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EUROPEAN COMMISSION

Brussels, 27.10.2026

COM(2026) 730 final

2026/0336 (COD)

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

establishing a framework to enhance climate resilience and amending Regulation (EU)

2018/1999 (European Climate Resilience Law)

{SEC(2026) 730 final} - {SWD(2026) 730 final} - {SWD(2026) 731 final} -

{SWD(2026) 732 final}

(Text with EEA relevance)

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EXPLANATORY MEMORANDUM

1. CONTEXT OF THE PROPOSAL

• Reasons for and objectives of the proposal

Climate change is and will remain the defining challenge of the coming decades and beyond.

Current global mitigation commitments are projected to result in around 2°C of global

warming by 2050 and around 3°C by the end of the century.1 This indicates that Europe is

expected to warm by an average of 4 to 5°C2, despite the 1.5°C temperature threshold set by

the Paris Agreement adopted under the United Nations Framework Convention on Climate

Change (the ‘Paris Agreement’)3.

Climate change is causing increasing economic, fiscal, social and environmental impacts

across the Union. Adverse climate impacts are expected to intensify in frequency, magnitude

and duration under the projected warming levels, bringing about adverse consequences for

social and territorial cohesion, health, security, prosperity and intergenerational fairness.

Without effective adaptation, climate impacts are expected to trigger significant sectoral,

regional and systemic disruptions. Strengthening climate resilience and adapting to

unavoidable climate impacts has therefore become urgent and essential.

The first European climate risk assessment4 and the 2024 communication on managing

climate risks5 identified the most urgent climate risks across Europe. They concluded that

progress in integrating climate resilience and adaptation into Union and Member States

policies is uneven and that it is not keeping pace with accelerating climate change. The eighth

environment action programme (8EAP) mid-term review6 also concluded that the EU and its

Member States must strengthen preparedness and improve the management of climate risks.

The Commission, in its latest climate action progress report (CAPR), stressed that climate

resilience urgently needs to become an integral part of all EU policies because climate change

is undermining the EU’s prosperity, competitiveness and security.

The European Scientific Advisory Board on Climate Change has stated that existing climate

resilience and preparedness across EU and Member States policies and actions remain

insufficient, fragmented, largely incremental, often coming too late, occasionally incoherent,

and not yet commensurate with the scale, pace and complexity of increasing climate risks.

Regulation (EU) 2021/1119 of the European Parliament and of the Council (European

Climate Law) establishes a legal foundation for horizontal climate adaptation, setting out a

general obligation to ensure continuous progress in enhancing adaptive capacity,

strengthening resilience and reducing vulnerability to climate change. It requires the

Commission to adopt and regularly review a Union adaptation strategy, and the Member

1 IPCC, 2023: Sections. In: Climate Change 2023: Synthesis Report. Contribution of Working Groups I,

II and III to the Sixth Assessment Report of the Intergovernmental Panel on Climate Change [Core

Writing Team, H. Lee and J. Romero (eds.)]. IPCC, Geneva, Switzerland, pp. 35-115. 2 European Scientific Advisory Board on Climate Change (2026), ‘Strengthening resilience to climate

change in Europe recommendations for an effective EU adaptation policy framework’. 3 OJ L 282, 19.10.2016, p. 4. 4 European Environment Agency, European climate risk assessment – Executive summary, Publications

Office of the European Union, 2024. 5 Communication from the Commission to the European Parliament, the Council, the European

Economic and Social Committee and the Committee of the Regions: Managing climate risks -

protecting people and prosperity, (COM(2024) 91 final). 6 Communication from the Commission to the European Parliament, the Council, the European

Economic and Social Committee and the Committee of the Regions: on the 8th Environment Action

Programme Mid-Term Review, (COM (2024) 123 final).

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States to adopt, implement and update national adaptation strategies and plans, based on

robust climate change and vulnerability analyses, progress assessments and indicators, and

guided by the best available and most recent scientific evidence. In addition, it sets the

requirements for assessing progress on adaptation.

The Commission’s 2023 assessment of Member States’ adaptation progress under the

European Climate Law found that, although national adaptation frameworks were largely in

place, major weaknesses remained in their operationalisation and implementation. The

Commission’s 2023 guidelines on Member States’ adaptation strategies and plans have

supported Member States, to a limited extent, in developing and reviewing their policy

frameworks. However, its non-binding nature has limited its ability to facilitate addressing

persistent gaps in these policy frameworks such as on national ownership, political

commitment, coordination, administrative and technical capacity and financial resources.

In the absence of a common framework for managing climate risks, it has become apparent

that preparedness for climate impacts and risks remains incoherent, fragmented and

insufficient across the EU economy and society. Member States currently rely on different

assumptions on climatic developments now and in the future, and use variable warming

trajectories and scenarios, as well as assessment cycles. The approaches are also based on

diverse sectoral coverage. As a result, climate risks are identified and managed inconsistently,

leading to inconsistent integration of climate resilience considerations across sectors, uneven

levels of preparedness, and difficulties in effectively addressing and communicating shared,

and transboundary climate risks. These differences reduce comparability, hinder coordination,

and limit efficient integration of climate resilience into policies and investment decisions.

This undermines productivity, growth, fiscal sustainability and financial stability.

To address the shortcomings, this proposal aims to establish a common framework for climate

resilience with an overall objective for the Union and Member States to continuously enhance

climate resilience for short-, medium- and long-term climate risks.

To achieve this objective, the proposal introduces the following core elements for making

anticipatory climate risk management the norm across Europe, at all levels of government:

(a) a reference global warming trajectory for risk assessments, planning and decision-

making, contextualised for different parts of Europe through the new European

Climate Viewer;

(b) identification of policy risk owners;

(c) improved and more regular climate risk assessments;

(d) a single strategic plan on climate resilience by the Commission and Member States;

(e) simpler and more effective monitoring and progress tracking at Member State and

Union-level.

The proposal provides a common set of rules for identifying, assessing and managing climate

risks across the Union. The proposed Union-level indicators are a starting point. Further

indicators may be added over time, drawing on scientific evidence, international

developments and experiences by Member States. During the transitional period, while the

Commission (Eurostat) develops the proposed Union-level indicator on economic losses

attributable to climate change, data collection for the existing indicator on climate-related

economic losses and fatalities will continue as defined under the 8th environment action

programme. From 2030 onwards, it is envisaged that Eurostat will collect data for the

economic losses attributable to climate change indicator, replacing the existing indicator on

climate-related economic losses and fatalities.

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By promoting a more coherent and coordinated approach to climate resilience, the proposal

aims at improving preparedness across the Union, facilitating the management of

transboundary climate risks and strengthening the resilience of Member States' economies and

societies. Although the private sector is not directly subject to the proposal, it also seeks to

improve private sector awareness of climate risks and capacity to apply climate resilience

solutions. Overall, the proposed Regulation would contribute to strengthening the Union's

long-term competitiveness, prosperity, security and the safety and wellbeing of its people.

The initiative responds to the requests and reports by the European Parliament7, the Council

of the EU8, the Committee of the Regions9, and the European Court of Auditors10 for a more

coherent and systematic approach to climate resilience. It also responds to the conclusions of

the Environment Council of December 2025, welcoming the development of an EU

Framework for Climate Resilience11 and calling for proactive integration of climate resilience

across policies, sectors and governance levels.

• Consistency with existing policy provisions in the policy area

The proposal complements and strengthens the existing Union framework for climate

adaptation, building primarily on the European Climate Law. Climate adaptation is the

process of adjusting to actual or expected climate and its impacts, in order to strengthen

climate resilience, for which the proposal contributes to ensuring the implementation of the

global goal on adaptation set in Article 7 of the Paris Agreement and the obligations on

adaptation to climate change set in Article 5 of the European Climate Law. The

proposal remains fully consistent with the objectives and obligations of existing Union

climate acquis.

The proposal aims to reduce administrative burden through more uniform application of rules,

streamlining and improving policy coherence. It would complement the existing framework

by setting a common, science-based reference global warming trajectory to inform climate

risk assessments and climate resilience planning. Member States could use it to develop

nationally relevant climatic scenarios, reflecting their specific circumstances. The proposal

aims at encouraging public authorities to consider climate resilience, facilitating continuous

progress in enhancing adaptive capacity, strengthening resilience and reducing vulnerability

to climate change in accordance with Article 7 of the Paris Agreement and in compliance with

the obligations under the European Climate Law.

The proposal’s core elements, including the reference global warming trajectory and the

identification of policy risk ownership, would put the European Climate Law's existing

climate adaptation requirements into practice. The proposal also introduces more actionable

requirements through Union and national strategic plans on climate resilience. This should

result in coherent strategic plans on climate resilience at Union and Member States level

covering also the requirements for adopting adaptation strategies and plans under the

European Climate Law. Member States can meet their planning obligations under the

proposed law and the European Climate Law through the preparation of one single

7 European Parliament resolution of 19 September 2024 on the devastating floods in central and eastern

Europe, the loss of lives and the EU’s preparedness to act on such disasters exacerbated by climate

change, (2024/2817(RSP)). 8 Council conclusions of 17 June 2024 on the 8th Environmental Action Programme Mid-term Review. 9 Opinion of the European Committee of the Regions of 11 December 2025 on Climate adaptation in

cities and regions: building the European Climate Adaptation Plan. 10 European Court of Auditors, Special report 15 on Climate adaptation in the EU: Action not keeping up

with ambition. 11 Council conclusions of 16 December 2025 on Europe’s Environment 2030 - Building a more climate

resilient and circular.

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consolidated plan. Strategic plans would also facilitate assessments on progress at Union and

national level under the European Climate Law, thereby promoting more consistent,

comparable, aggregable and mutually supportive tracking of progress. The proposal will not

introduce new, additional progress assessment requirements.

The Commission does not propose to introduce new reporting requirements. Instead, it builds

on the existing obligations under Article 19 of Regulation (EU) 2018/1999 of the European

Parliament and of the Council12 (Governance Regulation) requiring Member States to report

on national climate adaptation action. Amendments to the Governance Regulation are

however needed to ensure reporting requirements are aligned with this proposal.

To ensure a streamlined and improved approach, the provisions of the proposal would enable

consolidating four existing and currently fragmented planning elements into a single planning

instrument.

The proposal simplifies existing adaptation-related obligations under the Governance

Regulation. Article 4 of the Governance Regulation currently requires that Member States

incorporate adaptation goals into their National Energy and Climate Plans (NECPs), and

Annex IV to address adaptation policies and measures in long-term strategies (LTS) and fulfil

related progress reporting obligation as set out in its Article 17.

To avoid duplication and to reduce administrative burden, the proposal sets out in its Article

14 provisions deleting any overlapping requirements from the Governance Regulation. The

information on climate resilience would continue to be reported under Article 19 of the

Governance Regulation. Required amendments of climate resilience related reporting

obligations would be secured through the planned review of the Governance Regulation.

To strengthen the integration of climate resilience into economic, social and environment

policy coordination, and investment priorities, the Commission would assess Member States’

progress on climate resilience in the context of the European Semester, drawing on

information reported by Member States pursuant to Article 19 of the Governance Regulation.

• Consistency with other Union policies

The proposal is linked to many sectoral EU policies and initiatives because they are all

exposed to climate risks and impacts. Climate resilience has so far been integrated in a

fragmented and incremental way, raising concerns about overall policy coherence and

reflecting the lack of an overarching and coherent framework to guide action. As a result,

climate-related risks in many sectoral policy areas are, without significant additional action,

projected to increase.

Relevant EU initiatives and instruments include the Directive on requirements for budgetary

frameworks of the Member States13; the EU Taxonomy Regulation14; the surveillance

mechanisms for tracking climate risks used by the European Central Bank, European

Systemic Risk Board, and European Banking Authority; the Critical Entities Resilience

Directive15; the Risk-Preparedness Regulation16; certain tools of the common agricultural

policy; EU Nature Restoration Regulation17; the Marine Strategy Framework Directive18; the

12 OJ L 328 21.12.2018, p. 1. 13 OJ L, 2024/1265. 14 OJ L 198, 22.6.2020, pp. 13–43. 15 OJ L 333, 27.12.2022, pp. 164–198. 16 OJ L 158, 14.6.2019, pp. 1–21. 17 OJ L, 2024/1991, 29.7.2024. 18 OJ L 164, 25.6.2008, pp. 19–40.

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EU Occupational Safety and Health (OSH) Framework Directive19; the Union’s

environmental assessment instruments; the Water Framework Directive20; the Floods

Directive21, the Water Reuse Regulation22, the European Ocean Pact23; the common fisheries

policy24; the LIFE programme and strategies such as the preparedness Union strategy; EU

ports strategy25; TEN-T Regulation26, EU medical countermeasures strategy27; EU forest

strategy28; the integrated wildfire risk management strategy29; the EU soil strategy30; strategy

for European life sciences31; the European water resilience strategy32; the New European

Bauhaus33 and EU urban environmental frameworks (Green City Accord and European Green

Capital and European Green Leaf awards).

The Commission’s proposal for the next EU budget (multiannual financial framework) of July

2025 recognises the need for EU funding to promote preparedness and resilience, including

climate risks. This is reflected in the recitals and objectives of the acts that will govern the

different funds, including the National and Regional Partnership Plans, the European

Competitiveness Fund, Horizon Europe and the Union Civil Protection Mechanism. The

proposed Performance Regulation lists intervention fields for dedicated climate resilience

measures. One of the three co-efficients used for tracking spending towards the overall 35%

climate and environment target will cover climate change adaptation and resilience. In

addition, Article 33(2)(d) of the Financial Regulation34 requires that “programmes and

activities shall, where feasible and appropriate in accordance with the relevant sector-specific

rules, be implemented to achieve their set objectives without doing significant harm to the

environmental objectives” and specifically lists climate change adaptation as one of the

objectives.

The objective of the 2026 European Semester package was to boost competitiveness, secure

strategic autonomy, increase resilience, and strengthen preparedness while maintaining fiscal

sustainability. The EU Semester country reports pinpoint specific climate resilience issues to

be addressed in individual Member States, e.g. climate resilience governance, inadequate

insurance, need for investments, climate-proofing of infrastructure, and use of nature-based

solutions. Furthermore, the European Semester country-specific recommendations inform

priorities of the future national and regional reforms and investments of individual Member

States. In the 2026 European Semester, several Member States received country-specific

recommendations on climate resilience or on reducing the climate protection gap, bringing the

total number of Member States that have received climate-resilience-related country-specific

recommendations in recent years to 16.

Although climate resilience is covered by a substantial regulatory and policy lineup, it is often

addressed only in general and inadequate terms, with little evidence of implementation, partly

19 OJ L 183 29.6.1989, p. 1. 20 OJ L 327, 22.12.2000, pp. 1–73. 21 OJ L 288, 6.11.2007, pp. 27–34. 22 OJ L 177, 5.6.2020, pp. 32–55. 23 COM/2025/281 final. 24 OJ L 354 28.12.2013, p. 22. 25 COM/2026/112 final. 26 OJ L, 2024/1679, 28.6.2024. 27 COM/2025/529 final. 28 COM/2021/572 final. 29 COM/2026/330 final. 30 COM/2021/699 final. 31 COM/2025/525 final. 32 COM/2025/280 final. 33 COM/2021/573 final. 34 OJ L, 2024/2509, 26.9.2024, ELI: http://data.europa.eu/eli/reg/2024/2509/oj.

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due to a lack of data collection. There are differences in scope, objectives, climate projections

used, responsibilities, planning, and monitoring approaches in the sectoral policy areas, which

also lead occasionally to contradictions.

The proposal aims to establish a framework to reduce fragmentation in governance and policy

approaches at national and EU level, improve and align preparedness for climate impacts and

risks across sectors and policy areas, and enable the tracking and assessment of progress. A

climate risk-based governance model that addresses sectoral preparedness gaps and cross-

sectoral coordination will be more effective and increase the overall resilience of the EU

economy and population.

2. LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY

• Legal basis

The legal basis for the proposal is Article 192(1) of the Treaty on the Functioning of the

European Union (TFEU). In accordance with Articles 191 and 192(1) TFEU, the European

Union must contribute to the pursuit of the following objectives: (i) preserving, protecting and

improving the quality of the environment; (ii) promoting measures at international level to

deal with regional or worldwide environmental problems; and in particular (iii) combating

climate change.

• Subsidiarity (for non-exclusive competence)

Climate change and related impacts and risks are inherently transboundary in nature. Many

climate risks, including disruptions to interconnected energy systems and critical

infrastructure, supply chains, ecosystems and financial systems, extend across national

borders and cannot be effectively addressed by national and local action alone. Coordinated

action at Union-level can complement and reinforce national, regional and local measures and

improve the overall effectiveness of climate resilience efforts by enabling the integration of

resilience policies and measures in key sectors, governance levels and EU policies.

Climate impacts and risks can also undermine the effective delivery of EU policies including

the functioning of the EU single market as well as the Union’s ability to uphold its

fundamental rights, pursue its international obligations and promote more ambitious

approaches internationally. Policy intervention at the EU level, together with national,

regional and local action, is necessary to achieve sufficient levels of systemic, EU-wide

climate resilience and preparedness levels effectively and efficiently.

The magnitude and complexity of the challenge, and the fact that climate change affects many

policy areas that are shared between the EU and its Member States, requires an all-of-

government approach that includes intervention at the EU policy level. Complementing

different national policies and rules, EU-level action is needed for promoting a science-based

understanding and more coherent approach to climate resilience at national and subnational

level and across policy areas, thereby effectively reducing transnational, cross-border and

systemic risks.

Coordination of climate action is necessary at EU level and EU action is justified on the

grounds of subsidiarity. In addition, coordinated action at EU level can achieve economies of

scale and reduce administrative and implementation costs by promoting common

methodologies, shared tools and more efficient exchange of information and good practices.

• Proportionality

The proposal does not go beyond what is necessary for achieving the objective of enhancing

climate resilience. The proposal establishes a common framework for strengthening climate

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resilience and addressing climate risks across the Union. It does not prescribe specific sector

or national policies or measures, leaving appropriate democratic processes at EU and Member

State level the flexibility to determine the policies and measures needed to achieve the

framework’s objective, considering their specific circumstances and existing regulatory

frameworks.

• Choice of the instrument

The objective of the proposal can best be pursued through a Regulation. This will ensure

direct applicability of the provisions. A Regulation ensures uniform, direct and simultaneous

application of these requirements across the Union. This ensures swift action on fast-rising

climate impacts and risks and promotes a coherent approach to climate resilience governance,

including climate risk assessment and planning, while avoiding delays and inconsistencies

resulting from Member States needing to turn the EU rules into national law.

3. RESULTS OF EX- POST EVALUATIONS, STAKEHOLDER

CONSULTATIONS AND IMPACT ASSESSMENTS

• Ex- post evaluations/fitness checks of existing legislation

Not applicable.

• Stakeholder consultations

In line with the Better Regulation guidelines, a number of consultation activities were carried

out to: (i) raise stakeholder and public awareness of the initiative; (ii) gather their input on the

proposed aspects of the new framework; and (iii) gather any additional views or suggestions

they may have.

The Call for Evidence consultation was open from the 24 July 2025 to 4 September 2025 on

the Commission’s ‘Have your say’ website resulting in 233 responses passing the suitability

check. The overall response showed broad support for the EU framework, with some

disagreements focusing on the depth of the EU legal obligations versus subsidiarity. The five

most frequent priorities (mentioned in ≥60 % of responses) were related to the following:

• stable, predictable, long-term EU funding and blended-finance tools for adaptation.

• harmonised risk-assessment standards with shared climate scenarios.

• resilience-by-design criteria for all public spending and procurement.

• nature-based solutions (NbS) as default first line of defence.

• systematic integration of health, incl. heat-health, into all plans.

The public consultation was open from 1 December 2025 to 23 February 2026, resulting in

675 responses submitted through the EU survey portal with 670 passing the suitability check.

Additionally, a total of 31 individuals or companies complemented their responses or

contributed separately their views through position papers and additional material35. These

35 Out of the 31 companies/individuals that sent position papers/additional material, 1 of them was a

duplicate, while 3 of them were a PDF version of responses already inputted in the EU Survey platform.

Two additional survey responses were also sent and were considered for the open-ended analysis;

however, they were not included in the quantitative analysis as they were shared separately and were

not part of the consolidated dataset taken from the EU Survey platform. Including these responses

would have required manual data entry which would have had minimal impact on the overall findings.

