3.1  Spain 

PNACC 2021-2030 addresses the need for strategic capacity building, the need to identify the 
emerging skills that are needed, the key stakeholders engaged in the process, and assess their 
specific capacity-building requirements. Various educational and training formats should be consi-
dered, such as study visits to exemplary projects, professional exchanges, experiential learning 
through practical initiatives, seminars, and workshops, among other methods. In the "Education and 
Society" domain, a range of action strategies is suggested to fulfill these objectives. 

3.7.3.2  Andalusia – Granada 

The Ministry of Sustainability, Environment, and Blue Economy (CSMAEA) is taking important steps 
to develop a new climate risk management model. According to the interviews,  “as  part of this ini-
tiative, the Ministry is currently organizing training programs for technical staff within the regional 
administration who has expertise in climate change. The primary objectives of the training are to en-
hance their understanding of climate change, adaptation strategies, and to acquaint the staff with 
the methodologies for assessing climate risks and the tools associated with this assessment, all of 
which have been developed by the Ministry. » 

The ultimate goal of this training effort is to establish a standardized process within the framework 
of future operational activities within the Climate Adaptation Programme in Andalusia. This will 
enable the definition of clear objectives, the evaluation of actions, and the monitoring of relevant 
indicators related to climate change adaptation in the region. It is a significant step toward transpa-
rency and a structured approach to the risk assessment process, providing a solid foundation for 
decision-making related to climate adaptation. 

 Box 11 Participation in Climate Change KIC 

The Directorate General for Environmental Quality and Climate Change (DGCACC) participated in two cli-
mate change adaptation projects promoted and financed by Climate KIC (Knowledge and Innovation Com-
munity), EIT (European Institute for Innovation and Technology) of the European Commission. 

-  DEEP DEMONSTRATIONS: FORGING RESILIENCE. REGION: ANDALUSIA. The project offers participatory 

processes specialized in adaptation, and can contribute to improving the content of the PAAC itself and 
its public information processes. The final product is the Project Portfolio, which will constitute a list of 
adaptation pilot projects that fit into Andalusian policies; 
RISI-ADAPT-II (until 2022) focused on the impact of the Drought in Andalusia and other regions, simu-
lating the effects of the drought with different variables and carrying out simulations. 

- 

61 

 
 
 
 
 
 
 
 
4  Conclusions 

Spain is among the European Union (EU) countries already showing significant impacts from the cli-
mate crisis. Approximately 20% of mainland Spain has already suffered from desertification, pri-
marily due to the combined effects of climate change and human activities, including the overuse 
of water resources, particularly the excessive extraction of groundwater. Additionally, 74% of the 
country is at risk of desertification.  

The main conclusions for each of the seven key transformative innovation features in the analytical 
framework are summarized below.  The analysis identifies good practices, bottlenecks and possible 
ways forward. 

Good practices 

▪  Strategies and implementing plans were developed at national, regional and local level. 

Spain has already some tradition in CCA strategies and planning. The National Plan for Ad-
aptation to Climate Change (PNACC 2021-2030) is a continuation of the PNACC 1, 2006-
2020. The National Plan complies fully to the conceptual framework used for analysis in 
this work, explicitly addressing all the relevant aspects.  
In a similar and complementary way, Andalusia developed the Andalusian Climate Action 
Plan (PAAC), derived from Law 8/2018 on climate change of Andalusia, and adopted it in 
2021. 

▪ 

▪  Granada adopted Adapta Granada Plan (PLAN PROVINCIAL DE ADAPTACIÓN AL CAMBIO 

CLIMÁTICO DE GRANADA, 2019) on April 2023, plan which was developed based on unique 
methodology that combines scientific data analysis with climate vulnerability assessment 
and coordination among local stakeholders. The plan is designed to address the adaptation 
needs of supra-municipal entities in the province. 

▪  All these plans, at national/ regional/local level, have specific objectives and implementing 
instruments. Given the complexity of the actions required by CCA, the objectives and action 
lines address different domains, as deemed relevant for Climate Change Mitigation and Ad-
aptation. 

▪  The strategic documents, for CCA and R&D&I were developed through a collaborative pro-
cess, involving all actors of the quintuple innovation helix (university-industry-government-
public-environment helix framework). 

▪ 

▪ 

▪  Multi-level governance structures, at national, regional, municipality level, established 
through legal acts, ensure horizontal and vertical coordination and collaboration.  
The implementing plans allow for agile and flexible approach, as required by experimenta-
tion and social innovation. 
Transversal principles to which all the plans align, ensure coordination, transparency, public 
involvement in co-creation, and data monitoring for evidence base policy making. Specific 
training aimed to consolidate the strategic capacity is envisaged also in the plans. Dissemi-
nation events, awareness campaigns are also part of the process and advertised on the 
websites of the relevant authorities.  

▪  Online platforms, publicly available, gather data related to climate, impact of climate 

change, using indicators established at international level. 

For each dimension, suggested pathways are provided to help the adoption of a more traformative 
approach to climate change adaptation (CCA). 

62 

 
 
 
 
4.1  Directionality  

The National Plan for Adaptation to Climate Change (PNACC 2021-2030) aims to reduce climate-
related damages and enhance resilience, building on prior efforts and incorporating recent global 
commitments and climate risk insights. It defines nine objectives, including risk identification, public 
policy integration, stakeholder engagement, and monitoring, with 81 action lines spread across 18 
work areas. However, challenges remain in translating these strategies effectively at local and re-
gional levels. The Andalusian Climate Action Plan (PAAC), based on Andalusia’s Law 8/2018, is the 
regional framework for climate action, aiming for climate neutrality by 2050. Granada’s Provincial 
Climate Adaptation Plan (PPACCGr) targets climate threats, impacts, and municipal vulnerabilities, 
promoting local participation and proposing specific measures.  

