France launched work on its third National Climate Change Adaptation Plan (PNACC-3) in early 2023, which was published on March 10. This plan marks a major strategic shift, explicitly addressing climate adaptation through 52 measures and more than 200 concrete actions spread over five years. It is the result of a rigorous participatory methodology involving public authorities, businesses, trade unions and representative organizations, insurers, scientific institutions, and local and regional governments.
A New Context: A Changing Climate, A Renewed Approach
The uniqueness of PNACC-3 lies in its deliberate decision to be based on the IPCC scenario projecting a global temperature rise of +3°C by 2100, which corresponds to a +4°C increase for France—since the European continent is warming faster than the global average. This premise initially sparked debate in France, but a scientific consensus is now emerging around the need to prepare for this scenario. As Diane Simiu, Director of Climate, Energy Efficiency, and Air at the French Ministry for Ecological Transition, put it:
“We must be ready for a +4°C warming in France — this requires concrete choices, not vague intentions.”
To respond to impacts already being felt and prepare for future ones, this plan focuses exclusively on adaptation, not on emission reduction, which is addressed in France’s National Low-Carbon Strategy. This distinction is critical, especially because—just like in Belgium—many regional or local plans still mix adaptation and mitigation.
A Coherent Strategy Across All Levels
PNACC-3 adopts both a sector-based and territorial approach. Four working groups were formed around the themes of standards and infrastructure, adaptation of local authorities, economic resilience, and biodiversity—with special attention paid to overseas territories and the most vulnerable areas. As such, the plan goes beyond a national vision and embraces a multi-level deployment strategy.
An annual evaluation of implementation is planned, allowing for dynamic adjustments and reinforcing transparency and stakeholder accountability.
From Analysis to Action
A key part of the plan is the in-depth analysis of risks. PNACC-3 aims to quantify what lies ahead: rising sea levels, heatwaves, water shortages, wildfires... The focus is no longer on merely reacting, but on making collective decisions about which adaptation models to adopt—for example, whether to invest in higher dikes or anticipate expropriations in high-risk areas.
The plan also underscores the need for a systemic transformation. Decarbonization is seen as a sine qua non condition for strengthening resilience, with adaptation and mitigation forming the two sides of climate action.
A Challenge for the Private Sector
The plan is not limited to the State. Private stakeholders—particularly the insurance sector—play a central role. Risk models, premiums, and coverage are all evolving in response to the growing number of climate-related disasters. Companies are encouraged to assess their vulnerability and develop their own adaptation strategies.
The plan also aims to turn some recommendations into binding law, especially in land-use planning, to ensure the reference warming trajectory is incorporated into local planning documents. Financial and technical support is also planned to assist citizens—for example, in home renovations—to help better protect homes against heat or flooding.
A European Integration
PNACC-3 is aligned with the broader European adaptation policy framework and is directly linked to the work of the European Environment Agency (EEA). It complies with methodologies that meet European requirements, facilitating cooperation and comparison between Member States.
A Politically Challenging Journey
The development of PNACC-3 was not without hurdles. France’s internal political shifts delayed its adoption. Nevertheless, thanks to a solid scientific foundation, strong administrative will, and the leadership of figures like Diane Simiu, the plan came to life and now serves as a structuring and mobilizing tool.
Conclusion
PNACC-3 is a major strategic tool that puts adaptation at the core of all public policies. With its 52 measures, over 200 actions, annual monitoring system, and the involvement of a wide range of stakeholders, it moves beyond mere declarations of intent to become a true working plan for France. Its success, however, will depend on the ability to confront difficult decisions—not in the distant future, but starting today.