Other position papers/material were whole reports where only their executive summary was analysed

for the purposes of this summary. In cases where the position papers were in a different language than

English, these were translated using a machine translator and were then analysed.

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documents were taken into account, where relevant, or as additional views to the specific

topics of the consultation. The responses show that, the inclusion of certain elements in a

legislative proposal received broad support, such as having a common reference warming

trajectory (58%) or more harmonised and comprehensive climate risk assessments (72%).

Additional consultation activities were carried out, which included discussions with

representatives in the Working Party on the Environment (WPE) of the Council of the

European Union, the European Climate Policy Group (ECPG), and the Working Group on

Adaptation (WGA) under the Climate Change Committee. Engagement with the European

Parliament was carried out through the Committee on Environment, Public Health and Food

Safety (ENVI), complemented by a series of bilateral meetings and participation in relevant

parliamentary events.

Dialogues were held with the Committee of the Regions and the European Economic and

Social Committee. In addition, exchanges with other EU bodies, such as the European

Environment Agency (EEA), European Investment Bank (EIB) and the European Scientific

Advisory Board on Climate Change (ESABCC) also informed the proposal.

Other activities which informed the proposal included the work carried out by the Reflection

Group on Mobilising Climate Resilience Financing, the Industrial Forum, the EU Mission on

Adaptation to Climate Change, the Covenant of Mayors and the Climate Pact.

• Collection and use of expertise

See above.

• Impact assessment

The impact assessment accompanying this proposal has been prepared and developed in line

with the applicable Better Regulation guidance. After having resolved the issues raised in the

Regulatory Scrutiny Board’s negative opinion issued on 22 May 2026, the impact assessment

received a positive opinion with reservations on 7 September 2026.

The comments from the Board were addressed as follows:

(1) To present more clearly the evidence behind the problem of physical preparedness, the

Section 2 of the impact assessment was streamlined and examples from EUCRA were added

to better illustrate the gaps in physical preparedness across sectors/policies and Member

States.

(2) To demonstrate better the causal link between options and expected effects, including

possible secondary consequences for private actors, more details on the methodology to assess

residual risk and risk tolerance were added, to better explain how risk owners would consider

and decide on them. For private sectors the evidence was added wherever possible.

(3) To present the costs and the benefits in sufficiently clear way, Section 6 was improved

to illustrate more clearly the costs and benefits of the different policy options. Further

breakdown of the costs for the Navigator of tools and Climate Viewer was added to the text.

Annex 3, including the table on burden reduction, has been updated to reflect the changes in

the text. The text throughout the section was also improved to better illustrate which

costs/benefits stem directly from the proposal and which ones are expected from follow-up

interventions.

(4) To give a better assessment of the proposal’s coherence with the post-2030 climate

and energy package. This includes potential overlaps, unnecessary administrative burden and

enforcement, additional text was added to Section 8 on the links between the proposed

Framework, the European Climate Law and the Governance Regulation. The detailed

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description of those envisaged interactions, simplification of various aspects (planning,

reporting, etc) and reduction of duplications were presented in Annex 14.

The impact assessment identified the overall problem to be uneven and insufficient

preparedness of the European economy and society for climate change. It broke the overall

problem down into three main elements: (i) fragmented climate resilience in the EU and its

Member States (problem 1); (ii) an unprepared private sector (problem 2); and (iii) an

unprepared population (problem 3).

It identified several problem drivers including those relating to institutional, policy and

governance barriers, methodological, evidence and informational barriers, information and

know-how barriers, market failures and behavioural barriers.

The impact assessment addressed three policy options, differing in level of intervention and

balance between mandatory and voluntary measures. Each policy option included core

elements such as common objectives; a reference warming trajectory as a common baseline

for decisions; horizontal principles (such as ‘duty to consider’, ‘risk ownership’ and ‘climate

resilience by design’); climate risk assessments; planning and implementation; progress

monitoring; and horizontal enablers such as supporting tools.

The impact assessment concluded that for the core elements a Regulation would be preferred.

It would establish inter alia a common reference global warming trajectory and a requirement

to prepare regular and harmonised climate risk assessments. On planning, requirements would

be simplified, as Member States can prepare only one strategic plan on climate resilience

covering the current national adaptation strategies and plans under the European Climate Law.

The climate adaptation planning related requirements are to be removed under the

Governance Regulation. The climate resilience related reporting requirements will remain

under the Governance Regulation, avoiding additional reporting obligations.

This combination of measures under the preferred policy option would result in the best

balance between reducing administrative burden and preserving flexibility for Member States.

It would also achieve a favourable cost-benefit ratio in the short and long term, while ensuring

a more anticipatory approach that allows for the EU and its Member States to be more climate

resilient.

The impact assessment includes the consistency check of Article 6(4) of the European

Climate Law, which requires the Commission to assess the consistency of any EU draft

measure or legislative proposal with the European Climate Law’s objectives, such as the EU’s

climate-neutrality objective. It concludes that the initiative would not directly result in actions

generating greenhouse gas emissions. It would however help minimise the vulnerabilities of

climate-sensitive decarbonisation pathways such as through land carbon sinks and

hydropower generation and seek to minimise its key external problem driver by encouraging

progress towards climate neutrality. The consistency check deemed the initiative to be

consistent with the climate-neutrality objective set out in Article 2(1) of the European Climate

Law and with the EU’s 2030 and 2040 climate targets.

• Regulatory fitness and simplification

In line with the Commission’s commitment to Better Regulation, the proposal has been

prepared inclusively, based on transparency and continuous engagement with stakeholders.

Simplification has been a guiding principle throughout the preparation of the proposal that

sets only essential requirements while allowing Member States maximum flexibility in

implementation. The proposal introduces a limited number of forward-looking elements,

building on scientific developments and existing best practices. It also reduces administrative

burden and duplication by consolidating existing adaptation planning instruments, namely

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national adaptation strategies and plans, and the adaptation-related elements currently

required under national energy and climate plans (NECPs) and long-term strategies, into

climate resilience strategic plans, without affecting sector-specific planning requirements.

Corresponding planning requirements related to climate adaptation under the Governance

Regulation are discontinued, and the remaining reporting obligation is streamlined to meet the

needs of the new Framework.

• Fundamental rights

The proposal respects the fundamental rights and observes the principles recognised by the

Charter of Fundamental Rights of the European Union. The proposal would contribute to the

objective of a high level of environmental protection in accordance with the principle of

sustainable development as laid down in Article 37 of the Charter of Fundamental Rights of

the European Union36.

4. BUDGETARY IMPLICATIONS

The legislative financial and digital statement included in the proposal shows the detailed

budgetary implications and the human and administrative resources required.

The implementation of the proposal would require the Commission, the European

Environment Agency, and the European Insurance and Occupational Pensions Authority to

ensure additional resources.

5. OTHER ELEMENTS

• Implementation plans and monitoring, evaluation and reporting arrangements

To avoid additional administrative burden, the proposal does not introduce new requirements

for progress assessment or reporting. The existing arrangements for tracking progress under

the European Climate Law and the Governance Regulation would, however, ensure that the

implementation of the proposal would be monitored closely. The proposed Regulation would

be subject to a review in 2033.

• Detailed explanation of the specific provisions of the proposal

Article 4 and Annex I set a scientifically solid and reliable reference global warming

trajectory to provide a common anchor for planning and implementing decisions at all

governance levels. It may be updated, when necessary, based on scientific evidence.

Article 5 and Annex II require Member States and the European Environment Agency to

periodically identify major climate risks, assess their urgency and provide options for policy

action. This will contribute to more aligned national and EU assessments of climate risk to

provide evidence for climate risk management options and improve the comparability of the

risks under various climate scenarios.

Articles 6 and 7 and Annex IV require the Commission and the Member States to adopt

strategic plans on climate resilience setting objectives and measurable targets, where relevant,

for each policy area of Union-wide relevance for climate resilience set out in Annex III. In

addition, the plan is meant to set measures for addressing major climate risks identified in

climate risk assessments, as well as indicating the authorities responsible for addressing each

of the major climate risks (policy risk owner). Member States would need to indicate in their

national strategic plans how public authorities consider climate resilience in their decisions.

36 OJ C 326, 26.10.2012, p. 391.

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The Commission should assess the Member States’ progress on climate resilience every two

years through the European Semester.

Article 9 requires the Commission to ensure the availability of an online platform to facilitate

compliance with the obligations of the proposal and to facilitate public access to climate risk

and resilience information. The platform is meant to provide a central entry point to climate

risk and resilience support services and solutions, including online tools that help to better

identify and understand specific climate risks. The platform will also further streamline EU-

level knowledge sharing and provide examples of effective climate resilience solutions for

different sectors and geographies, building on the learnings from successful case studies and

projects. This includes the Mission on Adaptation to Climate Change and the European

Climate Adaptation Platform Climate-ADAPT. It responds to recommendation No.2 of the

Special Report No. 15/2024 of the European Court of Auditors and related recommendations

53 and 56 by the Council of the European Union.

Article 10 contains provisions on statistics on loss of life and economic losses attributable to

climate change.

Article 11 contains provisions on the role of the European Environment Agency.

Article 14 contains amendments to the Governance Regulation. It would remove the climate

adaptation planning related provisions from Governance Regulation, as proposed in Article

14. The amendments also respond to the European Court of Auditors’ Recommendation No. 1

of the Special Report No. 15/2024 and related recommendation 54 by the Council of the

European Union to address weaknesses identified in Member States’ reporting on climate

adaptation.

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2026/0336 (COD)

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

establishing a framework to enhance climate resilience and amending Regulation (EU)

2018/1999 (European Climate Resilience Law)

(Text with EEA relevance)

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty on the Functioning of the European Union (TFEU), and in

particular Article 192(1) thereof,

Having regard to the proposal from the European Commission,

After transmission of the draft legislative act to the national Parliaments,

Having regard to the opinion of the European Economic and Social Committee1,

Having regard to the opinion of the Committee of the Regions2,

Acting in accordance with the ordinary legislative procedure,

Whereas:

(1) Climate change is already causing widespread and increasingly severe and negative

impacts across the Union. It is affecting natural and human systems, including

ecosystems, infrastructure, water resources, energy, food systems, public health,

cultural heritage and economic activity.

(2) The Union has set, in Regulation (EU) 2021/1119 of the European Parliament and of

the Council3 (‘European Climate Law’), a binding objective of economy-wide climate

neutrality by 2050 and binding intermediate Union climate targets for 2030 and for

2040. It has become increasingly clear, though, that global warming will, at least

temporarily, exceed the 1.5°C temperature threshold of the Paris Agreement4 adopted

under the United Nations Framework Convention on Climate Change. Europe, which

has been the fastest-warming continent in recent decades, could see average

temperatures rise by 4°C to 5°C by 2100 compared to the pre-industrial average

European temperature5.

(3) The impacts and risks associated with climate change are expected to intensify in

frequency, magnitude and duration. This is threatening to increasingly undermine

Europe’s social and territorial cohesion, its security and prosperity, the health and

1 OJ C [...], [...], p. [...] 2 OJ C [...], [...], p. [...] 3 Regulation (EU) 2021/1119 of the European Parliament and of the Council of 30 June 2021 establishing

the framework for achieving climate neutrality and amending Regulations (EC) No 401/2009 and (EU)

2018/1999 (OJ L 243 9.7.2021, p. 1, ELI: http://data.europa.eu/eli/reg/2021/1119/oj). 4 OJ L 282, 19.10.2016, p. 4. 5 European Scientific Advisory Board on Climate Change, Strengthening resilience to climate change –

Recommendations for an effective EU adaptation policy framework, 17 February 2026.

EN 13 EN

well-being of its people, and intergenerational fairness. Furthermore, climate change is

increasingly impacting biodiversity and disrupting vital ecosystem functions and

services. These impacts can also deepen existing inequalities, disproportionately affect

people in vulnerable situations and those with fewer resources to adapt.

(4) EU-wide economic losses from weather- and climate-related extremes have risen

significantly in recent years, disrupting supply chains, reducing productivity and

undermining fiscal stability. Furthermore, climate change has driven biodiversity loss

and disrupted vital ecosystem services.

(5) Climate impacts increasingly affect the entire Union and put core Treaty objectives at

risk. Many of these impacts have cross-border and transboundary dimensions and are

shared between Member States. River basins, seas, energy grids, transport networks,

supply chains, ecosystems, infectious disease pathways, financial systems, markets

and societies span national borders. More Union-wide coordinated action is urgently

required to tackle climate change-related risks and impacts effectively and in a cost-

efficient manner.

(6) The Union is, in line with its commitments under international agreements, committed

to stepping up efforts and contributing to the achievement of the global goal on

adaptation set out in Article 7 of the Paris Agreement, which aims to enhance adaptive

capacity, strengthen resilience and reduce vulnerability to climate change, with a view

to contributing to sustainable development.

(7) Regulation (EU) 2021/1119 provides for climate adaptation action at Union and

Member State level. Regulation (EU) 2018/1999 of the European Parliament and of

the Council6 (’Governance Regulation’) provides a framework for planning and

reporting on energy and climate policies. The provisions of those Regulations contain

objectives, targets, responsibilities, and measures but do not constitute a

comprehensive approach including consideration of climate risks across all Union

policies and Member States. Therefore, building on those Regulations, this Regulation

should streamline and consolidate their existing provisions on planning and reporting

and lay down more specific provisions aimed at improving the planning and

implementation of climate resilience measures throughout the Union and each

Member State.

(8) This Regulation does not alter obligations on climate resilience, risk management,

preparedness or adaptation in specific sectors or policy areas laid down in other Union

legal instruments. It is part of a comprehensive approach to managing risks and threats

across policy areas of Union-wide relevance for climate resilience, as set out in Annex

III and regarded to be crucial for maintaining vital societal functions, economic

activities, public health and safety, the environment, including disaster resilience,

resilience and protection of critical infrastructure and critical entities and continuity of

essential services. It does not affect Member States’ responsibilities for national

security or existing Union and national institutional arrangements concerning

preparedness and defence readiness. In particular, the requirements concerning climate

risk assessments and strategic planning should not interfere with time-critical activities

6 Regulation (EU) 2018/1999 of the European Parliament and of the Council of 11 December 2018 on the

Governance of the Energy Union and Climate Action, amending Regulations (EC) No 663/2009 and

(EC) No 715/2009 of the European Parliament and of the Council, Directives 94/22/EC, 98/70/EC,

2009/31/EC, 2009/73/EC, 2010/31/EU, 2012/27/EU and 2013/30/EU of the European Parliament and

of the Council, Council Directives 2009/119/EC and (EU) 2015/652 and repealing Regulation (EU) No

525/2013 of the European Parliament and of the Council (OJ L 328, 21.12.2018, p.1, ELI:

http://data.europa.eu/eli/reg/2018/1999/2023-11-20).

EN 14 EN

essential for national security, defence readiness and military preparedness, including

the timely implementation of defence-related investments and infrastructure projects

or protection of classified or security-sensitive information. Member States should

retain the necessary flexibility to address climate-related risks in such activities in

accordance with their operational requirements and existing sector-specific

arrangements.

(9) In order to improve planning for current and future climate risks, cross-border

comparability and overall policy coherence, a reference global warming trajectory

should be set. The trajectory will provide a common basis for expected global

warming levels. The reference trajectory should be used in combination with

systematic stress-testing with more adverse scenarios. Setting the trajectory does not

affect the binding objective set out in Regulation (EU) 2021/1119 of achieving climate

neutrality in the Union by 2050, in pursuit of the long-term temperature goal set out by

the Paris Agreement.

(10) To ensure the greater alignment of climate risk assessments, the assessments at Union

and Member State level should be based on the best available scientific knowledge

and local, traditional and Indigenous knowledge. Those risk assessments should also

take into account science-based alternative futures, extreme scenarios, and low-

probability high-impact climate risks, including risks associated with tipping points.

Depending on the specific circumstances of the Member State, relevant risk

assessments could include the risk assessments required under Decision

1313/2013/EU of the European Parliament and of the Council7, Directive 2007/60/EC

of the European Parliament and of the Council8, Directive (EU) 2022/2557 of the

European Parliament and of the Council9 and the EU comprehensive risks and threat

assessment. When carrying out the climate risk assessments, it is important to take into

account existing sector-specific risk assessments and preparedness mechanisms,

including those concerning critical dual-use infrastructure, where relevant, to avoid

duplication and ensure coherence with existing Union and national frameworks. To

ensure Union-level coherence, Member States should, when developing national

climate risk assessments, take into account at least the European climate risk

assessment when preparing the national climate risk assessments and reflect national

and regional circumstances, risk profiles and priorities.

(11) To make the climate resilience objective operational, strategic plans for climate

resilience should be adopted by Member States and the Commission, with the

participation of subnational public authorities in view of their important role in

preparedness and climate resilience, as well as response to adverse climate impacts.

These plans should be key instruments for achieving climate resilience objectives,

addressing major climate risks and defining tolerable levels of residual risks. To

promote just resilience, these plans should account for the specific circumstances of

people in vulnerable situations as well as communities, regions and territories

disproportionately impacted by climate risks, including to prevent discrimination,

7 Decision No 1313/2013/EU of the European Parliament and of the Council of 17 December 2013 on a

Union Civil Protection Mechanism (OJ L 347 20.12.2013, p. 924, ELI:

http://data.europa.eu/eli/dec/2013/1313/oj). 8 Directive 2007/60/EC of the European Parliament and of the Council of 23 October 2007 on the

assessment and management of flood risks (OJ L 288, 6.11.2007, p. 27, ELI:

http://data.europa.eu/eli/dir/2007/60/oj). 9 Directive (EU) 2022/2557 of the European Parliament and of the Council of 14 December 2022 on the

resilience of critical entities and repealing Council Directive 2008/114/EC (OJ L 333, 27.12.2022, p.

164, ELI: http://data.europa.eu/eli/dir/2022/2557/oj).

EN 15 EN

including on grounds of sex, racial or ethnic origin, disability, age or sexual

orientation.

(12) Climate resilience should be considered at an early stage in the preparation of policies,

plans, measures and other decisions at all levels of government that are materially

exposed to climate risks. When considering climate resilience, the reference global

warming trajectory set out in Article 4, and best available evidence regarding climate

risks, based on climate risk assessments carried out pursuant to Article 5 or other

relevant existing risk assessments should be key reference points. Member States

should, in their national strategic plans, set out the governance arrangements necessary

to embed and encourage climate resilience considerations in the exercise of public

functions.

(13) To avoid unnecessary administrative burden, the Union strategic plan on climate

resilience pursuant to Article 6 and the Member States’ strategic plans on climate

resilience pursuant to Article 7 may be adopted as single consolidated documents that

also address the relevant requirements under Article 5 of Regulation (EU) 2021/1119.

This would not in any way alter the obligation to fulfil all the requirements of

Regulation (EU) 2021/1119.

(14) In order to translate the Union’s climate resilience objective into coordinated and

coherent action, a Union strategic plan on climate resilience should be established as

the key instrument for addressing major climate risks at Union-level. The strategic

plan should also provide a strategic, anticipatory and action-oriented framework based

on the European climate risk assessments and other relevant risk assessments. It

should also strengthen preparedness, support timely investment and embed climate

resilience across Union decision-making. The Commission should include the

elements set out in Annex IV and take into account the Union-level indicators set out

in Annex V when preparing the Union strategic plan on climate resilience.

(15) To ensure policy coherence, each Member State should designate a central national

coordinating authority with a mandate appropriate to oversee the preparation and

implementation of the national strategic plan on climate resilience. To enhance policy

risk ownership, the national strategic plan should identify the competent public

authorities responsible for managing each of the major climate risks identified in

national climate risk assessments.

(16) In order to ensure that climate resilience is actually increased, the Member States

should set out in their strategic plans the measures that are needed to achieve the

objectives and targets set out in the plans and to address major climate risks. To ensure

that those measures deliver concrete improvements, those plans should contain

timeframes for implementing the measures and indicate investment needs, estimated

costs and sources of financing. The plans should, insofar as possible, use relevant

existing processes responsible for managing risks in the policy areas concerned, to

avoid duplication and ensure strengthened coherence across policy areas.