Bottlenecks.  

In spite of the Municipal Plans against Climate Change (PMCC) defining, through the PAAC, a 
planning system that connects the regional level with the local level, there is room for im-
provement to fine tune methodologies for designing Climate Change Adaptation (CCA) Plans at the 
supra-municipal and municipal levels to avoid inconsistencies in how adaptation is implemented at 
these levels. Although strategic documents identify potential funding sources, given their competi-
tive nature they may pose a challenge in operationalisation and achieving concrete outcomes.  

Possible Ways Forward 

▪  Define clear, measurable targets for climate change adaptation.   

▪ 

▪ 

Emphasize the importance of innovative approaches to climate adaptation. 

Establish a critical mass of essential Climate Change Adaptation (CCA)-related expertise within 
national, regional, municipal administrations, emphasizing cross- collaboration. 

▪  Systematically leverage the lessons learned from various EU regions to inform and improve CCA 

efforts. Provide support and foster local climate adaptation innovation clusters 

4.2  Articulating instrument portfolios and defining synergies between 

funding sources 

Spain's climate adaptation funding relies on multiple EU financial instruments, with significant sup-
port from Cohesion Policy Funds and Horizon Europe. National efforts, like the PIMA Adapta plans 
under the PNACC, target vulnerability reduction, while complementary national and regional plans, 
including PNRR and Andalusia’s PAAC and S4Andalucia strategy, emphasize areas like energy, biodi-
versity, and marine science. These initiatives aim to create synergies across funding sources, foster-
ing collaboration between regional, national, and European programs, including LIFE and Interreg.  

Bottlenecks 

Despite the availability of funding (for instance PMCC support to local governments within the 
framework of the PIMA plan to support municipalities, or law 8/2018 supporting municipalities 
alongside other instruments), the effective implementation of climate adaptation projects remain 
challenging. Limited private sector involvement, due to insufficient incentives, hinders business par-
ticipation in adaptation measures. Misalignment and poor coordination between national, regional, 
local, and sectoral policies may lead to fragmented efforts and inadequate responses to climate 
risks. Smaller municipalities, in particular, struggle with complex funding mechanisms and lack the 

63 

 
 
 
support needed to address their unique challenges, resulting in inefficiencies. Additionally, 
knowledge gaps, especially in region-specific climate impact data, and coordination issues between 
regional and local governments further disrupt cohesive and effective climate adaptation efforts. 

Possible Ways Forward 

•  Develop a system that enables municipalities to share their experiences, challenges, and 

successes with regional and national bodies. This can inform adjustments to the PNAAC and 
PAAC, ensuring they remain responsive and relevant. It will also help the scaling -up of effi-
cient instruments. 

•  Provide targeted guidance addressing the unique needs and challenges of municipalities. 

CCA guidelines should be context-specific, recognizing the diverse climate challenges across 
regions. 

•  Clarify the roles and responsibilities of local, regional, and national governments in adapta-

tion projects to minimize overlaps and ensure accountability at each level. 

•  Develop incentives to encourage private sector participation in climate adaptation, including 
tax breaks, grants, or subsidies for companies investing in adaptation projects. Introduce 
green certifications or awards recognizing businesses that adopt and implement adaptation 
practices 

•  Encourage public-private partnerships to share resources and mitigate risks in high-impact 

areas such as infrastructure, water management, and renewable energy. These partnerships 
can leverage private sector innovation and investment to complement public resources. 

•  Establish a dedicated funding mechanism tailored to smaller municipalities, offering 

straightforward application processes and providing technical assistance to support project 
development and management. 

•  Facilitate the rapid entry of adaptation-focused startups and small to medium-sized enter-

prises (SMEs) into the market.  

•  Engage investors from the outset and establish robust policy signals to promote the long-

term development of the local adaptation economy.  

•  Provide support to RDI projects focus on CCA solutions for specific regional, local specific 

challenges.   

•  Tailor policies and guidelines to be more inclusive and adaptable to varying local contexts; 

incorporate specific provisions for smaller municipalities, addressing their unique challenges 
and capacity constraints.  

4.3  Ensuring cross-domains synergies 

Spain emphasizes fostering collaboration between sectors to boost innovation, efficiency, and 
global competitiveness. Key areas of focus include integrating sustainability in urban planning, con-
necting research with industrial applications, promoting eco-tourism, and modernizing agriculture 
with technology. To achieve this, Spain employs integrated policies aligned with EU initiatives, en-
courages public-private partnerships, and coordinates efforts regionally. These synergies drive re-
source efficiency, innovation, economic growth, and societal well-being, positioning Spain as a 
leader in sustainable, cross-sector development. 

The National Climate Change Adaptation Plan (NACC) 2021-2030 promotes coordinated, 
transparent climate adaptation across sectors like water, biodiversity, energy, and urban planning, 
fostering research and collaboration in line with the Strategy for Science, Technology, and 
Innovation (EECTI) and Horizon Europe. In Andalucía, the Andalusian Climate Action Plan (PAAC) and 
Law 8/2018 mandate alignment of regional and local adaptation plans with the Andalusian Climate 

64 

 
 
Change Office (OACC) ensuring policy coherence. One of OACC’s line of activities is precisely to 
foster sectorial strategic planning in coherence with PAAC within the frame of Law 8/2018. 
Granada’s Adapta Granada Plan adopts key NACC areas, focusing on agriculture, biodiversity, and 
energy.  

