Opinion of the European Economic and Social Committee – Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions - European Water Resilience Strategy (COM(2025) 280 final)
Date: 2025-09-18
Institutions: European Economic and Social Committee
Subjects: EU strategy, consumer protection, security of supply, water, water management, water pollution, water protection, water resources, water supply








C_202600035EN.000101.fmx.xml












Official Journal of the European Union


EN
C series













C/2026/35


16.1.2026






Opinion of the European Economic and Social Committee
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions - European Water Resilience Strategy


(COM(2025) 280 final)


(C/2026/35)


Rapporteur: 
András EDELÉNYI

Co-rapporteur: 
Guido NELISSEN






Advisor


Pär LARSHANS (advisor to the rapporteur, Group I)




 


Christoph HAUER (advisor to Group I)




Referral


European Commission, 14.7.2025




Legal basis


Article 304 of the Treaty on the Functioning of the European Union




Section responsible


Consultative Commission on Industrial Change




Adopted in section


12.9.2025




Adopted at plenary session


18.9.2025




Plenary session No


599




Outcome of vote
(for/against/abstentions)


127/1/0




1.   Conclusions and recommendations









1.1.


The EESC stands by the principles and actions laid out in its Blue Deal Declaration and welcomes the EU Water Resilience Strategy (EWRS). Indeed, following the appointment of a Commissioner responsible for water resilience, the EWRS builds on the Declaration and proposes policy responses to most of the different opinions the EESC has published on the topic of water.












1.2.


The EWRS should be at the top of the EU’s political agenda as water is a finite public good, water poverty is unacceptable, and access to viable and sustainable water resources is key to keeping water affordable and available for all citizens, restoring and protecting ecosystems and biodiversity, preserving the competitiveness of water-intensive economic activities and maintaining sustainable rural communities in our societies.












1.3.


The EESC welcomes the adoption of the 
                  ‘source-to-sea’
                approach and supports the Ocean Pact; it also reiterates its call to place nature-based solutions at the heart of the EU water policy.












1.4.


The EESC calls for an integrated approach to persistent substances like PFAS (bans, removal, alternatives, research).












1.5.


In the implementation of the strategy it is important to strengthen public governance by: making water a standalone policy area, mainstreaming it in all policy domains, providing adequate financial resources, e.g. via a Blue Transition Fund, embedding water as a strategic priority in the different pillars of the next MFF, analysing lagging compliance-meeting investments, and developing the right toolbox based on smart interoperable data platforms and effective data management.












1.6.


The European water industry should become a pillar for sustainable sectoral, industrial, agricultural and tourism development. Therefore, an industrial policy for water must focus on:






—


Building a water infrastructure that invests in a multi-loop, modernised, loss-free and interconnected water ecosystem.










—


Supporting innovation in clean water technologies and seizing the opportunities of Europe’s global leadership in water technologies.










—


Developing a circular strategy to boost re-use: targets, incentives, regulation, business models for turning wastewater plants into resource plants.










—


Stepping up investment in the digitalisation of the water system to allow evidence-based decision-making and providing digital solutions for water challenges.
















1.7.


The EESC supports the target of a 10 % increase in water efficiency, but this objective needs to be made operational, e.g. by implementing plans and indicators in river basins and integration in sectoral action plans.












1.8.


Special attention should be paid to guaranteeing access to water for agriculture and disruption-sensitive energy- and water-intensive industries, and to supporting investments in water-efficiency in those sectors. Continuity and security of water supply must be ensured for those sectors, including strategic prioritisations in water allocation during scarcity periods.












1.9.


The EESC proposes that short-cycle leakage reduction targets should be set and that the deadline of 2030 for Member States to introduce (mandatory) national plans should be brought forward.












1.10.


A fast-track permitting procedure should be introduced at EU level for efficiency projects in energy- and water-intensive sectors.












1.11.


The EESC welcomes the proposal for a Water Resilience Forum, and calls for an EU advisory stakeholder platform to be set up jointly with the EESC and other EU institutions, as proposed by the EU Blue Deal, for preparing and following up the work of the forum. It also welcomes the announcement of the Water Smart Industrial Alliance. It expresses its wish to become a co-organiser of the Forum and member of the alliance, in recognition of its expertise on water.












1.12.


To support long-term water security, it is important that pricing policies are based on the cost-recovery principle while maintaining affordability for all citizens.












1.13.


The water sector is particularly affected by skills gaps due to ageing, technological change and lack of attractiveness. The Union of Skills should pay due attention to initiatives in the water sector. The proposed European Water Academy should be organised close to the realities on the ground.












