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Opinion of the European Economic and Social Committee – EU Water Resilience Strategy and European Climate Resilience and Risk Management Integrated Framework (exploratory opinion requested by the Cyprus presidency)

EESC 2025/03736

OJ C, C/2026/3223, 2.7.2026, ELI: http://data.europa.eu/eli/C/2026/3223/oj (BG, ES, CS, DA, DE, ET, EL, EN, FR, GA, HR, IT, LV, LT, HU, MT, NL, PL, PT, RO, SK, SL, FI, SV)

ELI: http://data.europa.eu/eli/C/2026/3223/oj

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Official Journal
of the European Union

C series

C/2026/3223

2.7.2026

Opinion of the European Economic and Social Committee

EU Water Resilience Strategy and European Climate Resilience and Risk Management Integrated Framework

(exploratory opinion requested by the Cyprus presidency)

(C/2026/3223)

Rapporteur:

Anastasis YIAPANIS

Advisor	Mihai IVAŞCU (to the rapporteur)
Referral	Letter from the incoming Cyprus Presidency of the Council of the EU, 14.10.2025
Legal basis	Article 304 of the Treaty on the Functioning of the European Union
Section responsible	Agriculture, Rural Development and the Environment
Adopted in section	26.2.2026
Adopted at plenary session	19.3.2026
Plenary session No	604
Outcome of vote (for/against/abstentions)	216/1/1

1. Conclusions and recommendations

1.1.

Water resilience has become a strategic priority for the European Union, as climate change, biodiversity loss, the unsustainable use of water across different sectors of society and pollution increasingly threaten water availability, quality and security. Ensuring universal access to safe, affordable water and sanitation must remain a core EU commitment.

1.2.

The EESC stresses that water resilience and climate adaptation are mutually reinforcing and must be addressed through a unique and coherent policy framework that reflects long-term climate trends and ecosystem limits. The EESC reiterates its call for an EU Blue Deal, a comprehensive water strategy for Europe as a strategic priority, with the aim of integrating water into all relevant EU policies.

1.3.

Persistent weaknesses in governance, data availability, investment levels and enforcement continue to undermine Europe’s capacity to manage water- and climate-related risks. Fragmentation across sectors and levels of governance must be decisively overcome.

1.4.

The Committee calls for a strengthened Climate Resilience Framework that fully supports and supplements the Water Resilience Strategy and is aligned with international commitments, including the Paris Agreement, the Kunming-Montreal Global Biodiversity Framework and the UN High Seas Treaty.

1.5.

Prevention and preparedness should become the organising principles of EU water and climate policies, supported by harmonised monitoring systems, interoperable early-warning platforms and climate-informed risk assessments as well as adequate funding across all Member States.

1.6.

Critical infrastructure, including water, energy, transport and digital systems, should be systematically stress-tested against droughts, floods and extreme weather to ensure continuity of essential services.

1.7.

The EESC calls for the systematic application of a ‘water test’ in EU legislative processes, ensuring that proposals across key sectors are assessed for their water impacts and aligned with the objectives of the European Water Resilience Strategy.

1.8.

Given the transboundary nature of Europe’s river basins, the EESC calls for stronger cross-border cooperation based on shared data, common protocols and solidarity mechanisms, including with neighbouring non-EU countries.

1.9.

Agriculture and industry must become full partners in water resilience. Agricultural policy should prioritise sustainable water management practices, including water efficiency and retention, the large-scale use of reclaimed water, low water demand crops in areas affected by water scarcity and crop diversification aiming to improve soil health and retention capacities. At the same time, industrial policies should promote the adoption of efficient water systems and industrial processes that contribute to sustainable water use and regional water balance objectives, while fostering competitiveness and resilience.

1.10.

The EESC calls on the Commission to urgently propose a comprehensive regulation that establishes a clear hierarchy of water use, prioritising essential human needs (drinking water, food security, sanitation), animal welfare, ecosystem protection and sustainable economic activities. Such a framework must be complemented by concrete parameters and harmonised standards for water reuse across sectors, including agriculture, industry and urban applications.