Bottlenecks 

Despite the emphasis on cross-domain collaboration in national, regional, and local plans, effective 
coordination across sectors like water, energy, and infrastructure is often hindered by differing 
objectives and priorities. While frameworks such as the PAAC and Law 8/2018 promote alignment in 
adaptation plans, disparities in resources and capacities between governance levels can lead to 
inconsistent implementation and reduced effectiveness. 

Intersectoral working groups aim to foster integration, but sectors frequently operate in silos, 
limiting the impact of coordinated strategies. Initiatives like Granada’s Adapta Granada Plan show 
promise in addressing sector-specific needs under the PNACC. However, aligning these local efforts 
with broader regional and national strategies remains a significant challenge. 

Municipalities, particularly smaller ones, face additional barriers such as limited technical and finan-
cial resources, which hinder their ability to execute complex adaptation projects in critical areas like 
urban planning and tourism, ultimately slowing progress in achieving cohesive climate resilience. It 
remains to be seen whether ongoing initiatives such as financial support from the Andalusian Gov-
ernment or collaboration with Andalusian Federation of Municipalities and Provinces (FAMP) will 
overcome this bottleneck. 

Possible ways forward 

▪  Provide increased support to interdisciplinary CCA research. Design funding mechanisms that 

prioritize projects delivering both mitigation and adaptation benefits. 

▪ 

▪ 

▪ 

▪ 

Identify and address any strategic silos that may hinder collaborative efforts across sectors. 

Engage communities in climate initiatives, including research projects that address both adapta-
tion and mitigation needs, with a focus on responsible research practices 

Leverage the potential of a “climate adaptation economy” by incorporating business-oriented 
innovation tools into the adaptation project portfolio. 

Establish centralized climate data platforms accessible to all sectors to support informed, cross-
sector decision-making. 

4.4  Increasing breadth and depth of stakeholder involvement 

The National Climate Change Adaptation Plan (PNACC) 2021-2030 was developed through an 
inclusive process, gathering input from experts, public administrations, the private sector, and civil 
society via workshops, online submissions, surveys, and interviews. Similarly, the Spanish Strategy 
of Science, Technology and Innovation (EECTI) 2021-2027 was co-designed with input from 
business, research, public administration, and civil society. Similarly, the Andalusian Climate Action 
Plan (PAAC) was developed with input from public workshops, technical assessments, and 
consultations with stakeholders, involving economic, social, and administrative groups. The Smart 
Specialisation Strategy for Sustainability (S4ANDALUCIA) 2021-2027 was also developed with a 
multi-phase participatory process. The Provincial Council of Granada developed a unique approach 

65 

 
 
to Climate Change Adaptation Plans (CCAs) at the supramunicipal level, combining climate data 
analysis with local stakeholder engagement. The region was divided into nine Territorial 
Management Units (UTGs), each managed by a Territorial Committee with representatives from the 
Provincial Council, municipalities, and social groups. These committees participate across all stages 
of the Provincial Climate Change Adaptation Plan (PPACCGr). 

Bottlenecks 

While the national and Andalusian climate change adaptation policy processes have emphasized 
stakeholder involvement, there is insufficient guidance on effectively integrating diverse groups, 
leading to the underrepresentation of certain voices in adaptation planning. Despite structured co-
creation processes at the national and Andalusian levels, the absence of a unified framework for 
stakeholder engagement at regional and local levels weakens stakeholder integration, particularly in 
smaller municipalities. Financial and technical constraints further limit the capacity of rural 
Andalusian municipalities to implement large-scale adaptation measures. 

Overlapping responsibilities among national, regional, and local authorities contribute to delays in 
decision-making and implementation, while public involvement in disaster preparedness and climate 
adaptation remains limited, often lacking meaningful input into policy or action plans. 

Stakeholders often face barriers such as insufficient technical knowledge or access to relevant data, 
which undermines their ability to contribute effectively to climate adaptation and disaster 
mitigation efforts. Private sector participation is inconsistent, particularly when short-term economic 
interests clash with long-term sustainability goals. For instance, urban expansion in Granada 
frequently overlooks flood risks, increasing vulnerability during heavy rainfall. 

Existing infrastructure and governance systems also lack resilience to extreme weather events. The 
recent DANA phenomenon in Valencia exposed significant weaknesses in urban drainage and 
disaster response systems, underscoring the need for more robust adaptation strategies. 

Possible ways forward 

•  Continue and expand the positive stakeholder engagement efforts already established in 

the CCA strategy. 

•  Establish detailed recommendations for involving distinct groups, including vulnerable, mar-
ginalized, and underrepresented communities. These guidelines should outline best practices 
for reaching and integrating various stakeholders, ensuring that all voices are considered in 
adaptation planning. 

•  Ensure that stakeholder involvement is not limited to the initial stages of planning but in-
cludes regular feedback loops throughout implementation. Establish channels for continu-
ous input from diverse groups to adaptively manage and improve CCA strategies over time. 

•  Continue to develop user-friendly platforms and tools to provide stakeholders with the nec-
essary data and technical knowledge for effective participation. This could include localized 
climate projections, risk assessments, and best practices for adaptation. 

•  Encourage greater business participation in CCA: Organize stakeholder events focused on 

• 

complex, slow-onset climate change impacts, showcasing examples of transformative inno-
vation solutions from other countries to address CCA challenges. 
Invest in upgrading infrastructure to better handle extreme weather events, such as improv-
ing urban drainage systems. Enhance disaster response mechanisms through coordinated 
planning and simulation exercises involving all levels of government. 

