Europaudvalget 2025
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EUROPEAN
COMMISSION
Brussels, 4.6.2025
COM(2025) 280 final
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL
COMMITTEE AND THE COMMITTEE OF THE REGIONS
European Water Resilience Strategy
EN
EN
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European Water Resilience Strategy
1.
I
NTRODUCTION
– S
ETTING THE
S
CENE
Water is life.
Human beings, most species and the nature we live in and depend upon, cannot
survive without water. Our environment, our economy, our food and energy security and our
quality of life rely on a stable supply of water of the right quality.
However, today we can no longer take water for granted, and this affects citizens,
businesses and the environment.
Europe is the Earth’s fastest warming continent due to
climate change. Climate impacts like extreme heat, catastrophic floods, prolonged droughts
and forest fires are increasing in frequency and severity and will continue to do so. These events
cause health impacts and premature deaths, disruption of energy and drinking water supply and
growing economic losses
1
for business, farmers and aquaculture. If left unaddressed, water-
related inequalities have the potential to harm the overall economic, social and territorial
cohesion of the EU
2
and globally. This is especially true for the EU’s outermost regions, where
climate pressures and infrastructure gaps make access to clean and safe water particularly
challenging.
Access to clean and affordable water is a human right and a public good.
Water resilience is a matter of security and crisis preparedness for the EU.
Water is a basic
need and a critical resource. As outlined in the Preparedness Union Strategy, security of clean
and affordable freshwater supply must be “a guiding priority” for the Union.
3
Investing in sustainable water management and innovation will strengthen Europe's
businesses and boost competitiveness.
Five of the top ten long term global risks for businesses
identified by the World Economic Forum
4
are water related. Unsustainable water management
undermines our overall security of supply and competitiveness, as recognised in the
Competitiveness Compass
5
and the Clean Industrial Deal
6
. This calls for a better integration of
water resilience into business decisions and an integrated vision of sustainable water
management, reflecting long term climate scenarios.
Water resilience is a significant business opportunity for EU industry.
Europe is a global
leader in water technology, accounting for 40% of all related patents globally.
7
In 2022 alone,
the sector generated EUR 111.7 billion in value added and supported 1.6 million jobs across
1
2
3
4
5
6
7
Droughts have caused extraordinary losses of around EUR 40 billion in 2022 alone. Floods caused, between
1980 and 2023, losses of EUR 325 billion. Adding to these challenges, water pollution generates costs ranging
from EUR 55 billion to EUR 73 billion. See Commission study on cost of inaction, in the context of the
upcoming Environmental Implementation Review.
Ninth Report on Economic, Social and Territorial Cohesion, Chapter 4 'Green Transition', 2024
(https://ec.europa.eu/regional_policy/information-sources/cohesion-report_en).
European Union Preparedness Union Strategy, JOIN(2025) 130 final.
“Global Risks Report 2024” These five top global, also water-related risks are: 1) Extreme Weather events, 2)
Critical Change to Earth Systems, 3) Biodiversity loss and ecosystem collapse, 4) Natural resources shortages
and 5) Pollution
https://www.weforum.org/publications/global-risks-report-2024/.
COM (2025) 30 final A Competitiveness Compass for the EU.
COM(2025) 85 final The Clean Industrial Deal: A joint roadmap for competitiveness and decarbonisation.
European Patent Office, “Innovation in water-related technologies” (July 2024), available
here.
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81 500 enterprises, most of which are SMEs
8
. We must leverage this position and strengthen
the EU’s competitive advantage within the Single Market and abroad. For instance, within
certain sectors, there is the potential to lower water and operating costs by up to EUR 2.8 billion
per year, create an additional 9 000 jobs per year, while at the same time developing necessary
worldwide expertise
9
.
Strong European global leadership on water resilience is an opportunity to build strategic
alliances with international partners.
Worldwide competition for dwindling supplies of
freshwater exacerbates conflict and displacement. At the current pace, global water demand
will surpass what is available by 40% in 2030
10
. Worldwide, water-related disasters displaced
40 million people and inflicted more than EUR 480 billion in damages in 2024.
11
Building on
the global consensus
12
that our current model of managing water is not sustainable, the EU is
determined to make the upcoming 2026 UN Water Conference a milestone in driving progress
towards the Sustainable Development Goals.
For all these reasons, it is high time to put water resilience at the top of the political agenda
as conveyed by the European Council
13
, European Parliament
14
and European Economic and
Social Committee
15
. This is why, in her 2024-2029 Political Guidelines, President von der
Leyen announced a new European Water Resilience Strategy. This should help all parts of the
EU to improve the management of its waterbodies, tackle scarcity, enhance the competitive
innovative edge of the water industry
16
, whilst embracing a clean and circular approach.
Member States have organised their water management in different ways, involving various
forms of public or private ownership, or a combination of the two. This Strategy fully respects
these national choices and recognises that one size does not fit all, in particular taking into
account that water availability varies considerably between different Member States as does
the vulnerability of different sectors to water stress.
2.
T
HE
K
EY
O
BJECTIVES
This Strategy sets out a pathway to make Europe water resilient, firmly rooted in the 2050
vision put forward by the EU at the 2023 UN Water Conference for a water resilient EU,
providing water security for all. This entails the protection and restoration of aquatic
ecosystems, and a fair balance between water supply and water demand responding to current
needs, including the realization of the human right to safe drinking water and sanitation,
without compromising the rights of future generations.
To put Europe on a pathway of water resilience, we must work on three objectives:
8
9
10
11
12
13
14
15
16
Eurostat, “Businesses in the water supply, sewerage, waste management and remediation sector” (data
extracted in February 2025), available
here.
Water Europe (2024) Socio-economic study on the value of the EU investing in water.
Report of the Global Commission on the Economics of Water, 2024.
Global water monitor: 2024 summary report | PreventionWeb.
Achieved at the 2023 UN Water Conference.
European Council Conclusions of 23 March 2023 - EUCO 4/23.
European Parliament resolution of 7 May 2025 on the European Water Resilience Strategy (2024/2104(INI)).
The EESC Umbrella Opinion “A call for an EU Blue Deal” CCMI/209 of 25 October 2023.
In this Communication, water industry covers undertakings - whether public or private - involved in the
supplying of (drinking) water and the treatment of wastewaters including urban and industrial wastewaters. It
includes amongst others water engineering, water infrastructure building, developing and supplying water
related equipment and technologies.
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1. Restoring and protecting the water cycle as basis for sustainable water supply.
2. Building a water-smart economy together with citizens and economic actors in a way
that supports EU competitiveness, is attractive to investors and supports a thriving EU
water industry.
3. Securing clean and affordable water and sanitation for all at all times, and empowering
citizens for water resilience.
EU legislation and policies, including the European Green Deal, provide a strong basis to
achieve these objectives
17
. Member States – and their local or regional authorities – are often
best placed to deal with water management since they know their own circumstances,
challenges and possible solutions best. This Strategy fully recognises that Member States are
free to organise their water supply systems as they see fit, within the boundaries of EU laws.
To support Member States’ initiatives and enhance cross-border water cooperation, it identifies
five areas of EU action: (i) governance and implementation; (ii) finance, investments and
infrastructure; (iii) digitalisation; (iv) research and innovation, industry and skills; and (v)
security and preparedness.
2.1
Restoring and protecting the water cycle as basis for water sustainable supply
A well-functioning
water cycle is essential for water resilience.
Water
moves in a cycle
which naturally stores, purifies and releases water,
a process that depends on healthy soils,
wetlands, forests and other ecosystems. However, overexploitation and mismanagement of
water resources, pollution as well as climate change and environmental degradation
have
deeply affected this cycle and severely reduced both the quantity and the quality of water.
The existing EU framework for freshwater, including the Water Framework Directive,
18
the Flood Management Directive
19
, and the Nature Restoration Regulation
20
, provides a
comprehensive regulatory framework for Europe’s water cycle.
However, effective
implementation will be necessary to restore the water cycle in quantity and quality.
The Water
Framework Directive’s objective to achieve good status of all water bodies by 2027
21
and the
objectives of the Floods
Directive
remain the compass for action. The Commission will
prioritise enforcement based on its latest assessment of national River Basin Management Plans
(RBMPs) and Flood Risk Management Plans (FRMPs) in dialogue with Member States.
22
To
further support the work of Member States in addressing water scarcity and droughts, the
17
18
19
20
21
22
See on overview of key objectives set out in existing legislation in Annex II.
Directive 2000/60/EC of the European Parliament and of the Council of 23 October 2000 establishing a
framework for Community action in the field of water policy (OJ L 327, 22.12.2000, p. 1, ELI:
http://data.europa.eu/eli/dir/2000/60/oj).
Directive 2007/60/EC of the European Parliament and of the Council of 23 October 2007 on the assessment
and management of flood risks (OJ L 288, 6.11.2007, p. 27–34, ELI:
http://data.europa.eu/eli/dir/2007/60/oj).
Regulation (EU) 2024/1991 of the European Parliament and of the Council of 24 June 2024 on nature
restoration and amending Regulation (EU) 2022/869
(OJ L, 2024/1991, 29.7.2024, ELI:
http://data.europa.eu/eli/reg/2024/1991/oj).