1.11.

Nature-based solutions should be deployed at scale as a central pillar of water resilience and climate adaptation and mitigation, delivering multiple benefits for flood protection, drought mitigation, biodiversity restoration, groundwater recharge and water quality.

1.12.

Urban and regional planning must integrate water-sensitive design, limit soil sealing and support the transition towards cities and landscapes capable of ensuring better separation at the point of departure from the dwelling of waste water, and of retaining, storing and reusing water under changing climate conditions, including through sustainable, energy- and resource-efficient buildings and construction practices.

1.13.

Adequate, predictable and coherent financing is essential. The EESC stresses that the next multiannual financial framework (MFF) must clearly prioritise climate adaptation and water resilience, particularly in regions facing severe water scarcity such as Cyprus, supported by dedicated EU funding – with conditions applying relating to sustainable water use – blended finance mechanisms and a strong role for public banks, while safeguarding affordability and social fairness through transparent governance and targeted support.

1.14.

Governance arrangements must be strengthened through clear coordination mechanisms, including coherent national water resilience strategies and climate adaptation plans, designated national coordinators and structured involvement of local authorities, water operators, the social partners and civil society.

1.15.

Finally, the EESC underlines that water resilience and climate adaptation depend on a skilled workforce. Sustained investment in education and training is required to address skills gaps in water management, climate adaptation, digital monitoring and nature-based solutions, ensuring effective implementation of EU strategies.

2. Introduction and general comments

2.1.

Water resilience has become one of the most urgent strategic challenges for Europe as a whole, closely linked to climate change adaptation. To address these challenges, the EESC has called for an EU Blue Deal: a comprehensive water strategy aimed at integrating water into all relevant EU policies. The EESC points out that ‘access to high-quality, affordable water and sanitation is a fundamental right, and [that] it is unacceptable that there are still people who have no access to water and sanitation in the EU (1)’. The triple planetary crisis (climate change, biodiversity loss and pollution) is increasingly driving and exacerbating water-related challenges, including drought, extreme rainfall, declining groundwater resources, saltwater intrusion, ecosystem degradation and pressures on critical infrastructures, which are now affecting all Member States. The European Water Resilience Strategy (2), together with the EU Adaptation Strategy (3), represents a key step towards addressing these pressures through long-term and systemic planning. Water resilience and climate resilience are mutually reinforcing and must be addressed simultaneously.

2.2.

The EESC notes that Europe still faces persistent weaknesses. Governance remains fragmented, with limited coordination between water policy, climate adaptation and mitigation, land use, agriculture, industry and energy. Investments in water infrastructure and ecological restoration remain insufficient, as does the exploitation of hydropower potential. Early warning systems are unevenly implemented across regions, and many territories still struggle with incomplete hydrological data or weak enforcement of existing legislation. The EESC stresses that building water and climate resilience requires an integrated and cross-sectoral approach that connects ecological restoration, infrastructure modernisation, climate risk modelling and social cohesion. Resilience cannot be achieved through isolated actions, but demands a coordinated vision that aligns national and local strategies with ecosystem needs and long-term climate trends.

2.3.

Climate change is accelerating water scarcity, flooding and ecosystem degradation across Europe, requiring greater coordination between water resilience and climate adaptation policies. Anticipatory planning based on reliable climate projections and cross-sectoral coordination is essential. Water resilience is both an environmental and socio-economic priority, requiring strong multilevel governance and systematic involvement of employers, trade unions, civil society, water operators and research networks to ensure just and inclusive adaptation pathways.

2.4.

The Committee therefore calls for a strengthened Climate Resilience Framework that fully supports and supplements the Water Resilience Strategy, and is backed by solid funding, clear governance, scientific evidence and an inclusive social approach to ensure that the green transition and water resilience go hand in hand (4). This approach should also be consistent with key international frameworks, including the UN Framework Convention on Climate Change, the Paris Agreement, the Kunming-Montreal Global Biodiversity Framework and the UN High Seas Treaty.

3. Develop joint mechanisms for prevention, early warning and risk management

3.1.

