Brussels, 17.12.2025

SWD(2025) 432 final

COMMISSION STAFF WORKING DOCUMENT

Updated Climate tracking and digital tagging of the Recovery and Resilience Plan of Spain

Accompanying the document

Proposal for a COUNCIL IMPLEMENTING DECISION

amending the Implementing Decision of 13 July 2021 on the approval of the assessment of the recovery and resilience plan for Spain

{COM(2025) 794 final}


Updated climate tracking and digital tagging of the Recovery and Resilience Plan of Spain

The table below presents the detailed application of the climate tracking and digital tagging methodologies set out respectively in Annexes VI and VII to Regulation (EU) 2021/241 in the modified Spanish recovery and resilience plan.

Int. Field = intervention field.

Coeff. = Coefficient for the calculation of support to climate change objectives and to digital transition, on the basis of Annex VI and Annex VII of the RRF Regulation.

New or revised measures are marked in blue to distinguish them from the unchanged measures in the RRP.

Measure/
Sub-Measure ID

Measure / Sub-Measure Name

Estimated costs
(EUR m)

Climate

Digital

Int. Field

Coeff. %

Int. Field

Coeff. %

C1.I1a

Low emission zones and transformation of urban and metropolitan transport (Autonomous Community actions): line of action 1

900

048

40%

C1.I1b.i

Development of low-emission zones and projects for the sustainable transformation of urban and metropolitan transport (municipal actions): Lines of action 2a and 2b (except for cycling infrastructure), and digitalisation (municipal actions) line of action 2d

1.190

048

40%

C1.I1b.ii

Development of low emission zones and sustainable transformation projects for urban and metropolitan transport (municipal actions): Lines of action 2a and 2b (cycling infrastructure), and fleet transformation to zero emissions vehicles and recharging points (municipalities) line of action 2c

310

077 1

100%

C1.I1d

Improvement actions in urban environments (crossings) on the State Road Network to promote the mobility of pedestrians and cyclists, and other new forms of mobility (scooters), with the aim at reducing vehicle speed, reducing both air emissions and noise pollution: line of action 4

105

048

40%

C1.I2

Scheme of incentives for the installation of recharging points, the purchase of electric and fuel cell vehicles and innovation in electro-mobility, recharging and renewable hydrogen

1.688

n/a 2

100%

C1.I3a

Investments in railway infrastructure

1.502

069bis

100%

C1.I3b

Digitalisation of security, information and access control systems at railway stations providing PSO services

119

070

40%

070

100%

C2.I1.a.i

Energy rehabilitation of buildings with on average primary energy savings of at least 30 %

856

025bis

100%

C2.I1b.i

Energy rehabilitation of buildings with on average primary energy savings of at least 30 %

887

025bis

100%

C2.I1b.ii

Existing building book/Rehabilitation projects to improve energy efficiency

37

025

40%

C2.I1c

Favourable environment to rehabilitation activity (tax incentives): line of action 3

700

025bis

100%

C2.I2

New programme to promote affordable housing, which are energy efficient (at least 20 % lower primary energy demand compared to the NZEB requirements)

1.920

025ter

40%

C2.I3

Energy Rehabilitation of Buildings Programme (PREE), aligned with energy efficiency criteria with on average primary energy savings of at least 30 %

207

025bis

100%

C2.I4

Energy transition programme and demographic challenge with on average primary energy savings of at least 30 %

506

025bis

100%

C2.I5a

Energy rehabilitation of public buildings with on average primary energy savings of at least 30 %

811

026bis

100%

C2.I7a

ICO Loan Facility for the Promotion of Social Housing (New buildings)

588

025ter

40%

C2.I7b

ICO Loan Facility for the Promotion of Social Housing (Building renovation)

163

025bis

100%

C3.I1

Plan for improving efficiency and sustainability in irrigation

621

040

40%

C3.I1a

Plan for improving efficiency and sustainability in irrigation. PERTE AGRO

150

040

40%

C3.I12

Plan for improving efficiency and sustainability in irrigation. PERTE AGRO- Loans