(17) To strengthen synergies with biodiversity objectives, including the management of

invasive species, and to ensure cost-effectiveness, nature-based solutions and

ecosystem-based adaptation should be promoted when deciding on measures in the

national strategic plans. To ensure synergies with other planning instruments, the

strategic plans should include an assessment of consistency with other relevant plans.

This may include national strategies for enhancing the resilience of critical entities,

national energy and climate plans, national restoration plans, national and regional

planning documents under the multiannual financial framework, river basin

EN 16 EN

management plans, flood risk management plans, marine strategies, maritime spatial

plans, national building renovation plans, social climate plans, disaster-risk

management instruments, and the relevant national water, health, forestry,

infrastructure, ocean, coastal, land-use and spatial planning strategies and plans and

cultural heritage risk management plans. In particular, Regulation (EU) 2024/1991

requires national restoration plans to take account of climate change scenarios and

synergies with climate change adaptation and disaster prevention, and to prioritise

restoration measures accordingly.

(18) In order to strengthen the link between climate risks and economic and social policies,

the Commission should assess the Member States’ progress on climate resilience

every two years, from 2028 onwards, in the context of the European Semester. The

European Semester process should be informed by the findings of those assessments

as well as by the information reported under Regulation (EU) 2018/1999.

(19) In order to assist the Union and Member States in complying with the requirements of

this Regulation, the Commission should ensure the availability of an online platform

to improve public access to information on climate risk and climate resilience, while

safeguarding classified and security-sensitive information. Union space data and

services, including Copernicus10, Galileo11, EGNOS12, GOVSATCOM13 and IRIS²14,

can support climate risk assessment, resilience measures and crisis preparedness.

(20) The European Environment Agency supports policy development at Union and

Member State level and in relevant global processes, offers analytical expertise and

provides and maintains an efficient reporting infrastructure for national and

international data flows. It informs decision-makers and the public about the state of

the environment in the Union and about climate change and wider sustainability

issues. For this reason, the European Environment Agency should, in view of its

expertise and infrastructure, assist the Commission and the Member States in

implementing the Regulation, as appropriate and in accordance with its annual work

programme.

(21) It is necessary to ensure that the technical information set out in the Annexes remains

up to date and continue to reflect scientific, technical and operational developments,

including developments reflected in the European climate risk assessments carried out

by the European Environmental Agency pursuant to Article 5(1) of this Regulation.

Therefore, the power to adopt acts in accordance with Article 290 TFEU should be

delegated to the Commission in respect of amending certain parts of the Annexes. The

relevant parts concern the reference global warming trajectory, requirements for

climate risk assessments and strategic plans on climate resilience and Union-level

indicators. The Commission should carry out appropriate consultations during its

preparatory work, including at expert level. These consultations should be conducted

in accordance with the principles laid down in the Interinstitutional Agreement on

Better Law-Making of 13 April 2016. In particular, the Commission should ensure

equal participation in the preparation of delegated acts, ensuring that the European

Parliament and the Council receive all documents at the same time as Member States'

experts, and that the experts systematically have access to meetings of Commission

expert groups dealing with the preparation of delegated acts.

10 https://eu-space.europa.eu/earth-observation/copernicus 11 https://eu-space.europa.eu/satellite-navigation/galileo 12 https://eu-space.europa.eu/satellite-navigation/egnos 13 https://eu-space.europa.eu/secure-connectivity/govsatcom 14 https://eu-space.europa.eu/secure-connectivity/iris2

EN 17 EN

(22) In order to improve the availability, consistency and comparability of statistics to

support evidence-based Union planning, the Commission (Eurostat) should compile

the necessary data from the Member States and other relevant data sources, and should

disseminate statistics on loss of life and economic losses attributable to climate change

by 31 December 2030 and annually thereafter.

(23) To avoid duplicative reporting and unnecessary administrative burden, reporting on

progress on climate resilience should continue under the existing requirements of

Regulation (EU) 2018/1999. In order to keep those reporting requirements fit for

purpose and up to date, they should be amended where necessary to align with this

Regulation and should require Member States to report only the essential information

on climate resilience. Existing information reported or otherwise made available

pursuant to Union sectoral legislation should be reused wherever it meets the relevant

information requirements. At the same time, those planning requirements that involve

including adaptation goals in integrated national energy and climate plans and

adaptation policies, and that involve including measures in the long-term strategies

should be removed from that Regulation in order to avoid duplicative requirements

overlapping with this Regulation. Regulation (EU) 2018/1999 should therefore be

amended accordingly.

(24) Climate risks frequently have transboundary and systemic effects and coordinated

action at Union-level is needed to effectively supplement and reinforce national

policies. Since the objective of this Regulation, namely to enhance climate resilience

throughout the Union, cannot be sufficiently achieved by the Member States but can

rather, by reason of the scale and effects, be better achieved at Union-level, the Union

may adopt measures, in accordance with the principle of subsidiarity as set out in

Article 5 of the Treaty on European Union. In accordance with the principle of

proportionality, as set out in that Article, this Regulation does not go beyond what is

necessary to achieve that objective.

(25) The Commission should monitor the application of this Regulation and report to the

European Parliament and to the Council in light of the experience acquired. Where

appropriate, the report should be accompanied by a legislative proposal to review the

functioning of this Regulation, including with respect to measures embedding climate

resilience considerations in the exercise of public functions,

HAVE ADOPTED THIS REGULATION:

Article 1

Subject matter

1. This Regulation establishes a framework to enhance climate resilience across the

Union and the Member States. It sets out a common climate resilience objective and

common parameters required for preparing for and addressing climate impacts. It

helps to ensure the implementation of the global goal on adaptation in Article 7 of

the Paris Agreement and the provisions on adaptation to climate change set out in

Regulation (EU) 2021/1119.

2. The framework established by this Regulation:

(a) sets out a common climate resilience objective and a reference global warming

trajectory that serves as a common baseline for framing climate resilience

decisions;

EN 18 EN

(b) sets out a common approach to assessing climate risks at Union and Member

State level;

(c) requires public authorities responsible for addressing major climate risks to be

identified;

(d) encourages public authorities to take into account the reference global warming

trajectory, national climate risk assessments and other relevant risk assessments

when exercising public functions, in particular budgeting, spatial planning and

impact assessment;

(e) provides for measures to be implemented so as to address major climate risks

and achieve climate resilience objectives;

(f) provides for cooperation between Member States to address transboundary

climate risks.

Article 2

Definitions

For the purposes of this Regulation, the following definitions apply:

(1) ‘climate adaptation’ means the process of adjusting to the actual or expected

climate and its impacts, to mitigate or avoid harm or exploit beneficial

opportunities;

(2) ‘climate resilience’ means the capacity of interconnected social, economic and

ecological systems to withstand a hazardous climate event, climate trend or

climate disturbance, responding or reorganising in ways that maintain their

essential function, identity and structure;

(3) ‘climate risk’ means the potential result of dynamic interactions between

climate hazards with the exposure and vulnerability of the human and

ecological systems affected;

(4) ‘public authorities’ means (a) state, regional or local authorities; (b) other

entities governed by public law; and (c) other entities exercising public

functions or providing public services under the control of an authority or

entity, falling within points (a) or (b); excluding authorities and entities when

acting in a judicial and legislative capacity;

(5) ‘public functions’ means functions of a regulatory, executive or administrative

nature, including but not limited to the preparation and adoption of regulatory

instruments and instruments of policy action, plans and programs,

implementing measures, decisions relating to authorisations and public

procurement;

(6) ‘tolerable level of residual risk' means the level of risk of climate-related

losses, that is expected to remain following the implementation of the measures

set out in the strategic plans referred to in Articles 6 and 7 that is regarded as

acceptable by the decision-maker at the time of adoption of the relevant plan,

taking into account uncertainties in the available evidence as well as financial,

technical and political constraints;

(7) ‘just resilience’ means ensuring that people in vulnerable situations and regions

and communities disproportionately impacted by climate risks are taken into

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account when developing and implementing policies and measures with

implications on climate resilience;

(8) ‘climate impact’ means the consequences of realised climate risks for natural

and human systems;

(9) ‘climate hazard’ means the potential occurrence of a climate-induced physical

event or trend or their physical impacts that may cause loss of life, injury, or

other health impacts, as well as damage and loss to property, infrastructure,

livelihoods, service provision, ecosystems and environmental resources; it

comprises slow-onset developments and rapidly developing climatic extremes

or increased variability;

(10) ‘tail risks’ means low-probability, high-impacts events occurring at the extreme

ends of a probability distribution;

(11) ‘tipping point’ means a critical threshold beyond which a system reorganises

often abruptly and/or irreversibly;

(12) ‘climate exposure’ means the presence of people; livelihoods; species or

ecosystems; environmental functions, services and resources; infrastructure; or

economic, social, or cultural assets in places and settings that could be

adversely affected by climate hazards;

(13) ‘climate vulnerability’ means the propensity or predisposition to be adversely

affected by the impacts of climate change, encompassing a variety of concepts

and elements, including sensitivity or susceptibility to harm and lack of

capacity to cope and adapt, including among groups in situations of

vulnerability;

(14) ‘cascading risks’ means a sequence of interconnected risks or hazards, where

the impact of one event amplifies or accelerates subsequent risks across

systems, policy areas, sectors or regions;

(15) ‘compounding risks’ means situations where multiple climate-related hazards,

vulnerabilities, or impacts interact in ways that amplify the overall risk, often

exceeding the sum of individual risks when considered in isolation.;

(16) ‘maladaptation’ means any measures that may lead to an increased risk of

adverse climate-related outcomes, including through increased greenhouse gas

emissions, increased or shifted vulnerability to climate change, more

inequitable outcomes, or diminished welfare, whether now or in the future;

(17) ‘European climate viewer’ means the digital web tool to be developed

converting the reference global warming trajectory referred to in Article 4 into

localised and decision relevant information on projected climate hazards.

Article 3

Climate resilience objective

The Union and each Member State shall continuously enhance the climate resilience of social,

economic and ecological systems to short-, medium- and long-term climate risks within the

Union, in particular with regard to risks to human life and health, to economy and

infrastructure and to nature and ecosystems, while safeguarding public security and food

security.

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Article 4

Reference global warming trajectory

1. The reference global warming trajectory for the short, medium and long-term is set

out in Annex I for the purposes of this Regulation.

2. Member States shall encourage public authorities to take into account the reference

global warming trajectory when exercising public functions with implications for

climate resilience, in particular in respect of budgeting, spatial planning, and

environmental impact assessments under Directive 2001/42/EC of the European

Parliament and of the Council15 and Directive 2011/92/EU of the European

Parliament and of the Council16.

Article 5

European and national climate risk assessments

1. The European Environment Agency shall carry out a European climate risk

assessment at Union-level by 30 June 2028 and every five years thereafter.

2. Each Member State shall carry out a national climate risk assessment, including at

subnational level, where applicable, by 30 June 2029 and every five years thereafter.

3. The climate risk assessments under this Article shall fulfil all of the following

requirements:

(a) they shall be based on at least the reference global warming trajectory set out in

Article 4;

(b) they shall include at least the elements set out in Annex II;

(c) they shall address at least the policy areas of Union-wide relevance for climate

resilience set out in Annex III;

(d) they shall be based on the best available knowledge;

(e) they shall consider relevant and science-based risk assessments, alternative

futures, extreme scenarios and low-probability high-impact climate risks;

(f) the national climate risk assessments referred to in paragraph 2 shall consider

at least the European climate risk assessment referred to in paragraph 1;

(g) their level of detail shall be proportionate to the relevance and significance of

the climate risks concerned.

4. The climate risk assessments pursuant to this Article shall be published after they

have been finalised. The disclosure of classified or security-sensitive information

may be withheld at Member States discretion.

5. Member States shall encourage public authorities to take into account the national

climate risk assessments and other relevant risk assessments when exercising public

functions with implications for climate resilience, in particular as regards of

15 Directive 2001/42/EC of the European Parliament and of the Council of 27 June 2001 on the

assessment of the effects of certain plans and programmes on the environment (OJ L 197, 21.7.2001,

pp. 30–37, ELI: http://data.europa.eu/eli/dir/2001/42/oj). 16 Directive 2011/92/EU of the European Parliament and of the Council of 13 December 2011 on the

assessment of the effects of certain public and private projects on the environment (OJ L 026,

28.1.2012, p. 1, ELI: http://data.europa.eu/eli/dir/2011/92/oj).

EN 21 EN

budgeting, spatial planning, and assessments under Directive 2001/42/EC and

Directive 2011/92/EU.

Article 6

Union strategic plan on climate resilience

1. The Commission shall adopt a Union strategic plan on climate resilience by 30

September 2028.

2. The Union strategic plan shall fulfil all of the following requirements:

(a) it shall be based on the European climate risk assessment referred to in Article

5(1) and other relevant risk assessments;

(b) it shall be based on at least the reference global warming trajectory set out in

Article 4;

(c) it shall aim to ensure that the residual risks from the major climate risks

referred to in point 1 of Annex II are tolerable;

(d) it shall address at least the policy areas of Union-wide relevance for climate

resilience set out in Annex III;

(e) it shall include at least the elements set out in points 1 to 3, 7 to 9 and 12 to 14

of Annex IV;

(f) it shall fulfil the requirements for adopting a Union strategy on adaptation to

climate change set out in Article 5(2) of Regulation (EU) 2021/1119;

(g) it shall promote nature-based solutions and ecosystem-based climate

adaptation;

(h) it shall take into consideration people in vulnerable situations as well as

communities disproportionately impacted by climate risks in order to promote

just resilience;

(i) it shall take into consideration regions and territories disproportionately

impacted by climate risks throughout the plan.

3. The public shall be given an opportunity to participate in the preparation of the

Union strategic plan. The feedback received from the public shall be taken into

account when finalising the plan. The plan shall be published after it has been

adopted.

4. The Commission shall incorporate the Union-level indicators set out in Annex V into

the Union strategic plan.

5. The Commission shall evaluate and update the Union strategic plan by 30 September

2033 and every five years thereafter, taking into account the assessment of the

previous Union strategic plan.

Article 7

National strategic plan on climate resilience

1. Each Member State shall adopt a national strategic plan on climate resilience by 31

December 2030.

2. The national strategic plan shall fulfil all of the following requirements:

EN 22 EN

(a) it shall be based on climate risk assessments pursuant to Article 5 and other

relevant risk assessments;

(b) it shall be based on at least the reference global warming trajectory set out in

Article 4;

(c) it shall aim to ensure that the residual risks from the major climate risks

referred to in point 1 of Annex II are tolerable;

(d) it shall aim to ensure consistency with the Union strategic plan pursuant to

Article 6;

(e) it shall address at least the policy areas of Union-wide relevance for climate

resilience set out in Annex III;

(f) it shall include at least the elements set out in Annex IV, excluding point 9

thereof;

(g) it shall fulfil the requirements for adopting national adaptation strategies and

plans set out in Article 5(4) of Regulation (EU) 2021/1119;

(h) it shall promote nature-based solutions and ecosystem-based climate

adaptation;

(i) it shall take into consideration people in vulnerable situations as well as

communities disproportionately impacted by climate risks in order to promote

just resilience;

(j) it shall take into consideration regions and territories disproportionately

impacted by climate risks throughout the plan.

3. Member States may, for the purposes of complying with points 11, 13 and 14 of

Annex IV, indicate planned or existing measures to address climate resilience under

sectoral legislation that fulfil the content requirements for the national strategic

plans. In such cases, Member States shall indicate in the national strategic plan where

those measures fully meet the requirements of this Regulation.

4. Each Member State shall designate a central coordinating authority with sufficient

administrative competence to oversee the preparation and implementation of the

national strategic plan.

5. Subnational public authorities and the public shall be given early and effective

opportunities to participate in the preparation of the national strategic plan.

Moreover, such opportunities shall be inclusive and accessible. The feedback

received from the subnational public authorities and the public and opinions

expressed by other Member States pursuant to Article 8 shall be taken into account

when preparing the plan. The national strategic plan shall be published after it has

been adopted. The disclosure of classified or security-sensitive information may be

withheld at Member States discretion.

6. Each Member State shall identify, for each major climate risk referred to in point 1

of Annex II, one or more public authorities responsible for managing that climate

risk.

7. Each Member State shall pursue the implementation of the measures set out in the

national strategic plan, while taking into account changing risks, new evidence,

unforeseen costs and available financial resources. The implementation of the plan

EN 23 EN

under this Article shall not impede or delay time-critical activities essential to

national security, defence readiness or military preparedness.

8. Each Member State shall evaluate and update the national strategic plan every five

years.

Article 8

Transboundary cooperation

1. When preparing or updating the national strategic plan pursuant to Article 7, each

Member State shall consult the Member States likely to be significantly impacted by

the plan, including at least its neighbouring Member States.

2. The consultations referred to in paragraph 1 shall address at least potential

transboundary risks, planned measures and the possibilities for transboundary

cooperation on climate resilience. Consultations should, where appropriate, be

carried out through existing cooperation frameworks and mechanisms, where these

provide a basis for addressing the relevant climate risks.

3. Where a transboundary consultation is undertaken in accordance with Article 7 of

Directive 2001/42/EC, such consultation shall be deemed to satisfy the obligations

laid down in this Article, provided that the requirements of paragraphs 1 and 2 are

complied with.

Article 9

Online platform on climate resilience knowledge

1. The Commission shall ensure that an online platform is available to facilitate the

implementation of this Regulation and to provide access to information on climate

resilience, climate adaptation and climate risks, including access to the European

climate viewer.

2. The Commission shall ensure coordination with existing Union knowledge

platforms, services and relevant research networks, ensuring interoperability,

avoiding duplication and safeguarding security-sensitive information.

Article 10

Statistics on loss of life and economic losses attributable to climate change

1. By 31 December 2030 and annually thereafter, the Commission (Eurostat) shall

disseminate statistics on loss of life and economic losses attributable to climate

change, compiled from data provided by Member States and, if appropriate, from

other relevant data sources.

2. The Commission is empowered to adopt delegated acts in accordance with Article 13

in order to establish the data regarding climate-related mortality and the data on

economic losses attributable to climate change to be provided by Member States.

Article 11

Role of the European Environment Agency

EN 24 EN

The European Environment Agency, established under Regulation (EC) No 401/2009 of the

European Parliament and of the Council17, shall act as a centre of excellence on climate

resilience and climate adaptation and assist the Commission and the Member States for the

purposes of their work to comply with Articles 3, 4 and 5 to 9 in accordance with its annual

work programme. That assistance shall include, as required:

(a) knowledge development and capacity-building at Union and national level for

climate risk assessments and climate resilience planning, including Union-level

indicators on climate resilience;

(b) compilation and analysis of information from Member States on climate

resilience policies and measures, including the maintenance and update of a

database on those policies and measures within the online platform referred to

in Article 9and knowledge development to support assessments of progress;

(c) support for the online platform on climate resilience knowledge referred to in

Article 9.

Article 12

Amendment of Annexes

1. The Commission is empowered to adopt delegated acts in accordance with Article 13

to amend Annex I by updating the reference global warming trajectory referred to in

Article 4 in order to align it with the most recent scientific knowledge. The update of

the trajectory shall be based on the best available and most recent scientific evidence,

taking into account advice from the European Scientific Advisory Board on Climate

Change (ESABCC), established under Article 10a of Regulation (EC) No 401/2009.

2. The Commission is empowered to adopt delegated acts in accordance with Article 13

to amend Annex II to align it with new evidence regarding best practices for

assessing climate risks, by adding or removing elements to be taken into account in

the climate risk assessments under Article 5. Such amendments shall be based on the

findings of the European climate risk assessments under Article 5(1).

3. The Commission is empowered to adopt delegated acts in accordance with Article 13

so as to amend Annex III, by adding or removing policy areas to be addressed in the

climate risk assessments under Article 5 and in the Union and national strategic plans

pursuant to Articles 6 and 7, in order to align it with new evidence regarding policy

areas of Union-wide relevance for climate resilience. Such amendments shall be

based on the findings of the European climate risk assessments under Article 5(1).

4. The Commission is empowered to adopt delegated acts in accordance with Article 13

to amend point 12, of Annex IV by adapting the requirements for the climate

resilience objectives and targets to be included, where relevant, in the strategic plans

pursuant to Articles 6 and 7 in order to reflect future evidence on worsening climate

impacts.