1.14.


Water-related risks have to be addressed by an integrated preparedness management system based on clear responsibilities and a pro-active risk assessment. Climate adaptation plans must be integrated into EU legislation.












1.15.


The EESC recommends the systematic application of a 
                  ‘Water Test’
                in new or revised EU legislation.












1.16.


The EESC stresses that it is imperative to improve communication on the worth and value of water, and advocates incentivising smart cascaded water use and the introduction of water consumption labels.




2.   Background









2.1.


The EESC was the first EU institution to recognise the need for a paradigm shift on how water is addressed in EU policies. The Committee put forward recommendations to address Europe’s water challenges in several own-initiative opinions on water in 2023 and 2024. The EESC advocates a holistic approach with integrated management of the entire water cycle and targeted build-up of resilience and resources, involving prioritised investments at the scale required. The Committee issued a declaration on a new European Blue Deal (15 guiding principles and 21 actions), as a standalone strategy, calling on the EU to treat water as a top priority, and to adopt it in synergy with the EU Green Deal and the UN Sustainable Development Goals.












2.2.


The EESC emphasises that the EU Blue Deal initiative has received a lot of support from the Parliament, the European Commission, European agencies, most Member States, the European Committee of the Regions and a wide range of stakeholders.












2.3.


The EESC welcomes the European Commission’s Communication on the European Water Resilience Strategy (EWRS) and wishes to contribute to its successful implementation with this opinion, too. The EESC urges the European Commission to ensure that the water dimension is mainstreamed in all European policies.












2.3.1.


The issue of water has been addressed in policies through the EU’s ‘water acquis’. It is, however, regrettable that the Green Deal, the Competitiveness Compass and the Clean Industrial Strategy either fail to mention or do not sufficiently mention and specify water-related risks and the joint efforts that are needed. The EESC believes that, due to water’s omnipresent nature, it must be a key cross-cutting aspect in all EU policies. In this respect, it is important to stress that any water strategy must not only address current challenges, but should also anticipate future challenges related to climate change.












2.3.2.


All new and revised EU legislative proposals with potential environmental, agricultural, energy, industry or urban development impacts should be subject to a standardised EU water stress test, combining qualitative and quantitative elements. The test could assess, in particular, proven and projected effects on water demand by sector and region, as well as the impact on pollutant discharge and on the reliance on water-related infrastructure. The test should be part of the impact assessment of the legislative proposals in order to determine whether or not the water dimension is adequately reflected and to ensure that EU legislation is in line with the objectives of the EWRS.












2.3.3.


The EESC recognizes the important geopolitical aspect of water, and calls for the EU to assume a leadership position on global water governance. In view of the 2026 UN Water Conference, the EU should increase its efforts on Blue Diplomacy, and lead the efforts on a renewed water policy, which understands the cross-cutting value of water. Integrating blue diplomacy into the EU’s foreign policy can help address water challenges in important regions such as the Mediterranean and MENA by aligning water management and governance goals with existing policies like the European Neighbourhood Policy, and, most importantly, by firmly embedding them into the new policy instruments such as the future Pact for the Mediterranean (1).












2.3.4.


International cooperation should be developed further and strengthened by sharing best practices and technologies for efficient water use, and building stronger country partnerships should be accelerated.




3.   General comments on the main objectives

3.1.   Restoring and protecting the water cycle









3.1.1.


The EESC welcomes the adoption of a ‘source-to-sea’ approach, and supports the Commission’s Ocean Pact, and the revision of the Marine Framework Strategy Directive. However, the EWRS does not address sustainable sediment management for rivers and coasts, which is necessary for ecological integrity, reducing coastal erosion and tackling a series of challenges in coastal and port areas.












3.1.2.


Improving the coherence between water and maritime policies must drive the revision of the Maritime Framework Strategy Directive, as well as a potential revision of the Bathing Water Directive. The EESC notes that 75 % of assessed marine areas are polluted, and that land-based sources account for 80 % of marine litter. These risks affect 150 million people living by the coast, two million jobs and ca. EUR 13 billion in the Mediterranean blue economy.












3.1.3.


‘Water efficiency first’, i.e. ‘reduce-reuse-recycle’ on the demand side and ‘prevent’ on the pollution side must be the leading principle. For the first ‘3Rs’, proven and standardised water grades need to be established, with specified application areas. For the latter, a paradigm shift has to take place from remedial efforts to preventive ones.












3.1.4.