EEA EU State of Water Report
https://www.eea.europa.eu/en/analysis/publications/europes-state-of-water-
2024
The Commission issued country-specific recommendations arounds 7 clusters: a) accelerated action to reduce
the compliance gap; b) scaling up investments; c) tackling key pressures; d) enhancing resilience against water
related extremes (including specific recommendation on effective implementation of the Floods Directive); e)
transboundary cooperation; f) exemptions and g) monitoring, assessment and reporting. For more information
see
https://environment.ec.europa.eu/topics/water/water-framework-directive/implementation-reports_en
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Commission will develop indicators for water scarcity and publish a Technical Guidance on
Drought Management Plans. The Nature Restoration Regulation provides an opportunity to
support water quantity management and enhance resilience against both droughts and floods
with nature-based solutions. Water and climate resilience must be fully integrated in the
national Restoration Plans to be developed by 2026.
The 2008 Marine Strategy Framework Directive’s goal of achieving good environmental
status for marine waters by 2020 was not met.
Marine biodiversity is declining, and pollution
from rivers continues to harm marine life. Following a recent evaluation
23
, the Commission
will revise the Marine Strategy Framework Directive to improve coherence with the EU
freshwater acquis, focusing on delivering results by reducing reporting requirements, and
improving data management and governance across the Regional Seas Conventions.
In addition to existing legislation, we need to step up our efforts to improve water
retention on land. Consistent with the EU’s Ocean Pact, we
need to give priority to using
the full potential of our ecosystems to
store, purify, release,
and restore water on land and
at sea, based on a source-to-sea approach.
On its way back to the sea, freshwater is naturally
stored in soils, forests, wetlands, floodplains and other ecosystems. There is a need to redress
the natural sponge function of our landscapes to replenish our groundwater reserve and to
protect biodiversity. To better coordinate and scale up existing initiatives
24
aimed at increasing
water retention on land, the Commission will develop a “Sponge Facility”, providing a coherent
framework for new and existing initiatives to increase water retention on land. As set out in the
Vision for Agriculture and Food, the Commission also intends to incentivise and support
farming practices that recover, maintain or improve soil health, such as organic farming and
agroecological approaches that retain water in soil. In urban areas, “sponge cities”,
carved with
nature-based solutions to absorb and release water in a controlled way, should be promoted.
In
addition, integrated management of fresh and marine waters is essential. Riverine pollution,
disruption of the sediment flows, and water shortages, all have a strong impact on the health of
marine ecosystems and the viability of the social and economic activities that depend on them,
such as fisheries, aquaculture or tourism
25
. Coastal areas play a critical role in the water cycle
and are crucial in preventing land-based pollution from entering the sea. Effective spatial
planning can reduce the vulnerability of coastal communities, cities, seaports, low-laying river
deltas to climate change, while seaports also need to contribute to minimise pollution from
ships by adhering to relevant laws and policies. This is also one of the topics to be addressed
in the EU Port Strategy announced by the Commission. Finally, a sustainable and integrated
management of inland waterways can significantly contribute to water resilience, by better
adapting to droughts and floods, while maintaining the connectivity of navigational routes.
Storing water in reservoirs and other man-made structures requires particular attention
and careful planning and coordination since many economic sectors need a stable supply
of water and often have different needs over the year
26
.
Action on water management should
prioritise nature-based solutions, but also needs to rely on man-made structures
or a
combination of both. The planning of new dams and reservoirs should carefully evaluate their
23
24
25
26
Evaluation of the Marine Strategy Framework Directive (SWD(2025)50)
and its
annex.
Adaptation and Soil Missions, Guidance on Climate Resilient Landscapes, the Urban Agenda for the European
Union (UAEU) Thematic Partnership on ‘Water Sensitive City’ and Interreg Danube Region Sponge City
project.
Macias, D., Bisselink, B., Carmona-Moreno, C.
et al.
The overlooked impacts of freshwater scarcity on oceans
as evidenced by the Mediterranean Sea.
Nat Commun
16, 998 (2025).
Common Implementation Strategy (CIS) under the Water Framework Directive Guidance No. 24 on River
Basin Management in a Changing Climate, available
here.
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environmental impacts, involving all relevant actors, and ensure that such actions are part of
an integrated and sustainable water management strategy, fully reflecting long-term climate
reference scenarios and projections, to avoid stranded investments.
Water quality and quantity are two sides of the same coin, and we must continue working
on preventing pollution at source.
In 2021, only 39.5% of EU’s surface waters had good
ecological status, and only 26.8% a good chemical status.
27
Action must be stepped up and
focus on preventing unsustainable land use and management as well as hydro-morphological
changes, structural mismanagement of water due to both legal and illegal over-abstraction,
inefficiencies in water use across sectors, and water pollution linked to activities such as
agriculture, industrial production, mining and waste management.
Water pollution has a direct impact on health.
It can result in water-borne diseases and
exacerbate antimicrobial resistance. The COVID-19 crisis showed the importance of tracking
pathogens and health parameters in wastewaters following a One Health approach, as human,
animal, plant and environmental health are tightly interlinked.
28
The Commission will continue
supporting capacity building and infrastructure development on wastewater surveillance
particularly as climate change is worsening the health risks of water-related diseases
29
.
Urgent action is needed to tackle pollutants which pose a risk to our vital sources of
drinking water.
Highly persistent pollutants, such as PFAS
30
, keep accumulating across EU
waters and cause health impacts estimated to range between EUR 52 and 84 billion annually
31
.
This is also a major source of public concern. Water and marine pollution, including from
microplastics, must be tackled at source or across pathways in line with the Zero Pollution
Action Plan
32
. In addition, the EU must take decisive efforts to clean up sites already strongly
polluted by these, and other, ubiquitous, persistent, bio-accumulative and toxic substances,
particularly where such substances are still indispensable for society and industrial
applications. Cleanup should be based on the polluter pays principle, with public money
allocated to clean up orphan sites, where no liable entity could be found. While remediation
efforts are very costly,
33
research and innovation can significantly reduce these costs through
novel, including bio-based, technologies, which will be promoted in the Bioeconomy Strategy.
In addition, if partners are found which are willing to invest alongside the EU, the Commission
will put forward a proposal to establish a public-private initiative to achieve a technological
27
28
29
30
31
32
33
Report from the Commission to the Council and the European Parliament on the implementation of the Water
Framework Directive (2000/60/EC) and the Floods Directive (2007/60/EC) (Third river basin management
plans Second flood risk management plans), COM(2025) 2 final.
Council Recommendation 2023/C 220/01 on stepping up EU actions to combat antimicrobial resistance
(AMR); pharmaceutical package; and, recast Urban Wastewater Treatment Directive ((EU) 2024/3019).
European Environment Agency (2024) Responding to climate change impacts on human health in Europe:
focus on floods, droughts and water quality. EEA Report 3/2024.
Per- and polyfluoroalkyl substances.
Nordic Council of Ministers,
2019 data.
The actions on PFAS remediation set out in this Strategy complement the Commission’s efforts to address
PFAS emissions at the source under the chemicals legislation REACH. In this context it should be noted, that
by the end of 2025, the Commission expects to adopt a restriction on all PFAS in firefighting foams, one of
the main emission sources.
The economic cost of cleaning PFAS contamination in Europe has been estimated to range from EUR 5 to
100 billion a year, with the water sector alone facing an increase of up to EUR 18 billion per year for drinking
water treatment, while cost for wastewater treatment and sewage sludge management is estimated to be even
higher. This cost has been estimated by the Forever Lobbying Project; more information available at
https://foreverpollution.eu/lobbying/
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breakthrough in feasible and affordable methods for the detection and remediation of PFAS
and other persistent chemicals.
Limiting the pollution of aquatic ecosystems by nutrients should be placed at the centre
of restoring water quality.
Nutrients from agriculture, urban settlements and other sources
impact human health, and cause algal blooms and oxygen-depletion which are lethal to aquatic
ecosystems. This remains a major challenge and causes socio-economic losses estimated to be
between EUR 75 and 485 billion a year regarding nitrogen alone
34
. Such costs call for
accelerated action from source to sea, including an improved implementation of the Nitrates
Directive in all Member States.
The Commission will assist Member States in assessing the tailored nutrient loads
reductions that are needed,
including through enhanced modelling, interactive maps and
exchanges of best practices. The Commission will continue to support improved and integrated
nutrient management through different existing fora, contribute to fund manure storage
facilities and promote nutrients circularity which can help reduce the use of synthetic fertilisers.
In synergy with the work stream for livestock announced in the Vision for Agriculture and
Food, these actions will complement the development of a long-term vision that respects the
diversity of livestock production in the EU while ensuring its sustainability. It will also
reinforce the efforts to encourage farming extensification in regions with high livestock
concentration.
Flagship actions - Restoring and protecting the water cycle
Establish, including through Structured Dialogues with Member States,
implementation priorities of the Water Framework and the Floods
Directives, focusing on water quality and quantity.
Revise the Marine Strategy Framework Directive.
Develop water scarcity indicators and a Technical Guidance on Drought
Management Plans.