66 

 
 
4.5  Setting up effective multi-level governance models 

Coordination mechanisms and structures for climate adaptation are well-established across na-
tional, regional, and local levels, aiming to ensure both vertical and horizontal collaboration. Na-
tional entities like the Spanish Climate Change Office, National Climate Council, CCPCC, and the In-
terministerial Committe support policy coherence and cross-sectoral cooperation, while Andalucía 
and Granada implement relevant frameworks at regional and provincial levels.  

Bottlenecks  

Despite coordination structures across national, regional, and local levels (including, inter alia 
methodologies and tools elaborated by the Andalucian office of climate change /OACC or the 
methodology used for the drafting of Municipal plans against climate change /PMCC), several 
challenges hinder the full effectiveness of climate adaptation governance. The involvement of 
numerous bodies, while intended to facilitate collaboration, can add complexity. This can lead to 
overlapping responsibilities and communication delays, which may impact timely decision-making 
and effective implementation. The absence of standardized methodologies for designing Climate 
Change Adaptation Plans at supramunicipal and municipal levels requires local entities, to develop 
their own approaches. This can result in uneven adaptation practices and a lack of coherence across 
different regions. Municipalities may lack the technical and financial resources needed to fully 
participate in multi-level governance structures. This may lead to potential gaps and a fragmented 
response to climate resilience and adaption. 

Possible ways forward 

▪  Clearly define the roles and responsibilities of each coordinating body within the local-regional-
national framework to ensure accountability, efficient information flow and decision making 
process. 

▪  Prioritize investments in resilient infrastructure, such as urban drainage systems, flood de-

fenses, and early warning systems, to mitigate the impacts of intense rainfall and flooding. In-
corporate climate risk into urban planning and development processes. 

▪  Develop a digital platform to facilitate information sharing, and allow responsibility tracking 

among these bodies, enhancing response times and reducing communication delays. 

▪ 

Involve local communities in adaptation planning through awareness campaigns and participa-
tory processes. Equip municipal staff and local stakeholders with training on climate adaptation 
practices and governance. 

4.6  Making room for experimentation 

The PNACC shows limited focus on experimentation. In Andalusia, interviews also indicate little evi-
dence of experimentation, though some projects are underway but not widely publicized. The Gov-
ernment of Andalucía is introducing an innovative risk management model, while Seville’s Cartuja-
Qanat project addresses urban heat through adaptable, socially inclusive spaces. Granada’s Provin-
cial Climate Adaptation Plan (Adapta Granada) explores experimental opportunities in various pro-
jects, allowing for the development of sustainable, scalable, and locally tailored adaptation 
measures. Although there is interest in experimentation within climate adaptation initiatives, the 
lack of visible examples and a public database of successful practices restricts their broader impact 
and scalability. 

Possible ways forward 

67 

 
 
•  Establish a centralized, accessible database to document and showcase successful adapta-
tion practices and experimental projects. This platform could include case studies, project 
outcomes, and lessons learned, making it easier for municipalities and stakeholders to repli-
cate effective strategies. Highlighting successful projects and innovative approaches can 
inspire further experimentation and build support within communities and government bod-
ies. 

• 

Introduce legal and administrative frameworks that allow for piloting innovative solutions 
without the constraints of rigid regulations. For instance, create temporary "experimental 
zones" or legal exemptions for climate adaptation projects, enabling testing and refinement 
before broader implementation. 

•  Design policies that empower municipalities to develop tailored solutions addressing their 
specific climate risks. Support this by providing flexible guidelines that accommodate re-
gional and local variations, ensuring that projects are contextually appropriate and effective. 

•  Ensure that national and regional climate adaptation policies include provisions for experi-
mental approaches. This integration can legitimize and prioritize experimentation as a key 
component of adaptation strategies, fostering a culture of innovation. 

•  Establish dedicated funding streams for experimentation in climate adaptation. These could 

include grants, subsidies, or public-private partnerships targeted at rural and resource-con-
strained areas. Incentivize innovation by rewarding municipalities and regions that success-
fully implement and scale transformative projects. 

• 

• 

Integrate participatory approaches into the design and implementation of experimental ad-
aptation projects. Actively engage residents in planning processes through workshops, public 
consultations, and co-design sessions, ensuring their concerns and insights are incorporated. 
This can foster public acceptance and support for transformative measures, such as flood-
plain restoration or urban greening. 

Implement rigorous monitoring and evaluation mechanisms for experimental projects to as-
sess their impact and scalability. Successful initiatives should be prioritized for broader im-
plementation and integrated into mainstream climate adaptation policies. 

4.7  Securing high levels of policy intelligence, learning and strategic capa-

city 

4.7.1  Awareness and understanding of CCA  

The PNACC 2021-2030 promotes extensive stakeholder involvement by engaging vulnerable 
groups, businesses, and civil society in climate initiatives, in line with UNFCCC guidance. Key 
measures include educational resources—guides, audiovisual materials, and monitoring tools to 
track public perceptions. The Action Plan for Environmental Education for Sustainability (2021-
2025) encourages integrating climate education across sectors. In Andalucía, the Portal Andaluz de 
Cambio Climático delivers accessible information and sustainable practice tips. Meanwhile, Grana-
da's AdaptaGranada Plan seeks to increase local climate awareness, although more public details 
on its campaign are needed. 

Bottlenecks. Many municipalities, constrained by financial and technical resources, may struggle to 
execute effective campaigns, leading to uneven climate knowledge and preparedness across the re-
gions. Existing outreach materials often lack local relevance, failing to address the unique cultural 

68 

 
 
and environmental contexts of Granada's communities. The absence of structured mechanisms for 
involving local populations limits public interest and participation in adaptation initiatives. Rural and 
underserved areas face further challenges due to disparities in access to information, leaving some 
communities more vulnerable to climate risks. 