5. The Commission is empowered to adopt delegated acts in accordance with Article 13

to amend Annex V in order to adapt the Union-level indicators to the best available

and most recent scientific knowledge, taking into account relevant scientific,

technical and methodological developments at international level.

17 Regulation (EC) No 401/2009 of the European Parliament and of the Council of 23 April 2009 on the

European Environment Agency and the European Environment Information and Observation Network

(Codified version) (OJ L 126, 21.5.2009, p. 13, ELI: http://data.europa.eu/eli/reg/2009/401/oj).

EN 25 EN

Article 13

Exercise of the delegation

1. The power to adopt delegated acts is conferred on the Commission subject to the

conditions laid down in this Article.

2. The power to adopt delegated acts referred to in Articles 11(5) and 12(1) to (5) shall

be conferred on the Commission for an indeterminate period of time from [the date

of entry into force of this Regulation]. The Commission shall draw up a report on the

delegation of power not later than nine months before the end of the five-year period.

The delegation of power shall be tacitly extended for periods of an identical duration

unless the European Parliament or the Council objects to such extension not later

than three months before the end of each period.

3. The delegation of power referred to in Articles 11(5) and 12(1) to (5) may be

revoked at any time by the European Parliament or by the Council. A decision to

revoke shall put an end to the delegation of the power specified in that decision. It

shall take effect the day following the publication of the decision in the Official

Journal of the European Union or at a later date specified therein. It shall not affect

the validity of any delegated acts already in force.

4. Before adopting a delegated act, the Commission shall consult experts designated by

each Member State in accordance with the principles laid down in the

Interinstitutional Agreement of 13 April 2016 on Better Law-Making.

5. As soon as it adopts a delegated act, the Commission shall notify it simultaneously to

the European Parliament and to the Council.

6. Delegated acts adopted pursuant to Articles 11(5) and 12(1) to (5) shall enter into

force only if no objection has been expressed either by the European Parliament or

by the Council within a period of two months of notification of that act to the

European Parliament and the Council or if, before the expiry of that period, the

European Parliament and the Council have both informed the Commission that they

will not object. That period shall be extended by two months at the initiative of the

European Parliament or of the Council.

Article 14

Amendments to Regulation (EU) 2018/1999

Regulation (EU) 2018/1999 is amended as follows:

(1) in Article 4, point (a)(1)(iii) is replaced by the following:

‘(iii) where applicable to meet the objectives and targets of the Energy Union and the

long-term Union greenhouse gas emissions commitments consistent with the Paris

Agreement, other objectives and targets, including sector targets.’;

(2) in Article 17, paragraph 2 point (d) is deleted;

(3) the heading of Article 19 is replaced by the following: ‘Integrated reporting on

national climate resilience policies and measures, financial and technology support

provided to developing countries and auctioning revenues’;

(4) in Article 19, paragraph 1 is replaced by the following:

‘By 15 March 2029, and every two years thereafter, Member States shall report to

the Commission information on the implementation of national climate resilience

EN 26 EN

policies and measures, including the information specified in Part 1 of Annex VIII

and in accordance with the reporting requirements agreed upon under the UNFCCC

and the Paris Agreement.’;

(5) in Article 42, point (e) is replaced by the following:

'(e) disseminating information collected under this Regulation, including maintaining

and updating a database on Member States' mitigation policies and measures’;

(6) in Article 42, the following point (f) is added:

‘(f) quality assurance, quality control and dissemination of information on national

climate resilience policies and measures reported under Article 19’;

(7) in Annex I, Part 1, Section A, point (2.1.1) (ii) is replaced by the following:

‘(ii) Where applicable, other national objectives and targets consistent with the Paris

Agreement and the existing long-term strategies. Where applicable for the

contribution to the overall Union commitment of reducing the GHG emissions, other

objectives and targets, including sector targets, if available.';

(8) in Annex IV, point (2.1.3) is deleted;

(9) the heading of Annex VIII is replaced by the following: ‘INFORMATION ON THE

IMPLEMENTATION OF NATIONAL CLIMATE RESILIENCE POLICIES AND

MEASURES, FINANCIAL AND TECHNOLOGY SUPPORT PROVIDED TO

DEVELOPING COUNTRIES AND AUCTIONING REVENUES’;

(10) in Annex VIII, Part 1 is replaced by the following:

‘Part 1

Reporting on national climate resilience policies and measures

Information to be included in the reports referred to in Article 19(1):

(a) national climate risk assessments pursuant to Article 5(2) of Regulation (EU)

2027 /… [European Climate Resilience Law], including the key climate hazards and

major climate risks identified, including transboundary relevance;

(b) application of the reference global warming trajectory referred to in Article 4 of

Regulation (EU) 2027 /… [European Climate Resilience Law] in the national climate

risk assessments and the national strategic plans referred to in Article 7 of Regulation

(EU) 2027 /… [European Climate Resilience Law];

(c) implementation of the national strategic plans referred to in Article 7 of

Regulation (EU) 2027/… [European Climate Resilience Law], including national

objectives and targets, indicators and the tolerability of residual risk from major

climate risks identified in the national climate risk assessments;

(d) other national policies and national legislation relevant to climate resilience;

(e) overview of implemented and planned climate resilience measures by policy area

of Union-wide relevance for climate resilience set out in Annex III to Regulation

(EU) 2027 /… [European Climate Resilience Law], including competent authorities

or other entities referred to in point 12(a) of Annex IV to Regulation (EU) 2027/…

[European Climate Resilience Law];

(f) overview of outcomes of national progress assessments, policy cycle evaluations

and their use in subsequent policy revisions;

EN 27 EN

(g) progress in achieving national objectives and targets and climate resilience

measures set out in the plans;

(h) Union-level indicators set out in Annex V to Regulation (EU) 2027 /…

[European Climate Resilience Law], in particular on loss of life and economic losses

attributable to climate change;

(i) good practices, including climate resilience solutions.’.

Article 15

Review and reporting

By 30 September 2033, the Commission shall present a report to the European Parliament and

to the Council on the application of this Regulation. The report shall be accompanied, where

appropriate, by a legislative proposal.

Article 16

Entry into force

This Regulation shall enter into force on the twentieth day following that of its publication in

the Official Journal of the European Union.

This Regulation shall be binding in its entirety and directly applicable in all Member States.

Done at Brussels,

For the European Parliament For the Council

The President The President

EN 1 EN

LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT

Contents

1. FRAMEWORK OF THE PROPOSAL/INITIATIVE ................................................. 3

1.1. Title of the proposal/initiative ...................................................................................... 3

1.2. Policy area(s) concerned .............................................................................................. 3

1.3. Objective(s) .................................................................................................................. 3

1.3.1. General objective(s) ..................................................................................................... 3

1.3.2. Specific objective(s) ..................................................................................................... 3

1.3.3. Expected result(s) and impact ...................................................................................... 3

1.3.4. Indicators of performance ............................................................................................ 3

1.4. The proposal/initiative relates to: ................................................................................. 4

1.5. Grounds for the proposal/initiative .............................................................................. 4

1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for

roll-out of the implementation of the initiative ............................................................ 4

1.5.2. Added value of EU involvement (it may result from different factors, e.g.

coordination gains, legal certainty, greater effectiveness or complementarities). For

the purposes of this section 'added value of EU involvement' is the value resulting

from EU action, that is additional to the value that would have been otherwise

created by Member States alone. ................................................................................. 4

1.5.3. Lessons learned from similar experiences in the past .................................................. 5

1.5.4. Compatibility with the multiannual financial framework and possible synergies with

other appropriate instruments ....................................................................................... 6

1.5.5. Assessment of the different available financing options, including scope for

redeployment ................................................................................................................ 6

1.7. Method(s) of budget implementation planned ............................................................. 7

2. MANAGEMENT MEASURES................................................................................... 9

2.1. Monitoring and reporting rules .................................................................................... 9

2.2. Management and control system(s) ............................................................................. 9

2.2.1. Justification of the budget implementation method(s), the funding implementation

mechanism(s), the payment modalities and the control strategy proposed .................. 9

2.2.2. Information concerning the risks identified and the internal control system(s) set up

to mitigate them............................................................................................................ 9

2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between

the control costs and the value of the related funds managed), and assessment of the

expected levels of risk of error (at payment & at closure) ........................................... 9

2.3. Measures to prevent fraud and irregularities ................................................................ 9

3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE ............ 10

EN 2 EN

3.1. Heading(s) of the multiannual financial framework and expenditure budget line(s)

affected ....................................................................................................................... 10

3.2. Estimated financial impact of the proposal on appropriations ................................... 11

3.2.1. Summary of estimated impact on operational appropriations.................................... 11

3.2.1.1. Appropriations from voted budget ............................................................................. 11

3.2.2. Estimated output funded from operational appropriations (not to be completed for

decentralised agencies)............................................................................................... 15

3.2.3. Summary of estimated impact on administrative appropriations ............................... 17

3.2.3.1. Appropriations from voted budget .............................................................................. 17

3.2.4. Estimated requirements of human resources.............................................................. 17

3.2.4.1. Financed from voted budget....................................................................................... 18

3.2.5. Overview of estimated impact on digital technology-related investments ................ 20

3.2.6. Compatibility with the current multiannual financial framework.............................. 21

3.2.7. Third-party contributions ........................................................................................... 21

3.2.8. Estimated human resources and the use of appropriations required in the European

Environment Agency ................................................................................................. 22

3.2.9. Estimated human resources and the use of appropriations required in the EIOPA ... 24

3.3. Estimated impact on revenue ..................................................................................... 27

4. DIGITAL DIMENSIONS .......................................................................................... 28

4.1. Requirements of digital relevance .............................................................................. 28

4.2. Data ............................................................................................................................ 30

4.3. Digital solutions ......................................................................................................... 33

4.4. Interoperability assessment ........................................................................................ 33

4.5. Measures to support digital implementation .............................................................. 34

EN 3 EN

1. FRAMEWORK OF THE PROPOSAL/INITIATIVE

1.1. Title of the proposal/initiative

Proposal for a Regulation of the European Parliament and of the Council establishing

a framework to enhance climate resilience and amending Regulation (EU)

2018/1999, (European Climate Resilience Law).

1.2. Policy area(s) concerned

Climate Action

1.3. Objective(s)

1.3.1. General objective(s)

The overall objective is to establish a framework to enhance climate resilience across

the Union and to contribute to the global adaptation goal set in Article 7 of the Paris

Agreement and the objectives on adaptation to climate change set in the European

Climate Law (Regulation (EU) 2021/1119 of the European Parliament and of the

Council).

1.3.2. Specific objective(s)

The specific objective is to enhance, indirectly through changes to the policy

framework, the climate resilience of social, economic and ecological systems against

short-, medium- and long-term climate risks within the Union, in particular with

regard to risks to human life and health, to economy and infrastructure, and to nature

and ecosystems.

1.3.3. Expected result(s) and impact

Specify the effects which the proposal/initiative should have on the beneficiaries/groups targeted.

The framework established by the Regulation is expected to:

- Provide clarity on the responsibilities for managing climate risks across all policy

areas through the integration of climate resilience considerations into risk

assessments, policy design and planning in the Union and the Member States, using a

common reference global warming trajectory;

- Ensure a consistent assessment of climate risks and vulnerabilities to climate

change in the Union and the Member States;

- Ensure across all policy sectors the implementation of actions and measures,

designed to address major climate risks and to achieve the climate resilience

objective; and to

- Stimulate cooperation between Member States to address transboundary risks.

The initiative will benefit society as a whole, including all economic sectors, through

enhanced and better coordinated climate preparedness and disaster risk management.

Better climate preparedness will help sustain job and income opportunities and have

positive effects on citizen’s health, nature and biodiversity, natural and cultural

heritage and identity, as well as quality and security of food and water.

1.3.4. Indicators of performance

Specify the indicators for monitoring progress and achievements.

EN 4 EN

The Commission is to monitor progress in implementing the Regulation as part of

existing processes and evaluation.

1.4. The proposal/initiative relates to:

☑ a new action

a new action following a pilot project / preparatory action1

the extension of an existing action

a merger or redirection of one or more actions towards another/a new action

1.5. Grounds for the proposal/initiative

1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for

roll-out of the implementation of the initiative

The Commission puts forward this framework with a clear vision and decisive action

to close the Union’s climate preparedness and resilience gap. This framework builds

upon the existing European Climate Law, which requires ensuring continuous

progress in enhancing adaptive capacity, strengthening resilience and reducing

vulnerability to climate change in accordance with Article 7 of the Paris Agreement.

The proposed regulation will be directly applicable from the day of its entry into

force.

However, a series of administrative tasks will need to be deployed as soon as

possible, some of them starting already in 2026 (i.e. during the ordinary legislative

procedure, ahead of the adoption by the European Parliament and the Council) and

some after entry into force. While some tasks will be for a limited term (e.g. the

creation of online tools) others will be longer term and recurrent for as long as the

Regulation applies. The needs before entry into force will be covered from existing

resources; the LFDS addresses needs from the 2028. In case of earlier entry into

force, temporary measures under the current MFF may need to be foreseen.

The Framework will create an iterative climate resilience cycle between the Union

and Member State level and, to the extent possible, with other EU and international

processes (e.g. MFF, Governance Regulation, UCPM Regulation).

1.5.2. Added value of EU involvement (it may result from different factors, e.g.

coordination gains, legal certainty, greater effectiveness or complementarities). For

the purposes of this section 'added value of EU involvement' is the value resulting

from EU action, that is additional to the value that would have been otherwise

created by Member States alone.

Reasons for action at EU level (ex ante): Climate hazards increasingly affect the

entire EU territory and put core policy areas at risk, thus demanding strong EU-level

action. Climate impacts can undermine the effective delivery of EU policies

including the functioning of the single market, as well as the Union’s ability to

uphold its fundamental rights and pursue its international obligations and promote

more ambitious approaches internationally. Actions at the national level would not

be sufficient in addressing climate risks. Policy intervention at the EU-level – in

concert with national, regional and local action - is necessary to effectively and

1 As referred to in Article 58(2), point (a) or (b) of the Financial Regulation.

EN 5 EN

efficiently achieve the needed levels of systemic, EU-wide climate resilience and

preparedness.

Many climate risks are shared between MS and span national borders. Impacts can

cascade and compound at broader economic and societal level degrading Union-wide

cohesion, financial stability and investment outlook, posing a wider systemic threat

with considerable potential to impact on the free movement of goods, services,

capital and persons between countries. Current policies are not keeping pace with the

increasing impacts. To be efficient and effective, climate resilience policies require

more uniform application, and coordinated action across different sectors and

governance levels. Links between risks and policies have to be strengthened to avoid

compromising the prosperity and safety of all EU citizens and industry.

Expected generated EU added value (ex post): This initiative is expected to

generate added value over and above what the Member States can achieve nationally

for the following reasons:

- The magnitude and complexity of the challenge, and the fact that climate change

affects many policy areas of shared competence, requires an all-of-government

approach that includes intervention at the EU policy level.

- Complementing different national policies and rules, EU-level action is needed for

promoting a more harmonised and coherent understanding and approach to climate

resilience at national and subnational level and across policy areas, thereby

effectively reducing transnational, cross-border and systemic risks.

- In addition to contributing to greater effectiveness, EU-level intervention for

climate resilience has significant potential for achieving policy objectives in a more

cost-efficient manner. For instance, a single EU-wide early warning and surveillance

system for wildfires or climate-sensitive infectious diseases would be more cost

effective and could deliver better results in addressing cross-border and

transboundary impacts than the development and operation of separate systems by

each Member State, thereby contributing to strengthened overall preparedness

through an enhanced climate resilience framework.

- Similarly, improving the functioning of the internal market for climate resilience

products and services (e.g. heat-protection gear for workers, less water intensive and

more climate resilient crops, smart building cooling solutions) holds potential for

economies of scale, greater competitiveness at the global scale, and better leverage

over global norms and regulatory standards.

- Strengthening the role of climate resilience in EU budgetary and economic

governance frameworks not only provides a common direction to public authorities,

but also - by extension - to the private sector and citizens.

- EU-led policies and support measures for climate resilience have a bigger chance of

leading to true transformation. These will not only make the EU and the Member

States more prepared to face current and future climate risks, but also strengthen core

values of the Union, such as solidarity, cohesion and reduction of inequalities.

1.5.3. Lessons learned from similar experiences in the past

For this initiative, the Commission has endeavoured to utilise past experiences to

inform the content of the intiative. The Commission conducted a call for evidence

and open public consultation to enable different stakeholders to share their

EN 6 EN

perspective, and also collected feedback through Commission expert groups, such as

the Reflection Group on Mobilising Climate Resilience Financing and the Industrial

Forum.

Various reports underpin the analysis. The 2024 EUCRA report provided useful

information for Commission initiatives on climate adaptation and informed Member

States on their national processes. To increase complementarity between national and

other EU-level risk assessments, the scoping process of the next EUCRA should be

defined in close coordination with the policy risk owners. The first EUCRA provided

quantitative inputs for the initiative, synthesising current data on climate risks in the

EU. Commission reports, such as Assessment of EU and Member States adaptation

needs or Assessing the Macro-Fiscal Risks from Climate Change also provided

qualitative and quantitative data.

Besides the consultations and these reports, the Commission used data and

knowledge available in published reports authored and reviewed by experts in the

field of climate change, climate risks, and resilience, such as the IPCC, ESABCC and

the EEA. Furthermore, they relied on academic research from the Commission,

notably the JRC, Copernicus and other academic sources outside of the Union

institutions.

Alongside other academic papers and policy reports, they formed the scientific basis

of the Impact Assessment, through giving an overview of the current state of climate

change and potential future risks in Europe, hence providing the foundation for the

policy options given in the report.

Decision-relevant evidence was also collected drawing from real-life experiences and

discussions amongst regional and local authorities (as well as other stakeholders) and

Horizon Europe projects within the EU Mission on Adaptation to Climate Change.

1.5.4. Compatibility with the multiannual financial framework and possible synergies with

other appropriate instruments

The proposal is fully in line with the objectives of the Commission’s proposal for the

multiannual financial framework (MFF) 2028–2034. Protecting people and building

preparedness and resilience is one of the cross-cutting priorities under the new MFF.

The implementation of the new regulation proposal will have financial implications

for the Commission, which would be covered by the EU budget under the MFF

2028-2034. Depending on the outcome of the ongoing negotiations on the

Commission’s proposal for the next MFF, the spending presented in this financial

legislative statement will be undertaken under Heading 2 (Competitiveness,

Prosperity and Security, predominantly from the European Competitiveness Fund)

and Heading 4 (Administration) of the MFF. In addition, Member States shall

include actions supporting climate resilience in the National and Regional

Partnership Plans supported by Heading 1 of the MFF.

1.5.5. Assessment of the different available financing options, including scope for

redeployment

Successful delivery and proper implementation of the Regulation entail new tasks

and activities for the Commission, the EEA and European Insurance and

Occupational Pensions Authority (EIOPA). This will require human resources and

procurement resources for external contractors.

EN 7 EN

To ensure the achievement of the objectives, limited additional resources are needed,

while most of the needs in DG CLIMA and EEA will be met by redeployment of

existing resources. The possible alternatives would be continued reliance on ad hoc

solutions through non-permanent staffing and task-based outsourcing and contracts,

but this would not ensure continuity, independence of implementation or knowledge

retention; it may create dependencies for fulfilling core obligations under the

Regulation. Overall, the increases for the resources to the EEA are replacing current

financing under Service Level Agreements (SLA) for tasks that will become

permanent. This is in line with the call of the European Parliament as part of the

2024 budgetary discharge procedure that Commission should ensure that agencies

are adequately staffed to perform permanent tasks with in-house staff. The

Commission does not have direct competences to manage such tasks in-house; the

alternative of outsourcing to other organisations would be unlikely to deliver on the

objectives, given that EEA and EIOPA are respectively uniquely placed in terms of

institutional roles to ensure delivery of the identified tasks.

The appropriations required for additional human resources in the Commission will

be met by any additional allocation which may be granted to the managing DG under

the annual allocation procedure and in the light of budgetary constraints. DG CLIMA

will address a reasoned request to the Corporate Management Board seeking the

redeployment of staff from the limited redeployment pool of the Commission.