Prevention and preparedness form the foundation of water and climate resilience. Europe still lacks a fully integrated and harmonised system capable of monitoring water use, quality and hydrological stress in real time. The EESC strongly supports the establishment of an EU Water Resilience Dashboard that brings together data from Copernicus, the European Environmental Agency, national hydrological offices, local monitoring networks and research partnerships. Such a supranational tool is essential to ensure consistency, comparability and coordination across Member States, particularly for shared river basins and cross-border risks that cannot be effectively addressed at national level alone. Reliable information on river flows, reservoirs, groundwater levels, soil moisture and water abstractions is essential for anticipating shortages, preventing contamination and coordinating emergency responses, while enabling stricter monitoring, early detection of infrastructure failures and evidence-based prioritisation of infrastructure upgrades and maintenance investments.

3.2.

The Committee also considers it necessary to strengthen climate and water risk assessments in all Member States through comprehensive national water strategies aligned with the European Water Resilience Strategy. National adaptation strategies should be mandatory and systematically supported by climate projections, drought and flood modelling and scenario-based planning for extreme events, as well as assessments of cyberthreats and hybrid risks that affect water management systems. Critical infrastructures such as energy plants, transport hubs, digital facilities and water utilities should undergo regular stress tests to assess the consequences of hydrological and climate extremes, including cyberattacks on digital control systems, data integrity and operational continuity.

3.3.

The EU should accelerate the deployment of digital water technologies, including smart metering, AI-driven predictive modelling, digital twins of river basins and infrastructure systems, and advanced sensor networks. Strengthening Europe’s leadership in water technologies can simultaneously enhance resilience and create global export opportunities.

3.4.

Given that more than half of Europe’s river basins transcend borders, cooperation between countries must be significantly improved using common protocols, early-warning agreements and solidarity mechanisms based on hydrological realities and ecological capacity. This includes collaboration beyond the EU’s borders, particularly with Switzerland, Western Balkans and the Mediterranean countries and other regions sharing water bodies with the EU.

3.5.

Prevention must also be embedded in agriculture, industrial policy and regional planning. Support measures should address not only water scarcity but also flooding, water warming and pollution, especially related to microplastics. The EESC reiterates its call to make water a key pillar of the Clean Industrial Deal and industrial transition pathways. Sustainable water management checks should become standard practice for water-intensive permits, granting subsidies and developing new economic activities. Industrial sites should be encouraged to adopt closed-loop water systems, while farmers should be supported through targeted financial instruments, training, advisory services and knowledge transfer, and in using efficient practices, such as crop variety improvement, crop diversification and sustainable soil management to improve soil health and retention capacities. Water policy must therefore be embedded within the EU’s industrial and economic security strategies in order to achieve a water-smart economy.

3.6.

Climate-related water risks demand stronger early-warning systems and more coherent risk management. The EESC highlights the need for interoperable EU-wide data platforms providing real-time hydrological and climate information, along with mandatory climate-informed risk assessments for critical sectors. Improved cross-border coordination and targeted support for vulnerable regions and local authorities are essential to anticipate and prevent escalating impacts. As far as possible, a solidarity-based insurance system should be established in areas at risk.

3.7.

Moreover, the EESC recommends systematically applying a ‘water test’ to new or revised EU legislation, particularly where proposals affect the environment, agriculture, energy, industry or urban development. The test would ensure that the water dimension is properly assessed and dealt with and that EU legislation aligns with the objectives of the European Water Resilience Strategy (5).

4. Strengthen the deployment of nature-based solutions with multiple benefits

4.1.

Nature-based solutions play a decisive role in restoring the European water cycle. Climate change is making hydrological patterns more volatile, exposing regions to both intense droughts and severe flooding. Wetland restoration, reforestation, floodplain reconnection, regenerated soils, permeable surfaces and sustainable urban drainage can improve water retention, restore ecological functions and enhance climate resilience. These solutions deliver multiple benefits simultaneously: reduced flood risk, increased groundwater recharge, restored biodiversity, carbon sequestration, improved water quality and lower treatment costs for water operators.

4.2.

