Information on national adaptation actions reported under the Governance Regulation
Reporting updated until: 2023-05-30
Item | Status | Links |
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Climate Law (including adaptation) |
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National Adaptation Strategy (NAS) |
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National Adaptation Plan (NAP) |
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Other (specify below) |
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Meteorological observations |
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Climate projections and services |
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Adaptation portals and platforms |
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Monitoring, reporting and evaluation (MRE) indicators and methodologies |
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Key reports and publications |
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National communication to the UNFCCC | ||
Governance regulation adaptation reporting |
- increase in heat extremes
- decrease in summer precipitation
- increasing risks of river floods
- increasing risk of forest fire
- decrease in economic value of forests
- increase in energy demand for cooling.
In the National Adaptation strategy, these threats have all been identified as relevant for Luxembourg.
The average annual growth rate of the resident population of Luxembourg is high compared to the rates of its neighboring regions. Demographic growth in Luxembourg is dominated by immigration and at the end of 2020, 47.1% of the residential population did not have the citizenship of Luxembourg. This percentage was 29,4% in 1991. The main driver behind these demographic trends is the economic restructuring and development of the country towards the tertiary sector coupled with attractive wages. According to different population projections derived from past statistical data, population forecasts is a continuation of the demographic trend in Luxembourg.
https://statistiques.public.lu/[…]/demographie-en-chiffre-22.pdf
The economic restructuring and development of the country towards the tertiary sector in the mid-1980s led to the following economic cycles since 1990:
- up to 1992, the continuation of the exceptional growth initiated around 1985
- the effects of the economic slowdown in Luxembourg during the period between 1992 and 1996 and the economic downturn in 2001 – as well as the less impressive growth in 2002-2004 – which is mirrored by a stagnation of the GDP level per inhabitant in Luxembourg in comparison with the EU-15
- the good economic performance of Luxembourg between 2005 and 2008
- the financial and economic crisis that started end 2008 and that has been particularly pronounced in the first semester of 2009
- from 2010 onwards, a very slow recovery could be observed, though it flattened quickly for the industry and commercial sectors
Nowadays, gross value added is mainly generated in the financial intermediation (banking and insurances), real estate and services to business sector. It is therefore obvious that the financial sector has been the principal engine driving the economy for almost three decades. Luxembourg is a global leader in the investment fund industry as well as the Euro area's private banking centre.
Future projections predict on the one hand an increase in average temperature. While the average temperature was 8.1 ° C for the reference period 1961 to 1990, it is expected to rise to 9.2 ° C for the period 2021 to 2050 and to 11.2° C for the period 2069 to 2098. There will also be an increase in summer days above 25 ° C and tropical nights above 20 ° C.
Future projections for annual precipitation indicate some stability. Average precipitation for the 1961 to 1990 reference period was 880 mm. Rainfall should be 862mm for the period 2021 to 2050 and 845mm for the period 2069 to 2098. Seasonal variations however are expected, with more rain in winter and less precipitation in summer. Added to this is an increase in heavy rain in summer is expected.
Updated high-resolution climate change projections for Luxembourg are being carried out by the Luxembourg Institute of Science and Technology and should be integrated in the updated version of the NAS/NAP.
Impacts of extreme climatic events are not systematically monitored. Information on the amount of material and financial loss is only partially collected by some authorities. During environmental disasters, the Ministry of the Family sets up a Social Relief Commission ("Commission de secours sociaux demandés à la suite de catastrophes naturelles") to help victims. In the same way, the insurance commissioner has some information about the number of people compensated. However, not all affected people make use of the Social Relief Commission or the insurance companies. The information collected, therefore, only concerns the persons who contact these two different institutions.
Other ministries collect some data for their fields of action (eg Agriculture for farm losses). An interministerial working group on natural disasters was launched in 2022 by the Ministry of State. A better approach and overview could possibly result from this work.
Changes in temperature and rainfall will have an impact for several areas in Luxembourg. In Luxembourg, the vegetation period is expected to be initiated earlier in spring and to last longer into autumn. During the early stages of the vegetation period this might cause an increased risk of frost damages to vegetation. Furthermore, the temperature changes have an impact on the bio-geography of plants and animals with new species with a Mediterranean distribution, formerly unknown in Luxembourg. This will have a direct impact on agriculture and on forestry. Projected climate changes will also affect wheat crop production both in the main processes of plant growth and development but also in the occurrences and severities of plant diseases. For the Luxembourgish grape and associated wine production, late frost represents a significant hazard. Increasing air temperatures due to climate change might advance grape budburst and later frost events in spring.