With regards to financing, the needs will be met through allocation of resources

within the next MFF. The estimated impact on expenditure and staffing for 2028 and

beyond is added for illustrative purposes only and does not pre-judge the next

multiannual financial framework. The source of financing and scope of Union

financial commitment in the post-2027 period remain subject to the outcome of

interinstitutional negotiations on the MFF 2028-2034 and thereafter shall be

determined through the annual budgetary procedure. All appropriations and staffing

allocations as of 2028 are indicative.

The start-up period in 2026-2027 will be financed from internal resources.

1.6. Duration of the proposal/initiative and of its financial impact

limited duration

–  in effect from [DD/MM]YYYY to [DD/MM]YYYY

–  financial impact from YYYY to YYYY for commitment appropriations and

from YYYY to YYYY for payment appropriations.

unlimited duration

– Implementation with a start-up period from 2026 to 2027,

– followed by full-scale operation.

1.7. Method(s) of budget implementation planned

Direct management by the Commission

–  by its departments, including by its staff in the Union delegations;

–  by the executive agencies

Shared management with the Member States

Indirect management by entrusting budget implementation tasks to:

EN 8 EN

–  third countries or the bodies they have designated

–  international organisations and their agencies (to be specified)

–  the European Investment Bank and the European Investment Fund

–  bodies referred to in Articles 70 and 71 of the Financial Regulation

–  public law bodies

–  bodies governed by private law with a public service mission to the extent that

they are provided with adequate financial guarantees

–  bodies governed by the private law of a Member State that are entrusted with

the implementation of a public-private partnership and that are provided with

adequate financial guarantees

–  bodies or persons entrusted with the implementation of specific actions in the

common foreign and security policy pursuant to Title V of the Treaty on

European Union, and identified in the relevant basic act

– bodies established in a Member State, governed by the private law of a

Member State or Union law and eligible to be entrusted, in accordance with

sector-specific rules, with the implementation of Union funds or budgetary

guarantees, to the extent that such bodies are controlled by public law bodies or

by bodies governed by private law with a public service mission, and are provided

with adequate financial guarantees in the form of joint and several liability by the

controlling bodies or equivalent financial guarantees and which may be, for each

action, limited to the maximum amount of the Union support.

Comments

The Commission will be supported by the EEA in accordance with its annual work

programme by supporting knowledge development, capacity-building and technical dialogue

at Union and national level, strengthening climate risk assessments, sectoral analyses and

assessments, the development of climate resilience indicators, supporting data collection,

analysis and reporting updating a database on Member States’ national climate resilience and

adaptation policies and measures and contributing to a European online platform on climate

resilience knowledge. It will also be supported by the EIOPA in managing the Observatory

for Catastrophe Risk Insurability.

EN 9 EN

2. MANAGEMENT MEASURES

2.1. Monitoring and reporting rules

The Commission shall prepare a report on the operation of this Regulation by 30

September 2033 at the latest. This shall be submitted to the European Parliament and

to the Council, and followed, where appropriate, by legislative proposals to revise

this Regulation.

The proposal uses and streamlines existing regular national and EU level processes

to monitor progress and implementation of the proposal.

2.2. Management and control system(s)

2.2.1. Justification of the budget implementation method(s), the funding implementation

mechanism(s), the payment modalities and the control strategy proposed

The initiative involves procurement and impact on the COM HR. Standard rules for

this type of expenditure apply. As regards the control strategy for additional

expenditure in the agencies, EU Decentralised Agencies apply a financial framework

modelled on the Commission’s own Financial Regulation. They work closely with

the Commission’s Internal Audit Service to ensure that appropriate standards are met

in all areas of internal control framework.

2.2.2. Information concerning the risks identified and the internal control system(s) set up

to mitigate them

N/A – cf. above.

2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between

the control costs and the value of the related funds managed), and assessment of the

expected levels of risk of error (at payment & at closure)

N/A – cf. above.

2.3. Measures to prevent fraud and irregularities

N/A – cf. above.

EN 10 EN

3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE

The estimated impact on expenditure and staffing for 2028 and beyond is added for

illustrative purposes only and does not pre-judge the next multiannual financial

framework. The source of financing and scope of Union financial commitment in the

post-2027 period remain subject to the outcome of interinstitutional negotiations on

the MFF 2028-2034 and thereafter shall be determined through the annual budgetary

procedure. All appropriations and staffing allocations as of 2028 are indicative.

3.1. Heading(s) of the multiannual financial framework and expenditure budget

line(s) affected

• Existing budget lines (or budget lines already planned for as per MFF proposal)

In order of multiannual financial framework headings and budget lines.

Heading of

multiannual

financial

framework

Budget line Type of

expenditure Contribution

Number

Diff./Non-

diff.1

from

EFTA

countries2

from

candidate

countries

and

potential

candidates3

From

other

third

countries

other assigned

revenue

2

Successor budget line of 03.10.03 -

European Insurance and Occupational

Pensions Authority Diff. YES NO NO YES

2

Successor budget line of 09.10.02 -

European Environment Agency

Diff. YES YES YES NO

2 [XX.YY.YY.YY] – ECF Clean Transition

Window Diff. TBD TBD TBD TBD

4 Successor budget line of 20 01 02 01 -

Headquarters and Representation offices Non diff. NO NO NO NO

4

Successor budget line of 20 02 01 01 -

Contract staff

Non diff. NO NO NO NO

4 Successor budget line of 20 02 06 01 -

Mission and representation expenses Non diff. NO NO NO NO

4 Successor budget line of 20 02 06 02 -

Conference and meeting costs Non diff. NO NO NO NO

1 Diff. = Differentiated appropriations / Non-diff. = Non-differentiated appropriations. 2 EFTA: European Free Trade Association. 3 Candidate countries and, where applicable, potential candidates from the Western Balkans.

EN 11 EN

3.2. Estimated financial impact of the proposal on appropriations1

3.2.1. Summary of estimated impact on operational appropriations

–  The proposal/initiative does not require the use of operational appropriations

–  The proposal/initiative requires the use of operational appropriations, as explained below

3.2.1.1. Appropriations from voted budget

EUR million (to three decimal places)

Heading of multiannual financial framework 2 Competitiveness, Prosperity and Security

DGs: CLIMA, DEFIS Year Year Year Year Year Year Year

TOTAL MFF 2028-2034 2028 2029 2030 2031 2032 2033 2034

Operational appropriations

Budget line (ECF CT window) Commitments (1a) 0 0 0 0 0 0 0 0

Payments (2a) 0 0 0 0 0 0 0 0

Budget line Commitments (1b) 0

Payments (2b) 0

Appropriations of an administrative nature financed from the envelope of specific programmes2

Budget line (3) 0

TOTAL appropriations Commitments =1a+1b+3 0 0 0 0 0 0 0 0

1 These redeployment efforts – while fully respecting the stable staffing principle – will likely require deprioritisation of tasks within the Commission services. The

Commission will revisit the needs and the scope for redeployment within the indicated number of staff, following an agreement on the next MFF. 2 Technical and/or administrative assistance and expenditure in support of the implementation of EU programmes and/or actions (former ‘BA’ lines), indirect research, direct research.

EN 12 EN

for DG CLIMA, DEFIS Payments =2a+2b+3 0 0 0 0 0 0 0 0

Resources will be needed to support various implementation tasks related to the legislative provisions that will be managed by the Commission

(notably DG CLIMA and DEFIS, implementation includes at least FISMA, JRC). The procured activities include support contracts for the

implementation of the Regulation, development of guidance documents and tools for implementing the regulation by the Commission and

Member States, supporting resilience technologies and catastrophe risk insurability, and impact assessment support contracts. This includes

administrative arrangement(s) with JRC, in particular for support to the EUCRA and for monitoring and indicators. Notably, it does not include

the costing for the contributions from the Copernicus Climate Change services or Destination Earth.

EEA and EIOPA Year Year Year Year Year Year Year TOTAL

2028 - 2034 2028 2029 2030 2031 2032 2033 2034

Successor budget line of 03.10.03 - EU

Budget contribution to the EEA 0 0 0 0 0 0 0 0

Successor budget line of 03.10.03 - EU

Budget contribution to EIOPA 0 0 0 0 0 0 0 0

total 0 0 0 0 0 0 0 0

Resources will be needed to support various implementation tasks related to the legislative provisions that will be managed by the EEA, notably

preparation of the EUCRA, development and maintenance of existing and new tools and support to Member States. Resources will be needed for

ad hoc financing solutions for the Climate-ADAPT digital platform, the EUCRA and local and regional support under the 2021-2027 MFF.

Resources will be needed to bring functions relating to EUCRA into the EEA that, in the current SLA, are externalised to contractors. Fee-

financing has been considered, in particular for support provided to Member States, however in our assessment, this would create a de facto

situation where many Member States would not have access to such support. It is in the Union’s interest that all Member States manage their

climate risks.

EIOPA will need to establish and manage the Observatory for Catastrophe Risk Insurability, a specific and new deliverable that will require

dedicated resources not available under its current allocations for the fulfilment of established mandates.

EN 13 EN

Year Year Year Year Year Year Year TOTAL

MFF 2028-

2034 2028 2029 2030 2031 2032 2033 2034

TOTAL

operational

appropriations

(including

contribution to

decentralised

agency)

Commitments (4) 0 0 0 0 0 0 0 0

Payments (5) 0 0 0 0 0 0 0 0

TOTAL appropriations of an

administrative nature financed from

the envelope for specific

programmes

(6) 0 0 0 0 0 0 0 0

TOTAL

appropriations

under

HEADING 2

Commitments =4+6 0 0 0 0 0 0 0 0

of the

multiannual

financial

framework

Payments =5+6 0 0 0 0 0 0 0 0

Year Year Year Year Year Year Year TOTAL MFF

2028-2034 2028 2029 2030 2031 2032 2033 2034

• TOTAL

operational

appropriations

(all operational

headings)

Commitments (4) 0 0 0 0 0 0 0 0

Payments (5) 0 0 0 0 0 0 0 0

• TOTAL appropriations of an

administrative nature financed (6) 0 0 0 0 0 0 0 0

EN 14 EN

from the envelope for specific

programmes (all operational

headings)

TOTAL

appropriations

Under

Heading 1 to 3

Commitments =4+6 0 0 0 0 0 0 0 0

of the multiannual

financial

framework Payments =5+6 0 0 0 0 0 0 0 0

(Reference

amount)

Heading of multiannual financial

framework 4 Administration

DG: CLIMA Year Year Year Year Year Year Year TOTAL

MFF

2028-

2034 2028 2029 2030 2031 2032 2033 2034

 Human resources 0 0 0 0 0 0 0 0

 Other administrative expenditure 0 0 0 0 0 0 0 0

TOTAL

DG

CLIMA 0 0 0 0 0 0 0 0

TOTAL appropriations

under HEADING 4 of

the multiannual financial

framework

(Total commitments = Total payments) 0 0 0 0 0 0 0 0

EN 15 EN

EUR million (to three decimal places)

For justifications, please see the explanation after tables in section 3.2.4.1.

Year Year Year Year Year Year Year TOTAL

MFF 2028-

2034 2028 2029 2030 2031 2032 2033 2034

TOTAL

appropriations

under

HEADINGS

1-4

Commitments =4+6 0 0 0 0 0 0 0 0

of the

multiannual

financial

framework

Payments =5+6 0 0 0 0 0 0 0 0

3.2.2. Estimated output funded from operational appropriations (not to be completed for decentralised agencies)

Commitment appropriations in EUR million (to three decimal places)

Indicate

objectives and

outputs



Year 2028

Year 2029

Year 2030

Year 2031

Enter as many years as necessary to show the

duration of the impact (see Section1.6) TOTAL

OUTPUTS

Type3

Avera

ge

cost

N o

Cost N o

Cost N o

Cost N o

Cost N o

Cost N o

Cost N o

Cost Total

No

Total

cost

SPECIFIC OBJECTIVE No 14…

3 Outputs are products and services to be supplied (e.g. number of student exchanges financed, number of km of roads built, etc.). 4 As described in Section 1.3.2. ‘Specific objective(s)’

EN 16 EN

- Output

- Output

- Output

Subtotal for specific objective No 1

TOTALS

EN 17 EN

3.2.3. Summary of estimated impact on administrative appropriations

–  The proposal/initiative does not require the use of appropriations of an administrative nature

–  The proposal/initiative requires the use of appropriations of an administrative nature, as explained below

3.2.3.1. Appropriations from voted budget

VOTED APPROPRIATIONS Year Year Year Year Year Year Year TOTAL 2028

- 2034 2028 2029 2030 2031 2032 2033 2034

HEADING 4

Human resources 0 0 0 0 0 0 0 0

Other administrative expenditure 0 0 0 0 0 0 0 0

Subtotal HEADING 4 0 0 0 0 0 0 0 0

Outside HEADING 4

Human resources 0 0 0 0 0 0 0 0

Other expenditure of an administrative nature 0 0 0 0 0 0 0 0

Subtotal outside HEADING 4 0 0 0 0 0 0 0 0

TOTAL 0 0 0 0 0 0 0 0

The appropriations required for human resources and other expenditure of an administrative nature will be met by appropriations from the DG that are already

assigned to management of the action and/or have been redeployed within the DG, together, if necessary, with any additional allocation which may be granted to the

managing DG under the annual allocation procedure and in the light of budgetary constraints.

3.2.4. Estimated requirements of human resources1

–  The proposal/initiative does not require the use of human resources

–  The proposal/initiative requires the use of human resources, as explained below

1 These redeployment efforts – while fully respecting the stable staffing principle – will likely require deprioritisation of tasks within the Commission services. The

Commission will revisit the needs and the scope for redeployment within the indicated number of staff, following an agreement on the next MFF.

EN 18 EN

3.2.4.1. Financed from voted budget

Estimate to be expressed in full-time equivalent units (FTEs)

VOTED APPROPRIATIONS Year Year Year Year Year Year Year

2028 2029 2030 2031 2032 2033 2034

 Establishment plan posts (officials and temporary staff)

20 01 02 01 (Headquarters and Commission’s

Representation Offices) 21 21 21 21 21 21 21

20 01 02 03 (EU Delegations) 0 0 0 0 0 0 0

(Indirect research) 0 0 0 0 0 0 0

(Direct research) 0 0 0 0 0 0 0

Other budget lines (specify) 0 0 0 0 0 0 0

• External staff (in FTEs)

20 02 01 (AC, END from the ‘global envelope’) 2 2 2 2 2 2 2

20 02 03 (AC, AL, END and JPD in the EU Delegations) 0 0 0 0 0 0 0

Admin. Support line • at Headquarters 0 0 0 0 0 0 0

[XX.01.YY.YY] • in EU Delegations 0 0 0 0 0 0 0

(AC, END - Indirect research) 0 0 0 0 0 0 0

(AC, END - Direct research) 0 0 0 0 0 0 0

Other budget lines (specify) - Heading 4 0 0 0 0 0 0 0

Other budget lines (specify) - Outside Heading 4 0 0 0 0 0 0 0

TOTAL 23 23 23 23 23 23 23

EN 19 EN

To ensure successful delivery and proper implementation of this proposal, an additional redeployment of Commission staffing will be required to meet the

full need.

DG CLIMA needs a total of 23 FTEs to ensure the implementation of the proposal in full. This will ensure adequate management and coordination of

Commission internal implementation, development of tools and guidance documents, support to Member States and monitoring of progress. In line with

the stable staffing principle, the human resources required for this proposal will be covered by internal redeployment within the Commission. At this stage,

of the 23 FTE posts needed, DG CLIMA is in the position to repurpose 13 available permanent posts in the concerned unit.

The staff required to implement the proposal (in FTEs):

To be covered by

current staff

available in the

Commission

services

Exceptional additional staff*

To be financed

under Heading 4

or Research

To be financed

from BA line

To be financed

from fees

Establishment

plan posts

23 in CLIMA

N/A

External staff

(CA, SNEs, INT)

Description of tasks to be carried out by:

Officials, temporary and external

staff

The tasks carried out pertain to the management and coordination of Commisison

internal implementation, development of tools, support to Member States and

monitoring.

In CLIMA, 3 FTE are needed to ensure policy alignment and support for the uptake of

the climate risk assessments across the Commission policy areas; 6 FTE would offer

EN 20 EN

support SG in ensuring policy coherence; 3 FTE would be needed to oversee and

direct the development of the tools that support the implementation of the initiative; 8

FTEs would be needed to ensure coordination with Member States and development of

relevant guidance documents; and 3 FTEs would ensure development of indicators,

monitoring and evaluation.

This number also reflects the fact that climate resilience is of direct relevance to all

policy areas and therefore requires a minimum capacity within DG CLIMA to engage

with the policy risk owners in other DGs.

3.2.5. Overview of estimated impact on digital technology-related investments

The initiative does not entail dedicated digital investment, and the development of any digital outputs is intrinsically tied and part of the

package that is predominantly related to the content development under the initiative; therefore, it is represented as part of the operational

expenditure.

TOTAL Digital and IT

appropriations

Year Year Year Year Year Year Year TOTAL MFF

2028 - 2034

2028 2029 2030 2031 2032 2033 2034

HEADING 4

IT expenditure (corporate) 0 0 0 0 0 0 0 0

Subtotal HEADING 4 0 0 0 0 0 0 0 0

Outside HEADING 4

Policy IT expenditure on operational programmes

0 0 0 0 0 0 0 0

Subtotal outside HEADING 4 0 0 0 0 0 0 0 0

EN 21 EN

TOTAL 0 0 0 0 0 0 0 0

3.2.6. Compatibility with the current multiannual financial framework

The proposal/initiative:

–  can be fully financed through redeployment within the relevant heading of the multiannual financial framework (MFF)

The estimated impact on expenditure and staffing for 2028 and beyond is added for illustrative purposes only and does not pre-judge the next

multiannual financial framework. The source of financing and scope of Union financial commitment in the post-2027 period remain subject to

the outcome of interinstitutional negotiations on the MFF 2028-2034 and thereafter shall be determined through the annual budgetary

procedure. All appropriations and staffing allocations as of 2028 are indicative.

–  requires use of the unallocated margin under the relevant heading of the MFF and/or use of the special instruments as defined in the

MFF Regulation

–  requires a revision of the MFF

3.2.7. Third-party contributions

The proposal/initiative:

–  does not provide for co-financing by third parties

–  provides for the co-financing by third parties estimated below:

Appropriations in EUR million (to three decimal places)

Year Year Year Year Year Year Year

Total 2028 2029 2030 2031 2032 2033 2034

EN 22 EN

Specify the co-financing

body

TOTAL appropriations

co-financed

3.2.8. Estimated human resources and the use of appropriations required in the European Environment Agency2

The amount of appropriations to be allocated to the agency in the next MFF is indicative and subject to the agreement on the MFF. It should be

integrated into the Agency’s subsidy due to the permanent nature of the tasks allocated by this proposal and will be compensated, if relevant, by an

equivalent reduction of a relevant programme envelope under the same MFF heading. If a compensatory reduction is needed, the resources allocated to

the Agency may also need to be revised through the annual budgetary procedure.

Staff requirements (full-time equivalent units)

Agency: EEA Year

2028

Year

2029

Year

2030

Year

2031

Year

2032

Year

2033

Year

2034

Temporary agents

(AD Grades) 12 12 12 12 12 12 12

Temporary agents

(AST grades)

Temporary agents

(AD+AST) subtotal 12 121212121212

Contract agents 2 2 2 2 2 2 2

2 These redeployment efforts – while fully respecting the stable staffing principle – will likely require deprioritisation of tasks within the European Environment Agency. The

Commission will revisit the needs and scope for redeployment within the indicated number of staff, following an agreement on the next MFF.