Support addressing main sources of pollution:
•
Public-private initiative to achieve a technological breakthrough
in feasible and affordable methods for the detection and
remediation of PFAS and other persistent chemicals, if the right
partners are found.
•
Launch an Assistance Toolbox for Member States to support
actions to reduce nutrients pollution, including through enhanced
modelling, interactive maps and exchanges of best practices.
2.2
Timeline
2025-2026
2027
2026-2027
2027
2026-2027
Building a water-smart economy that leaves no one behind, supports EU
competitiveness and attracts investors
Water is a finite resource that must be used efficiently.
We must reduce demand across all
sectors of the economy, by promoting water savings, efficiency, and reuse. Faced with
increased water scarcity and droughts, this is essential to continue securing water supply,
meeting the demands from different users in a fair way and supporting aquatic and terrestrial
ecosystems. This is particularly important in regions with acute hotspots of overexploitation,
34
Van Grinsven et al, Costs and Benefits of Nitrogen for Europe and Implications for Mitigation, 2013. The N
emissions and damage costs include emissions from all sectors to surface, ground- and marine waters and to
air.
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where water scarcity is becoming systemic and a significant constraint to economic
development, including some remote and island communities where freshwater availability is
limited. With further climate change the regions affected by water scarcity will increase
substantially
35
. Efficiency must focus in particular on the most intensive water users, both
current and future, which also have the biggest interest in avoiding excessive abstraction
leading to possible disruption of supply.
Water efficiency is key and must come first.
This Strategy is accompanied by a
Recommendation on the application of the water efficiency first principle, inspired by
experience with the energy efficiency first principle
36
. It sets out guiding principles for
decision-making and investments based on a clear and predictable, yet flexible, prioritisation
in the way water demand and supply are managed. Across the EU, the priority should be to
curb demand and over-abstractions. This should be followed by efficiency by design and reuse,
while increased supply should be the last resort option.
To guide action on water efficiency across the EU, in view of the potential for water
savings
37
, the EU should aim to enhance water efficiency by at least 10% by 2030.
The
Commission will work with Member States and stakeholders to develop a joint methodology
for water efficiency targets, taking into account territorial and other differences between
countries, regions and sectors. On that basis, in the review of this strategy in 2027, the
Commission intends to develop common benchmarks. Some Member States have already set
specific targets to enhance water efficiency at national, regional or river basin level.
38
Member
States are encouraged to set their own targets for water efficiency, based on their national
circumstances.
A water-smart economy requires a better control of the resources.
Based on 2010-2021
data
39
, 81% of the total water consumption goes to users that abstract water directly at the
source using private systems, and many Member States do not have accurate data concerning
their freshwater availability. In line with the Water Framework Directive, authorities must
conduct up-to-date assessments of water availability and abstractions by water users and
increase their efforts to register and control all abstractions, losses and returns. Deploying smart
water metering across all economic sectors will help to achieve a rigorous monitoring of water
flows and will also help citizens and businesses to manage their water use more efficiently. The
Commission will promote the exchange of best practices on water balances and smart water
metering across all economic sectors. It will also work towards the launching of an EU Water
Infrastructure & Smart Metering for All initiative (see section 3.3). Furthermore, it will assess
by the end of 2026 the quality of the data available on water and, where appropriate, revise the
relevant legislation to introduce new environmental economic account modules for water
accounts
40
.
Particular attention must be placed on assessing and, wherever possible, limiting the
water needs that come with the clean industrial and digital transformation and to support
35
36
37
38
39
40
European Environment Agency (EEA), European Climate Risk Assessment (EUCRA), 2024. See especially
chapter 5 ‘Water security’ for detailed information on water scarcity.
https://energy.ec.europa.eu/topics/energy-efficiency/energy-efficiency-targets-directive-and-rules/energy-
efficiency-first-principle_en
Water savings for a water resilient Europe, European Environmental Agency 2025, forthcoming.
For example, France has set a target to reduce water abstraction by 10% until 2030.
Water Europe (2024) Socio-economic study on the value of the EU investing in water.
Regulation (EU) 2024/3024 of the European Parliament and of the Council of 27 November 2024 amending
Regulation (EU) No 691/2011 as regards introducing new environmental economic account modules.
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it through water smart planning.
Key sectors for the EU’s strategic autonomy such as battery
production, semiconductors, hydrogen, microchips and datacentres consume large volumes of
often ultra-pure water.
41
. At the same time, advancing the clean energy transition and the
decarbonisation of our EU energy system will help to enhance water management
42
. In this
context, savings in water and energy, which usually go hand in hand, must be maximised, and
water resilience must get particular attention in spatial planning. In particular, to promote water
savings across data centres, the Commission will rate their energy efficiency and overall
sustainability and propose minimum performance standards, including for water
consumption
43
. To support Member States in identifying the best areas for setting up water-
intensive business operations and attract the necessary water investment, the Commission will
enhance existing visualisation tools putting together environmental data and data related to the
water and energy grids.
Safe water reuse in agriculture, energy production, industrial processes must be at the
heart of integrated water management.
Currently, only 2.4% of wastewater is reused in the
EU, with major differences between Member States, ranging from zero to 80%
44
. The
Commission will support Member States through guidance on the safe reuse of water, as well
as via capacity building in the context of implementing existing legislation
45
.
By June 2028,
the Commission will evaluate the Water Reuse Regulation, and will subsequently consider
extending its scope pending evaluation results.
For public water supply, corresponding to 13% of the water consumption in the EU, focus
must be on fighting leakages and unintended losses, supported by digital tools.
As current
national leakage levels vary from 8% to 57%, the potential for improvement is significant,
especially through smart water metering and remote sensing. The Drinking Water Directive
requires Member States to reduce leakages in water supply networks. Member States with
water supply leakage levels exceeding the EU-wide threshold – to be set by 2028 – will have
to present, by 2030, national action plans to reduce leakages across their supply networks.
Sustainable food systems are a major ally for water resilience and the Common
Agricultural Policy has a crucial role to play.
Sustainable agriculture and forest management
contribute significantly to increase water and climate resilience, mitigating droughts and floods
(Section 2.1). On the other hand, the production, processing, retailing, packaging and
transportation of food has a profound impact on water quality and quantity. Agriculture
accounts for 51% of total water consumption in the EU, with very significant differences
between the North and South of Europe
46
. The Vision for Agriculture and Food underlined the
importance of water quality and availability for food security. Furthermore, sustainable
fisheries and mariculture should be further supported as they are produced without using
freshwater.
41
42
43
44
45
46
Water Europe (2024) Socio-economic study on the value of the EU investing in water.
IEA Clean energy can help to ease the water crisis, 22 March 2023.
Commission report to the Council and the Parliament pursuant to Article 12 of Directive 2023/1791 on energy
efficiency and amending Regulation (EU) 2023/955 (recast).
Commission Staff Working Document: Impact Assessment
Accompanying the document
Proposal for a
Regulation of the European Parliament and of the Council on minimum requirements for water reuse,
SWD(2018) 249 final.
The Water Reuse Regulation, the revised Industrial Emissions Directive and the revised Urban Wastewater
Treatment Directive.
European Environment Agency (2024) Europe's state of water 2024. EEA Report 7/2024Publications Office
of the European Union.
https://www.eea.europa.eu/en/analysis/publications/europes-state-of-water-2024
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The CAP and the national Strategic Plans provide support for agricultural practices and
investments that enhance water efficiency, circularity and improve water retention, whilst
curbing nutrient and pesticides pollution.
This also includes support for organic farming
with its multiple benefits related to soil health and its limiting use of artificial fertilisers,
herbicides and pesticides. It is crucial to ensure that Member States make maximum use of
these possibilities and promote water resilient farming practices, such as precision farming,
drip irrigation, water reuse, improved soil management and pesticide use, landscape features
and more climate resistant crops. In the next programming period, the Commission will
continue to incentivise farmers to improve the environmental and climate performance of their
holdings, including towards better water management.
Water efficient energy production can make a major contribution to water resilience.
17%
of the EU’s total water consumption is used as a feedstock or cooling agent
47
. If the right
partners willing to invest alongside the EU are found, the Commission will put forward a
proposal to establish a public-private initiative to achieve a technological breakthrough in
feasible and affordable methods for dry cooling.
Water resilience should be integrated into all industrial sectors.
The revised Industrial
Emissions Directive will ensure that large industrial actors progressively reduce water demand,
enhance water efficiency and improve water reuse across production processes. Water
efficiency and reuse should be integrated across the most water intensive industrial sectors, in
particular through the available stakeholder support platforms
48
. In this context, the
Commission will launch a pilot project to promote water efficiency in selected industrial
clusters.
Increasing supply by using seawater to replace freshwater can be part of the solution, in
particular in regions severely affected by water scarcity, if done sustainably.
As part of an
integrated management approach, which prioritises curbing demand over increasing supply
based on local conditions, seawater desalination can provide steady water supply beyond the
hydrological cycle. Yet, it remains costly, very energy intensive, and entails significant
environmental impacts. The Commission will thus support innovation in this area with a view
to limiting energy consumption and reduce greenhouse gas emissions, notably by promoting
the use of renewable energies. Innovative solutions should also mitigate the environmental
impacts of brine disposal and increase the recycling and reuse of energy and minerals from the
brine in the industry sector.
