More than 70% of European cities are not adapting to climate change in a consistent and coherent way.
That is the headline finding of our new study, published in Nature Climate Change, on how European cities are – or are not – preparing for a warming world.
We find that nearly half of the 327 cities that we assess have not published an adaptation plan, leaving us unsure as to whether or how they are trying to reduce climate threats.
For the 167 cities that do have adaptation plans – ranging from Alborg and Aarhus in Denmark through to Zilona Gorá in Poland and Zaragoza in Spain – we find that the climate-related measures within them are often inconsistent.
In other words, their climate risk assessments, policy goals, adaptation measures and monitoring programmes are not aligned.
For example, 81 plans identified the increased risk of storms and winds from climate change, but only 23 of these plans (28%) mentioned increasing resilience to such severe weather events as a specific policy goal.
These inconsistencies contribute to a “gap” that the UN has identified between the adaptation goals that societies have adopted and the measures they have implemented to try and meet them.
Our study finds that Nuremberg in Germany has the largest gap in its adaptation plan, with Stuttgart and Schwerin in Germany and Birmingham in the UK close behind.
The gap is particularly alarming because Europe is warming twice as fast as any other continent – and it is a continent that has had considerable financial and institutional support for adaptation for decades.
Consistent and coherent
Much of the existing research into the “adaptation gap” focuses on the difference between the climate measures a city needs and what action has actually been taken.
But there is another key part of the adaptation gap – whether the policies and measures are actually internally consistent.
Ideally, we would expect adaptation efforts to be “joined-up” along the policy chain.
For example, where climate risk assessments suggest that a city faces specific threats from storms, flash flooding, heatwaves, forest fires or drought, these vulnerabilities should be linked directly to the municipality’s adaptation goals, policies and the monitoring and evaluation processes.
Additionally, we might hope that city governments would involve those at risk from severe climate impacts, such as vulnerable population groups, industries and sectors of the economy, in decisions as to how they will be protected.
If these different phases of adaptation management are misaligned and inconsistent, we can see how cities and societies are less likely to deal with the impact of severe weather events effectively.
‘Consistency checks’
We developed a series of “consistency checks” to identify the extent to which different stages of the adaptation management process are aligned.
These include:
- Consistency between hazards identified in a risk assessment and a city’s adaptation goals.
- Consistency between the risks to specific sectors and detailed policy measures.
- Consistency between the risks faced by vulnerable groups and detailed policy measures.
- Consistency between the policy measures targeted at vulnerable groups and monitoring and evaluation processes to ensure they are being implemented.
- Consistency between the risks faced by vulnerable groups and their involvement in decision-making.
We use these checks to assess the adaptation strategies of European cities. For this, we use an existing dataset of the local adaptation plans of more than 300 cities.
(The dataset covers the 27 member countries of the EU, plus the UK. It aims to cover around 20% of the population of each country and include national and regional capitals where possible. In general, it covers large cities with more than 250,000 people and medium-size urban areas with more than 50,000 people.)
We find that nearly half (49%) of the plans do align climate risks with climate goals. Slightly more than half (52%) align identified sectoral risks with respective measures, but only regarding specific economic sectors and industries.
For example, 68 cities (77%) identify particular risks for buildings, while 70 cities (80%) highlight risks to the water industry and include details of measures to protect these sectors.
However, identified risks for vulnerable groups, such as risks for older people, those on low-incomes and ethnic minorities, were only followed-up with consistent measures in 43% of the plans.
Also, only 4% of cities consider or involve vulnerable groups in monitoring and evaluation (if they identified these groups at risk) – and only 1% of cities were effectively engaging vulnerable communities in plan development.
Given that the least powerful members of society are often the most vulnerable to climate change, there is a real risk that they will be further exposed to severe weather events.
Overall, when assessing each of the five consistency checks in all 167 plans, we find inconsistencies in more than two-thirds (70%). This is despite the fact that adaptation planning in Europe has improved over time – as we highlighted in a previous Carbon Brief article.
The findings are illustrated in the map below, which shows the 167 cities with adaptation plans. The coloured dots indicate the extent to which each city’s plan is inconsistent (indicating a potential adaptation gap) – taken as an average across the five checks set out in our study.
Green dots indicate plans that are fully consistent, with a sliding scale of inconsistency through yellow, orange and red. The maximum inconsistency identified in the study is an adaptation gap of 79.6% – found in Nuremberg, Germany. But Stuttgart and Schwerin in Germany and Birmingham in the UK are close behind, with an average “gap” score of more than 78%.