EN 23 EN

Seconded national experts

Contract agents and

seconded national experts

subtotal

2 222222

TOTAL staff 14 14 14 14 14 14 14

Appropriations covered by the EU budget contribution in EUR million (to three decimal places)

Agency: EEA Year 2028 Year 2029 Year 2030 Year 2031 Year 2032 Year 2033 Year 2034 TOTAL

2028 - 2034

Title 1: Staff expenditure 0 0 0 0 0 0 0 0

Title 2: Infrastructure and

operating expenditure 0 0 0 0 0 0 0 0

Title 3: Operational expenditure 0 0 0 0 0 0 0 0

TOTAL of appropriations

covered by the EU budget 0 0 0 0 0 0 0 0

Overview/summary of human resources and appropriations (in EUR million) required by the proposal/initiative in a decentralised agency

Agency: EEA Year 2028 Year 2029 Year 2030 Year 2031 Year 2032 Year 2033 Year 2034 TOTAL

2028 - 2034

Temporary agents (AD+AST) 12 12 12 12 12 12 12 12

EN 24 EN

Contract agents 2 2 2 2 2 2 2 2

Seconded National Experts 0 0 0 0 0 0 0 0

Total Staff 14 14 14 14 14 14 14 14

Appropriations covered by the EU

Budget 0 0 0 0 0 0 0 0

Appropriations covered by fees 0 0 0 0 0 0 0 0

Appropriations co-financed (if

applicable) 0 0 0 0 0 0 0 0

Total appropriations 0 0 0 0 0 0 0 0

The EEA will repurpose the existing 11 posts from within agency staff. It will need 12 additional permanent posts and 2 additional contract agent posts

to ensure the implementation of the proposal in full, notably with regards to development of the EUCRA, tools and knowledge development,

monitoring and support to Member States. For the posts that are currently financed through SLAs and other temporary contractual arrangements with

the Commission, the financing should be offset from the relevant programme managed by the relevant Commission services.

3.2.9. Estimated human resources and the use of appropriations required in the EIOPA

The amount of appropriations to be allocated to the agency in the next MFF is indicative and subject to the agreement on the MFF. It should be

integrated into the Agency’s subsidy due to the permanent nature of the tasks allocated by this proposal and will be compensated, if relevant, by an

equivalent reduction of a relevant programme envelope under the same MFF heading. If a compensatory reduction is needed, the resources allocated to

the Agency may also need to be revised through the annual budgetary procedure.

Staff requirements (full-time equivalent units)

EN 25 EN

Agency: EIOPA Year

2028

Year

2029

Year

2030

Year

2031

Year

2032

Year

2033

Year

2034

Temporary agents

(AD Grades) 3 3 3 3 3 3 3

Temporary agents

(AST grades)

Temporary agents

(AD+AST) subtotal

Contract agents

Seconded national

experts

Contract agents and

seconded national

experts subtotal

TOTAL staff 3 3 3 3 3 3 3

Appropriations covered by the EU budget contribution in EUR million (to three decimal places)

Agency: EIOPA Year 2028 Year 2029 Year 2030 Year 2031 Year 2032 Year 2033 Year 2034 TOTAL

2028 - 2034

EN 26 EN

Title 1: Staff expenditure 0 0 0 0 0 0 0 0

Title 2: Infrastructure and

operating expenditure 0 0 0 0 0 0 0 0

Title 3: Operational expenditure 0 0 0 0 0 0 0 0

TOTAL of appropriations

covered by the EU budget 0 0 0 0 0 0 0 0

Overview/summary of human resources and appropriations (in EUR million) required by the proposal/initiative in a decentralised agency

Agency: EEA Year 2028 Year 2029 Year 2030 Year 2031 Year 2032 Year 2033 Year 2034 TOTAL

2028 - 2034

Temporary agents (AD+AST) 3 3 3 3 3 3 3 3

Contract agents 0 0 0 0 0 0 0 0

Seconded National Experts 0 0 0 0 0 0 0 0

Total Staff 3 3 3 3 3 3 3 3

Appropriations covered by the

EU Budget 0 0 0 0 0 0 0 0

Appropriations covered by fees 0 0 0 0 0 0 0 0

Appropriations co-financed (if

applicable) 0 0 0 0 0 0 0 0

Total appropriations 0 0 0 0 0 0 0 0

EN 27 EN

EIOPA will need three additional posts to establish and manage the Observatory for Catastrophe Risk Insurability. The financing should be offset from

the relevant programme managed by the relevant Commission services.

3.3. Estimated impact on revenue

–  The proposal/initiative has no financial impact on revenue.

–  The proposal/initiative has the following financial impact:

–  on own resources

–  on other revenue

–  please indicate, if the revenue is assigned to expenditure lines

EUR million (to three decimal places)

Budget revenue line:

Appropriations available

for the current financial

year

Impact of the proposal/initiative3

Year 2028 Year 2029 Year 2030 Year 2031 Year 2032 Year 2033 Year 2034

Article ………….

For assigned revenue, specify the budget expenditure line(s) affected.

Other remarks (e.g. method/formula used for calculating the impact on revenue or any other information).

3 In the case of traditional own resources (customs duties, sugar levies), the amounts indicated must be net amounts, i.e. gross amounts after deduction of 10 % for collection

costs, as proposed in COM(2025)574.

EN 28 EN

4. DIGITAL DIMENSIONS

4.1. Requirements of digital relevance

Reference to the

requirement of digital

relevance

Requirement description

Actors affected or

concerned by the

requirement

High-level Processes Categories

Requirement 1: Article 5(1) Article 5(1) requires the

European Environment

Agency to carry out a

European climate risk

assessment at Union-level

European Environment

Agency

The conducting of a

European climate risk

assessment requires the

collection and analysis of

climate resilience data

from Member States

(1) data

Requirement 2: Article 5(2) Article 5(2) requires

Member States to carry out

national climate risk

assessments

Member States The conducting of a

national climate risk

assessment requires the

collection and analysis of

climate resilience data

from Member States

(1) data

Requirement 3: Article 5(4) Article 5(4) requires

Member States and the

European Environment

Agency to publish the

climate risk assessments

Member States, the

European Environment

Agency and the general

public

Requires the publication

of climate risk

assessments

(1) data

Requirement 4: Article 7(5)Article 7(5) requires

Member States to make the

national strategic plan on

climate resilience available

Member States and the

general public

Requires the publication

of national strategic plans

on climate resilience

(1) data

EN 29 EN

to the public

Requirement 5: Article 9 Article 9 requires the

Commission to ensure the

availability of an online

platform on climate

resilience knowledge to

facilitate the

implementation of this

Regulation and to provide

access to information on

climate resilience and

climate risks

Commission, Member

States and the general

public

The making available of

an online platform

(1) data (2) digital public

services

Requirement 6: Article 11Article 11 requires the

EEA to assist the

Commission with climate

resilience data, compiling

information of Member

States national climate

resilience and adaptation

measures and support for

the online platform on

measures and support for

the online platform on

climate resilience

knowledge

EEA, Commission Requires the EEA to assist

Commission

(1) data

Requirement 7: Article 14

Article 14 requires the

Commission to submit a

report to Parliament &

Council on operation of

Commission, the

European Parliament, the

Council

Requires the submission

of progress report of

progress towards the

climate resilience

(1) data

EN 30 EN

this Regulation objective, including for

the policy areas

4.2. Data

The European climate risk assessment is based on climate and environmental data, and socio-economic data. In line with the objectives of European

data strategy as it supports the re-use of data, the EUCRA will be based on the authoritative data from various European sources such as Copernicus

services, Destination Earth and the JRC Risk data hub, and the sources available and maintained by the research institutions. Stakeholders will be

receiving the data directly from original sources or aggregated data from the existing data platforms managed by the EEA and the European

Commission. The data for EUCRA will be integrated into Climate-ADAPT and since Climate-ADAPT is the European Union website serving all

governance levels in Europe (from EU to local), the digital services cover multi-level governance of climate risk and resilience, and adaptation.

Alignment with the European Data Strategy

The proposal is aligned with the European Data Strategy as it will improve comparability and accessibility of relevant data across EU and Member

States.

Alignment with the once-only principle

The proposal follows the once-only principle, notably by using a single existing and simplified reporting channel for Member States.

Explanation of how newly created data are findable, accessible, interoperable and reusable, and meets high-quality standards

New data will be accessible through relevant platforms, that will be developed with usability and interoperability as core considerations. Data will be

subject to quality checks.

Data Flows Table 1

Type of Data Reference to the requirements Standard and/or specification (if applicable)

European climate risk assessment Article 5(1) The contents set out in Annex II, Annex III

National climate risk assessment Article 5(2) The contents set out in Annex II, Annex III

EN 31 EN

Publication of risk assessments Article 5(4) The contents set out in Annex II, Annex III

National strategic plan on climate resilience Article 7(2) The contents set out in Annex III, IV

Establishment of online platform on climate

resilience knowledge

Article 9 n/a

Assistance with compilation and analysis of

information from Member States on climate

resilience policies and measures

Article 11 n/a

Commission report to Parliament & Council

on operation of this Regulation

Article 15 n/a

Data Flows Table 2

Type of Data Reference to

legislation

Actors who

provide the

data

Actors who

receive the

data

Trigger for

data exchange

Frequency of data exchange

European climate risk

assessment

5(1), 5(4),

Annex II,

Annex III

Member

States

EEA deadline of 30

June 2028

Reviewed every 5 years thereafter

National climate risk assessment 5(2), 5(4),

Annex II,

Annex III

Member

States

Member

States deadline of 30

June 2029

Reviewed every 5 years thereafter

EN 32 EN

Climate risk assessment

(published/publicly available)

Article 5(4) EEA /

Member

States

general

public

After their

finalisation

Union strategic plan on climate

resilience

Articles 6(1),

6(2), 6(3),

Annex III,

Annex IV

Commission Adopted by

deadline of 30

September 2028

30 September 2033 evaluated and updated

every 5 years thereafter

National strategic plan on

climate resilience

Articles 7(1) to

7(6), Annex

III, Annex IV

Member

States

Adopted by

deadline of 31

December 2030

Evaluated and updated every 5 years

Online platform Article 9 Commission

Compilation and analysis of

information from Member

States on climate resilience

policies and measures

Article 11 Member

States

EEA

Commission report to

Parliament & Council on

operation of this Regulation

Article 15 Commission European

Parliament &

Council

Deadline of 30

September 2033

Reporting under Governance

Regulation 2018/1999

Article 14(4) Member

States

Commission Deadline of

March 2029

Every two years thereafter

EN 33 EN

4.3. Digital solutions

4.4. Interoperability assessment

The online platform on climate resilience knowledge (Article 9) will build on existing Union digital infrastructures and services, in particular

Climate-ADAPT, the Copernicus services, the JRC Risk Data Hub and Destination Earth, as well as other relevant sources

Digital public service or

category of digital public

services

DescriptionReference(s) to

the

requirement

Interoperable

Europe Solution (s)

Other interoperability

solution(s)

Online platform Establishment of online platform on

climate resilience knowledge

Article 9 The tools published

on the online

platform should be

interoperable

among themselves

Assess the impact of the requirement(s) on cross-border interoperability

Assessment Measure(s) Potential remaining barriers

Online platform

The online platform will

provide access to tools. These

tools published on the online

platform should be

interoperable among

themselves

EN 34 EN

4.5. Measures to support digital implementation

Description of the measure Reference to the

requirement(s)

Commission

role (if

applicable)

Actors to be

involved (if

applicable)

Expected timeline (if

applicable)

Digital implementation is a core part of development of

the support tools, and specific additional needs support

will be identified in the relevant process

EN EN

EUROPEAN COMMISSION

Brussels, 27.10.2026 COM(2026) 720 final

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN

PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL

COMMITTEE AND THE COMMITTEE OF THE REGIONS

A RESILIENT EUROPE FOR A CHANGING CLIMATE

Communication on the EU Framework for Climate Resilience

1

A RESILIENT EUROPE FOR A CHANGING CLIMATE

Communication on

the EU Framework for Climate Resilience

1 Climate resilience: rising to the challenge to protect people, security and

prosperity

The EU can, must and will stay the course on its target of becoming climate neutral by 2050, leading

international efforts to reduce greenhouse gas emissions and ensuring decarbonisation supports its

competitiveness and resilience. However, we are falling short of what is needed to limit the damaging

effects of climate change on people, prosperity and security.

The summer of 2026 should be considered a ‘summer of truth‘. Almost no part of our continent was

spared from damaging climate extremes, although the impacts varied depending on regional exposure

and vulnerability. In 2026, wildfires have ravaged about 700,000 hectares of land and destroyed 12

million tonnes of crops so far. Major European rivers – the Danube, the Rhine and the Garonne – fell

to critically low levels with impacts on mobility and energy security. While these were the hottest

summer months ever recorded, they will probably be the coolest of the years to come and we need to

be ready for what lies ahead. The EU must become much better prepared for all climate impacts.

Building climate resilience is a strategic investment in Europe’s competitiveness, prosperity, economic

and military security, and in the safety, health and well-being of all of its people.

Keeping global warming to well below 2°C above pre-industrial levels and pursuing efforts to limit the

temperature increase to 1.5°C remains a cornerstone of the Paris Agreement. However, scientists now

consider that exceeding 1.5°C at least temporarily is unavoidable1. Under current global policy

commitments, global warming is projected to reach around 2°C above pre-industrial levels by 2050 and

around 3°C by the end of the century2. Every fraction of a degree has increasing impacts on our health,

security and prosperity. Europe is warming at around twice the global average rate and is already

experiencing significantly different climate conditions compared with a decade ago. This trend is set to

continue. Policies must anticipate future climate change, stay ahead of its impacts, and fight

disinformation about it.

To be ready for the coming years, Europe has to step up significantly its emergency preparedness

and response, to save lives, protect communities and maintain vital societal functions during severe

crises. During the 2026 State of the Union Address3, the President of the Commission announced that

the Commission will act fast and with determination, including by presenting soon a European

Heatwave Plan, a Climate Insurance Alliance, a new European Water initiative, by launching the

PreparEU Advisory Group on disaster preparedness, and by identifying 100 of the most

vulnerable European territories.

These new initiatives will reinforce and complement the extensive work already underway across

Europe to tackle the extreme weather events fuelled by climate change. Whenever disasters strike and

national capabilities are overwhelmed, countries can request support from the Union Civil Protection

Mechanism (UCPM), which coordinates operational emergency response. The Mechanism also plays

1 https://www.unep.org/resources/limiting-overshoot-navigating-exceedance. 2 SWD(2026) 731, Annex 12. 3 https://commission.europa.eu/strategy-and-policy/state-union_en.

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a key role in disaster preparedness by bringing together civil protection authorities, firefighting

resources and personnel, analysts, scientific experts and much more to strengthen anticipation,

preparedness and coordinate response to disasters. By aligning operational rescue efforts with the

European Preparedness Union Strategy4, the EU ensures that immediate crisis management is

anchored in an all-hazard, whole-of-society and whole-of-government approach, contributing to a more

resilient Europe.

As extreme events become more frequent, severe, simultaneous and costly, the pressure on emergency

services, critical infrastructure, reconstruction funding and public budgets is increasing. To reduce costs

and limit disruption of lives and livelihoods, it is crucial to prevent avoidable risks and damage before

disasters strike.

The economic case for action is compelling. Material losses from weather- and climate-related events

are rising sharply, and heatwaves and other climate extremes are damaging productivity and could

structurally undermine economic growth in the EU. Across the EU, annual economic losses from

climate extremes in the past four years stood at around EUR 50 billion, up from EUR 8.6 billion in the

1980-1989 period. Output losses caused by climate change go far beyond. For instance, Europe’s 2026

heatwaves carry an estimated annual output cost of EUR 113 billion across 30 countries, a substantial

economic burden from one climate hazard alone5. Agriculture is one of the sectors recording very high

climate-related losses. The average annual loss in the EU is estimated at around EUR 28.3 billion, with

only 20-30% of those losses insured 6. Drought is the main driver of losses in this sector, for example

in 2026 losses could reach as high as EUR 90 billion. The investment needs for climate resilience and

adaptation - estimated to be around EUR 70 billion per year - can usually generate returns of 2 to 10

times their value in avoided damages and losses, and in some cases even higher7. Investment in climate

resilience allows to avoid losses because of climate-related business disruptions, lower productivity,

costs of repair or write-offs and stranded assets.

At the same time, demand for climate adaptation and resilience solutions, technologies and products is

growing fast, creating a huge market opportunity for European industry, in Europe and world-wide.

The social and territorial case for strengthening climate resilience is equally pertinent. Preliminary

figures indicate that more than 35,000 people died from heat-related causes during the major heatwaves

of summer 2026 across European countries that reported data8. The impacts of climate change affect

people in vulnerable situations, regions and communities disproportionately, increasing regional

inequalities9. It is thus important to tackle this uneven distribution of climate risks and help ensure that

all people, regions and communities benefit equally and fairly from climate resilience measures.

Many Europeans are deeply concerned about risks from climate change and its effects on their lives.

However, many do not feel sufficiently prepared, and expect stronger action10. Most people believe that

better preparedness for climate impacts will improve their daily lives and look to public authorities to

play a leading role. Public services and businesses also need a predictable framework and effective

public support, including financial and technical, for managing climate risks.

4 JOIN(2025) 130 final. 5 https://www.allianz-trade.com/en_global/news-insights/economic-insights/Allianz-Climate-Economics-Report-

2026.html. 6 https://www.fi-compass.eu/library/market-analysis/insurance-and-risk-management-tools-agriculture-eu. 7 https://data.europa.eu/doi/10.2834/2895769, https://www.wri.org/research/climate-adaptation-investment-case. 8 Austria, Belgium, Spain, France, Germany, Netherlands, Portugal. 9 COM(2024) 149 final. 10 Special Eurobarometer Report 565.

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The EU is not starting from scratch. It has built knowledge, tools and experience with its Adaptation

Strategy11, European Climate Law12, Governance Regulation13, research and innovation, including at

the local and regional level, and some sectoral legislation and action taken by its Member States. But

there are limitations. Recent climate extremes have shown that some of the current policies and actions

for climate preparedness remain patchy and are too often reactive rather than anticipatory. To rise to

these challenges, both short-term preparedness action and a more systematic anticipatory approach that

manages foreseeable risks in the long term are needed, connecting efforts at local, regional, national

and European levels.

No Member State can build climate resilience alone. Many climate risks are shared. They cross

administrative, sectoral and national borders, and fragmented approaches create cross-border risks,

coordination gaps, and unnecessary and avoidable costs. An EU Framework for Climate Resilience

will enable stronger and more consistent joint action, while giving Member States, regions and local

authorities the space for determining the measures that are best suited to their circumstances.

Finally, climate risks are deeply interconnected not just across Europe but also worldwide. No

region is immune. Growing vulnerabilities outside Europe affect the EU and vice versa. This has

potential repercussions on security, trade, migration, health and the environment. These risks also need

to be identified, anticipated and managed at global level, in collaboration with our international partners.

Climate resilience is already a key component of the EU’s external action, bilateral and regional

cooperation, and engagement in multilateral agreements, including the UN Framework Convention on

Climate Change Conference. However, greater efforts are essential not only for protecting lives and

development in partner countries, especially the most fragile ones, but also for preserving global

stability, preventing future crises, and safeguarding the EU’s long-term security and prosperity.

2 The EU Framework for Climate Resilience: making change systemic

To tackle the systemic challenges and meet the expectations of people, businesses, Member States,

regions and local governments, the Commission is putting in place the EU Framework for Climate

Resilience. A core element of it, the proposed European Climate Resilience Law14, is designed to

ensure that the EU and Member States act together and manage their climate risks in concert. It aims to

make policy and action for climate preparedness and resilience simpler, clearer, easier to

understand and implement through the following core elements:

• Reference global warming trajectory. Current evidence shows that the world is on a plausible

path to warm above pre-industrial levels by 1.5°C by 2030, 2°C by 2050, and 3°C by 210015.

When making decisions about policies, assets and investments, the reference global warming

trajectory should be the baseline assumption, with more detailed risk assessments and tolerance

determining their choices.

• Identification of policy risk owners. Governmentsneed to be clear and transparent about which

actor is responsible for management of climate risks in each policy and across all levels of

governance and all relevant policy areas.

11 COM(2021) 82. 12 Regulation (EU) 2021/1119. 13 Regulation (EU) 2018/1999. 14 COM(2026) 730. 15 https://climate-advisory-board.europa.eu/reports-and-publications/strengthening-resilience-to-climate-change-

recommendations-for-an-effective-eu-adaptation-policy-framework.

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• Improved and more regular climate risk assessments to ensure thatMember States’

assessments and the European Climate Risk Assessment would be comparable, synchronised and

coherent.

• Encouragement to take into account the reference global warming trajectory, national climate

risk assessments referred to in Article 5(2), and other relevant risk assessments when exercising

public functions, in particular budgeting, spatial planning and impact assessments.