Flagship actions - Building a water-smart economy that leaves no one
behind, supports EU competitiveness and attracts investors
Recommendation on the Water Efficiency First principle, guidelines and
EEA report on the untapped water efficiency potential.
Support the uptake of water reuse practices also beyond agriculture and
review the Water Reuse Regulation.
Public water supply:
•
Support leakage reduction and infrastructure modernisation and deep
data assessment.
Timeline
2025-2026
2026-2028
2025-2028
47
48
European
Environment
Agency
(2024)
Europe’s
state
https://www.eea.europa.eu/en/analysis/publications/europes-state-of-water-2024
For example the current Transition Pathways Stakeholder Support Platform.
of
water
2024.
9
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Agriculture:
•
Maximise the use of CAP Strategic Plans for water resilience through
knowledge sharing and innovative solutions promoted by the EU
CAP network, the European Innovation Partnership (EIP-AGRI), as
well as improved and independent farm advisory services.
•
In the next programming period, continue to incentivise farmers to
improve the environmental and climate performance of their
holdings, including towards better water management.
Industry and Energy:
•
Launch a pilot project to promote water efficiency, including
waterless and closed water cycle technologies, in selected industrial
clusters.
•
Include water usage among the parameters of a common Union
scheme to rate the sustainability of data centres and propose water
consumption minimum performance standards.
•
Public-private initiative to achieve a technological breakthrough in
feasible and affordable methods for dry cooling, if the right partners
are found.
2.3
2025- 2026
2025-2027
Securing clean and affordable water for all, empowering consumers and other
users
Access to safe and clean drinking water and sanitation is a human right.
Three decades of
development and implementation of EU water law, including the Drinking Water and Urban
Wastewater Treatment Directives, together with significant EU investment, have generally
secured access to safe drinking water and sanitation across the EU in line with the European
Pillar of Social Rights
49
. Still, 1,5 % of the EU population lives without basic sanitary facilities,
and around 4% lacks proper access to safe drinking water. Actions in this area must ensure
inclusive and equitable efforts that address the needs of women and vulnerable groups, such as
persons with disabilities and minorities, as well as the least affluent EU regions to promote
social, economic and territorial cohesion, including the outermost regions. For the latter, of
particular importance are the specific climatic challenges they face coupled with inadequate
water infrastructure, which directly affect access to drinking water. Supporting water filtration
systems in areas with hard or very hard water is another relevant aspect.
Consumers play an essential role in enhancing water resilience.
Next to the well-established
EU Ecolabel, the Ecodesign for Sustainable Product Regulation (ESPR)
50
will help consumers
reduce water consumption by choosing less polluting, more water-efficient products. This
should shift demand towards water-smart products, boosting the EU's clean and circular
competitiveness. New private initiatives, like the Unified Water Label, are emerging to rate the
water efficiency of products.
49
50
https://commission.europa.eu/strategy-and-policy/priorities-2019-2024/economy-works-people/jobs-growth-
and-investment/european-pillar-social-rights/european-pillar-social-rights-20-principles_en
The recently adopted Ecodesign for Sustainable Products and Energy Labelling Working Plan 2025-2030
includes textiles/apparel, iron & steel and aluminium as products for which new requirements will be
developed, as well as a number of water relevant energy-related products such as dishwashers and washing
machines for which ecodesign requirement and/or energy labels will be available.
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When it comes to water use in housing and city planning, saving energy and saving water
should always go hand in hand.
The new Energy Performance of Buildings Directive
51
, which
supports energy efficiency including hot water efficiency as one of its objectives, and the New
European Bauhaus provide significant opportunities to boost efforts towards water resilience
across the built environment, while enhancing users and citizens’ involvement and the sharing
of best practices on water resilient design planning and concepts. This will be reflected in the
upcoming work programme 2026-2027 of the New European Bauhaus Facility, and in the
upcoming Affordable Housing Plan, which will also consider sustainability of housing,
including water resilience.
More emphasis must be placed on awareness and public involvement in water
management.
Stronger awareness can be supported by digital tools and is key to increase
citizens’ willingness to save water, but also to reduce their exposure to risks from floods or
droughts (see section 3). Ensuring the full implementation of public information and
transparency requirements will help increase citizens’ awareness and readiness to engage as
part of inclusive water governance. The Commission will promote the exchange of best
practices in raising awareness and equipping society to be more effectively involved in water
management and River Basin and Flood Risk Management Plans.
Water pricing policies based on actual use, environmental impact and capacity to pay are
essential to ensure access to water while creating the right incentives for consumers and
other users.
The Water Framework Directive incentivises sound national water pricing
policies, based on a fairly shared cost recovery and the polluter pays principle. The revised
Drinking Water and Urban Wastewater Directives ensure regular and comprehensive
information on water consumption and prices and advice how to reduce it. Exchanging best
practices will help Member States to use these tools in the most effective way.
Flagship actions - Securing clean and affordable water for all,
empowering consumers and other users
Address the water footprint of products when setting or updating
requirements under the ESPR and the EU Ecolabel.
Promote best practices on public awareness and the role of water pricing to
promote water efficiency, cost recovery and the polluter pays principle, and
related national water governance.
Boost efforts towards water resilience across the built environment through
the upcoming work programme 2026-2027 of the New European Bauhaus
Facility and in the upcoming Affordable Housing Plan.
3.
Timeline
2025-2027
2026-2027
2026
F
IVE
E
NABLING
A
REAS TO PAVE THE WAY FOR A
W
ATER
R
ESILIENT
E
UROPE
To reach the objectives outlined in the strategy, we need a whole-of-society approach with
enhanced cooperation between citizens, businesses, civil society and nature representative
groups and committed administrations working across policy silos and levels, involving all
stakeholders. The EU will support this with actions in five areas.
51
The Energy Efficiency Directive requires Member States to ensure that regional and local authorities prepare
local heating and cooling plans at least in municipalities having more than 45 000 inhabitants.
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3.1
Governance and implementation to boost change
Achieving water resilience will depend on enhanced implementation of the comprehensive
EU water acquis,
as well as stronger synergies with policies in sectors such as agriculture,
industry, energy, transport and consumer protection. Regulators have for decades acted to
protect water in both EU environmental and health policies. Through the European Green Deal,
several key pieces of legislation have been reviewed and modernised, driving much progress.
Yet, as shown in a recent Commission report
52
, gaps in implementation and funding have so
far considerably hampered the achievement of water legislation objectives. For example, when
preparing their third River Basin Management Plans and second Flood Risk Management
Plans, several Member States failed to duly follow up on the Commission recommendations
issued in 2019 and have not yet put in place adequate registers, controls and, where appropriate,
sanctions to avoid over-abstractions.
Building on the findings of its latest assessment of the national plans and
on its EU-wide
and country-specific recommendations,
the Commission will step up enforcement.
It will
launch Structured Dialogues with Member States to work jointly towards a reinforced
implementation of the broader EU water acquis. The Technical Support Instrument can help
Member States addressing water-related challenges, including those identified in the European
Semester.
Simplification of EU water rules can make an important contribution to their
implementation.
The Commission regularly evaluates key pieces of legislation, such as the
Nitrates Directive, currently under evaluation. Moreover, the Commission aims to simplify and
enhance the efficiency of electronic reporting under the Water Framework Directive, based on
an ongoing study. The revision of the Marine Strategy Framework Directive will also lead to
significant simplification. In the context of the implementation of the extended producer
responsibility system referred to in Article 9 of Directive (EU) 2024/3019 on urban wastewater
treatment, the Commission will conduct an updated study of costs and its potential impacts on
concerned sectors. In addition, the Commission will continue to support Member States in the
pragmatic design of national systems with a view to avoiding unexpected or unintended
consequences, in particular for the availability and affordability of medicines
53
.
Water-smart spatial planning must guide a sustainable deployment of the green and
digital transition.
The Commission will enhance existing visualisation tools putting together
environmental data with data related to the water and energy grids. The aim is to inform
Member States’ spatial planning decisions by helping them identify the best areas for setting
up water-intensive business operations and at the same attract investors to carry out nature
restoration and modernisation of water supply networks to support these businesses.
Cross-border cooperation must be further improved.
Europe has 75 cross-border river
basins. Although the Water Framework Directive explicitly requires Member States to ensure
a coordinated implementation for international river basins, there is room for a more
harmonised assessment of the water bodies’ status, improved consistency between measures
taken by upstream and downstream countries, including with riparian non-EU partner
52
53
Report from the Commission to the Council and the European Parliament on the implementation of the Water
Framework Directive (2000/60/EC) and the Floods Directive (2007/60/EC) (Third river basin management
plans Second flood risk management plans), COM(2025) 2 final.
As also requested by the European Parliament resolution of 7 May 2025 on the European Water Resilience
Strategy (2024/2104(INI)).