Possible ways forward 

▪  Use surveys and public consultations to assess public understanding and misconceptions 

regularly, refining messaging based on community responses. 

▪  Provide support for the organisation of workshops and seminars in schools and commu-

nity centers to explain climate change causes, impacts, and necessary actions. 

▪ 

Tailor educational materials for local contexts, addressing specific climate risks faced by 
communities in Andalucía and Granada. This could include producing region-specific videos 
and infographics for local campaigns like AdaptaGranada. 

▪  Continue to develop interactive materials (infographics, videos, guides) to demonstrate 

practical ways to reduce carbon footprints. 

▪ 

Facilitate public dialogue forums with citizens and experts to discuss local climate issues 
and solutions. 

▪  Organize sustainable community competitions to encourage recycling, energy savings, 

and green transportation, rewarding communities for their efforts. 

▪ 

Launch social media campaigns. Produce mini-documentaries  featuring stories of peo-
ple affected by climate change, emphasizing the impact of individual actions. Partner 
with influencers and public figures to broaden the campaign’s reach. 

•  Establish funding opportunities and technical assistance for small municipalities to help 

them actively participate in climate awareness initiatives 

•  Set up regional “training of trainers” programmes where municipal staff and local 
volunteers learn to lead climate awareness activities within their communities. 

• 

Implement feedback mechanisms to adjust strategies as needed, ensuring that all demo-
graphic groups are reached and engaged. 

•  Showcase Success Stories and Best Practices. Highlight successful local adaptation initia-
tives and their benefits to inspire and motivate broader community participation. This can 
foster a sense of ownership and urgency in addressing climate challenges. 

4.7.2  Knowledge base for CCA  

The National Climate Change Adaptation Plan (PNACC) 2021-2030 in Spain prioritizes data-driven 
adaptation policy with tools for monitoring, including Climate Risk Reports, Sectoral Adaptation Re-
ports, and Monitoring Reports to update on actions, challenges, and progress. The AdapteCCa Plat-
form serves as a knowledge-sharing hub, aligning with the European Climate-Adapt platform.  
In Andalusia, the Portal Andaluz de Cambio Climático provides open access to adaptation initiatives, 
while the SICMA Platform, an e-GIS-WEB tool, enables exploration of 80 climate-related variables 
for future planning. The Andalusian Office of Climate Change (OACC) also facilitates the processing 
of adaptation data derived from the Municipal plans against climate change (PMCC) templates to 
identify best practices.   

69 

 
 
Granada’s PPACCGr emphasizes localized monitoring through a Climate Change Adaptation Observa-
tory and Monitoring Committees across Territorial Management Units, with regular evaluations by 
the Provincial Council to track adaptation progress. 

Bottlenecks 

Integration of national, regional tools with localized initiatives in Granada, may lead to potential in-
efficiencies and data gaps. Smaller municipalities often struggle to utilize platforms due to limited 
technical capacity and awareness. Localized data specific to Granada's climate risks remains insuf-
ficient, hindering tailored adaptation planning, while the Climate Change Adaptation Observatory 
may face resource constraints in data collection and sharing. Monitoring and evaluation processes 
in Granada are complex and may lack consistency. 

Possible ways forward 

▪  Develop mechanisms for seamless integration of national, regional tools like SICMA with 

localized initiatives such as the Climate Change Adaptation Observatory. This could include 
shared platforms or collaborative frameworks. 

▪  Provide training programmes for local stakeholders, including municipal staff, to effectively 
use relevant CC platforms. Ensure these tools are user-friendly and accessible to non-tech-
nical users. 

▪  Allocate additional resources to the Climate Change Adaptation Observatory in Granada to 
enhance its capacity for collecting and sharing localized data. Foster collaboration with re-
gional platforms to bridge any knowledge gaps. 

▪  Use digital tools to facilitate efficient tracking and reporting of adaptation actions. 

▪  Conduct sectoral studies focused on long-term climate risks and adaptation needs for key 
areas in Granada, such as agriculture, tourism, and urban development. Ensure these find-
ings are integrated into broader regional strategies. 

▪  Provide targeted technical and financial assistance to smaller municipalities in Granada to 
enhance their ability to contribute to data collection, sharing, and adaptation planning ef-
forts. 

4.7.3  Strategic capacity 

The PNACC 2021-2030 in Spain prioritizes building strategic capacity for climate adaptation by 
identifying emerging skill needs, involving key stakeholders, and assessing specific training require-
ments. It promotes diverse educational formats, including study visits, experiential learning, and 
workshops, to strengthen practical understanding of climate resilience across sectors. In Andalusia, 
the Ministry of Sustainability, Environment, and Blue Economy leads capacity-building initiatives, 
training regional technical staff in climate risk management and standardized assessment method-
ologies.  

Bottlenecks 
There is limited implementation targeted training programmes in Granada. restricts the ability of 
local technical staff and stakeholders to engage effectively in climate adaptation efforts. Public in-
formation about available training opportunities is minimal, further limiting access and participation. 

70 

 
 
 
Training initiatives are more concentrated at the regional level, with few tailored programs address-
ing the specific needs of smaller municipalities. Local administrations often face resource and ex-
pertise gaps, making it challenging to develop or sustain training efforts without external support. 