The Committee reiterates its call to place nature-based solutions, restoration and protection of ecosystems and biodiversity at the heart of the EUs water policy (principle 2 of the EU Blue Deal Declaration). The EESC calls for a better understanding of self-purification processes in freshwater and marine ecosystems.












3.1.5.


The EESC welcomes the PFAS and persistent substances clean-up initiative and the plan to stimulate non-PFAS innovative solutions, as an addition to the current ECHA discussion, and notes the importance of removing PFAS from hotspots first, before they become dispersed. It is noted that clean-up must be maintained after banning PFAS production. The EESC calls for research efforts to be stepped up to develop alternatives for the key applications of PFAS.




3.2.   A water-smart economy and society









3.2.1.


The EESC calls for special attention to both traditional water-intensive sectors (agriculture, energy, mining, metals, food processing, textiles, tourism) as well as emerging new ones (battery production, data and AI, semiconductors, hydrogen). Where possible, a combined water and energy savings management system may bring mutually reinforcing benefits. Therefore, as different sectors have different water needs and water-efficient technologies have not (yet) emerged, the economic and industrial feasibility of reducing water abstraction must be taken into account.












3.2.2.



Incentives and tools must support the development of technological solutions and promote investments in water-efficiency in agriculture and water- and energy-intensive industrial sectors. In these sectors, any restrictions on supply must be based on transparent criteria that balance environmental objectives with operational, societal stability.












3.2.3.


The EESC welcomes the aspirational target for water efficiency and urges the Commission to update its industrial transition pathways and action plans, while making it operational in the different river basins in order to restore water balances.




3.3.   Securing clean and affordable water for all, empowering customers









3.3.1.


Currently, 30 % of the EU population lives in areas affected by water stress (9,8 million people do not have safe drinking water). Therefore, as water is a finite public good and water poverty is unacceptable, the design and implementation of the EWRS must safeguard the status of Europe’s water services as a guarantee to ensure availability, accessibility and affordability (3As) for all stakeholders, as well as high quality standards. No one should be denied access to water supplied from distribution networks.












3.3.2.


On average, 30 % of water is lost in the EU before reaching users, due to leaky pipe networks. Smart metering, detection and network repairs will ensure that consumers are aware of the cost of water services. As the current level of leakage is unacceptable, the EESC calls on the EU to bring forward the deadline of 2030 for Member States to introduce national plans and to make their implementation mandatory.












3.3.3.


As a common good, drinking water should be made freely available to all EU citizens in public spaces, as embedded in the new Drinking Water Directive and the Urban Wastewater Treatment Directive.












3.3.4.



Households (13 % of all water consumption) should be supported in improving domestic water efficiency through the following measures: promoting the use of rainwater, incentivising water-saving features, rolling out water consumption labels, establishing decentralised water treatment stations for houses not connected to sewerage systems, and introducing water-saving technologies.












3.3.5.



Communication efforts on the value of water and water services are essential in changing long-term behaviour. Consumers must be better informed about their water footprint (both direct and indirect). This should be supported by the introduction of (voluntary or compulsory) water consumption labels.












3.3.6.



Organised civil society (with special attention for youth) plays a vital role in co-creating and implementing strategies for increasing the awareness of citizens and companies about the value of water and its efficient use.












3.3.7.


The EESC welcomes the Commission’s proposal to convene a Water Resilience Forum every two years, and wishes to be involved as co-organiser, given its leading role in driving an ambitious EU water policy. The EESC reiterates the need to set up an EU advisory stakeholder platform (action 2 of the EESC’s EU Blue Deal Declaration), including the EESC and other EU institutions, based on a model similar to the European Circular Economy Stakeholder Platform. This would monitor the implementation of the EWRS and share best practices, supporting the preparation of the Water Resilience Forum and ensuring continuous follow-up of the work and conclusions of the Forum.












3.3.8.



Urban and spatial planning must have an important role in creating suitable conditions for water and energy savings, by ensuring a smart geographical allocation of water- and energy-intensive sectors.




4.   Specific comments on the five enablers

4.1.   Governance and implementation









4.1.1.


According to evaluation reports, a range of water-related EU policies are not being sufficiently implemented and the targets they set are not being met. Progress on the goals can be monitored via the European Semester governance tool, and in its Country Specific Recommendations.












4.1.2.



Exchanges of best practices are of key importance in several areas: the harnessing of experiences in similar water basins can accelerate the permitting procedures while improving their security. Here, a fast-track procedure should be provided for efficiency projects in energy- and water-intensive industries.












4.1.3.