260

040

40%

C3.I3

Plan to promote the sustainability and competitiveness of agriculture and livestock farming (II): Strengthen capacity building and Biosecurity systems in Nurseries and livestock farms

20

027

100%

C3.I4

Plan to promote the sustainability and competitiveness of agriculture and livestock farming (III): Investments in precision agriculture, energy efficiency and circular economy and in the use of renewable energy and gases in the agriculture and livestock sector

307

047

40%

C3.I5a

Strategy for the digitalisation of the agrifood and forestry sector and the rural environment. Technology-based entrepreneurship line

30

010

100%

C3.I5b

Strategy for the digitalisation of the agrifood and forestry sector and the rural environment. Creating a Digital Innovation Hub for businesses in the agrifood sector

4

010

100%

C3.I5c

Strategy for the digitalisation of the agrifood and forestry sector and the rural environment. Establishment of an observatory for the digitalisation of the agricultural sector

1

010

100%

C3.I5d

Strategy for the Digitisation of the Agri-Food and Forestry Sector and the Rural Environment. Creation of a platform of AKIS advisors

3

010

100%

C3.I6a

Plan to boost the sustainability, research, innovation and digitalisation of the fisheries sector (I): Purchase of ICT for marine reservoirs (radiolink Faro de Alborán, night vision equipment and drones)

3

049

40%

011

100%

C3.I6b

Plan to boost the sustainability, research, innovation and digitalisation of the fisheries sector (I): Other actions k est

7

049

40%

C3.I7

Plan to boost the sustainability, research, innovation and digitalisation of the fisheries sector (II): Boosting fisheries and aquaculture research and supporting training to improve the monitoring of fish stocks

14

050

40%

021

40%

C3.I8

Plan to boost the sustainability, research, innovation and digitalisation of the fisheries sector (III): Technological development and innovation in the fisheries and aquaculture sector

11

023

40%

021

40%

C3.I9

Plan to boost the sustainability, research, innovation and digitalisation of the fisheries sector (IV): Digitalisation and use of ICTs in the fisheries sector

11

011

100%

C3.I10

Plan to boost the sustainability, research, innovation and digitalisation of the fisheries sector (V): Supporting the fight against illegal, unreported and unregulated fishing

44

050

40%

C4.I1a

Digitalisation of natural heritage knowledge

38

050

40%

011

100%

C4.I1b

Digitalisation of natural heritage knowledge: Other actions

77

050

40%

011

100%

C4.I2

Conservation of terrestrial marine biodiversity

376

050

40%

C4.I3a

Recovery of areas affected by mining with efficiency criteria

131

046bis

40%

C4.I3b

Other ecosystem restoration actions to protect nature and biodiversity, natural heritage and resources, and develop green and blue infrastructure

253

050

40%

C4.I4a

Sustainable forest management for the prevention and management of climate related risks: Fire extinguishing

170

036

100%

C4.I4b

Other actions of sustainable forest management

110

050

40%

C5.I1a

Materialisation of Purification, Sanitation and Reuse Actions for water collection and treatment compliant with energy efficiency criteria

128

041bis

40%

C5.I1b

Improving efficiency and reducing losses in water use

100

040

40%

C5.I1c

Investments to improve the safety of dams and reservoirs

67

040

40%

C5.I1d

Implementation of purification, sanitation, efficiency, savings, reuse and infrastructure safety (DSEAR). PERTE digitalising the water cycle.

200

041bis

40%

C5.I2a

Monitoring and restoration actions in river ecosystems

225

040

40%

C5.I2d

Monitoring and restoration of river ecosystems, aquifer restoration and flood risk mitigation. PERTE digitalising the water cycle.

174

040

40%

C5.I3a

Improving knowledge and use of water resources

225

040

40%

011

100%

C5.I3b

Action to monitor rainfall in river basins and coastlines 3

55

035

100%

011

100%

C5.I3c

Improving meteorological observation and monitoring and prevention of climate risks 4

100

035

100%

011

100%

C5.I3d

Digital transition in the water sector. PERTE digitalising the water cycle.