The climate projections for the second half of this century will also have significant impacts on public health conditions in Luxembourg. The danger of increasing heat exposure for the population in Luxembourg is most severe in urban areas with high building densities due to the increased thermal storage capacity and night time thermal emissions.
With regard to water, the most analysed phenomena so far are floods. It is known that, due to major redistributions of, essentially, winter rainfalls a higher inundation frequency has been documented. On the opposite, a lack of precipitations over an extended period (especially in summer) may lead to a hydrological drought which results in a decrease of available water reserves in aquifers, lakes and groundwater sheets. Increased rainfall may lead to a deterioration of the groundwater and surface water quality due to reinforced soil erosion and faster water infiltration into the soil.
Hazard type | Acute/Chronic | Observed climate hazards |
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Water | Acute | Drought |
Flood | ||
Heavy precipitation | ||
Chronic | Changing precipitation patterns and types | |
Precipitation hydrological variability | ||
Water scarcity | ||
Solid mass | Acute | Landslide |
Chronic | Soil erosion | |
Temperature | Acute | Heat wave |
Wildfire | ||
Chronic | Changing temperature | |
Temperature variability | ||
Wind | Acute | Storm |
Tornado | ||
Chronic |
Hazard type | Acute/Chronic | Future climate hazards | Qualitative trend |
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Water | Acute | Drought | significantly increasing |
Flood | significantly increasing | ||
Heavy precipitation | significantly increasing | ||
Chronic | Changing precipitation patterns and types | significantly increasing | |
Precipitation hydrological variability | without significant change | ||
Water scarcity | significantly increasing | ||
Solid mass | Acute | Landslide Future | without significant change |
Chronic | Soil erosion | significantly increasing | |
Temperature | Acute | Heat wave | significantly increasing |
Wildfire | significantly increasing | ||
Chronic | Changing temperature | significantly increasing | |
Temperature variability | significantly increasing | ||
Wind | Acute | Storm | significantly increasing |
Tornado | evolution uncertain or unknown | ||
Chronic | |||
The long-term average temperature for the reference period 1961 to 1990 is 8.3°C, 9.3°C for 1981 to 2010, and 9.9°C for 1991 o 2020. The lowest annual average was recorded in 1956 with 7.1°C, the highest average with 11.3°C in 2020. The projected increase of the near surface air temperatures until end of this century is 2.1°C for minimum and maximum annual temperatures and 2.2°C for the annual mean temperature.
In contrast to air temperature, the mean values for the three reference periods do not show a homogenies trend. After an increase of 50 mm between the 30-years periods 1961 to 1990 and 1981 to 2010 a decrease by 66 mm between 1981 to 2010 and 1991 to 2020 could be observed. With 541 mm the year 1976 was the driest, 1988 with 1202 mm the wettest. All five years between 2017 and 2021 show annual totals below 800 mm.
These changes are already visible and put pressure on different activities and on the environment, as for example:
- more severe and intense flash flood events in summer
- less groundwater recharge (pressure on drinking water distribution)
- drought events (impact on agriculture harvest, forests, pressure on drinking water distribution)
- Heat events (thermal stress)
- Increase in invasive alien species
Key affected sectors
Key affected sector(s) | water management |
Rating of the observed impacts of key hazards, including changes in frequency and magnitude | high |
Different rating of the observed impacts of key hazards | |
Assessment | With regard to water, the most analysed phenomena so far are floods. It is known that, due to major redistributions of, essentially, winter rainfalls a higher inundation frequency has been documented. On the opposite, a lack of precipitations over an extended period (especially in summer) may lead to a hydrological drought which results in a decrease of available water reserves in aquifers, lakes and groundwater sheets. Increased rainfall may lead to a deterioration of the groundwater and surface water quality due to reinforced soil erosion and faster water infiltration into the soil. |
Rating of the key hazards' likelihood of occurrence and exposure to them under future climate | high |
Different rating of the likelihood of the occurrence of key hazards and exposure to them under future climate | |
Rating of the vulnerability, including adaptive capacity | medium |
Different rating of the vulnerability and/or adaptive capacity | |
Assessment | Although the impacts to be expected for the water sector present a high risk, the infrastructures and the preparation of the sector are quite good, which reduces the vulnerability of the sector. In particular, measures are in place to cope with periods of drought and thus guarantee the supply of water for human consumption. The government has also designated protection zones around more than 80% of groundwater catchments and 100% of surface water used for food. Thanks to this protection pollution must be avoided. New sources of supply are also assured with the construction of a new drinking water treatment plant (officially inaugurated in June 2023). in terms of protection against floods, Luxembourg has in place a system for monitoring the levels of watercourses which is freely accessible (www.floods.lu). With the implementation of the measures included in the flood risk management plan, the risk must be reduced. In addition to the mandatory maps resulting from the Floods Directive, maps for flash floods were published in 2019. |
Rating for the risk of potential future impacts | medium |
Different rating of the risk of potential future impacts | |
Assessment | The measures put in place and described above aim to reduce potential impacts and to have a more resilient society and water sector. |
Overview of institutional arrangements and governance at the national level
The current NAS and NAP were adopted in 2018.