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countries, and increased focus on water quantity management. The Commission will support
peer-to-peer initiatives, to foster cooperation between River- and Sea-basin organisations,
regions and cities, through EU programmes and initiatives such as Horizon Europe, the Urban
Agenda for the European Union (UAEU) Thematic Partnership on ‘Water Sensitive City’ and
Cohesion for Transitions Community of Practice
54
. This will secure the important involvement
of the regional and local levels, as shown by initiatives under Interreg programs.
Flagship actions - Governance and implementation to boost change
Step up enforcement and launch structured dialogues with all Member
States to accelerate and scale up implementation of the EU water acquis,
based on key enforcement priorities stemming from the latest assessment
of the River Basin and Flood Risk Management Plans.
Under Cohesion for Transitions Community of Practice, organise regular
exchanges with regions, cities and water authorities, to promote exchange
of best practices on “sponge landscapes”, as well as transboundary water
cooperation, identified under Interreg.
Launch a viewer integrating environmental data with data related to the
water and energy grids to assist Member States in their spatial planning
efforts to identify the best areas for win-win localisation of water-
intensive business operations.
3.2
Finance, investments and infrastructure to achieve a stable supply
Timeline
2025-2026
2025-2027
2027
Without significant additional public and private investments in all stages of water
management, progress towards water resilience will be too slow or lack meaningful
impact.
The current annual capital investment for water measures (by the EU, EIB and national
budgets) reaches around EUR 55 billion (in 2022 prices), suggesting an annual investment gap
of around EUR 23 billion per year (0.1% of EU GDP) to implement the existing water
legislation
55
. This includes investment to turn rain into green water (stored in terrestrial
ecosystems) through nature-based solutions, and grey water (used in urban settlements or
industrial processes) into blue water (rivers and seas) to make it fit for nature again. Investments
must cover all the stages of water management and be planned in an integrated manner,
factoring in future climate scenarios and the assessment of the resulting risks. Investment must
also support new water technologies. For example, Member States may use the incentives
provided for in the BlueInvest platform in blue sectors and the development of critical water-
related technologies that meet the requirements of the Strategic Technologies for Europe
Platform (STEP). At the same time, Member States need to avoid subsidies that, as a side effect,
may harm the environment or lead to an inefficient water use.
In the recent mid-term review of Cohesion policy, the Commission has proposed an
exceptional package of measures to encourage Members States and regions to invest in
water resilience.
This package includes up to 100% of EU financing and 30% of prefinancing
in water resilience investments programmed under the dedicated priority for this new specific
objective, as well as various flexibilities.
54
55
https://ec.europa.eu/regional_policy/policy/communities-and-networks/cohesion-4-transition_en
DG Environment, Environmental investment needs, financing and gaps in the EU-27 – update 2024 (internal
analysis). It should be noted that this amount is largely based on water supply and sanitation needs, while costs
for other measures related to the implementation of the WFD and the FD may not be fully reflected.
13
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Some Member States have difficulties spending the EU funds available due to a lack of
administrative capacity and legal or organisational barriers.
The capacity to carry out
water resilience investments must be improved, specifically in less developed regions. Together
with water governance reforms at the right level, technical assistance can help to ensure that
available EU money is used as effectively as possible.
Available EU funds should be deployed quickly for investments aiming to reduce leakages
by using digital tools, smart metering, and water efficiency enhancing technologies.
These
investments require less complex planning than large water projects. The Commission will
develop guidance for Member States for “plug and play” (pilot) projects in these areas to
simplify and streamline procedures.
The next Multi-annual Financial Framework (MFF) is an opportunity to further support
water resilience through investment and reforms.
In the context of the national and regional
partnership agreements, Member States could address areas such as improved governance, risk
assessment and disaster preparedness, increased water efficiency and reuse, prioritised demand
reduction and enhanced controls. Furthermore, the Commission will encourage Member States
to cooperate in a Green and Blue Corridors initiative to support the restoration of ecological
settings and infrastructure including rivers, wetlands, and coasts.
In addition, the Commission is enhancing its cooperation with the European Investment
Bank Group (EIB)
to step up public and private investments in the area of water, both in the
EU and globally. The EIB Group, already today the largest global financier in the water sector,
has developed a Water Programme to support the Commission's Water Resilience Strategy with
over EUR 15 billion in planned financing during 2025-2027 for projects enhancing access to
water, pollution control, resilience and competitiveness of the EU water sector, including
through large infrastructures and nature-based solutions. Furthermore, the Commission and the
European Investment Bank will join forces to address bottlenecks for deploying water
investments. This will include the proposal of a new Sustainable Water Advisory Facility to
finance EIB technical assistance in building the pipeline of projects as well as better
quantifying funding needs and options to facilitate water investment.
Private investment will need to be significantly stepped up.
Cooperation with financial
institutions can leverage more private financing into water resilience through blended finance
approaches, innovative models such as Water as a Service and structured ecosystems for Green
and Blue Bonds. Rewarding ecosystem services schemes have the potential to also support the
creation of the necessary markets. The Commission will adopt a Roadmap for Nature Credits
to tap the potential of these instruments and incentivise the scale-up of these markets.
Furthermore, the simplified EU sustainable finance framework and the rolling out of the
Savings and Investment Union aim to increase the funding opportunities for EU businesses,
including in the water sector.
Climate-induced disruptions are strengthening the business case for water investments,
and innovative approaches can help unlock significant private investment.
Water is
increasingly recognised as a financially material factor for businesses, investors, and
governments. But there are significant obstacles to trigger private investments in water, which
often require close cooperation among different stakeholders not least to overcome free rider
problems. The Commission will establish a Water Resilience Investment Accelerator to
implement 20 pilot innovative cases for natural water retention and water efficiency, bringing
together local water investors, solution providers and problem holders to inspire similar actions
across the EU. This could also build on the networks of Living Labs established e.g. in
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European Partnerships and Missions. In order to address the growing challenge of insuring
economic losses caused by natural catastrophes including water-related disasters in the EU, the
Commission will explore possible solutions to reduce the insurance protection gap, by
following up on the proposals by the European Central Bank and European Insurance and
Occupational Pensions Authority.
56
Incentives for improved information, pricing and control
of water used (see section 2.3) will also help to make the business case for water investments
more appealing, including in sectors that are highly dependent on water and increasingly
vulnerable to its scarcity, such as agriculture, aquaculture and energy.
Flagship actions - Finance, investments and infrastructure to achieve a
stable supply
Launch of EIB Water Programme and Sustainable Water Advisory Facility
in cooperation with the Commission to step up the assistance to potential
loan-takers, increasing the pipeline of projects.
Support Member States and regions in reorienting Cohesion policy funds for
water resilience within the mid-term review.
Establish a Water Resilience Investment Accelerator
Launch a Green and Blue Corridors initiative to support the restoration of
ecological settings and infrastructure including rivers, wetlands, and coastal
restoration to restore the water cycle with a source-to-sea approach.
Adopt a Roadmap for Nature Credits to tap the potential of these instruments
and incentivise the scale-up of these markets.
3.3
Timeline
2025
2025
2026-2027
2027
2025
Digitalisation and Artificial Intelligence to accelerate and simplify sound water
management
Digitalisation has significant potential for revolutionising water management and
promoting sustainable water use.
It will bring timely insights for better policy-making and
improved design and operation of water infrastructure and services. Numerous digital
solutions, including Artificial Intelligence, are available in the market
57
. Yet, the uptake
remains too slow and uneven.
To unleash this largely untapped potential, and building on the upcoming
Communications on Data Union and on Apply AI, the Commission will adopt an Action
Plan targeted to face the specific challenges of the water sector
such as analogue and aging
systems, very large data sets scattered in many different repositories. It will include two main
pillars: i) deployment of digital solutions through funding and knowledge-sharing to build up
digital skills and encourage technology transfer in the water sector; and ii) support to water
data sharing by fostering the development of national data portals to overcome fragmentation
and make data easily findable, accessible free of charge, interoperable, and reusable, in line
with the requirements of the Open Data Directive
58
.
56
57
58
ECB and EIOPA, Towards a European system for natural catastrophe risk management, Joint Paper, December
2024.
These include smart metering providing real-time data on water use, predictive maintenance and leakage
detection systems, digital twins, as well as products based on data generated by in-situ, drone, or satellite
sensors.
Directive (EU) 2019/1024 of the European Parliament and of the Council of 20 June 2019 on open data and
the re-use of public sector information.
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A “one-stop shop” for Earth Observation products relevant to water management will
make managing water from space easily accessible to everyone.
While Earth Observation
has been used for decades to forecast droughts and floods, its daily use for water management
is much less widespread. Copernicus and its six specialized services provide an extensive
portfolio of water-related products available on a full, free and open basis. Yet, this information
is scattered. The Commission will establish a “one-stop shop” for Earth Observation products
relevant to water management – a Water Thematic Hub – in order to bring together Copernicus
water-related data, products, and tools, and facilitate access and use of these data. It will foster
collaboration between the Earth Observation and water management communities, in
partnership with the Joint Research Centre’s Knowledge Centre on Earth Observation, ensuring
that Copernicus products respond to the needs of users and policy makers.
Water management authorities and planning and permitting authorities, as well as the
private sector may need assistance in assessing risks due to climate change.