• A single strategic plan for climate resilience by Member States. The four planning instruments

required today16 are replaced by a single national strategic plan on climate resilience. It would

encompass all above-mentioned elements and also those of the other four instruments. There

would also be a Union-level strategic plan for climate resilience, which would be a more action-

oriented successor of the existing EU Adaptation Strategy.

• Simpler and more effective monitoring and progress tracking at Member State and Union

level, to assess the outcome of climate resilience actions and help improve them.

With all these elements, the framework would drive several shifts: from planning based on past

climate conditions to planning for projected future climate conditions; from diffuse responsibility to a

clear identification of risk owners; from reacting after damage has occurred to anticipating and

proactively managing foreseeable risks; and from seeing climate adaptation as a short-term cost to

perceiving it as an investment made to avoid higher costs and losses in the long-term. In addition, the

framework would mobilise investment, foster innovation, and create commercial opportunities and new

markets for climate resilience products and services. The implementation of the law should also take

into account the specificities of security and defence activities.

The framework would also encourage targeted support for people in vulnerable situations, regions and

communities disproportionately impacted by climate risks with a view to promoting the principle of

just climate resilience. TheCommission intends to integrate this into the implementation of the

framework, the European Semester, and the national and Union strategic plans on climate resilience,

including through a common methodology for assessing distributional impacts and preparedness in

social protection systems.

The Commission will start implementing the approach set out in the proposed law as of today. It

intends to

• systematically consider climate resilience and the reference global warming trajectory in relevant

policy proposals, initiatives and proposals to revise existing sector legislation, taking into account

their specificities;

• where appropriate, apply the trajectory and consider climate resilience as early as possible in

relevant planning work, impact assessments, spending programmes, and investment decisions, to

avoid locking in avoidable vulnerability to projected future climate conditions;

• deliver the Union strategic plan on climate resiliencein the third quarter of 2028 to ensure early

and decisive action at EU level.

The Commission will use the European Semester to carry out assessments of Member States’

progress every two years. The European Climate Law’s five-yearly assessments on EU level progress

would remain valid, continuing to inform the global stocktakes under the Paris Agreement.

16 National adaptation strategies and plans under the European Climate Law, and the adaptation-related elements

required of the National Energy and Climate Plans and Long-Term Strategies under the Governance Regulation.

5

Finally, the Commission also intends to support Member States through the provision of guidance on

the requirements for drawing up climate risk assessments and for preparing national strategic plans, and

taking into account the reference global warming trajectory and risk assessments in public functions.

Figure 1: The EU Framework for Climate Resilience – overview

3 Awareness and action: empowering authorities, businesses and the

public to drive change

The proposed European Climate Resilience Law is accompanied by enabling measures designed to

support implementation by

• providing online tools for risk awareness and solutions that build resilience;

• supporting local and regional action;

• empowering European businesses to innovate and prosper;

• improving access to finance and affordable insurance.

3.1 Online tools for climate resilience knowledge: building risk awareness and enabling

solutions

Many policymakers, businesses and individuals lack access to user-friendly and reliable online tools

that provide trustworthy and actionable information and support decision-making on climate resilience

and adaptation.

The Commission is launching the European Climate Viewer17. Drawing on climate data and

projections of the Copernicus Climate Change Services (C3S), it provides an accessible and user-

friendly way of viewing current and plausible future climate conditions. It converts the reference global

warming trajectory into localised and decision relevant information on projected climate hazards. It

17 https://european-climate-viewer.climate.copernicus.eu.

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enables users to explore the projected consequences of a range of future climate scenarios: for example,

what a 2ºC warmer world in 2050 could mean for the frequency and intensity of health-threatening

heatwaves and their knock-on effects on water shortages in various countries, regions and

municipalities. Over time, the European Climate Viewer will expand from hazard information to more

comprehensive climate risk information, including exposure, vulnerability and the effects of resilience

measures to mitigate risks. It will benefit, amongst others, from Destination Earth impact sector

modelling and the JRC Risk Data Hub information, to help local authorities better understanding risks

and prepare.

The Commission has also created a new Navigator of Climate Resilience Tools18 to help people,

businesses and public authorities identify and use the tools most relevant to their needs. Furthermore,

the new Solutions Explorer of the EU Mission on Adaptation to Climate Change19 showcases measures

already implemented. It explains how the measures have been resourced, what benefits they bring, and

how they can be replicated in regions, cities and policy sectors, thereby supporting wider uptake. The

Commission will make this tool more widely available to other interested parties to continue collecting

best practices.

Together with other components, these tools will be part of a broader European online platform for

climate resilience. This will be a new central online space for resilience support services and solutions.

It will help implement the framework and will gradually upgrade and eventually replace the Climate-

ADAPT20 website. The move from Climate-ADAPT will preserve access to useful content and

established services. The platform and its components will evolve with scientific evidence, datasets and

the reference trajectory.

To complement the work on the reference global warming trajectory and the European Climate

Viewer, the Commission also intends to set up an Earth System Tipping Point Observatory.Thiswill

help Member States and the EU to better understand and mitigate the risks and challenges linked to

climate and ecosystem tipping points. In addition, the Commissionaims to accelerate updates of the

relevant scientific evidence; the translation of global into high resolution European projections for the

coming decades; improvements in pan-European datasets to implement the trajectory at national,

regional and local levels; and the identification of extreme weather events and other abrupt changes and

early warnings about them. The Commission also encourages the effective use of existing services, such

as the Copernicus Emergency Management Service and the Copernicus Climate Change Service, to

avoid duplication and ensure coherence.

3.2 Supporting local and regional action

Cities and urban areas, where around 75% of the EU population lives, are on the frontline of climate

impacts. They are already adapting public spaces to extreme heat, strengthening flood protection,

restoring ecosystems and protecting vulnerable citizens. The Commission Communication on an EU

Agenda for Cities21 stresses the importance of place-based measures for better EU preparedness and

resilience. It also emphasises the need to consider social inclusion and the needs of disadvantaged

groups, and to promote nature-based solutions (NBS) notably when tackling heatwaves and water

resilience challenges. Similarly, territories such as islands or the outermost regions need to have a

tailored policy response, given their particular exposure and vulnerability to the impacts of climate

change22,23.

18 https://climate-adapt.eea.europa.eu/en/navigator. 19 https://mission-adaptation-portal.ec.europa.eu/mission-solutions-explorer_en. 20 https://climate-adapt.eea.europa.eu. 21 COM(2025) 739 final. 22 COM(2026) 660 final. 23 COM(2026) 520 final.

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The Commission will also identify 100 of the most vulnerable European territories (geographical

areas with a high propensity to be adversely affected by climate change) and assess the risks and at

which level they should be managed. This will support a ‘whole of society approach’- all the way down

to local level, where climate adaptation matters most.

The EU Mission on Adaptation to Climate Change24 puts EU research and innovation into practice

and helps develop, test and deploy climate resilience solutions in local and regional settings through

pilot projects, funding, advisory services, peer learning and twinning. It rolls out a diverse set of

instruments, combining funding, advisory support and facilitation. Measures are tailored to local needs

to strengthen ownership and support wider uptake. The Climate City Capital Hub, funded together

with the EU Mission on Climate-Neutral and Smart Cities, connects local authorities with public,

private and philanthropic investors.

National Adaptation Hubs set up single entry points for coordinated action to meet the Mission’s

objectives, connecting national, regional and local authorities. They provide an opportunity to

consolidate and scale up tested, operational and ready-to-deploy governance systems and promote

multilevel dialogue. They can facilitate financing and investment planning, which could include

measures under the national and regional partnership plans, if deemed appropriate by the responsible

authorities. This will help avoid creating entirely new structures ahead of the start of the EU’s next long-

term budget in 2028.

The New European Bauhaus (NEB) is helping drive resilient regeneration in neighbourhoods and

cities by promoting scalable, replicable and affordable solutions. Through various tools, it supports

learning, skills and innovation to deliver more inclusive, circular and sustainable housing and built

environments. The NEB also advances nature-based, bio-based and other innovative building solutions

that strengthen climate resilience and improve urban ecosystems, in cooperation with the relevant EU

Missions.

Finally, within six months of the adoption of the European Climate Resilience Law, the Commission

will put forward an Implementation Plan.This plan will identify appropriate support for the Law’s

objectives and its effective implementation, including at local and regional level. This will be done

within the existing budgetary framework and future initiatives.

3.3 Empowering European businesses to innovate and prosper

Products, technologies and services that boost climate resilience are creating new markets and export

opportunities for EU companies, with the global market estimated to reach around EUR 3.5 trillion by

205025. The EU should seize this opportunity and become a global market and technology leader

for climate resilience solutions. Through international engagement and partnerships and building on

the successes of the Global Gateway26, European businesses can tap into investment capacity and

technological expertise to accelerate the roll-out of innovative resilience solutions.

EU-funded research and innovation is already making a direct contribution to advancing knowledge,

supporting the emerging market, and developing innovative solutions and technologies for public

authorities, businesses, and citizens: the latest European research and innovation funding programmes

(Horizon 2020 and Horizon Europe) have contributed so far with over 225 projects on climate

adaptation totalling an EU financial contribution of EUR 1.6 billion.

To scale up a European resilience industry and make it more competitive, climate resilience

solutions need to enter the market faster. Demand is set to increase, partly due to the proposal for the

24 https://mission-adaptation-portal.ec.europa.eu. 25 https://www.gic.com.sg/thinkspace/sustainability/sizing-the-climate-adaptation-opportunity. 26 https://commission.europa.eu/topics/international-partnerships/global-gateway_en.

8

revised public procurement regulation of September 2026, which explicitly sets climate resilience as a

quality criterion that public buyers should use27. Public procurement accounts for around 14% of EU

GDP.

The Social Climate Fund (SCF) will provide up to EUR 86.7 billion to support vulnerable groups in

the clean transition, including measures and investments in technologies that increase climate resilience.

For this purpose, the Commission will explore actions with Member States and the EU industry to create

synergies across Social Climate Plans and promote common frameworks that can improve affordability

and foster economies of scale, for example social leasing programmes for heat pumps.

The Commission will explore also making climate resilience technologies and services one of the

themes of the Industrial Forum. In addition, it will explore convening in the course of 2027 research

organisations, industry, regulators, user groups and other stakeholders in a dedicated Climate

Resilience Industry and Innovation Dialogue to work on a common strategy to develop, deploy and

scale up climate resilience technologies, products and services in Europe. The National Adaptation

Hubs could contribute to this dialogue by highlighting innovation needs and opportunities.

The Commission also intends to carry out a pilot, the Climate Resilience Technologies Mapping, to

identify emerging technologies, markets and competitiveness trends. This exercise will feed into the

Observatory of Emerging Technologies once it is set up.

The newly adopted Horizon Europe bridging action ‘Bringing innovative climate preparedness

and resilience solutions closer to the market‘28 will support European businesses through dedicated

assistance for business development, innovation acceleration, preparation for market deployment, and

market-ready pilots.The European Innovation Council Accelerator Challenge ‘Deep Tech for

Climate Adaptation’ scales up deep tech solutions developed by SMEs and start-ups, including NBS

and engineering approaches supported by AI29. Horizon Europe will also foster longer-term

competitiveness in climate resilience solutions by supporting research and innovation leading to novel

technologies and services of the future, including, where appropriate, through European

Partnerships as a vehicle to contribute to the climate resilience objective.

Finally, the Commission will cooperate with European standardisation organisations to include climate

risks in relevant standards, as well as to develop timely, market-relevant European standards for

climate resilience technologies, products and services, including common methods for testing,

performance assessment and interoperability. The Commission will also foster international

standardisation efforts in this area.

3.4 Finance and insurance

3.4.1 Financing Europe’s climate resilience

Adapting Europe’s infrastructure, built environment, ecosystems and economy to future climatic

conditions is expected to require investment of around EUR 70 billion per year30.

In the 2026 European Semester, 16 Member States received country-specific recommendations on

climate resilience or on reducing the climate protection gap. As per the Commission proposal, the

National and Regional Partnership Plans shall address all or a significant subset of challenges identified

in these country specific recommendations. This will result in stronger links among climate risks,

economic and social policies and investment priorities.

27 COM(2026) 590. 28 Call ID: HORIZON-BRIDGING-2027-04-03: Commission Implementing Decision amending C(2025)8493. 29 Deep Tech for Climate Adaptation - European Innovation Council. 30 https://data.europa.eu/doi/10.2834/2895769.

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Mobilising business investment in climate resilience can also be supported through targeted tax

incentives.The Commission intends to map the existing incentives, regularly track Member States’ use

of them and identify the most effective approaches. Building on the approach developed under the Clean

Industrial Deal, this could include tax credits and accelerated depreciation, up to immediate

expensing, for investments that strengthen climate resilience and resilience-critical infrastructure.

With the expected entry into force of the revised General Block Exemption Regulation in early

202731, the Commission envisages to further facilitate granting State aid by public authorities to

companies investing in climate resilience, building on the existing possibilities under State aid rules.

Under the Commission’s proposal, the EU’s 2028-2034 Multiannual Financial Framework (MFF)

willsupport climate preparedness and resilience, with climate adaptation investments contributing to

the climate and environment spending target of at least 35% of overall spending. Climate resilience

will, where appropriate, be supported under the NRPPs, Horizon Europe, the LIFE Programme, the

European Competitiveness Fund, and other funds and programmes, including those supporting the EU’s

external action. Many climate-vulnerable investments have been subject to climate-proofing under

the previous and current MFFs, protecting them against climate-related risks. According to the

Commission’s MFF proposal, the Commission will publish guidance on the application of the ‘Do

No Significant Harm’ (DNSH) principle during the MFF period 2028 to 2034. Such guidance will

clarify, as appropriate, how to consider climate change adaptation for relevant investments supported

under the MFF that are at high potential risk stemming from climate related hazards for which no

climate risk assessment is already required by applicable EU legislation, and in line with the

Commission proposal for a Performance Regulation32. This includes the requirement for the guidance

to be based on the overarching principles of clarity, simplification and proportionality and to take into

account burden on authorities and beneficiaries. Therefore, any clarification related to climate change

resilience for relevant investments would need to be targeted, clearly defined in scope and

proportionate.

Public finance should have a catalytic effect on mobilising private capital for climate resilience building.

The revised delegated acts of the EU Sustainable Finance Taxonomy will make resilience investments

easier to identify and finance. New tools developed by the European Investment Bank (EIB) will

support the screening of assets and investments for climate risks, greater uptake of the adaptation criteria

under the Taxonomy, and better access to adaptation finance. These tools include the forthcoming open-

access Climate Hazard Screening and Exploring Tool (ClimateSET), which draws on CS3 data, and

the EIB Group Green Checker with new adaptation modules.

Climate risks should be adequately reflected in asset valuations and financial accounts. The

Commission will work with relevant European and international bodies to better integrate material

physical climate risks into valuation and accounting practices. This will ensure that investment

decisions and balance sheets better reflect climate-related risks and the value of resilience measures.

The Commission will continue to support corporates in integrating climate risks into their transition and

climate resilience plans through guidance and other practical assistance.

The European Central Bank (ECB) has been progressively accounting for climate and nature-related

risks in monetary policy operations and prudential supervision of euro-area banks. This has

strengthened the ability to better factor in the impact of climate transition and physical risks on monetary

policy and how banks manage these risks. Moreover, the ECB monitors closely the impact of climate

change and extreme weather on the macro-economy and inflation.

31 Draft Commission Regulation replacing Regulation (EU) No 651/2014. 32 COM/2025/545 final. Timing and content of the finalized guidance pending on the conclusion and outcome of

the legislative procedure on the MFF 2028-34 package.

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The proposed EU and national strategic plans on climate resilience - which will eventually consolidate

and replace the current ones - as well as current national adaptation strategies and plans would provide

a common basis for identifying priorities, guiding long-term investment, and drawing up investable

climate resilience projects. Member States should involve local and regional authorities, in full respect

of their constitutional and administrative arrangements, in drafting the plans to foster a multilevel

governance needed for building effective resilience. The Commission will also improve access to

climate resilience projects and recognised adaptation options through the online platform described in

section 3.1, to help connect project promoters, solution providers and investors and accelerate the

deployment and uptake of proven solutions.

The EIB Group will complement the framework through its next Climate Adaptation Plan and its

Climate Bank Roadmap Phase 2 implementation and apply the resilience-by-design principle. At

least EUR 30 billion in financing will be allocated to climate adaptation between 2026 and 2030,

supporting climate-resilient investments and climate resilience technologies and solutions, in Europe

and globally. It will also strengthen financing and advisory support for the benefit of those most exposed

to climate risks, and seek to expand blended finance, guarantees and risk-sharing instruments to improve

private financing. A pilot project under the EU Mission on Adaptation to Climate Change will test how

EU grants can be combined with intermediated EIB lending, to learn lessons on scaling up blending

approaches. In cooperation with the Commission, the EIB Group will also combine advisory support

and financing through its Climate Adaptation Investment Advisory Platform (ADAPT), Green Gateway,

and JASPERS advisory programme.

3.4.2 Narrowing the climate insurance protection gap

Insurance can strengthen Europe’s capacity to manage climate risks by reducing losses for households,

businesses and public authorities after disasters. It can also ease pressure on public finances, thereby

freeing resources for preventive measures.

The climate insurance protection gap must therefore be reduced. Historically, only around 25% of

natural catastrophe losses in the EU have been insured33. The Commission will set up a Climate

Insurance Alliance, which will bring together insurers, reinsurers, insurance intermediaries, insurance

takers, risk modelling experts, investors, the European Insurance and Occupational Pensions Authority

(EIOPA) and public authorities. By the end 2027, the Alliance will look at and deliver a first set of

specific and actionable measures that aim to

• increase insurance uptake: supporting demand through adequate solutions, including measures to

increase risk awareness, transparency on insurance policies (for examples, by presenting natural

catastrophe exclusions and deductibles in pre-contractual information in a simpler and more visual

way), facilitating quick payouts (for instance through parametric insurance), and promoting

availability, affordability and adequacy of insurance products;

• incentivise risk prevention: identifying and promoting insurance instruments that incentivise

prevention (including through group insurance, build-back better policies and impact underwriting),

assessing data availability and sharing to support better risk modelling; and

• assure adequate insurance capacity: assessing the insurance capacity available to cover natural

catastrophe risks, including through reinsurance and natural catastrophe bonds.

It will also explore solutions to reduce the insurance protection gap for natural catastrophes, by fostering

the role and uptake of private insurance and exploring for this purpose possible public-private

33 EIOPA and ECB data and analyses.

11

partnerships at national, regional or European levels, in line with risk management and adaptation

measures.

Moreover, the Commission will work with EIOPA and the insurance sector to further develop EIOPA’s

PROTECT tool, which provides property owners with accessible information on climate risks and

preventive measures. EIOPA will also set up an Observatory for Catastrophe Risk Insurability. This

will help provide the data and metrics required to explain the drivers of the existing protection gap,

monitor its evolution and help implement the measures set out in this framework.

4 Embedding climate resilience across all policies

Climate resilience by design needs to become standard practice in all EU policies, and the EU

framework proposes the common core elements and principles needed for that purpose. Putting them

into practice will require substantial commitments and efforts across many policy areas. This chapter

presents a selection of relevant new and impactful Commission initiatives and EU policies.

The backbone to overall EU preparedness is the European Preparedness Union Strategy, that follows

an all-hazard approach. It will encompass non-binding minimum preparedness requirements to help

national administrations build up civil preparedness by 2030, including for climate hazards. The

forthcoming Comprehensive EU Risk and Threats Assessment will inform these requirements as well

as other initiatives related to crisis preparedness.

At the same time, the specificities of security and defence activities must be duly recognised. Climate

risk assessment and strategic planning requirements should not interfere with time-critical activities

directly related to national security and defence where their application could affect defence readiness,

military preparedness or operational requirements.

Union space capabilities are strategic enablers of climate resilience. Copernicus, including C3S34,

supports monitoring, projections and risk assessment; Galileo35 and EGNOS36 positioning, navigation

and timing services support monitoring and emergency response; and GOVSATCOM37 and IRIS² 38

secure connectivity capabilities support crisis communications and service continuity, in line with their

mandates and deployment status. Space data, services and applications support adaptation solutions,

innovation and competitiveness. Space infrastructure, associated industrial facilities and supply chains

also require resilience measures, particularly the ground segment. Disruption can cascade into

communications, transport, financial systems and crisis response.