Lack of adaptation plans
Significantly, our research finds that only 167 of the 327 cities – just over half of those in the database – had even produced a climate adaptation plan by the study’s cut-off date of December 2020.
As such, we were unable to assess how a huge number of places across Europe are planning to deal with climate threats – regardless of whether their activities are misaligned or not.
(Although many cities will have published adaptation plans since this date, it is not clear how coherent their activities are likely to be, nor whether they take sufficient account of the needs of vulnerable groups.)
Overall, our research suggests a greater need for city and national governments to base their adaptation policies on robust risk assessments and to monitor progress accordingly – particularly with the most vulnerable social groups in society in mind.
Our findings highlight the importance of focusing on those who are most vulnerable to climate change, by involving them in decision-making and targeting specific measures at these groups.
The post Guest post: More than 70% of adaptation plans for European cities are ‘inconsistent’ appeared first on Carbon Brief.
Guest post: More than 70% of adaptation plans for European cities are ‘inconsistent’
When carbon dioxide (CO2) is released from a factory or power plant, the gas can be captured and permanently stored underground, preventing it from driving climate change.
This is the idea underpinning carbon capture and storage (CCS), a technology that is at the heart of many nations’ net-zero plans.
Influential organisations, including the Intergovernmental Panel on Climate Change (IPCC), describe CCS as “critical” for cutting emissions from key sectors – and for helping to avoid dangerous global warming.
In particular, capturing CO2 is seen as one of the only viable options for decarbonising some of the world’s highest-emitting industries, such as cement production.
The UK, for example, has committed to investing as much as £21.7bn over the coming decades in its nascent CCS industry, as part of the nation’s net-zero strategy.
Yet, in the UK and elsewhere, there has been a backlash against plans for CCS.
Citing high costs, ties to the fossil-fuel industry and a “history of poor performance”, critics describe CCS as a “dangerous distraction” or a “false climate solution”.
Time and again, the outlook for the roll-out of CCS has been scaled back, as the technology has failed to deliver as quickly as expected – and as policy support has wavered.
Furthermore, critics state that the technology remains “unproven” on the scale required to make a meaningful impact on global emissions.
In this Q&A, Carbon Brief explores the role CCS is expected to play in achieving net-zero, its record to date and the reasons it has been criticised, using the UK as an example.
What is CCS?
CCS involves capturing CO2 emissions released from a large source, such as a gas power plant or a cement factory.
The CO2 is separated from the facility’s exhaust stream, generally using a chemical solvent, before being compressed into a liquid and transported via pipeline or vehicle. The CO2 is then stored by injecting it into underground reservoirs, such as depleted oil fields or saline aquifers.
The term “CCUS” is sometimes also used, referring to the “utilisation” of CO2 to make products, including fertilisers, fuels or building materials. Such uses do not necessarily lead to permanent emissions cuts, as the CO2 can end up later being released back into the atmosphere.
(“CCS” is used in this Q&A, unless quoting another organisation that specifically refers to “CCUS”.)
The infographic below shows the stages of capturing CO2 and transporting it to be either stored or used in other applications.
Carbon capture technology was originally rolled out at US and Canadian oil wells in the early 1970s as a way to achieve “enhanced oil recovery”. This involves injecting captured CO2 into depleted wells – a process that stores CO2, but also helps to extract more oil.
This remains, by far, the most significant end use for captured CO2 worldwide, with around three-quarters of it used for this purpose.
Moreover, most of the CO2 currently captured is a by-product of gas purification – the process by which fossil fuels such as methane are separated from other, unwanted substances. Selling this CO2 can make such gas projects more economically viable.
Therefore, as shown in the chart below, which is based on International Energy Agency (IEA) data, the majority of CO2 that is both captured and used today helps the fossil-fuel industry to extract and sell more oil and gas.
CCS was first proposed as a way to deal with CO2 emissions in a 1976 academic article, which imagined injecting the captured gas into the ocean.
It is only since the early 2000s that CCS has gained traction as a proposed climate solution, with a 2005 “special report” by the IPCC exploring the topic. At that time, the authors note there were just three small-scale projects trying to capture and permanently store CO2.
Installing CCS at factories or power plants and permanently storing the CO2 would mean that, in theory, such facilities could continue using fossil fuels without contributing to climate change.
Such applications are often mentioned alongside two related technologies, both of which could be used to “suck” CO2 out of the atmosphere and, thus, deliver “negative emissions”.