Cross-border cooperation initiatives are also promising, with preparedness steps and measures being taken by neighbouring regions, and the coordination of emergency and preventive measures at both bilateral and multilateral levels, as well as in the EU strategic macro-regions.












4.1.4.


Assess the cumulative impacts of water policies on water- and energy-intensive industries and design compensatory mechanisms where necessary.




4.2.   Finance and investment for a stable supply









4.2.1.


The EESC welcomes the financial means announced by the Commission in the EWRS as Member States follow diverse practices. Well-designed public funding and EIB funding (EUR 15 billion for three years) should indeed be set up in order to leverage further necessary investments by encouraging and involving private financial sources. For optimal efficiency, the results of recent funding tools combining public and private funding (e.g. EFSI, InvestEU) should be assessed. A supporting technical advisory mechanism should be provided to improve funding efficiency.












4.2.2.



Pricing policies – although a national competence – can play a key role in prompting households and economic sectors to optimise consumption and support long-term water security. Pricing should be based on the cost recovery principle, which provides that all water users effectively and proportionately participate in bearing the costs of water management and ensure funding for the requisite maintenance and (re)investments. Tiered pricing, taxation and supporting systems will discourage excessive use, while maintaining affordability for all essential household uses. To raise awareness of the value of water services, transparency in water bills needs to be ensured. Inefficient subsidising schemes should be phased out.












4.2.3.


The stepwise sequence of investing limited complex resources (skilled HR, time, funds, footprint, organisation, energy, CRM, LULUC, etc.) into the long list of needed and targeted areas has to follow a threefold prioritisation: a) urgency/importance; b) expected maximum yield of complex benefits versus the resources spent; and c) availability of the resources needed. Accordingly, tailored development programmes should be designed at local, regional, Member State, water-basin levels.












4.2.4.


To reduce water demand and improve efficiency, it is important to support investments in innovative solutions, modernising processes, water-efficient agriculture, water re-use establishing closed-loop systems, and reducing leakage. Water- and energy-intensive sectors should be eligible for targeted funding and de-risking instruments to retrofit or redesign systems given the high up-front capital expenditures and long payback periods.












4.2.5.


The EESC calls for a comprehensive strategy to increase the re-use of water (targets, incentives, regulation) as currently only 2,4 % of wastewater is re-used. Circularity should become the norm, with water, energy and materials recovered and reused across sectors, including water and sediment reuse and recycling. This transition should be powered by digital technologies applied across infrastructure and systems.












4.2.6.


The concept of the ‘circular use of water’ needs to be incentivised. Funding should be provided to water- and energy-intensive sectors for the creation of local loops. Also, the transformation of wastewater plants into ‘water mines’
                   that harness the value of water (making use of the organic and inorganic substances) needs support. The EESC strongly advocates the ‘resource plants’ concept set out in opinion CCMI/228, and the optimal recovery of nutrients such as nitrogen and phosphorus, also metals from wastewater, sewage sludge and other sources. Funding should also target the transformation of industrial wastewater into reusable processed water, with clarity on quality and grade standards, liability and re-use limits.












4.2.7.


To enhance speed, orientation and efficiency in investing available finances, the EESC recommends combining all of the types of water-related funding into one summarising file that can be analytically managed by every aspect of project content, eligibility, intensity, conditions, etc. The EESC has called for a Blue Transition Fund as a single EU access point for water investments and for combining public investment with innovative financing.












4.2.8.


The EESC reiterates its call to adopt water as a strategic priority in the next EU Multiannual Financial Framework (MFF).




4.3.   Digitalisation and artificial intelligence









4.3.1.


Reliable, factual, hard data are a ‘conditio sine qua non’ and form the foundation of digitalisation and responsible decision-making. It should be pointed out that, since 2014, we do not have European statistics on water supply and water use by type, while other data are fragmented.. It is essential to build an EU-level smart data capturing and management starting at plant/farm level while supporting farmers and industries to monitor water data and improve water efficiency. An action plan on digital water is urgent and should:






—


establish new mandatory environmental and economic account modules for water accounts;










—


roll out real-time digital data collection and build interoperable European water data spaces;










—


introduce 3D-technologies to significantly improve the discovery of leaks;










—


involve industrial water users in EU water monitoring frameworks;










—


create an integrated water resource management framework (supply, demand, distribution, use, diversion, pollution);










—



invest in innovative sensors, big data and machine learning, digital twins of water flows, the use of satellite technologies, virtual reality;










—


unleash the potential of AI in water management and legislation;










—


deploy early warning systems to inform about water-related extreme events, pollution or attacks;










—


facilitate the upgrading and interconnection of all water infrastructures (including the interaction between blue, green and grey water).