Based on past observations and future projections of the effects of climate change, measures have been proposed for the main consequences. A total of 42 measures have been developed for 13 different sectors. For each measure is indicated a responsible entity for the implementation. Given the territorial organization of Luxembourg, there is no administrative level between the State and the communes. The NAS and the NAP is therefore valid for the entire Luxembourg territory. The measures are of a win-win nature or can be considered as low-regret measures. The implementation is planned for the period 2018-2023.
On national level, article 12 of the national climate law (loi modifiée du 15 décembre 2020 relative au climat - http://data.legilux.public.[…]20-12-15-a994-jo-fr-pdf.pdf) constitutes the legal basis of NAS and NAP. The climate law provides that no later than January 1, 2029, and every ten years thereafter, the Government will establish an adaptation strategy to the effects of climate change with a horizon of at least fifty. The adaptation strategy is then updated every five years, where applicable. The current adaptation strategy was approved in 2018, so before the publication of the climate law. The NAS and NAP will therefore be updated in accordance with the provisions of the climate law. The updating process will start in 2023.
The climate law provides that no later than January 1, 2029, and every ten years thereafter, the Government will establish an adaptation strategy to the effects of climate change with a horizon of at least fifty. The adaptation strategy is then updated every five years, where applicable. The current adaptation strategy was approved in 2018, so before the publication of the climate law. The NAS and NAP will therefore be updated in accordance with the provisions of the climate law. The updating process will start in 2023.
These mutual exchanges and these different interministerial platforms or joint ventures will further strengthen the synergies between the different frameworks.
Given the territorial organization of Luxembourg, there is no administrative level between the State and the communes. The NAS and the NAP is therefore valid for the entire Luxembourg territory.
On national level, article 12 of the national climate constitutes the legal basis of NAS and NAP. The current adaptation strategy was approved in 2018, so before the publication of the climate law. The NAS and NAP will therefore be updated in accordance with the provisions of the climate law. The updating process will start in 2023.
In addition, the effects of climate change are not always immediately visible and perceptible, and above all, the benefits of adaptation measures to climate change have a long-term effect. However, the long term is less concrete for many actors (public, private and the population).
The definition of indicators is also a difficulty during the implementation of the strategy. When updating the NAS and NAP, indicators will be defined to monitor the implementation of the measure. However, it is difficult to set indicators to assess whether a sector is sufficiently adapted to the effects of climate change.
In order to set up measures an evaluation grid was establishes. By combining the probability of occurrence of the impact with the importance of this impact for Luxembourg, a total of 42 measures in 13 different sectors have been developed. The different sectors are:
- Building and living
- Energy
- Infrastructures
- Crisis and disaster management
- Land-use planning
- Agriculture including herbal and animal health
- Human health
- Ecosystems and biodiversity
- Tourism
- Urban areas
- Water management
- Economy
The measures are of a win-win nature or can be considered as low-regret measures. For each measure is indicated a responsible entity for the implementation. The measures identified in the NAP are not rigid, but offer a framework and provide various examples for implementing actions to deal with the expected impact. It is left to each entity to decide on the most relevant and urgent action. The philosophy and main objective of the NAS and that the notion of adaptation to climate change is gradually integrated into all policy areas.
The measures have not been budgeted and there is no separate budget solely for the implementation of the NAS and NAP. The implementation will have to be done within the framework of the current resources of the different Ministries and administrations. The implementation is planned for the period 2018-2023. The NAS and NAP will thereafter be updated in accordance with the provisions of the climate law. The updating process will start in 2023.