Digital models
being developed by Commission such as the Digital Twin of the Ocean and Destination Earth
will support the assessment long-term water conditions and availability under various climate
change or human activities scenarios. Such capabilities can become available to national and
local administrations before 2030.
Flagship actions - Digitalisation and Artificial Intelligence to accelerate
and simplify sound water management
Develop and implement Destination Earth and EU Digital Twin of the Ocean
applications for water resilience, and by 2030, make the capabilities
available to national and local administrations in the EU and beyond.
Develop an EU-wide Action Plan on digitalisation in the water sector
including an EU-wide initiative on Smart metering for all.
Launch a Copernicus Water Thematic Hub.
3.4
Timeline
2025-2030
2026
2026
Research and
innovation,
water industry and skills to strengthen competitiveness
Water innovation must be scaled up, based on the EU Start-up and Scale-up Strategy.
Water has been an important component of EU Framework Programmes for R&I and there is
already a large portfolio of innovative ideas and solutions developed in Europe. However,
actual deployment of these solutions beyond the project stage is still slow. To address this
matter, the Commission will establish a science/policy interface to valorise the knowledge from
EU and national funded R&I actions.
The Commission will launch a Water Smart Industrial Alliance to support its
consolidation
by stimulating innovation, competitiveness and securing the necessary water
skills. Furthermore, in line with the Clean Industrial Deal the Commission will explore how
public procurement can promote water resilience considerations in relevant public tenders and
a simplified market access for SMEs to help them untap their innovation potential.
Complementing these initiatives, the Commission will also launch a European Water Academy
to address capacity needs in Europe’s water sector, fostering public-private partnerships,
innovation, and technology transfer to fill skill gaps.
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People of all ages and across different disciplines need to develop new skills.
Employment
in the water sector has grown in the last years and will continue to do so
59
. However, both
public authorities and the private sector are facing an ageing workforce and a skills gap,
particularly in technical areas such as water treatment and management, as well as in relation
to digital skills. The Union of skills package including the European Social Fund Plus can boost
training for authorities, water management professionals, and communities. For freshwater and
the ocean, skills in science, technology, engineering, and maths (STEM) must be promoted
60
.
To equip the EU water workforce with the right skills, the Commission, the EU water industry
and stakeholders will work together including on the possible launch of a Large-Scale Skills
partnership. In addition, the Commission will enhance vocational training by increasing its
support to the Platform of Vocational Excellence Water. It will also use the existing Network
of European Blue Schools to raise literacy and awareness to address freshwater and ocean
protection in a source-to-sea approach.
Despite a strong knowledge base, gaps remain in understanding European fresh and
marine waters, water resource availability, climate changes, and the water-energy-food-
ecosystems nexus.
Effective use of EU research funds can help bring innovative technologies
to market and support SMEs. Building on the cutting-edge research under EU Missions Restore
our Oceans and Waters and Adaptation to Climate Change, the Commission will adopt, by the
end of 2026, a Water Resilience R&I Strategy addressing the fragmentation of EU R&I
initiatives.
Finally, to boost Europe’s competitiveness in the water field by spurring innovation and
closing the skills and knowledge gaps, we need to create more synergies and connect
industry, education and research with a source-to-sea approach.
This is why the
Commission will launch, in 2026, a Knowledge and Innovation Community (KIC) in Water,
Marine and Maritime Sectors and Ecosystems under the European Institute of Technology
(EIT).
Flagship actions – Research and innovation, water industry and
skills to strengthen competitiveness
Science/policy interface to disseminate the results of EU-funded R&I
projects e.g. through a one-stop shop platform.
Water Resilience R&I strategy.
Water Smart Industrial Alliance to stimulate competitiveness.
European Water Academy.
Knowledge and Innovation Community (KIC) in Water, Marine and
Maritime Sectors and Ecosystems under the European Institute of
Innovation and Technology (EIT).
3.5
Security and preparedness to boost collective resilience
Timeline
2026
2026
2026
2026-2027
2026
Climate-driven threats and biodiversity losses, malicious attacks linked to the disruption
of critical water infrastructure and supply, alongside accidental pollution of inland and
marine waters have been identified as key water risks by Member States.
Over the last
59
60
Cedefop (2023). Skills in transition: the way to 2035. Luxembourg: Publications
http://data.europa.eu/doi/10.2801/438491
A STEM Education Strategic Plan: skills for competitiveness and innovation COM(2025)89.
Office.
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years, such disasters have triggered an increasing number of requests for assistance from the
EU Civil Protection Mechanism (UCPM), both in Europe and other parts of the world. The EU
will continue to demonstrate solidarity for transboundary cooperation, yet in order to make an
efficient use of available funds and reduce the need for disaster relief, such solidarity must by
complemented by principles of preparedness by design. Particularly relevant in this context are
the RESTORE Regulation, which supports Member States to quickly mobilize funds
61
and the
mid-term review of Cohesion policy.
Citizens need local solutions that protect them and allow them to be prepared for what
cannot be prevented,
in line with the European Preparedness Union Strategy
62
. Such actions
must integrate urban planning considerations to tackle pollution, whilst mitigating and adapting
to climate change, improving drought and flood risk management, optimising the use of digital
tools and rapid alert systems, and strengthening the links of already existing risk management
tools at the European level (such as the early warning tools of the Copernicus Emergency
Management Service
63)
, national level and local level. Citizens and communities must be
empowered to act towards climate adaptation and protection from risks of floods and droughts.
Making available information about the specific risks of floods and droughts for buildings and
land is a first step towards increasing societal resilience.
Many tools exist in the EU to protect the population from water-related disasters, or
mitigate the impact, yet they are not always sufficiently known or used.
It is important to
empower citizens to learn about and manage the growing risks of climate-driven water
disasters, as called for in Union Disaster Resilience Goals developed under the UCPM
64
. The
Commission will enhance EU real-time early warning and monitoring systems for floods and
droughts by supporting Member States’ actions, by strengthening the European Drought
Observatory and the European Flood Awareness System of the Copernicus Emergency
Management Service.
Knowing and addressing our weaknesses will make us more resilient.
As the frequency and
the severity of the impact of cyberattacks against water facilities is increasing, appropriate
security planning and better understanding of vulnerabilities will help the Union and economic
operators to counter hostile actions against the physical and cyber integrity, including of
drinking water-supply and wastewater treatment infrastructure and deliberate waterborne
contamination. This planning will greatly benefit from the full implementation of the Critical
Entities Resilience (CER) Directive
65
and the Directive on measures for a high common level
61
62
63
64
65
Regulation (EU) 2024/3236 of the European Parliament and of the Council of 19 December 2024 amending
Regulations (EU) 2021/1057 and (EU) 2021/1058 as regards Regional Emergency Support to Reconstruction
(RESTORE).
JOIN(2025) 130 final. Joint Communication to the European Parliament, the European Council, the Council,
the European Economic and Social Committee and the Committee of the Regions on the European
Preparedness Union Strategy.
Copernicus Emergency Management Service with its early warning systems for forest fires (European Forest
Fire Information System - EFFIS), floods (European and Global Flood Awareness Systems - EFAS &
GloFAS), and droughts (European and Global Drought Observatory - EDO & GDO), the awareness-raising
Flood Risk Areas viewer.
The first Union Disaster Resilience Goals were established under Article 6(5) of the UCPM Decision, and
were published in February 2023. Recommendation establishing Union Disaster Resilience Goals, OJ C 56,
15.2.2023, p.1. Communication on Union Disaster Resilience Goals: Acting together to deal with future
emergencies, COM(2023) 61.
By 2026, Member States will adopt a strategy for enhancing the resilience of critical entities covering the
drinking and wastewater sectors.
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of cybersecurity across the Union (NIS2 Directive)
66
. The upcoming Commission
Communication setting non-binding guidelines to support Member States in identifying their
critical entities and reporting on the outcome of their risk assessments will apply to the drinking
water and wastewater sectors, in line with the scope of the CER Directive. Another important
element of strengthening the EU resilience is supporting public authorities, business and the
public in preparing for future climate risks, including through the use of common climate
reference scenarios and digital tools for EU real-time early warning and monitoring systems.
Flagship actions - Security and preparedness to boost collective
resilience
Enhance resilience of on- and offshore water infrastructure through the
implementation of the Critical Entities Resilience Directive.
Enhance EU real-time early warning and monitoring systems by
strengthening the European Drought Observatory and the European Flood
Awareness System of the Copernicus Emergency Management Service.
Adopt a European Climate Adaptation Plan.
Timeline
2025
As from 2025
2026
4.
A
CTING
G
LOBALLY
-
LEADING BY EXAMPLE
,
COMMITMENT AND INITIATIVES
Five years remain until the end of the 2030 Agenda. Progress towards Sustainable
Development Goal 6
67
is well below the pace needed.
Worldwide, 2.2 billion people still lack
access to safe drinking water, more than half of humankind lacks access to safe sanitation, and
many watersheds experience increasing levels of degradation, threatening ecosystem health
and water availability, and worsened by climate change. Wetlands are nature’s most effective
water managers, yet, across the globe, they are disappearing three times faster than forests,
increasing the risk of desertification and floods. It is estimated that almost half of the world’s
population will suffer water stress by 2030
68
.