502

040

40%

011

100%

C5.I4

Adaptation of the current to climate change and implementation of Marine Strategies and Maritime Spatial Planning Plans

234

037

100%

C6.I1

National rail transport network: Rail investment on the core European Corridors

2.988

064

100%

C6.I2a

Construction and modernisation of new rail infrastructure (TEN-T comprehensive network)

1.010

065

100%

C6.I2b

Digitalisation of the State Road Network

35

063

100%

C6.I2c

Noise Reduction Action Plans on the State Road Network

302

048

40%

C6.I2f

Single European Sky: Digitalisation

107

084

100%

C6.I2g

Digital transformation of MITMA

50

011

100%

C6.I3a

Development of strategic intermodal and logistic terminals on TEN-T network

217

078

40%

C6.I3b

Inland access to Spanish ports and terminals (rail investments)

408

064

100%

C6.I3d

Improving the internal rail accessibility of ports

177

064

100%

C6.I4a

ERTMS on-board traffic management systems

12

071

40%

071

100%

C6.I4d

Construction, adaptation or upgrading of cargoes and intermodal rail-road terminals and their connections

75

079

40%

C6.I4e

Support to multimodal sustainable freight transport (rail and maritime) based on ECO-INCENTIVES to supply and demand

120

079

40%

C6.I4g

Actions to support the renewal or adaptation of railway tractor equipment with other material using alternative fuels such as hydrogen or electricity

64

072bis

100%

C6.I4i

Intelligent transport services for the road sector (ITS)

20

063

100%

C6.I4k

Actions supporting the renewal or upgrading of means and men for the expansion of sustainable road development with reduced carbon footprint and noise reduction

3

048

40%

C6.I4o

Projects for the digitalisation of passenger and freight transport services at regional and local level

115

010

100%

C7.R3

Development of energy communities contributing to the low carbon economy and to resilience to climate change

83

027

100%

C7.I1

Development of innovative renewables, integrated into buildings and production processes

1.847

029

100%

C7.I2

Sustainable energy on islands

499

029

100%

C8.I2

Digitalisation of distribution networks to align them with the energy transition

152

033

100%

033

40%

C9.I1

Renewable hydrogen: a country project

1.555

022

100%

C10.I1a

Environmental restoration plan for closed or abandoned mining sites and deteriorated land adjacent to thermal or nuclear power stations, compliant with efficiency criteria

150

046bis

40%

C10.I1b

Digital, social and environmental infrastructure plan in just transition territories

100

050

40%

C10.I1c

Projects of R&D&I in energy storage and energy efficiency

30

022

100%

C10.I1d

Plan to support the re-skilling and employability of workers and people affected by the energy transition

20

01

100%

C11.I1

Digital transformation and modernisation of the General State Administration

820

011

100%

C11.I2

Projects for the digitalisation of the General State Administration

1.205

011

100%

C11.I3

Digital transformation and modernisation of the Ministry of Territorial Policy and the Civil Service and the administration of the Autonomous Communities and the local authorities

809

011

100%

C11.I3a

Digital transformation and modernisation of the Ministry of Territorial Policy and the Civil Service, the National Health Service and the administrations of the Autonomous Communities and Local Authorities. PERTE Health

130

011

100%

C11.I4

Energy Transition Plan in the General State Administration with on average primary energy savings of at least 30 %

1.046

026bis

100%

C11.I5

Contribution to transformative projects for the digitalisation of strategic productive sectors

3

011

100%

C11.I6a

Cybersecurity programme (ciber)

944

021

quinquies

100%

C12.I1

Sectoral data spaces (contribution to transformative projects for the digitalisation of strategic productive sectors)

257

021 quarter

100%

C12.I2.a.i

Processes of research, technology transfer and innovation and for business-to-business cooperation with a focus on the low-carbon economy and climate change adaptation of the Spanish industrial sector

516

022

100%

C12.I2.a.ii

Processes of research, technology transfer and innovation and for cooperation between enterprises, with a focus on the circular economy and the Spanish industrial sector

1.727

023

40%

C12.I3

Plan to support the implementation of waste legislation and the promotion of the circular economy

850

042

40%

C12.I3

Plan to support the implementation of waste legislation and the promotion of the circular economy. Circular Economy PERTE

300

042

40%

C12.I4

PERTE CHIP. Strengthening the industry of the whole semiconductor value chain.