Possible ways forward 

▪  Create a database of relevant CCA good practices (i.e. heatwave etc) for the national, re-

gional, local context 

▪  Establish a technical assistance programme/dedicated fund offering training workshops and 
access to climate adaptation specialists to enhance local officials' expertise. Create a dedi-
cated fund to support municipalities in obtaining the tools and training needed for effective 
local data collection and analysis. 

▪  Design and implement training programs in Granada to build strategic capacity for climate 
adaptation. These programs should be tailored to address the specific climate risks and op-
erational challenges faced by the local administration. 

▪  Develop a centralized platform or regional communication strategy to disseminate detailed 
information about existing and upcoming training programs. This platform should include 
resources, schedules, and application processes to ensure accessibility. 

▪  Facilitate collaboration between Andalucia’s regional climate adaptation program and Gra-

nada’s local authorities to ensure the standardized training process is extended and adapted 
to local needs. 

▪  Expand training methodologies to include workshops, experiential learning, study visits, and 
simulations to enhance practical understanding and application of climate adaptation strat-
egies at the local level. 

▪  Provide financial and technical support specifically for smaller municipalities to ensure they 
can develop and sustain effective training initiatives. Dedicated funding from regional or 
national programs can address these gaps. 

▪ 

Introduce a mechanism to assess the impact of training programs on local strategic capac-
ity. Regular evaluations can help refine programs to ensure they meet the evolving needs of 
local stakeholders. 

71 

 
 
 
 
 
 
  
 
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CEDEX (2017). Evaluación del impacto del cambio climático en los recursos hídricos y sequías en Es-
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PLAN ANDALUZ PARA LA PREVENCIÓN DE LOS EFECTOS DE LAS TEMPERATURAS EXCESIVAS SOBRE 
LA SALUD 2023. Available at: https://adaptecca.es/sites/default/files/documentos/boja23-094-
00068-8854-01_00283883.pdf 

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bluenatura.eu/wp-content/uploads/2017/02/Plan-de-comunicacion-blue-natura-2.0_final.pdf 

PLAN PROVINCIAL DE ADAPTACIÓN AL CAMBIO CLIMÁTICO DE GRANADA, available at: 
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una%20pagina.pdf  

S4ANDALUCIA 2021-2027 DIAGNÓSTICO SOCIOECONÓMICO Y DEL SISTEMA DE INNOVACIÓN DE 
ANDALUCÍA. Available at: https://s4andalucia.es/recursos/  

Spanish Government, Circular Economy Strategy (España Circular (EEEC) 2030 y Planes de Acción) 
2020 

Spanish Government, Desertification Strategy, National Forest Strategy, and Demographic Challenge 
Strategy (Estrategia Nacional de Lucha contra la Desertificación (ENLD) 2022 

Spanish Government, Environmental Education Action Plan for Sustainability (2021-2025) (Plan de 
Acción de Educación Ambiental para la Sostenibilidad (PAEAS) 2021-2025)  

Spanish Government, Industrial Strategy (Política Industrial Española 2030) 

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Economy by 2050,  

Spanish Government, National Health and Environment Plan (Plan Estratégico de Salud y Medio Am-
biente (PESMA) 2022-2026) 

Spanish Government, National Integrated Energy and Climate Plan 2021-2030: 

73 

 
 
Spanish Government, Spanish Coastal Protection Strategy against Climate Change (Plan Estratégico 
Nacional para la Protección de la Costa Española considerando los Efectos del Cambio Climático - 
PEN).  

Spanish Government, Spanish Strategy for Science, Technology, and Innovation 2021-2027 (english 
version) (Estrategia Española de Ciencia, Tecnología e Innovación 2021-2027 (EECTI 2021-2027):  

Spanish Government, Sustainable development Strategy 2030 

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Turística en Destinos): Addresses the relationship between climate change and tourism. 

Vargas, J & Paneque, P, Challenges for the Integration of Water Resource and Drought-Risk Man-
agement in Spain Sustainability 2019, 11(2), 308 

Websites (selection) 

Selection of relevant climate-related websites used for this report.  

http://www.adaptagranada.es/Campaña-de-Concienciación/ 

https://adaptecca.es/recursos/buscador/plan-andaluz-para-la-prevencion-de-los-efectos-de-las-temperaturas-
excesivas-sobre  

https://adaptecca.es/sectores-y-areas 

 https://andalucia.sicma.red/ 

https://climateknowledgeportal.worldbank.org/general-resources 

https://en.wikipedia.org/wiki/Andalusia 

https://en.wikipedia.org/wiki/Granada 

https://granadaenergia.es/publications/adaptacion-al-cambio-climatico/ 

https://ris3.s4andalucia.es/recursos/ 

https://s4andalucia.es/recursos/ 

https://transparencia.gob.es/servicios-buscador/contenido/planespro-
gramas.htm?id=PLANESPROGRAMAS_341&lang=es  

https://www.aemet.es/es/serviciosclimaticos/cambio_climat/result_grafi-
cos?w=0&opc1=18&opc2=Tx&opc3=Anual&opc4=0&opc6=0 

https://www.aemet.es/es/serviciosclimaticos/cambio_climat/result_grafi-
cos?w=0&opc1=18&opc2=P&opc3=Anual&opc4=0&opc6=0 

https://www.britannica.com/place/Andalusia-region-Spain  

https://www.bloomberg.com/news/features/2023-07-22/spanish-climate-election-what-s-at-stake-as-coun-
try-suffers-heat-drought#xj4y7vzkg 

https://www.britannica.com/place/Andalusia-region-Spain  

https://www.britannica.com/place/Granada-province-Spain 

https://www.britannica.com/place/Spain 

https://www.carbonbrief.org/cmip6-the-next-generation-of-climate-models-explained/  

https://www.ciencia.gob.es/en/Estrategias-y-Planes/Estrategias/Estrategia-Espanola-de-Ciencia-Tecnologia-e-
Innovacion-2021-2027.html  