- Building and living
- Energy
- Infrastructures
- Crisis and disaster management
- Land-use planning
- Agriculture including herbal and animal health
- Human health
- Ecosystems and biodiversity
- Tourism
- Urban areas
- Water management
- Economy
Each of these sectoral policies has a dedicated chapter and dedicated measures. The philosophy and main objective of the NAS and that the notion of adaptation to climate change is gradually integrated into all policy areas.
With the update of the adaptation strategy, it is planned to have new fields of action: Governance, international context, Awareness raising, etc.
Regarding DRR, a national platform for disaster risk reduction was set up and an interministerial committee was set up under the chairmanship of the DRR focal point. The focal point in charge of implementing the NAS is also a member of this platform. Likewise, as part of the implementation of the NAS and NAP, each ministry has also designated a person responsible for inter-ministerial coordination. The DRR representative is nominated as the contact person for the NAS and NAP. These mutual exchanges and these different interministerial platforms or joint ventures will further strengthen the synergies between the different frameworks.
Municipalities are nevertheless involved in climate mitigation and adaptation policy through a Climate Pact between the State and the municipalities (https://www.pacteclimat.lu) as through a Nature Pact (https://www.pactenature.lu). All 102 communes of Luxembourg are engaged under the Climate Pact and 88 in the Nature Pact, the national level can financially support communes to implement mitigation, energy efficiency and adaptation measures. The Pact provides an appropriate platform for future engagement of the communes on climate adaptation. With the launch of the “Naturpakt”, municipalities will also have a catalogue of measures where at local level measures will help to tackle biodiversity and climate change issues.
The climate pact provides for different certifications depending on the level of implementation (bronze, silver and gold), as well as thematic certifications (circular economy, adaptation to climate change and air quality). Several measures of the catalogue of measures are therefore expressly referred to as adaptation measures.
At national level, the development of the NAS was undertaken during several working group sessions to which the private sector participated (representatives from agriculture, citizens, NGOs, finance and industry sector).
Selection of actions and (programmes of) measures
The definition of indicators is however a difficulty during the implementation of the strategy. When updating the NAS and NAP, indicators will be defined to monitor the implementation of the measure. However, it is difficult to set indicators to assess whether a sector is sufficiently adapted to the effects of climate change.
Good practices and lessons learnt
The climate pact provides a new thematic certification (adaptation to climate change).
Cooperation and experience
Moreover, within the framework of the BENELUX cooperation, working groups dedicated to climate change and transboundary impacts take place, in addition to the exercises simulating different scenarios. In 2021, new policy areas, such as water management and local adaptation management will also be topic at the Benelux cooperation.
Moreover, within the framework of the BENELUX cooperation, working groups dedicated to climate change and transboundary impacts take place, in addition to the exercises simulating different scenarios. In 2021, new policy areas, such as water management and local adaptation management will also be topic at the Benelux cooperation.
Moreover, within the framework of the BENELUX cooperation, working groups dedicated to climate change and transboundary impacts take place, in addition to the exercises simulating different scenarios. In 2021, new policy areas, such as water management and local adaptation management will also be topic at the Benelux cooperation.
Overview of institutional arrangements and governance at the sub-national level (where “sub-national” refers to local and regional)
The climate pact provides a new thematic certification (adaptation to climate change).
On water topics the water law created so-called river-partnerships and flooding-partnerships. These structures group together the municipalities according to the watersheds and have as objectives the implementation of measures included in the River Basin management plan and flood management plan.
With the launch of the “Naturpakt”, municipalities will have a catalogue of measures where at local level measures will help to tackle biodiversity and climate change issues.
Municipalities are nevertheless involved in climate mitigation and adaptation policy through a Climate Pact between the State and the municipalities (https://www.pacteclimat.lu) as through a Nature Pact (https://www.pactenature.lu). All 102 communes of Luxembourg are engaged under the Climate Pact and 88 in the Nature Pact, the national level can financially support communes to implement mitigation, energy efficiency and adaptation measures. The Pact provides an appropriate platform for future engagement of the communes on climate adaptation. With the launch of the “Naturpakt”, municipalities will also have a catalogue of measures where at local level measures will help to tackle biodiversity and climate change issues.
The climate pact provides for different certifications depending on the level of implementation (bronze, silver and gold), as well as thematic certifications (circular economy, adaptation to climate change and air quality). Several measures of the catalogue of measures are therefore expressly referred to as adaptation measures.
It is nevertheless to be noted, that there is no self-governing sub-national level in Luxembourg.