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)

(Text with EEA relevance)

{SEC(2026) 730 final}
{SWD(2026) 730 final}
{SWD(2026) 731 final}
{SWD(2026) 732 final}

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°C 2 , 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 assessment 4  and the 2024 communication on managing climate risks 5  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 review 6  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 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.

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 Parliament 7 , the Council of the EU 8 , the Committee of the Regions 9 , and the European Court of Auditors 10  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 Resilience 11  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 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 Council 12 (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 States 13 ; the EU Taxonomy Regulation 14 ; 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 Directive 15 ; the Risk-Preparedness Regulation 16 ; certain tools of the common agricultural policy; EU Nature Restoration Regulation 17 ; the Marine Strategy Framework Directive 18 ; the EU Occupational Safety and Health (OSH) Framework Directive 19 ; the Union’s environmental assessment instruments; the Water Framework Directive 20 ; the Floods Directive 21 , the Water Reuse Regulation 22 , the European Ocean Pact 23 ; the common fisheries policy 24 ; the LIFE programme and strategies such as the preparedness Union strategy; EU ports strategy 25 ; TEN-T Regulation 26 , EU medical countermeasures strategy 27 ; EU forest strategy 28 ; the integrated wildfire risk management strategy 29 ; the EU soil strategy 30 ; strategy for European life sciences 31 ; the European water resilience strategy 32 ; the New European Bauhaus 33 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 Regulation 34 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 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 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 material 35 . These 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 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 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 Union 36 .

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. 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.

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 Committee 37 ,

Having regard to the opinion of the Committee of the Regions 38 ,

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 Council 39  (‘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 Agreement 40 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 temperature 41 .

(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 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 Council 42 (’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 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 Council 43 , Directive 2007/60/EC of the European Parliament and of the Council 44 , Directive (EU) 2022/2557 of the European Parliament and of the Council 45 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, 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 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 Copernicus 46 , Galileo 47 , EGNOS 48 , GOVSATCOM 49  and IRIS² 50 , 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.

(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;

(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 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.

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 Council 51 and Directive 2011/92/EU of the European Parliament and of the Council 52 .

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 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:

(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 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

The European Environment Agency, established under Regulation (EC) No 401/2009 of the European Parliament and of the Council 53 , 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.

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 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;

(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

LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT

Contents

1.FRAMEWORK OF THE PROPOSAL/INITIATIVE

1.1.Title of the proposal/initiative

1.2.Policy area(s) concerned

1.3. Objective(s)

1.3.1.General objective(s)

1.3.2.Specific objective(s)

1.3.3.Expected result(s) and impact

1.3.4.Indicators of performance

1.4.The proposal/initiative relates to:

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

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.

1.5.3.Lessons learned from similar experiences in the past

1.5.4.Compatibility with the multiannual financial framework and possible synergies with other appropriate instruments

1.5.5.Assessment of the different available financing options, including scope for redeployment

1.7.Method(s) of budget implementation planned

2.MANAGEMENT MEASURES

2.1.Monitoring and reporting rules

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

2.2.2.Information concerning the risks identified and the internal control system(s) set up to mitigate them

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)

2.3.Measures to prevent fraud and irregularities

3.ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE

3.1.Heading(s) of the multiannual financial framework and expenditure budget line(s) affected

3.2.Estimated financial impact of the proposal on appropriations

3.2.1.Summary of estimated impact on operational appropriations

3.2.1.1.Appropriations from voted budget

3.2.2.Estimated output funded from operational appropriations (not to be completed for decentralised agencies)

3.2.3.Summary of estimated impact on administrative appropriations

3.2.3.1. Appropriations from voted budget

3.2.4.Estimated requirements of human resources

3.2.4.1.Financed from voted budget

3.2.5.Overview of estimated impact on digital technology-related investments

3.2.6.Compatibility with the current multiannual financial framework

3.2.7.Third-party contributions

3.2.8.Estimated human resources and the use of appropriations required in the European Environment Agency

3.2.9.Estimated human resources and the use of appropriations required in the EIOPA

3.3.Estimated impact on revenue

4.Digital dimensions

4.1.Requirements of digital relevance

4.2.Data

4.3.Digital solutions

4.4.Interoperability assessment

4.5.Measures to support digital implementation

1.FRAMEWORK OF THE PROPOSAL/INITIATIVE 

1.1.Title of the proposal/initiative

1.2.Policy area(s) concerned 

1.3. Objective(s)

1.3.1.General objective(s)

1.3.2.Specific objective(s)

1.3.3.Expected result(s) and impact

Specify the effects which the proposal/initiative should have on the beneficiaries/groups targeted.

1.3.4.Indicators of performance

Specify the indicators for monitoring progress and achievements.

1.4.The proposal/initiative relates to: 

☑ a new action 

¨ a new action following a pilot project / preparatory action 54  

¨ 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

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.

1.5.3.Lessons learned from similar experiences in the past

1.5.4.Compatibility with the multiannual financial framework and possible synergies with other appropriate instruments

1.5.5.Assessment of the different available financing options, including scope for redeployment

¨ 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.

x 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

x Direct management by the Commission

–x by its departments, including by its staff in the Union delegations;

–¨    by the executive agencies

¨ Shared management with the Member States

x Indirect management by entrusting budget implementation tasks to:

–¨ 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

–x 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

2.MANAGEMENT MEASURES 

2.1.Monitoring and reporting rules 

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

2.2.2.Information concerning the risks identified and the internal control system(s) set up to mitigate them

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) 

2.3.Measures to prevent fraud and irregularities 

N/A – cf. above.

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 

In order of multiannual financial framework headings and budget lines.

3.2.Estimated financial impact of the proposal on appropriations 58  

3.2.1.Summary of estimated impact on operational appropriations 

–¨    The proposal/initiative does not require the use of operational appropriations

–x    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)

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.

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.

EUR million (to three decimal places)

For justifications, please see the explanation after tables in section 3.2.4.1.

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)

3.2.3.Summary of estimated impact on administrative appropriations 

–¨     The proposal/initiative does not require the use of appropriations of an administrative nature

–x The proposal/initiative requires the use of appropriations of an administrative nature, as explained below

3.2.3.1. Appropriations from voted budget

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 resources 62  

–¨    The proposal/initiative does not require the use of human resources

–x    The proposal/initiative requires the use of human resources, as explained below

3.2.4.1.Financed from voted budget

Estimate to be expressed in full-time equivalent units (FTEs)

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):

Description of tasks to be carried out by:

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.

3.2.6.Compatibility with the current multiannual financial framework 

The proposal/initiative:

–x    can be fully financed through redeployment within the relevant heading of the multiannual financial framework (MFF)

–¨    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:

–x 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)

3.2.8.Estimated human resources and the use of appropriations required in the European Environment Agency 63

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)

Appropriations covered by the EU budget contribution in EUR million (to three decimal places)

Overview/summary of human resources and appropriations (in EUR million) required by the proposal/initiative in a decentralised agency

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)

Appropriations covered by the EU budget contribution in EUR million (to three decimal places)

Overview/summary of human resources and appropriations (in EUR million) required by the proposal/initiative in a decentralised agency

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 

–x 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)

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).

4.Digital dimensions

4.1.Requirements of digital relevance

4.2.Data

4.3.Digital solutions

4.4.Interoperability assessment