The EESC emphasises that water resilience requires land-use planning aligned with hydrological needs. Urban and rural development must limit soil sealing, preserve strategic recharge zones and integrate hydrological criteria into zoning and construction decisions, including through sustainable, energy- and resource-efficient building design. Cities in particular must evolve into ‘sponge environments’ capable of absorbing and retaining water, rather than directing it rapidly into overburdened drainage systems.

4.3.

To ensure that nature-based solutions can be deployed at scale, Europe needs a clear and coherent governance framework. ‘The EESC asks for vigilance to ensure that local communities are truly engaged in their deployment and design’ (6) and supports the development of standards, quality criteria and technical guidance that help municipalities, farmers, utilities and businesses adopt cost-effective and scientifically sound solutions. The active involvement of employers, workers and civil society organisations is essential to ensure acceptance, long-term maintenance and social ownership. Payments for ecosystem services can encourage farmers and landowners to implement sustainable practices, including soil conservation and restoration of natural water retention areas. Long-term multiannual funding is essential for projects that rely on time-dependent ecological processes.

5. Ensure coherent financing and governance frameworks

5.1.

Financing remains one of the main barriers to water resilience and climate adaptation. Europe’s water infrastructure is ageing, climate pressures are mounting and new legislation and political guidelines, such as the revised Drinking Water Directive, the Urban Wastewater Treatment Directive, the European Water Resilience Strategy and the upcoming Climate Resilience Framework, bring additional investment needs. Existing estimates suggest that the EU must invest about EUR 255 billion by 2030 (7) to modernise networks, reduce leakage, support digitalisation, expand treatment capacity and restore ecosystems, while ensuring reliable, safe and affordable access to water for all users, including households, agriculture and industry.

5.2.

The next multiannual financial framework must include dedicated and ring-fenced funding for water resilience and climate adaptation as a strategic priority, with particular attention to Member States facing acute and structural water scarcity, such as Cyprus. The EESC has called for a Blue Transition Fund as the EU’s single access point for water investments, combining public funding with innovative financing. A European Water Resilience Facility should support strategic cross-border projects, critical infrastructure modernisation, large-scale nature-based solutions, and digital monitoring and risk management systems, including in water-stressed island and Mediterranean regions. Stronger alignment of cohesion policy, the CAP, Horizon Europe, InvestEU and the LIFE Programme, including the Competitiveness Fund, is essential to ensure coherence and avoid fragmentation. Sustainable water use and the attachment of conditions related to water should be criteria in all EU funds.

5.3.

Public banks such as the European Investment Bank, and national banks with long-term financing experience will play a central role. Blended finance solutions combining EU funds, national contributions, private investment and water tariffs can mobilise the requisite capital. Financial sustainability must reflect a fair cost distribution. Polluter-pays and beneficiary-pays principles should be applied consistently, and users should contribute to resilience and restoration. At the same time, affordability for households, particularly vulnerable groups, must remain a priority through social tariffs, targeted support schemes and transparent governance. Also, ‘specific attention should be paid to the challenges that climate change poses to islands and outermost regions, mountainous regions, and the Mediterranean (8)’.

5.4.

To enhance clarity and effectiveness, governance arrangements should be addressed in a coherent manner. Water legislation, climate adaptation, nature restoration, industrial strategy and agriculture policy often remain disconnected, limiting the effectiveness of resilience measures. The EESC welcomes the establishment of the European Water Resilience Stakeholder Platform, which it had previously called for, as an opportunity to foster cooperation among the EU institutions, Member States, water operators, industry, the social partners and civil society. In addition to adopting coherent national water resilience strategies and climate adaptation plans, Member States should appoint national water resilience coordinators to ensure cross-ministerial coherence and effective local implementation.

6. Enhance the resilience and infrastructure of communities

6.1.

