Climate resilience in Europe, 2025 — progress and challenges

The objective of this report is to present an analysis of European progress towards climate resilience since 2021, with an emphasis on the state of play in 2025. Drawing on reporting under Regulation (EU) 2018/1999 on the Governance of the Energy Union and Climate Action (referred to here as the Governance Regulation) (EU, 2018), the report assesses progress across the adaptation policy cycle: from understanding climate risks and setting policy objectives to implementing actions and monitoring, evaluation and learning (MEL).

Key findings from the report include:

• Climate risk assessments, despite now being more prominent across countries, vary in methodological approaches, sectoral and thematic coverage and timeliness, limiting a coherent understanding of shared risks across Europe.
• Countries are strengthening the policy foundation for adaptation; however, diverse policy approaches, complex coordination across sectors and governance levels, unclear risk ownership, variable institutional capacity and uncertain financing continue to challenge policy coherence — particularly at regional and local levels.
• The development and use of monitoring, evaluation and learning systems vary across countries, making it difficult to assess whether adaptation efforts are working.
• Social vulnerability and equity considerations are not yet systematically integrated into national adaptation planning.