Risks and hazards to major infrastructure across EU and Member States are primarily managed through

the Critical Entities Resilience Directive39. Member States are expected to consider structural

resilience to future climatic conditions when implementing it.

Responding to the urgent need for strengthening EU preparedness for the impacts of heatwaves,

especially for people in situations of vulnerability, the Commission will develop an integrated

European Heatwave Plan. The Plan will address these impacts through a cross-sectoral approach.

Complementing the European Heatwave Plan, the Commission envisages presenting a new EU Action

Plan for Energy-Efficient Cooling and Heating in 2027, which will help prioritise action in heat-

prone urban areas. In addition, the Commission will develop its European Climate and Health

Observatory further, turning it into an EU centre of excellence for assessing climate-related impacts

34 https://eu-space.europa.eu/earth-observation/copernicus. 35 https://eu-space.europa.eu/satellite-navigation/galileo 36 https://eu-space.europa.eu/satellite-navigation/egnos 37 https://eu-space.europa.eu/secure-connectivity/govsatcom 38 https://eu-space.europa.eu/secure-connectivity/iris2 39 Directive (EU) 2022/2557.

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on health through a One Health approach. The 2025 Union Prevention, Preparedness and Response

Plan for Health Crises, an action under the European Preparedness Union Strategy, is based on the

Regulation on serious cross-border health threats, which covers health threats, including those related

to climate. Moreover, informed by the Comprehensive Health Threat Prioritisation Assessment for

medical countermeasures40, and building on the EU Medical Countermeasures Strategy41, the

Commission also supports the development of medical countermeasures that tackle the threat of new

and emerging climate-sensitive infectious diseases. Finally, the Commission intends to launch a global

platform to strengthen alignment and cooperation between funders of research on climate change and

health.

The preparation of the upcoming Quality Jobs Act will consider, among other things, how workers can

be better protected against risks related to extreme weather conditions and high temperatures. Policy

measures could address these risks as part of the existing obligation to conduct a risk assessment, as set

out in the Occupational Safety and Health Framework Directive42. Alternatively, the minimum

requirements laid down in the Workplace Directive43 could be updated to better address heat- and

weather-related occupational safety and health risks, in a way that is proportionate to the employer’s

ability to act.

The EU Anti-Poverty Strategy44 underlines the importance of strengthening societal resilience in the

face of climate impacts, which have a disproportionate impact on people and households in vulnerable

situations, and ensure the sustainability of essential services and infrastructures.

Modernising energy infrastructure and securing its operation is as crucial for climate resilience as it is

for the EU’s energy and climate transition. Building on the existing requirement to consider climate

adaptation at an early stage in the planning of EU energy infrastructure projects, the proposal for the

revised Trans-European Networks for Energy (TEN-E) Regulation45 also provides that resilience-

related equipment for upgrading existing cross-border electricity infrastructure falls within the scope of

the TEN-E Regulation, with the possibility of applying for EU funding under the Connecting Europe

Facility. In addition, the proposed revision of the EU energy security architecture will incorporate

lessons learnt from recent crises and envisage using the reference global warming trajectory and

applying the climate-resilience-by-design principle.

Climate change affects every mode of transport. The climate proofing requirements of the Trans-

European Networks for Transport (TEN-T) Regulation alreadyincludeanticipatory climate risk

assessments and preventive management when developing TEN-T46. Based on an Implementing

Decision from July 202647, the Commission has started to draw on lifecycle-based methodological

standards to assess the environmental impacts and the climate resilience of transport infrastructure over

its decades-long life, across projects and Member States. It has also started developing tools to detect

structural deficiencies in rail and road bridges and tunnels on the TEN-T network.

The 2026 EU Ports Strategy48 invites stakeholders to develop climate resilience plans for ports. It also

advocates applying climate-proofing guidelines and the climate-resilience-by-design principle for

building, refurbishing or linking ports to wider logistics networks.

40 SWD(2026) 1 final. 41 COM/2025/529 final. 42 Directive 89/391/EEC. 43 Directive 89/654/EEC. 44 COM(2026)538 final. 45 COM/2025/1006 final. 46 Regulation (EU) 2024/1679; https://data.europa.eu/doi/10.2832/7839720. 47 C(2026) 5034 final. 48 COM(2026) 112 final.

13

The Commission intends to tackle the tourism sectors' exposure to climate change risks in its upcoming

EU Sustainable Tourism Strategy. Pressure on tourism destinations and businesses is increasing,

marked not only by shifts in travellers’ seasonal and geographic preferences, but also by new

opportunities, for example, in rural, northern, mountain and less visited destinations.

The Culture Compass for Europe49 highlights the need for crisis preparedness and risk management

plans to protect cultural heritage from climate-related extreme events.

The Energy Performance of Buildings Directive50 already requires Member States to consider climate

risks and take measures to prevent overheating and maintain adequate indoor environmental quality

under future climatic conditions. The Commission has published a methodological calculation

framework to help Member States to determine the best level of energy performance for buildings,

including the use of information derived from on climate projections51. This gives the construction

sector and private building owners greater certainty that building requirements will optimise

performance in line with the expected climate conditions. Also, the Council Recommendation on

fighting housing exclusion, including homelessness52 provides a framework for addressing the

disproportionate climate risk exposure faced by people living in poor-quality housing and people

experiencing homelessness.

Tackling climate related food supply risks, the next MFF, in particular the proposed Common

Agricultural Policy (CAP), are expected to strengthen resilience and climate risk management at farm,

landscape and food-system levels. This includes agri-environmental and climate measures, investment

support for farmers and food processors, and sectoral support. The proposed Farm Stewardship

Framework would require Member States to draw up protective practices for sensitive areas, soil and

water, which apply to all beneficiaries of CAP area and animal aid. In addition, future CAP national

recommendations would identify country-specific challenges and guide Member States on practices

that strengthen climate resilience53.

The Commission envisages improving the monitoring of climate hazards, promoting exchanges on

climate risks, and enhancing the resilience of coastal and marine areas, aquaculture and fisheries. In

view of this objective, the Commission envisages to present a proposal for an Ocean Act and proposal

for the revision of the Marine Strategy Framework Directive. This objectiveis linked to the

European Ocean Pact54, the EU ocean observation initiative OceanEye55, the upcoming Ocean and

Water Research and Innovation Strategy, the EU Mission ‘Restore our Ocean and Waters’, and the

European Digital Twin of the Ocean. The Commission has also encouraged authorities in coastal areas

to integrate climate risks into coastal management and spatial planning56.

High levels of biological diversity and ecosystem restorationare an essential way to minimise climate

impacts and strengthening resilience. The proposed European Climate Resilience Law would therefore

require Member States to promote nature-based solutions and ecosystem-based adaptation in their

strategic plans on climate resilience. In that regard, the Nature Restoration Regulation requires Member

States to take into account climate scenarios and resilience when restoring nature and ecosystems. The

Commission will ensure that such obligations are properly implemented57. The National restoration

plans are a key mechanism to translate these requirements into spatially explicit measures up to 2050.

49 COM(2025)785. 50 Directive (EU) 2024/1275. 51 Commission Delegated Regulation (EU) 2025/2273. 52 ST 14650/26. 53 COM(2025) 560 final. 54 COM/2025/281 final. 55 COM/2026/268 final. 56 COM(2026) 530 final. 57 Regulation (EU) 2024/1991.

14

Finally, the Commission will promote the use of the recently published Guidance on Natura 2000 and

Climate Change58and develop guidance on climate-resilient landscapes.

In the area of freshwater, coastal and marine management the Commission envisages to develop a new

European Water initiative with the aim ofbuilding upon and complementing the Water Resilience

Strategy59 (including its forthcoming Water Resilience Investment Accelerator and Digitalisation Action

Plan for the Water Sector) and the Ocean Pact, by prioritising action in areas like water efficiency, NBS

and natural water retention, reuse, drought and flood resilience. The Commission also intends to

encourage Member States to consider climate resilience in their river basin management plans, marine

programme of measures, and flood risk management plans. To this end, it will publish new guidance

on drought risk management and drought indicators before the end of 2026.

Robust, Union-wide consistent and comparable data and indicators are essential for evidence-based

policies, planning and implementation. To complement and reinforce relevant work of the EEA,

Eurostat, Member States and international organisations, and building on the European Statistical

System, the Commission intends to develop common indicators on climate-related economic losses

and deaths,in cooperation with national statistical authorities and relevant stakeholders.

In its international engagement, the EU must strengthen its strategic autonomy and resilience,

including through diversification, better risk preparedness, support for the global uptake of resilience

technologies, and more robust partnerships. External action instruments should promote the related

development cooperation, investment, humanitarian action, and peacebuilding in a mutually reinforcing

manner. The Commission and the European External Action Service will continue to pursue resilience

objectives embedded in bilateral and multilateral partnerships to promote joined-up strategies that

reduce the root causes of fragility, vulnerability and humanitarian needs and support prosperity, stability

and peace in third countries. In line with the Global Gateway strategy, these partnerships could be used

to share expertise with interested countries, connecting high-level risk assessment with market-ready

technological solutions and innovative financial de-risking tools.

At the international level, the Commission intends to convene a symposium to bring together

government representatives, infrastructure investors, asset managers, scientists, industry, and the

insurance sector to debate on global resilience to climate extremes. With global mitigation efforts still

falling short of what is required to stay within the temperature thresholds of the Paris Agreement, the

EU framework is also an opening for reflection on climate resilience as a common goal. In addition, the

EU will continue to include climate resilience objectives in new - or reinforce existing - bilateral

relationships with third countries, and cooperation with regional organisations, as well as with other

stakeholders, to work together towards global climate resilience and scaling up adaptation actions.

Improving climate resilience should thus also be a central part of the EU’s engagement with its

neighbourhood, where many of the most climate-vulnerable countries are also among the most fragile.

This includes the Arctic region, northern, eastern and south-east Europe, and countries in the

Mediterranean and the Black Sea basin. In this context, the Pact for Mediterranean addresses both the

economic aspects, in particular clean energy, water resilience and sustainable agriculture and

cooperation on disaster preparedness and risk management. The EU will also advance mutual resilience

with candidate countries, including by associating them in relevant EU preparedness and climate

resilience initiatives, through the enlargement process. Looking at the Arctic region specifically, the

new EU Arctic Strategy addresses climate risks and resilience, for instance by strengthening

knowledge about climate change and its impacts, developing of adaptation and resilience measures, and

testing new technological solutions.

58 C/2026/4597. 59 COM/2025/280 final.

15

5 Conclusion: a long-term blueprint with immediate effect - and a call for

global action

The EU Framework for Climate Resilience sets the basis for systematic and anticipatory climate risk

management across the EU by introducing the reference global warming trajectory, clarifying risk

ownership, incorporating climate resilience in planning and decision making, improving risk

assessments and strategic plans, strengthening investment, and providing enabling tools.

The framework also tackles the interconnected nature of climate risks across sectors, borders and

levels of government, promoting coordinated action to address shared dependencies, cascading impacts

and systemic risks. By strengthening resilience at home, the Union can demonstrate leadership and

provide inspiration, using its partnerships and cross-border cooperation, particularly with neighbouring

and accession countries.

The Commission, with the assistance of the European Environment Agency, will start

implementing the approach set out in the proposed law immediately. Building climate resilience is

a priority, because delay means that people, communities and economies are exposed to growing risks

and higher costs.

Climate resilience is systemic by nature. It should therefore be embedded across the EU’s wider

strategic agenda. While the EU continues on its path to climate neutrality and push for accelerated

reduction of emissions worldwide, we cannot avoid already locked-in climate change. We can however

choose to increase the level of preparedness for the change that is already there. Decisions on

infrastructure, investment, cities, energy, food systems and security taken now will determine Europe’s

capability to withstand adverse climate conditions for decades to come.

There will be no climate as usual. Therefore, climate resilience needs to become a defining feature

of Europe’s competitiveness, security and prosperity, and designed in from the start rather than dealt

with after disaster strikes.

EN EN

EUROPEAN COMMISSION

Brussels, 27.10.2026 COM(2026) 730 final

ANNEXES 1 to 5

ANNEXES

to the

Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE

COUNCIL

establishing a framework to enhance climate resilience and amending Regulation (EU)

2018/1999 (European Climate Resilience Law)

{SEC(2026) 730 final} - {SWD(2026) 730 final} - {SWD(2026) 731 final} - {SWD(2026) 732 final}

EN 1 EN

ANNEX I

REFERENCE GLOBAL WARMING TRAJECTORY

The values of the reference global warming trajectory referred to in Article 4 are defined as

increases in multi-decadal global average surface temperature of 1,5 °C by 2030, 2 °C by

2050 and 3 °C by the end of the 21st century, relative to pre-industrial levels (defined as the

average over the 1850–1900 period).

EN 2 EN

ANNEX II

CONTENT OF THE CLIMATE RISK ASSESSMENTS PURSUANT TO ARTICLE 5

1. Identification of major climate risks across at least a near, medium and long-term

timeframe, based on at least the following:

(a) relevant current and future climate hazards;

(b) several climate change scenarios, including the reference global warming

trajectory set out in Article 4;

(c) extremes, tail risks and tipping points;

(d) exposure and climate vulnerability of the systems affected;

(e) systemic climate risks, including transboundary, cascading and compounding

climate risks;

(f) the policy areas affected, including at least those of Union-wide relevance for

climate resilience set out in Annex III;

(g) description of how people in vulnerable situations and communities

disproportionately affected by climate risks have been taken into consideration;

(h) description of how regions and territories disproportionately affected by

climate risks have been taken into consideration;

(i) the climate risks identified and their severity.

2. Evaluation of the urgency of each identified major climate risk, based on an analysis

of the extent to which current and planned policy actions will be able to manage each

those risks, taking into account the policy horizon, readiness and policy risk

ownership.

3. Identification of options for policy action for each major climate risk identified,

based on:

(a) synergies with other relevant policies and processes;

(b) the effectiveness and efficiency of each option under the reference global

warming trajectory set out in Article 4 and under other climate projections,

including by stress testing of the options in more adverse climate projections;

(c) the level of residual risk for each option.

EN 3 EN

ANNEX III

LIST OF POLICY AREAS OF UNION-WIDE RELEVANCE FOR CLIMATE

RESILIENCE TO BE ADDRESSED IN CLIMATE RISK ASSESSMENTS UNDER

ARTICLE 5 AND STRATEGIC PLANS UNDER ARTICLES 6 AND 7

1. Spatial planning;

2. Critical energy systems;

3. Critical transport systems;

4. Critical communication systems;

5. Water security and critical water infrastructure systems;

6. Buildings;

7. Public health;

8. Food security;

9. Economic and social policies;

10. Budgetary policies;

11. Financial systems;

12. Crisis preparedness, response systems and solidarity mechanisms;

13. Ecosystems and ecosystem services and biodiversity.

EN 4 EN

ANNEX IV

CONTENT OF STRATEGIC PLANS ON CLIMATE RESILIENCE PURSUANT TO

ARTICLES 6 AND 7

SECTION 1

HORIZONTAL PLANNING

1. Horizontal priorities of the strategic plan;

2. Use of the reference global warming trajectory referred to in Article 4 and other

climate change scenarios;

3. Tolerability of the level of residual risks expected to remain after the implementation

of the plan;

4. Governance arrangements for the implementation of the strategic plan including,

with respect to national strategic plans, at national, regional and local level;

5. Governance arrangements, with respect to national strategic plans, at national,

regional and local level for embedding climate resilience considerations into

exercising public functions;

6. Public authorities responsible for addressing each major climate risk identified in the

national climate risk assessment referred to in Article 5(2);

7. Description of how people in vulnerable situations and communities

disproportionately impacted by climate risks have been taken into consideration;

8. Description of how regions and territories disproportionately impacted by climate

risks have been taken into consideration;

9. Assessment of consistency of the strategic plans with other Union strategies and

plans including those which are relevant to the policy areas of Union-wide relevance

for climate resilience listed in Annex III;

10. Assessment of consistency of the national strategic plans with the Union strategic

plans referred to in Article 6 and other relevant national strategies and plans,

including those which are relevant to the policy areas of Union-wide relevance for

climate resilience listed in Annex III and, where appropriate, the national strategic

plans of the neighbouring Member States referred to in Article 8;

11. Investment needs, indicative sources of financing and measures for the

implementation of the plan.

SECTION 2

POLICY AREA PLANNING

12. Climate resilience objectives and targets, where relevant, for each policy area of

Union-wide relevance for climate resilience listed in Annex III, including at least the

following for each objective and target:

(a) the timeframe for their achievement;

(b) progress monitoring indicators.

13. Based on the reference global warming trajectory referred to in Article 4, a

description of the measures to achieve the objectives and targets set out under point

EN 5 EN

11 and to address major climate risks identified, (i) with respect to the Union

strategic plans referred to in Article 6, in the European climate risk assessment

referred to in Article 5(1) and, (ii) with respect to national strategic plans referred to

in Article 7, in the national climate risk assessments referred to in Article 5(2),

setting out for each measure, the following:

(a) the competent authorities or other responsible entities;

(b) the timeframe for implementation;

(c) the tolerability of the level of residual risk expected to remain after the

implementation of the measures and description of how maladaptation is

avoided;

(d) their expected costs and benefits, including non-monetary benefits, their cost-

effectiveness and relevant fiscal and budgetary constraints, where appropriate

and proportionate.

14. An explanation of the set of measures selected under point 13, in view of the options

for policy action identified in,

(a) with respect to Union strategic plans referred to in Article 6, in the climate risk

assessment referred to in Article 5(1);

(b) with respect to national strategic plans referred to in Article 7, in the climate

risk assessments referred to in Article 5(2).

EN 6 EN

ANNEX V

UNION-LEVEL INDICATORS ON CLIMATE RESILIENCE

Indicator Unit of Measurement Frequency of

measurement

1. Loss of life attributable to

climate change in the Member

State

Number Annual

2. Economic losses attributable

to climate change,

disaggregated by Member State

and policy areas as feasible

EUR Annual

3. Share of uninsured climate-

related economic losses % Annual

4. Climate-related contingent

liabilities and fiscal costs in the

Member States*

EUR Annual and multiannual

* Published by Member States under the budgetary processes in accordance with Article 14(3) of the

Council Directive 2011/85/EU of 8 November 2011 on requirements for budgetary frameworks of the

Member States (OJ L 306 23.11.2011, p. 41).

    Resolutsiooni liik: Riigikantselei resolutsioon Viide: Kliimaministeerium /  / ; Riigikantselei /  / 2-5/26-02258

Resolutsiooni teema: Kliimakerksuse raamistik

Adressaat: Kliimaministeerium Ülesanne: Tulenevalt Riigikogu kodu- ja töökorra seaduse § 152` lg 1 p 2 ning Vabariigi Valitsuse reglemendi § 3 lg 4 palun valmistada ette Vabariigi Valitsuse seisukoha ja otsuse eelnõu järgneva algatuse kohta, kaasates seejuures olulisi huvigruppe ja osapooli:

- COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS A RESILIENT EUROPE FOR A CHANGING CLIMATE Communication on the EU Framework for Climate Resilience, COM(2026)720

- Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing a framework to enhance climate resilience and amending Regulation (EU) 2018/1999 (European Climate Resilience Law), COM(2026)730

EISi toimiku nr: 26-0528 Tähtaeg: 11.12.2026

Adressaat: Kaitseministeerium, Majandus- ja Kommunikatsiooniministeerium, Rahandusministeerium, Regionaal- ja Põllumajandusministeerium, Siseministeerium, Sotsiaalministeerium Ülesanne: Palun esitada oma sisend Kliimaministeeriumile seisukohtade kujundamiseks antud eelnõu kohta (eelnõude infosüsteemi (EIS) kaudu). Tähtaeg: 01.12.2026

Lisainfo: Eelnõusid on kavas arutada valitsuse 07.01.2027. aasta istungil ning Vabariigi Valitsuse reglemendi § 6 lg 6 kohaselt sellele eelneval nädalal (16.12.2026) EL koordinatsioonikogus. Esialgsed materjalid EL koordinatsioonikoguks palume esitada hiljemalt 11.12.2026.

Kinnitaja: Merli Vahar, Euroopa Liidu asjade direktori asetäitja Kinnitamise kuupäev: 12.11.2026 Resolutsiooni koostaja: Sandra Metste [email protected],  

.