4.4.   Research, the water industry and skills









4.4.1.


Europe should seize the opportunities of its global leadership in water technologies (the EU owns 40 % of all water-related patents) to trigger a paradigm shift in the way we use water by investing in resilient water infrastructure, circular water loops, cascading use, digital management, and inclusive water governance.












4.4.2.


The EESC welcomes the announcement of the Water Smart Industrial Alliance to stimulate competitiveness, and requests to be a member of this new Alliance.












4.4.3.


By increasing the funding of R&D (via the EIT/Water KIC, Horizon Europe, the envisaged industrial alliance on water) in clean and efficient water technologies, the focus should be on breakthrough technologies such as dry-cooling, nanotechnology in filtration, reverse osmosis, advanced membranes, bio-processes for desalination, new solutions for removing nutrients from sludge, AI solutions, and direct seawater H-electrolysis.












4.4.4.


Europe’s water industry should become a pillar for industrial development and competitiveness. Europe’s net zero industrial policy should pay due attention to the emerging sector of water technologies. Roadmaps and tailored action plans need to be established. To unlock investments in water-efficient technologies, it is important to:






—


conduct an EU-wide investment gap analysis for water resilience (on top of the investment gap that already exists for the implementation of the current water legislation);










—


provide financial incentives (including contracts for difference) for the water-intensive industries to invest in efficiency;










—


develop de-risking schemes and apply them e.g. in the new Water Resilience Investment Accelerator;










—


explore water conditionalities in public procurement; and develop business models for the re-use of wastewater (like WaaS – Water as a Service).
















4.4.5.


The water sector employs 1.6 million people across the EU. While many industrial sectors are facing skills shortages, the water industry is particularly affected. Reasons for the skills gap include an ageing workforce, brain drain, digitalisation and technological change, a lack of visibility of the sector in our society.












4.4.6.


It is important that the sector find efficient ways to transfer knowledge to the next generation, which has reduced population size due to the demographic trend. Expertise has to be built up in digital and circular technologies. This means:






—


improving digital skills at all qualification levels and promoting STEM (incl. biochemistry);










—


improving collaboration and partnerships. To be effective, the proposed European Water Academy should be organised at national level;










—


promoting apprenticeships for operators, technicians and engineers;










—


supporting the portability of skills across the EU;










—


the Union of Skills should pay due attention to initiatives in the water sector;










—



attracting the next generation of water experts as early as at school level.








4.5.   Security and preparedness to boost resilience









4.5.1.


Water is a complex ecosystem comprising many facets. It is therefore key that water-related climate, security, health, and pollution risks are addressed by an integrated management system that builds on a coordinated approach and on strong governance structures whereby responsibilities are clearly defined.












4.5.2.


To improve preparedness, water-related climate risks with a specific focus on the warming of the seas need to be anticipated by proactive risk assessment plans and by adapting societal and economic activities to the realities of climate change. Flood forecasting information systems need to be improved.












4.5.3.


Preparedness requires region-specific strategies that reflect local realities and respond to the risk profiles of all territories. Regional and local emergency plans should include capacity-building, public awareness campaigns, early warning systems and evacuation protocols. Local authorities should also establish drought/heat management plans.












4.5.4.


Water infrastructure should be classified as essential for security and resilience. For water- and energy-intensive clusters, contingency planning should include guarantees for minimum operational water levels and rapid restoration protocols in the event of disruptions. These clusters should be integrated into regional water resilience planning and emergency supply frameworks. Critical infrastructures such as (deep) groundwater, drinking water and wastewater infrastructure must be enabled to prevent, resist, absorb and recover from incidents and disruptions. Sensitive information needs to be protected, and the resilience of vulnerable infrastructure needs to be strengthened against malicious acts.












4.5.5.


Climate adaptation and water resilience plans must be integrated into EU legislation. Specific attention should be paid to the challenges that climate change poses to islands and outermost regions, mountainous regions, and the Mediterranean (coastal erosion, desertification, prolonged droughts, drinking water).






Brussels, 18 September 2025.


The President


of the European Economic and Social Committee

Oliver RÖPKE
               





(1)  See the recommendations of the EESC opinion on ‘
            Blue Diplomacy and water cooperation – solutions to relieve the pressure of climate induced migration
            ’ (OJ C, C/2026/018, 18.1.2026, ELI: http://data.europa.eu/eli/C/2026/18/oj).


ELI: http://data.europa.eu/eli/C/2026/35/oj
ISSN 1977-091X (electronic edition)