170

021 quarter

100%

C12.I5

Circular Economy Subsidy Scheme. PERTE Circular Economy

300

044

40%

C12.I6

Subsidy scheme to support strategic projects in the value chain for electric cars (grants)

515

047

40%

C12.I7

Support scheme to support strategic projects for Industrial Transition in the value chain for electric cars (loans)

48

027

100%

C13.I1

Support to entrepreneurship including digital transition action

220

100

0%

100

40%

C13.I3

Digitalisation and Innovation of SMEs

3.635

010

100%

C13.I6a

ICO-Green Line - I Sustainable transport

68

073

100%

C13.I6a

ICO-Green Line - II Energy efficiency and renewable energies

68

029

100%

C13.I6a

ICO-Green Line - III Networks, industrial decarbonisation and climate change mitigation and adaptation

68

022

100%

C13.I6a

ICO-Green Line - IV Circular Economy

48

042

40%

C13.I6a

ICO-Green Line - VI Water Management

48

039bis

40%

C13.I7

Technology startups fund: Next Tech

1.500

010

100%

C13.I12.b

ENISA Entrepreneurship and SME Fund - SMEs Natural Language Processing Projects PERTE NEL

6

010

100%

C13.I13a

Regional Resilience Fund (FRA). Contribution to climate transition

2.400

024ter

100%

C13.I14b

Equity injection into ICO

1.000

025ter

40%

C13.I14c

Equity injection into ICO

600

025bis

100%

C13.I15a

Equity injection into ICO a

1.360

025bis

100%

C13.I15e

Equity injection into ICO b

1.850

025ter

40%

C14.I1.a.i

Actions in the field of green and sustainable transition (100% coefficient) Adaptation to climate change of destination and its infrastructure: development of knowledge and development of plans in relation to climate change adaptation and risk prevention, including early warning, monitoring and assessment systems, promotion of investment for the prevention and management of specific risks on the territory

139

035

100%

C14.I1.a.ii

Actions in the field of green and sustainable transition (40% coefficient) Circular economy, management of natural resources, protection and enhancement of natural ecosystem.

139

050

40%

C14.I1b

Sustainable mobility and energy efficiency actions for tourism destinations

372

073

100%

C14.I1c

Actions in the field of the digital transition

186

011

100%

C14.I2

Digitisation and intelligence programme for destinations and tourism sector

290

010

100%

C14.I4b

Energy efficiency and circular economy in tourism enterprises

220

024

40%

C15.R1

Reforming the Telecoms Regulatory Framework: General Law, Regulatory Instruments and Implementation Instruments

8

011

100%

C15.R2 

Roadmap 5G: Spectrum management and assignment, deployment burden reduction, Cybersecurity Act 5G and Support to Local Authorities

110

054bis

100%

C15.I1 

Fostering territorial cohesion through network deployment: Ultra-fast broadband extension and mobility coverage of 30 Mbps

279

054bis

100%

C15.I2 

Reinforcing Connectivity in Reference Centres, Socio-Economic Drivers and Sectoral Digitalisation Tracking Projects

277

053

100%

C15.I3 

Connectivity vouchers for SMEs and vulnerable groups

10

012

100%

C15.I5 

Deployment of cross-border digital infrastructure

500

055

100%

C15.I6

Deployment of 5G networks, and 5G innovations

1.171

054bis

100%

C15.I7 

Cybersecurity: Strengthening the capacities of citizens, SMEs and professionals; Improving the sector’s cybersecurity ecosystem

467

054

quinquies

100%

C15.I8

Strengthening the scientific and technological ecosystem. Increased design capabilities. PERTE CHIP

571

021

quarter

100%

C15.I9

Increased capacities of the fabless and manufacturing industry. PERTE CHIP. Loans

920

021

quarter

100%

C16.R1b

National AI Strategy. PERTE CHIP

40

009bis

100%

C16.R1

National Artificial Intelligence Strategy, including R&I in AI and talent development

404

001

0%

009bis

100%

C16.I1

AI gigafactory or equivalent AI infrastructure and quantum technology initiatives