Swift and transformative global action, including redefinition of the way we value and
govern water for the common good is needed to avoid an accelerated water crisis.
Through
its actions under the Global Gateway Strategy, the EU will contribute to protecting and
restoring the global water cycle, building a water smart economy and ensuring water security
for all, in line with the EU level objectives of this strategy and the Pact for the Future
69
. The
EU will expand strategic partnerships and water diplomacy to promote Integrated Water
Resource Management, the source-to-sea approach, the use of nature-based solutions,
investment in sustainable water and sanitation for all, and innovation-driven policy reforms.
As part of building a water-smart, circular and competitive economy, the EU will support global
initiatives for promoting water efficiency and reuse in all economic sectors. In addition, the EU
will support the finalisation and adoption of the Codex Alimentarius Guidelines
70
to ensure
microbiologically safe use and reuse of water in food production across the globe.
66
67
68
69
70
Directive (EU) 2022/2555 on measures for a high common level of cybersecurity across the Union (NIS2
Directive), OJ L 333, 27.12. 2022, p.80.
SDG6 Ensure availability and sustainable management of water and sanitation for all.
The 2024 UN World Water Development Report: Water for Prosperity and Peace.
UNGA resolution 79/1
fao.org/fao-who-codexalimentarius/sh-
proxy/tr/?lnk=1&url=https%253A%252F%252Fworkspace.fao.org%252Fsites%252Fcodex%252FStandards
%252FCXG%2B100-2023%252FCXG_100e.pdf
19
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The water, peace and security nexus will be strengthened
through bringing together
humanitarian, development and peace actors, advocating for compliance with International
Humanitarian Law to support the safety and security of water resources, water personnel and
infrastructure in conflict zones. By setting minimum environmental requirements for EU-
funded humanitarian aid operations, the EU promotes sustainability of water resources in
contexts which are particularly affected by water shortages
71
.
A stronger global water governance is essential for steady progress, strategic steer and to
overcome fragmentation.
The UN 2023 Water Conference put water firmly on the global
political landscape with the ambitious Water Action Agenda
72
, followed by the UNEA-6
resolution on water
73
, the System-wide strategy for water and sanitation
74
and the appointment
of the UN Special Envoy on Water. The EU will work towards an ambitious and action-oriented
outcome of the upcoming UN Water Conferences, including a regular UN inter-governmental
process on water, mainstreaming of water in multilateral processes and engagement in key
coalitions. The EU will also engage partner countries on water governance, including through
building its network of EU member state Water Envoys.
The EU will support the extension of the UN Water Convention
75
as a means to promote
sustainable management of shared water resources, conflict prevention, peacebuilding,
security, and economic development. Through Global Gateway
76
, Team Europe (the
Commission, the EIB and Member States’ Development Finance Institutions) is making over
EUR 1.2 billion available for supporting governance, knowledge, and investments in 18 major
cross-border water basins across 47 countries in Africa and Central Asia. This includes
initiatives like the International Fund for the Aral Sea and the Blue Africa programme.
The EU will strengthen country and regional partnerships on water.
This includes the
Union for the Mediterranean Water Agenda 2030 and the upcoming New Pact for the
Mediterranean, to address increasing water scarcity and climate impacts in the region. The EU
will support candidate and neighbourhood countries, including through the Western Balkans
and Eastern Neighbourhood Investment Framework and the Ukraine Facility. In this context,
the EU strategic approach to the Black Sea
77
is of particular importance, to support local
communities against inter alia war-related environmental damage. The EU will propose the
introduction of the relevant water legislation in the acquis covered by the Energy Community
Treaty
78
. The EU and Central Asia will enhance their cooperation through the recently agreed
strategic partnership, with a EUR 12 billion Global Gateway investment package to focus on
four key priorities, including climate, water and energy. The EU cutting-edge water industry is
key to support partner countries, develop water-efficient technologies, finance sustainable
71
72
73
74
75
76
77
78
https://civil-protection-humanitarian-aid.ec.europa.eu/what/humanitarian-aid/climate-change-and-
environment_en
https://sdgs.un.org/conferences/water2023/action-agenda,
with
33
EU
commitments
https://data.consilium.europa.eu/doc/document/ST-7443-2023-INIT/en/pdf.
https://docs.un.org/en/UNEP/EA.6/RES.13.
UN_System-wide_Strategy_for_Water_and_Sanitation_July2024_vs23July2024.pdf.
The Convention on the Protection and Use of Transboundary Watercourses and International Lakes.
European strategy to tackle the most pressing global challenges and to mobilise up to EUR 300 billion of
investments for sustainable and high-quality projects
https://commission.europa.eu/strategy-and-
policy/priorities-2019-2024/stronger-europe-world/global-gateway_en.
JOIN(2025) 135/3, Joint Communication to the European Parliament and the Council - The European Union's
strategic approach to the Black Sea region.
Treaty establishing Energy Community - Energy Community Homepage
20
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infrastructure and drive innovation. The EU will support policy incentives, financing
mechanisms and water SMEs to seize relevant market opportunities.
The EU remains committed to help closing the considerable gap in international water
financing.
Through Global Gateway, the EU and its Member States remain the biggest
contributor to official development aid, including on water infrastructure and Nature-based
Solutions, strengthened by mobilising private sector engagement via the European Fund for
Sustainable Development (EFSD+). The EIB and the European Bank for Reconstruction and
Development, together with other multilateral development banks, have committed to greater
levels of financing for water security and will reinforce their cooperation
79
. The EU will
continue supporting investments mainly through blending mechanisms and guarantees and
improving the investment climate by facilitating legal reforms and promoting high social and
environmental standards. This includes initiatives like Climate Investor 2, a blended finance
facility mobilising up to EUR 2.2 billion for water, sanitation, and ocean infrastructure projects,
as well as strategic procurement and support to environmental, social and governance
frameworks. Clean Trade and Investment Partnerships could also play a role.
Flagship actions – Acting globally – leading by example,
commitment and initiatives
Promote water resilience through the Global Gateway by support
for priority water-related initiatives and reinforced country and
regional engagement.
5.
C
ONCLUSIONS
Timeline
As from 2025
The Commission calls on Member States, institutional partners, businesses and all parts of
society to take action along the lines indicated in this Strategy.
As from December 2025, the Commission will convene, every two years, a Water Resilience
Forum, bringing together in an inclusive dialogue of EU stakeholders and interested parties to
take stock of progress made in enhancing water resilience across all levels of government,
business and civil society, and monitoring implementation of this Strategy.
In 2027, the Commission will carry out a mid-term review of the progress made in
implementing the actions included in this Strategy. It will also make a first evaluation of the
uptake of the Recommendation on Water Efficiency First. In this context, some of the actions
may be updated or revised.
In 2029, the Commission will evaluate the progress made, including a full evaluation of
national actions taken in line with the Recommendation on Water Efficiency First. The
Commission will also identify possible further actions needed to address emerging concerns
and accordingly review, as appropriate, the identified targets and actions, with a view to
achieving water resilience across all sectors of society.
79
https://www.eib.org/files/press/CommitmenttoWaterSecuritywithlogos.pdf
21
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A
NNEX
I – F
ULL
L
IST OF
A
CTIONS
ACTIONS
R
ESTORING AND PROTECTING THE WATER CYCLE
Establish, including through Structured Dialogues with Member
States, implementation priorities of the Water Framework and the
Floods Directives, focusing on water quality and quantity.
Revise the Marine Strategy Framework Directive.
Develop water scarcity indicators and a Technical Guidance on
Drought Management Plans.
To address main sources of pollution:
•
Public-private initiative to achieve a technological
breakthrough in feasible and affordable methods for the
detection and remediation of PFAS and other persistent
chemicals, if the right partners are found.
•
Launch an Assistance Toolbox for Member States to
support actions to reduce nutrients pollution, including
through enhanced modelling, interactive maps and
exchanges of best practices.
COMPETITIVENESS AND ATTRACTS INVESTORS
Timeline
2025-2026
2027
2026-2027
2027
2026-2027
B
UILDING A WATER
-
SMART ECONOMY THAT LEAVES NO ONE BEHIND
,
SUPPORTS
EU
Recommendation on the Water Efficiency First principle,
guidelines and EEA report on the untapped water efficiency
potential.
Support the uptake of water reuse practices also beyond
agriculture and review the Water Reuse Regulation.
Public water supply:
•
Support
leakage
reduction
and
infrastructure
modernisation and deep data assessment.
Agriculture:
•
Maximise the use of CAP Strategic Plans for water
resilience through knowledge sharing and innovative
solutions promoted by the EU CAP network, the European
Innovation Partnership (EIP-AGRI), as well as improved
and independent farm advisory services.
•
In the next programming period, continue to incentivise
farmers to improve the environmental and climate
performance of their holdings, including towards better
water management.
Industry and Energy:
•
Launch a pilot project to promote water efficiency,
including waterless and closed water cycle technologies, in
selected industrial clusters.
