Climate Policy (adaptation)

Editor's note 23Apr13: Source D141 (common sections), D241, D341.

History and current status

The 'White paper on adapting to climate change' (EC) was adopted in 2009. The paper is a key step towards an EU strategy on climate change adaptation. It recognizes that in addition to reductions in greenhouse gas (GHG) emissions, it is imperative that appropriate responses (adaptation) to address climate change risks and possible opportunities are developed. It is accompanied by sectoral papers covering agriculture, health and water, coasts and marine issues, as well as an Impact Assessment.

Aims and objectives

The White Paper aims to address the fragmented nature of current adaptation efforts by presenting a strategic approach and a framework for adaptation measures and policies to reduce the vulnerability and improve the resilience of the European Union to climate change impacts. This framework is designed to complement actions by the Member States and international efforts to adapt to climate change. While most adaptation measures need to be taken at Member State level due to regional diversity of structures and impacts, an integrated and coordinated approach at EU level can strengthen national initiatives and ensure that transnational issues are adequately addressed. Coordinated action is identified to be important especially in sectors where there are already existing EU-level policies, such as in agriculture, water and biodiversity.

Maintaining the productive functions of land by, e.g. improving the management of water, biodiversity and ecosystem services, in order to increase overall the resilience to climate change is outlined as a key objective. The White Paper also highlights the need to create a Clearing House Mechanism to exchange information on climate change impacts, best practices and risks between agencies, governments and organizations involved in the formulation of adaptation policies. The White Paper stresses the need for a transition to an energy efficient, low-carbon economy.

Structure and components

The paper sets out two phases for preparing an EU-wide adaptation framework: Phase I (2009-2012) provides the foundation for preparing an inclusive adaptation strategy for the EU, which will then be implemented in Phase 2 (2013 onwards). Four elements form the core of Phase 1:

1. building a solid knowledge base on the impact and consequences of climate change for the EU,
2. integrating adaptation into EU key policy areas (climate proofing EU policies),
3. employing a combination of policy instruments (market-based instruments, guidelines, public-private partnerships) to ensure effective delivery of adaptation and
4. stepping up international cooperation on adaptation.

The White Paper identifies financial constraints as a prime barrier to adaptation efforts. Thus, the EU framework utilizes the European Economic Recovery Plan's proposed climate change investments to support future adaptation efforts to climate change. For future funding, however, sectors should develop strategies and cost estimates for adaptation actions in order to be considered in upcoming financial decision-making processes. Insurance schemes, other financial services products, Market Based Instruments (e.g. payments for ecosystem services) and auctioned allowances also remain a possibility for future funding options. External cooperation of the EU with developing and at risk countries is to be supported by bilateral and regional financial assistance programs.

Implementation process

The proposed framework follows the subsidiarity principle and relies on the close cooperation of local, regional, national and EU authorities. Specifically, an Impact and Adaptation Steering Group, comprising Member Sates representatives formulating national and regional adaptation programs, is foreseen. This group will support the development of the four previously identified pillars and determine the level at which certain actions would be most appropriately implemented.

At the EU and Member State levels, required actions by 2011 include: setting up a Clearing House Mechanism; developing methods, models, data sets and prediction tools; assessing the costs and benefits of adaptation options; developing indicators to monitor the impact of climate change and progress on adaptation; and developing guidelines and surveillance mechanisms on the health impacts of climate change. In addition to the Steering Group, other actions include mainstreaming adaptation into external EU policies, examining the potential use of innovative funding measures, assessing the feasibility of incorporating climate impacts into construction standards, developing European guidelines on adaptation in coastal and marine areas and ensuring that climate change is taken into account in the implementation of the Floods Directive and in the management of Natura 2000 sites, among others.

Relevance to LEDD in cropland, grazing land and forests/shrubland

The paper is important, albeit indirectly, for EU policies that address LEDD on cropland, but also on grazing lands and forest/shrubland within the context of climate change. It clearly recognizes the potential effects of climate change on soil fertility (soil organic matter), erosion rates, agricultural ecosystems more broadly (e.g. desertification from extreme degradation) as well as forest health and crop productivity. It stresses the need to go beyond autonomous adaptations to planned strategies based on local and regional conditions. By providing a common framework and the impetus for action, the White Paper contributes to the strengthening and coordination of different policy efforts around adaptation objectives. Specific LEDD obligations for Member States will result primarily through the adjustment of the CAP and rural development policies, as well as other environmental policies. By incorporating adaptation objectives in these land management policies and ensuring sufficient funding levels, substantial benefits in terms of reduced vulnerabilities of cropland, grazing lands and forests to climate change could be achieved.

The White Paper stresses the need to increase the resilience of agriculture and forests. It outlines examples of practices and initiatives which can reduce land degradation, including the improvement of soil's water and carbon storage capacity, water conservation within natural systems, conservation of water in agriculture, and pest management. The working document on agriculture and its annex identify the main challenges for agriculture and different land use types in Europe (including cropland, grazing lands and forests/shrubland). They set out the different management practices that can be supported by the existing EU policies, especially the rural development policy (for more information policy see »Common Agriculture Policy).

Thus, while not setting out specific obligations in itself, the White Paper can be seen as having a substantial facilitating role in addressing LEDD processes in all land use types within the context of climate change.

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