Resilient communities require resilient infrastructure. Water utilities across Europe face increasing risks related to drought, ageing systems, cyberattacks, contamination incidents and extreme rainfall. The EESC would like to see a major modernisation programme, including leakage reduction, network rehabilitation, improved treatment capacity, digital monitoring and strengthened cybersecurity. Wastewater and stormwater systems must adapt to more frequent and intense rainfall, while new storage and interconnection facilities are needed to diversify supply sources and increase operational flexibility. To ensure water supply for water scarce areas in the Mediterranean, resilient communities must ensure adequacy of supply by incorporating non-conventional water resources into their water balance such as reclaimed water and sustainable desalination.

6.2.

The EESC calls on the Commission to urgently propose a comprehensive regulation that establishes a clear hierarchy of water use, prioritising essential human needs, ecosystem protection, and sustainable economic activities. Such a framework must be complemented by concrete parameters and harmonised standards for water reuse across sectors, including agriculture, industry and urban applications. Defining robust quality criteria, monitoring requirements, and incentives to reuse water will not only enhance resource efficiency and resilience to water scarcity, but also support the EU’s climate neutrality and circular economy objectives. The EESC stresses the need for inclusive stakeholder consultation and adaptive governance to ensure that the regulation is effective and in line with local realities.

6.3.

Local authorities hold a crucial role in climate adaptation, yet many lack the technical expertise or funds to take necessary measures. Simplified administrative procedures, technical support platforms and targeted funding for municipalities, especially those in rural or economically disadvantaged regions are needed. Water resilience must be integrated into public health and local climate adaptation plans, ensuring fairness and avoiding new regional inequalities. Citizen engagement is essential to build water and climate awareness and promote responsible water use.

6.4.

Agriculture and industry must become active partners in water resilience. Agriculture accounts for a large share of water use in several Member States and is increasingly exposed to climate extremes. Farmers should receive stronger guidance and support for water-efficient and soil health improvement practices, such as precision irrigation, low water demand crops and crop diversification. Water retention on agricultural land should also be encouraged to reduce pressure on cities and infrastructure, and to conserve water for later use in irrigation. Large-scale use of reclaimed water should become central to agricultural planning. Industries should be supported in their efforts to demonstrate resilience to water shortages and floods, integrate efficient industrial processes and circular water systems and contribute to regional water balance objectives, while promoting sustainable water use, competitiveness and resilience.

6.5.

Cities must adapt rapidly to heatwaves, heavy rain and water scarcity. Urban planning should incorporate blue-green corridors, green roofs, retention basins and permeable surfaces, aiming to reduce heat stress through water-sensitive design, while promoting sustainable and resource-efficient building practices. Resilient cities rely on effective coordination between spatial planning, water utilities, emergency services and local communities. Building regulations should also take water resilience into account and encourage the renovation of water systems in parallel with energy efficiency improvements.

6.6.

To achieve water and climate resilience and the twin transitions, the workforce must adapt and upskill. Rising demand for expertise in water management, climate adaptation technologies, digital monitoring, nature-based solutions and emergency response capacity reveals significant skills gaps across the Member States. The EESC has called for ‘a cross-sectoral blueprint for water and for investment in working conditions, quality jobs and training, especially targeting the younger generation’ (9). The Committee encourages the Member States to expand targeted training in sustainable water management and use, and flood and drought management, especially in higher education and VET. Without a skilled workforce, even the most advanced strategies risk delayed or ineffective implementation.

Brussels, 19 March 2026.

The President

of the European Economic and Social Committee

Séamus BOLAND

(1) OJ C, C/2024/878, 6.2.2024, ELI: http://data.europa.eu/eli/C/2024/878/oj.

(2) COM(2025) 280 final – European Water Resilience Strategy.

(3) COM(2021) 82 final – EU Adaptation Strategy.

(4) OJ C, C/2026/15, 16.1.2026, ELI: http://data.europa.eu/eli/C/2026/15/oj.

(5) OJ C, C/2026/35, 16.1.2026, ELI: http://data.europa.eu/eli/C/2026/35/oj .

(6) OJ C 374, 16.9.2021, p. 84.

(7) Socio-economic study on the value of the EU investing in water, Water Europe.

(8) OJ C, C/2026/35, 16.1.2026, ELI: http://data.europa.eu/eli/C/2026/35/oj.