•
Include water usage among the parameters of a common
Union scheme to rate the sustainability of data centres and
propose water consumption minimum performance
standards.
•
Public-private initiative to achieve a technological
2025-2026
2026-2028
2025-2028
2025-2026
2025-2026
breakthrough in feasible and affordable methods for
dry cooling, if the right partners are found.
22
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Promote an exchange of best practices on freshwater balances,
accounting of water flows, water efficiency, and smart water metering
across all economic sectors
Assess the quality of the data available on water and, where appropriate,
submit a legislative proposal for the introduction of new environmental
economic account modules for water accounts.
OTHER USERS
As from 2025
By the end of
2026
S
ECURING CLEAN AND AFFORDABLE WATER FOR ALL
,
EMPOWERING CONSUMERS AND
Address the water footprint of products when setting or updating
requirements under the ESPR and the EU Ecolabel.
Promote best practices on public awareness and the role of water
pricing to promote water efficiency, cost recovery and the polluter
pays principle, and related national water governance.
Boost efforts towards water resilience across the built environment
through the upcoming work programme 2026-2027 of the New
European Bauhaus Facility and in the upcoming Affordable
Housing Plan.
2025-2027
2026-2027
2026
G
OVERNANCE AND IMPLEMENTATION TO BOOST CHANGE
Step up enforcement and launch structured dialogues with all
Member States to accelerate and scale up implementation of the EU
water acquis, based on key enforcement priorities stemming from
the latest assessment of the River Basin and Flood Risk
Management Plans.
Under Cohesion for Transitions Community of Practice, organize
a regular exchange with regions, cities and water authorities, to
promote exchange of best practices on “sponge landscapes” and
transboundary water cooperation identified under Interreg.
2025-2026
2025-2027
Launch a viewer integrating environmental data with data
related to the water and energy grids to assist Member States
in their spatial planning efforts to identify the best areas for
win-win localisation of water-intensive business operations.
Create a Water Resilience Forum.
Launch of EIB Water Programme and Sustainable Water Advisory
Facility in cooperation with the Commission to step up the
assistance to potential loan-takers, increasing the pipeline of
projects.
Support Member States and regions in reorienting Cohesion policy
funds for water resilience within the mid-term review.
Establish a Water Resilience Investment Accelerator.
Launch a Green and Blue Corridors initiative to support the
restoration of ecological settings and infrastructure including
rivers, wetlands, and coastal restoration to restore the water cycle
with a source-to-sea approach.
Adopt a Roadmap for Nature Credits to tap the potential of these
instruments and incentivise the scale-up of these markets.
Use the Technical Support Instrument to help Member States
addressing water-related challenges, particularly those identified in the
European Semester.
2027
As from 2026
F
INANCE
,
INVESTMENTS AND INFRASTRUCTURE TO ACHIEVE A STABLE SUPPLY
2025
2025
2026-2027
2027
2025
As from 2025
23
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D
IGITALISATION AND
A
RTIFICIAL
I
NTELLIGENCE TO ACCELERATE AND SIMPLIFY
SOUND WATER MANAGEMENT
Develop and implement Destination Earth and EU Digital Twin of
the Ocean applications for water resilience, and by 2030, make the
capabilities available to national and local administrations in the
EU and beyond.
Develop an EU-wide Action Plan on digitalisation in the water
sector including an EU-wide initiative on Smart metering for all.
Launch a Copernicus Water Thematic Hub.
COMPETITIVENESS
2025-2030
2026
2026
R
ESEARCH AND INNOVATION
,
WATER INDUSTRY AND SKILLS TO STRENGTHEN
Science/policy interface to disseminate the results of EU-funded
R&I projects e.g. through a one-stop shop platform.
Water Resilience R&I strategy.
Water Smart Industrial Alliance to stimulate competitiveness.
European Water Academy.
Knowledge and Innovation Community (KIC) in Water, Marine
and Maritime Sectors and Ecosystems under the European
Institute of Innovation and Technology (EIT).
Promote further research and innovation to promote sustainable
desalination.
Water Tech challenge, in cooperation with the EIC.
2026
2026
2026
2026-2027
2026
2026
tbd
S
ECURITY AND PREPAREDNESS TO BOOST COLLECTIVE RESILIENCE
Enhance resilience of on- and offshore water infrastructure
through the implementation of the Critical Entities Resilience
2025
Directive.
Enhance EU real-time early warning and monitoring systems by
strengthening the European Drought Observatory and the
As from 2025
European Flood Awareness System of the Copernicus Emergency
Management Service.
Adopt a European Climate Adaptation Plan.
2026
Strengthen the prevention of water-borne infectious diseases through
the implementation of Regulation (EU) 2022/2371 on Serious Cross-
As from 2022
border Threats to Health.
A
CTING
G
LOBALLY
–
LEADING BY EXAMPLE
,
COMMITMENT AND INITIATIVES
Promote water resilience through the Global Gateway by support
for priority water-related initiatives and reinforced country and
As from 2025
regional engagement.
Strengthen global water governance by engaging in discussions on a
As from 2025
future global water governance framework.
Foster cross-border water cooperation through supporting accession to
As from 2025
the UN Water Convention.
Support the access to an improved drinking water source and/or
sanitation facility for at least 70 million individuals, unlock larger
ongoing
investments and boost competitiveness of the EU water industry.
Significantly scale up investment in nature-based solutions in
As from 2026
infrastructures or in conjunction with infrastructures.
Mainstream water in international processes, including the three Rio
As from 2025
Conventions on climate change, biodiversity and desertification.
24
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Enhance implementation of water-related goals and targets
80
of the
Kunming Montreal Global Biodiversity Framework.
Enhance EU engagement in the Ramsar Convention.
Strengthen engagement in inter-alia G7, G20, the Transboundary Water
Cooperation Coalition, the Freshwater Challenge and the Baku Water
Dialogue.
Assess the investment needs for each candidate country to comply with
the water acquis.
Step up engagement in the Union for Mediterranean and the Blue
Mediterranean Partnership.
ongoing
As from 2025
As from 2025
As from 2026
As from 2025
80
https://www.cbd.int/gbf/targets
25
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A
NNEX
II - T
HE KEY
2027-2033
INTERMEDIATE TARGETS
Restoring and protecting the water cycle
By 2030,
restoration measures will be put in place on at least 30% of the EU’s coastal and
freshwater habitats that are not in good condition (Nature
Restoration Regulation).
By 2030,
at least 30% of species and habitats not currently in favourable status are in that
category or show a strong positive trend (EU
biodiversity strategy for 2030).
By 2030,
at least 25 000 km of rivers in the EU will have to be restored into free-flowing
rivers (EU
biodiversity strategy for 2030).
By 2027,
Member States shall protect, enhance and restore all bodies of surface water and
groundwater with the aim of achieving good status (Water
Framework Directive).
Building a water-smart economy that leaves no one behind, supports EU competitiveness
and attracts investors
By 2030,
the most water-intensive sectors will have adopted and enhanced water-efficient practices,
including the following sectors, based on existing EU legislation:
•
Energy: national building renovation plans, due
by 2026,
will start being deployed in each
Member State to achieve the progressive renovation of existing buildings into highly
energy-efficient and decarbonised buildings by 2050, including through approaches and
programmes addressing water treatment (Energy
Performance of Buildings Directive).
Industry: water use will start being tangibly reduced across the EU’s largest industrial and
livestock farming production processes
(Industrial Emissions Directive).
•
In addition, with respect to agriculture,
by 2027
the CAP Strategic Plans have provided support for
practices (beyond mandatory requirements) to improve soil health (and thus improve water retention
and limit erosion) on 47% of the EU’s agricultural area. Support for practices for the sustainable
use of pesticides and improved nutrient management will cover 27% and 15% of EU’s agricultural
area respectively (CAP support and CAP Strategic Plans).
By 2030,
Member States with water supply leakage levels exceeding the EU-wide threshold – to be
set by 2028 – will present an action plan with measures to reduce leakages across their supply
networks (Drinking
Water Directive).
By 2030,
the Commission and the Member States will promote the reuse of treated urban
wastewater for all appropriate purposes beyond agriculture and assess the feasibility and
appropriateness of setting an EU target for water reuse across economic sectors (Water
Reuse
Regulation).
Securing clean and affordable water for all, empowering consumers and other users
By 2027,
Member States will set up transparent drinking water and wastewater bills, to increase
consumers’ awareness of their consumption and the real price of water, as well as surveillance
systems for monitoring public health parameters in urban wastewater in case of emergencies
(Drinking
Water Directive, Urban Wastewater Treatment Directive).
By 2029,
Member States will inform the Commission about measures taken to improve access to
drinking water and sanitation for all, including vulnerable and marginalised groups, and will start
updating the Commission every six years on the matter (Drinking
Water Directive
and
Urban
Wastewater Treatment Directive).
By 2030
, the EU will support the access of 70 million individuals to an improved drinking
water source and/or sanitation facility (EU
commitment to the Water Action Agenda).
26
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By 2033,
all EU cities above 100 000 inhabitants will set up integrated urban wastewater
management plans prioritising nature-based solutions and green/blue infrastructures (Urban
Wastewater Treatment Directive).
27