300

009bis

100%

C17.I2a

Strengthening the capacity, infrastructure and equipment of SECTI actors. PERTE CHIP

264

009bis

100%

C17.I3a

Private, interdisciplinary public R & D & I projects, Proof of concept and grant of aid following international competitive calls. Cutting-edge R & D addressing societal challenges. Public pre-commercial purchase. PERTE CHIP

90

009bis

100%

C17.I4a

New scientific career. Post-doctoral researcher consolidation programme. PERTE CHIP

10

009bis

100%

C17.I7

R&D + R & I actions linked to environmental protection, the fight against climate change, new energy sources and key technologies and materials for the energy transition

82

023

40%

C17.I8

R & D + R & I actions linked to sustainable automotive (PTAS)

40

024

40%

C18.I6

Creation of a “Data Lake” for the Health sector

70

095

100%

C19.I1

Transversal digital skills

507

108

100%

C19.I2

Digital Transformation of Education

1.412

108

100%

C19.I3

Digital skills for employment

960

108

100%

C19.I4

Digital Professionals

124

108

100%

C20.I1b

Reskilling and upskilling of the labour force linked to professional qualifications: Digital modular offer for employed persons associated with competence units of the National Catalogue of Professional Qualifications

92

108

100%

C20.I1d.i

Contribution reskilling and upskilling to green transition

158

01

100%

C20.I2

Digital transformation of vocational training

290

016

40%

C21.I5

Improvement of digital infrastructure, equipment, technologies, teaching and university assessment

147

108

100%

C22.I1b

E-Health services and applications: teleassistance for long-term care and support

240

013

100%

C22.I2b

Technological transformation of social services

216

011

100%

C22.I3b

Improving accessibility of AGE websites and mobile applications

12

020

40%

C22.I4b

Improving comprehensive improvement of control device services

26

011

100%

C23.I1b

JOVEN-TánDEM EMPLOYMENT Programme with allocation for green / digital skills

30

01

100%

108

100%

C23.I1c

Programme First professional experience in public administrations with allocation for green / digital skills

37

01

100%

108

100%

C23.I2b

Support line for women in rural and urban areas with allocation for green / digital skills

26

01

100%

108

100%

C23.I3b

Training for workers in ERTE with allocation for green / digital skills

67

01

100%

108

100%

C23.I4b

Entrepreneurship and micro-enterprises: New territorial projects addressing the demographic challenge and facilitating productive transformation, in particular towards a green and digital economy

55

047

40%

016

40%

C23.I5

Governance and support of active labour market policies

106

108

100% 5

C24.I1c

Strengthening the competitiveness of cultural industries / Competitiveness and professionalisation and support for cultural accelerators including boosting the transformation to digital culture and the incorporation of new technologies into cultural and creative industries

25

018

40%

C24.I1d

Strengthening the competitiveness of cultural industries supporting projects to digitise intellectual property rights management operators

15

010

100%

C24.I1e

Strengthening the competitiveness of cultural industries / Digitalisation of intellectual property management systems / Digital transformation of administrative units with intellectual property competence

1

011

100%

C24.I1f

Strengthening the competitiveness of cultural industries (promotion and digitisation of the book sector)

25

010

100%

C24.I2d

Promoting culture along territorials (purchase of licences for digital books)

13

021bis

40% 6

C24.I3c

Digitalisation of major cultural services: National Library of Spain

7

011

100%

C24.I3d

Digitalisation and boosting major cultural services: Plan for digital access to bibliographic heritage

3

011

100%

C24.I3e

Digitalisation and boosting major cultural services: Digitalisation, capacity building and interoperability of archiving systems

18

011

100%

C24.I3f

Digitalisation and boosting major cultural services: Measures to modernise public management tools and put in place an integrated system for digitisation and cataloguing of INAEM’s resources, assets, structures and infrastructure

11

011

100%

C25.I1a

Programme for the promotion, modernisation and digitisation of the audiovisual sector

152

021bis

100%

C25.I3a

Spain Audiovisual Hub Fund

280

021bis

100%

C26.I1

Digitisation of the sport sector

69

011

100%

C26.I2a

Modernisation of sport facilities to improve their energy performance according to energy efficiency criteria

