Introduction

Recent extreme events across Europe and the world, including forest fires, droughts, floods, and fatal heatwaves, have demonstrated that climate change consequences are hitting societies faster than science projected. The Intergovernmental Panel on Climate Change (IPCC) Sixth assessment report states that global adaptation is currently too slow and siloed, noting that transformational adaptation is necessary even if Paris Agreement goals are met. These guidelines respond to the 2021 EU strategy on adaptation to climate change and the European Climate Law, which established a ‘duty to adapt’. The law requires EU Member States to ensure continuous progress in enhancing adaptive capacity and reducing vulnerability, with the European Commission regularly assessing the consistency of national measures.

Key features of adaptation policy

The document identifies nine essential features for delivering quality adaptation policy. Substantive building blocks include legal frameworks laying down a ‘duty to adapt’ at the national level, regularly updated strategies and plans, and identified policy priorities. Crucially, policies should be informed by robust climate change impact and vulnerability assessments based on the latest science and stress testing of critical infrastructure. Process-related features include ensuring sufficient personnel and financial resources, multi-level coordination (both horizontal and vertical), and the engagement of all relevant stakeholders. Continuous monitoring and evaluation of implementation outcomes are also required to track progress against adaptation goals.

Key steps in developing or updating adaptation strategies / plans

Developing or updating adaptation frameworks involves a five-step cycle: setting the institutional framework, conducting risk assessments, identifying options, developing action plans, and monitoring results. This process is designed to be iterative, with each step feeding back into the next update of the strategy.

Step 1: setting the institutional framework and ensuring stakeholder buy-in

The first step focuses on strengthening ambition through legal frameworks and high-level political support. It is suggested that an interdepartmental taskforce be created, ideally led by the prime minister’s office, to coordinate government action across sectors such as public health, infrastructure, and agriculture. Engaging regional and local governance is vital, as many interventions are context-specific. Stakeholder participation should include ‘agents of change’ like research institutes and the private sector, as well as vulnerable communities disproportionately affected by climate impacts. Resource mobilisation is a key component, utilising EU instruments such as the LIFE programme, the European Regional Development Fund, and the Just Transition Fund.

Step 2: conducting climate change risk and vulnerability assessments

Assessments must identify populations, infrastructures, and sectors particularly vulnerable to climate change. A solid methodology should be built on the latest science, use stress testing for critical services, and establish clear baselines and timeframes (short-term to 2030s, medium-term to 2050s, and long-term to 2100s). Evaluations must consider social impacts, such as gender differences in risk perception and the biological vulnerability of children or the elderly. Cross-border and cascading risks are also essential considerations, as hazards in one Member State can trigger consequences in another. Results should be framed as SMART (specific, measurable, achievable, relevant, and time-bound) objectives.

Step 3: identifying and prioritising adaptation options

Adaptation options should be identified from diverse sources and bundled into portfolios. These options may aim to avoid risks, accept certain impacts by retreating, or take advantage of new opportunities. Prioritisation should ideally use multi-criteria analyses. Preference is given to ‘no-regret’ options that are cost-effective under current conditions and ‘win-win’ options that provide co-benefits, such as nature-based solutions that enhance biodiversity. Flexible management options are recommended to allow for adjustments if climatic circumstances change compared to initial projections.

Step 4: developing an action plan and implementing adaptation actions

An action plan translates options into specific implemented actions, detailing responsibilities, resource needs, and timelines. These plans often have shorter horizons than overall strategies and are revised more frequently. Implementation should be mainstreamed into other sectoral policies and disaster risk management frameworks. It is recommended that Member States estimate investment needs and establish dedicated adaptation budgets within their national comprehensive budgets for climate action.

Step 5: monitoring and evaluation

Monitoring and evaluation (M&E) systems are necessary for accountability and policy improvement. While many current practices focus on the evaluation of processes, it is increasingly important to understand the actual effects and outcomes on vulnerabilities and risks. Indicators used for M&E should be valid, precise, reliable, sensitive, and clear. Engaging stakeholders and local administrations in this phase is crucial for interpreting data and deriving relevant messages to inform future policy revisions.

Annex II – new areas of adaptation policy

The guidelines introduce several new priority areas. Just resilience focuses on preventing uneven burdens and ensuring that adaptation benefits are shared fairly, avoiding ‘unfair’ approaches that favour affluent areas. Maladaptation is defined as actions that may lead to increased risks, such as those that inadvertently increase greenhouse gas emissions or create path dependencies. Nature-based solutions are highlighted for their potential to reduce climate risks while providing human well-being and biodiversity benefits. Finally, climate stress testing is recommended as a tool to identify weaknesses in critical systems before extreme weather events occur.