74 

 
 
 
https://www.ciencia.gob.es/en/Estrategias-y-Planes/Estrategias/Estrategia-Espanola-de-Ciencia-Tecnologia-e-
Innovacion-2021-2027.html  

https://www.ciencia.gob.es/en/Estrategias-y-Planes/Plan-de-Recuperacion-Transformacion-y-Resiliencia-
PRTR.html  

https://www.dipgra.es/contenidos/plan-adaptacion-al-cambio-climatico/ 

https://www.empleaverde.es/en 

https://www.empleaverde.es/programa-empleaverde  

https://www.juntadeandalucia.es/medioambiente/portal/areas-tematicas/cambio-climatico-y-clima/escenarios-
locales-de-cambio-climatico  

https://www.juntadeandalucia.es/medioambiente/portal/areas-tematicas/cambio-climatico-y-clima/escenarios-
locales-de-cambio-climatico 

https://www.juntadeandalucia.es/medioambiente/portal/areas-tematicas/cambio-climatico-y-clima/escenarios-
locales-de-cambio-climatico/que-son-los-escenarios-locales-de-cambio-climatico 

https://www.juntadeandalucia.es/medioambiente/portal/web/cambio-climatico/home 

https://www.miteco.gob.es/es/cambio-climatico/temas/impactos-vulnerabilidad-y-adaptacion/plan-nacional-
adaptacion-cambio-climatico/default.aspx 

https://www.miteco.gob.es/es/cambio-climatico/temas/investigacion-y-observacion-sistematica/investi-
gacion/investigacion-en-el-ambito-nacional.html 

https://www.miteco.gob.es/es/cambio-climatico/temas/organismos-e-instituciones-implicados-en-la-lucha-con-
tra-el-cambio-climatico-a-nivel-nacional/oficina-espanola-en-cambio-climatico.html  

https://www.miteco.gob.es/es/ministerio/servicios/participacion-publica/listado.html 

75 

 
 
 
 
List of abbreviations and definitions 

AAPP 

AEI  

AEMET   

AGE  

AI  

BOJA  

CACTI  

CCAA  

CCPCC  

CDTI  

CEH  

CENEAM  

CIEMAT  

UNFCCC  

CNC  

CMIP6  

COVID-19  

CPCTI  

CPI  

CRUE  

CSIC  

DANA 

DGA  

DGB  

DGC  

DGPI 

ECCE  

EECTI  

EMFF  

ERDF  

Public Administrations 

State Investigation Agency 

State Agency for Meteorology  

General State Administration 

Artificial Intelligence 

Official Journal of the Andalusian Government  

(Boletín Oficial de la Junta de Andalucía) 

Advisory Council for Science, Technology and Innovation 

Autonomous Communities 

Climate Change Policy Coordination Commission 

Center for Technological and Industrial Development 

Hydrographic Studies Center 

National Center for Environmental Education 

Energy, Environmental and Technological Research Center 

United Nations Framework Convention on Climate Change 

National Climate Council 

Coupled Model Intercomparison Projects 

Name given to the disease associated with the SARS-CoV-2 vi-
rus  

Scientific, Technological and Innovation Policy Council 

Public Purchase of Innovation 

Conference of Rectors of Spanish Universities 

Higher Council for Scientific Research 

Depresión Aislada en Niveles Altos 

General Directorate of Water 

General Directorate for Biodiversity 

General Directorate of Coasts 

 General Directorate of Research Planning 

Assessment of climate change in Spain 

Spanish Science, Technology and Innovation Strategy 

European Maritime and Fisheries Fund 

European Regional Development Fund 

ESEOO  

Establishment of a Spanish Operational Oceanography System  

76 

 
 
 
 
 
FEMP  

ESF+  

FAMP 

FECYT  

GCOS  

GDP  

GEO  

GHG  

GICC  

GOOS  

GTIA  

Spanish Federation of Municipalities and Provinces 

European Social Fund 

Andalusian Federation of Municipalities and Provinces 

Spanish Foundation for Science and Technology 

Global Climate Observing System 

Gross Domestic Product 

Earth Observation Group 

Greenhouse gases 

Interministerial Group on Climate Change 

Global Ocean Observing System 

Impacts and Adaptation Working Group 

HE R&D&I  

Framework Program. Horizon Europe. 

INE  

INM  

IOC  

IPCC  

IPSFL  

ISCIII  

LCTI  

National Statistics Institute 

National Institute of Meteorology 

Intergovernmental Oceanographic Commission 

Intergovernmental Group of Experts on Climate Change 

Private non-profit institutions 

Carlos III Health Institute 

Law 14/2011, of June 1, on Science, Technology and Innovation  

MAEUEC  

Ministry of Foreign Affairs, European Union and Cooperation 

MAPA  

MAP  

MCIN  

MFF  

MIMAM  

MINCOTUR  

MINCUL  

MINDEF  

MINECO  

MINHA  

MINSAN  

MITERD  

MITMA  

MUNI  

Ministry of Agriculture, Fisheries and Food 

Ministry of Agriculture, Fisheries and Food 

Ministry of Science and Innovation 

Multiannual Financial Framework 

Ministry of Environment 

Ministry of Industry, Commerce and Tourism 

Ministry of Culture 

Ministry of Defense 

Ministry of Economy and Business 

Ministry of Finance 

Ministry of Health 

Ministry for the Ecological Transition and the Demographic 
Challenge  

Ministry of Transport, Mobility and Urban Agenda 

Ministry of Universities 

77 

 
 