34

026bis

100%

C26.I2b

Modernisation of high performance sport centres to improve their energy performance according to energy efficiency criteria

23

026bis

100%

C26.I3a

Modernisation of sports installations to improve energy efficiency according to energy efficiency criteria

16

026bis

100%

C28.I1b

Fiscal Reform Fund. Electrification of mobility

233

n/a 7

40%

C31.I1

Investment promoting self-consumption (based on renewable energy and behind-the-meter storage) and energy communities

501

029

100%

C31.I2

Scheme to support the production and uptake of renewable hydrogen

1.600

022

100%

C31.I3a

Subsidy scheme to support the value chain of RES and storage. Lines 1 (solar PV value chain), 2 (storage value chain) and 4 (other renewable value chains)

838

029

100%

C31.I3b

Subsidy scheme to support the value chain of RES and storage. Line 3 Adaptation of ports for the deployment of offshore renewable energy.

162

081bis

40%

C31.I4

Investment to support electricity network infrastructure

859

033

100%

C31.I5

Investment to support industrial decarbonisation (grants).

422

024

40%

C31.I6

Subsidy scheme for decarbonisation projects (grants).

509

024

40%

C31.I9

Scheme to support the Green Transition

2.191

029

100%

C32-I1.a

Railway infrastructure and services

96

069

40%

C32-I1.b

Electric vehicles

64

073

100%

C32-I2a

Forest restoration and hydrology

12

050

40%

C32-I2b

Weather forecast

31

037

100%

011

100%

C32-I2c

Restoration of hydrological infrastructure and riverbanks

196

040

40%

C32-I4

Preventing and combating natural disasters: new Spanish component of the Atlantic constellation (ESCA+)

325

037

100%

011

100%

Int. Field = intervention field

Coeff. % = Coefficient for the calculation of support to climate change objectives and to digital transition, on the basis of Annex VI and Annex VII to the RRF Regulation

(1)

This measure also includes investment in zero emission vehicles. For that part the ‘Methodology for climate tracking’ annexed to the Recovery and Resilience Facility Regulation does not set out intervention fields that would allow for climate or environmental tracking of electric vehicles or plug-in hybrid vehicles, except for vehicles for urban transport falling under intervention field 074. According to Article 18(4)(e) of the Regulation, the methodology should however ‘be used accordingly for measures that cannot be directly assigned to an intervention field listed in Annex VI’. In this context, the Commission has applied a 100% climate contribution coefficient for the zero-emission vehicles of all categories (this includes battery electric and fuel cell/hydrogen-powered vehicles) included in this measure. This measure also includes investments in cycling infrastructure (075) as well with a 100% climate coefficient.

(2)

The main part of this measure concerns incentive for the purchase of zero emission vehicles or for the development on innovative projects in zero emission vehicles/mobility The ‘Methodology for climate tracking’ annexed to the Recovery and Resilience Facility Regulation does not set out intervention fields that would allow for climate or environmental tracking of electric vehicles or plug-in hybrid vehicles, except for vehicles for urban transport falling under intervention field 074. According to Article 18(4)(e) of the Regulation, the methodology should however ‘be used accordingly for measures that cannot be directly assigned to an intervention field listed in Annex VI’. In this context, the Commission has applied a 100% climate contribution coefficient for the zero-emission vehicles of all categories (this includes battery electric and fuel cell/hydrogen-powered vehicles) included in this measure. This measure also includes investment in alternative fuel infrastructure (077) that would also have a 100% climate coefficient.

(3)

This is a digital investment that is also 100% contributing to the adaptation to climate change, and prevention and management of climate related risks. For this reason, the measure receives a 100% coefficient for both the climate change and digital objectives.

(4)

This is a digital investment that is also 100% contributing to the adaptation to climate change, and prevention and management of climate related risks. For this reason, the measure receives a 100% coefficient for both the climate change and digital objectives.

(5)

Clerical error corrected from SWD(2021) 147

(6)

A coefficient of 40% is applied because the measure is not fully dedicated to digital books but also includes paper books.

(7)

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