One is bioenergy with carbon capture and storage (BECCS). Crops absorb CO2 as they grow and BECCS involves a power plant burning these crops, then storing the resulting CO2.
The other technology is direct air carbon capture and storage (DACCS).
These technologies are classed as “CO2 removal”, as they involve absorbing CO2 from the atmosphere using plants or machines and then storing it permanently.
By contrast, CCS installed at a factory is considered a way to avoid CO2 emitted by that specific facility from entering the atmosphere. This Q&A focuses on such applications, which account for the vast majority of existing and planned CCS.
How much CCS capacity has been built so far?
As of February 2026, there were a total of 75 operational CCS projects around the world. As noted above, almost all of them are at fossil-fuel extraction and processing sites, according to the IEA’s database.
Together, these projects capture 62.5m tonnes of CO2 (MtCO2) each year. This is equivalent to the annual greenhouse gas emissions of Ecuador.
(This compares with the 22 CCS projects, promising to capture 40MtCO2 annually, that were operational or under construction as of 2014.)
As the chart below shows, the amount of CO2 currently being captured and stored is a tiny fraction of the total emissions from fossil-fuel use.
In a 2020 report, the IEA explained that the “story of CCUS has largely been one of unmet expectations: its potential to mitigate climate change has been recognised for decades, but deployment has been slow”.
A wave of interest in CCS in the 2000s, largely from countries in Europe and North America, focused on enabling coal power plants to continue operating with lower emissions.
This interest largely petered out, as plummeting renewable energy costs weakened the case for coal plants with CCS. Today, there are only seven operating CCS-coal plants worldwide – five in China, one in the US and one in Canada.
Yet the Paris Agreement in 2015 – and the national net-zero targets that followed – highlighted the need for deep emissions cuts in sectors that previously expected to continue emitting for decades. This, once again, has fuelled interest in the use of CCS.
In recent years, there has also been growing interest in producing low-carbon “blue” hydrogen from gas with CCS.
Hydrogen is widely seen as key for decarbonising certain sectors – particularly in industry – but analyses suggest that it may be difficult to make sufficient “green” hydrogen using renewable power on the timescales required.
As the map below shows, most CCS capacity is based in the US and Canada, with other major fossil-fuel producers such as Norway, Brazil and the Gulf states also contributing.
A surge of projects have entered the global CCS pipeline in recent years. According to the IEA, 93.7MtCO2 of capture or storage capacity is under construction as of February 2026 and another 1,279.6MtCO2 is in the “planning” stages.
“Planned” projects include any initiative at early concept, feasibility or engineering study stages and the industry has a long history of projects being cancelled or delayed.
Nevertheless, this pipeline of projects could lead to a large expansion of facilities dedicated to permanent CO2 storage that does not involve extracting more oil.
The planned projects – if they are realised – would also include significant growth in sectors where CCS is virtually non-existent, such as steel, hydrogen and cement production, as shown in the chart below.
What role is CCS expected to play in reaching net-zero?
It will be impossible to stop dangerous climate change unless the world reaches net-zero emissions, according to the IPCC. The amount of global warming – and whether the Paris Agreement temperature target can be met – depends on when net-zero is reached.
Many global pathways that have been set out for achieving net-zero, including a majority of the IPCC-assessed pathways where global warming is limited to 1.5C, rely on the use of CCS at fossil-fuel plants and industrial sites.
“These models have been quite instrumental in bringing CCS back onto the agenda,” Lina Lefstad, an ecological economist at Lund University, tells Carbon Brief.
Influential organisations relying on CCS in their net-zero scenarios range from the International Renewable Energy Agency (IRENA) through to the oil company Shell. The IEA has stated that net-zero would be “virtually impossible” without CCS.
These scenarios often include 10s to 100s of times more CCS capacity being built in the coming decades. The IEA includes 1.7GtCO2 being captured by 2035 in its net-zero scenario – nearly 30 times more than is captured today.
(Some of the much higher numbers in scenarios assessed by the IPCC have been dismissed by experts as implausible, especially given the slow rollout of CCS to date.)
When considering CCS for both emissions cuts and removals, Dr Jennifer Roberts, a researcher at the University of Strathclyde and deputy director at the UK Carbon Capture and Storage Research Centre (UKCCSRC), tells Carbon Brief the situation is clear:
“From an IPCC climate modelling perspective…reaching net-zero without CCS is far more expensive, dis