NMM  

OACC 

OAPN  

OECC  

OECD  

SDG  

PEICTI  

Mean Sea Level 

Andalucian office of climate change (Junta de Andalucia) 

Autonomous Organization National Parks 

Spanish Office of Climate Change 

Organization for Economic Cooperation and Development 

Sustainable Development Goals 

State Plans for Scientific, Technical and Innovation Research  

PIMA plans 

Environmental promotion plans to support municipalities  

PG  

PNACC 

PAAC 

PGE  

PMCC 

PPACCGr  

R+D+I  

RCM  

RIS3  

S3  

S4  

SECTI  

SMEs  

SRES  

UN  

UNEP  

WMO  

Expenditure Budget 

National Plan for Adaptation to Climate Change 

Andalusian Climate Action Plan 

General State Budgets 

Municipal plans against climate change 

Plan ADAPTA GRANADA. Province Plan for Adaptation to Climate 
Change Granada  

Research, development and innovation 

Regional Climate Models 

Smart Specialization Strategy 

Smart Specialization Strategy 

Smart Specialization Strategy for Sustainability 

Spanish System of Science, Technology and Innovation 

small and medium enterprises 

Special report on IPCC emissions scenarios 

United Nations 

United Nations Environment Program 

World Meteorological Organization 

78 

 
 
 
List of boxes 

Box 1. PIMA Adapta Programme ........................................................................................................................................................................... 30 
Box 2. Andalucia extra-regional cooperation ................................................................................................................................................. 32 
Box 3. The Andalusian Climate Change Observatory Network Programme............................................................................... 35 
Box 4. Stakeholders involvement in the preparation of PAAC ............................................................................................................ 44 
Box 5 Climate Change Policy Coordination Commission ........................................................................................................................ 47 
Box 6. Multi level coordination governance .................................................................................................................................................... 48 
Box 7. CartujaQanat – Recovering the street life in a climate changing world ....................................................................... 50 
Box 8 Andalucia Web Portal for Climate Change ....................................................................................................................................... 56 
Box 9. AdapteCCa national platform................................................................................................................................................................... 58 
Box 10. SICMA. Andalusia Platform for climate change scenarios .................................................................................................. 60 
Box 11 Participation in Climate Change KIC .................................................................................................................................................. 62 

79 

 
 
  
 
List of figures 

Figure 1. Andalusia Region ........................................................................................................................................................................................ 11 
Figure 2. Temperature change in Spain, relative to average 1971-2000. ................................................................................. 14 
Figure 3. Prediction of (a) the increase of the average annual maximum temperature; (b) change of the 
heatwaves length using various greenhouse gas  emission. .............................................................................................................. 17 
Figure 4. Coordinated actions for in PNACC ................................................................................................................................................... 37 

80 

 
 
  
 
 
List of tables 

Table 1. Status of the relevant strategic documents and actions ................................................................................................... 23 
Table 2. Transformative innovation for better climate change adaptation – Case studies ............................................ 85 

81 

 
 
 
 
 
 
Annexes 

Annex 1. Interviews 

Interviews were conducted between September and November 2023, gathering consolidated opinions from 
staff members of the offices listed below. According to their expressed preferences, their names should re-
main confidential and their contribution should appear as indicated below: 

▪  Andalusian Climate Change Office, Junta de Andalucia (led by Ms. Inmaculada Tola)  
▪  DG for Environmental Sustainability and Climate Change, Junta de Andalucia (coordinated by Ms. Ma-

ría López Sanchís). 

Annex 2. List of case studies  

Case studies have been carried out to analyse to what extent and how enabling factors towards ‘Transforma-
tive Climate Change Adaptation’ strategies, as identified in the conceptual report (European Commission, 
2024), are at play in reality, and what can be done to overcome barriers in various territorial contexts.  The 
methodological framework described in the conceptual report essentially acts as a practical guide for under-
taking cases studies on CCA strategies in different territories, in a uniform way. These case studies are listed 
below. 

82 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Table 2. Transformative innovation for better climate change adaptation – Case 
studies 

Coun-
try 

Bel-
gium 

Territory 

URL 

Leuven 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137313  

DOI 

JRC num-
ber 

10.2760/58125 

JRC137313 

Finland 

Espoo 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137316 

10.2760/177322 

JRC137316 

Finland 

Turku - Southwest 
Finland 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137315 

10.2760/211155 

JRC137315 

France 

Provence-Alpes-Côte 
d'Azur 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137314 

10.2760/46893 

JRC137314 

Greece 

Attica and North Ae-
gean regions 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137322 

10.2760/493562 

JRC137322 

Iceland 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137291  

10.2760/305796 

JRC137291 

Italia 

Emilia-Romagna 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137319 

10.2760/790200 

JRC137319 

Nether-
lands 

Northern Netherlands 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137312  

10.2760/10862 

JRC137312 

Poland  Mazovia - Stare 
Babice 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137323  

10.2760/58125 

JRC137323 

Portu-
gal 

Roma-
nia 

Slove-
nia 

Norte 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137321  

10.2760/399394 

JRC137321 

Nord Vest - Cluj 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137317  

10.2760/923916 

JRC137317 

Gorenjska 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137320 

10.2760/502482 

JRC137320 

Spain 

Andalucia - Granada 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137324  

10.2760/104672 

JRC137324. 

Swe-
den 

Blekinge and Värm-
land 

https://publications.jrc.ec.europa.eu/repository/han-
dle/JRC137318 

10.2760/249067 

JRC137318 

83 

 
 
 
 
 
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