Just the Facts | Heat Protection Measures in the EU

With record temperatures across Europe in recent weeks, and hotter summers yet to come, the urgent need for government action on climate change has become even clearer. This Just the Facts provides an overview of key EU measures both to mitigate climate change and adapt to its effects, the unequal risks of excessive heat, and where Ireland and its Presidency programme stand on climate action.  

Introduction

June 2026 will likely be remembered as a month of record-high temperatures across Europe, with temperatures soaring above 30 degrees in Ireland and 40 degrees in parts of mainland Europe. But the record may not stand for long: the World Health Organisation (WHO) has warned that this is only a “dress rehearsal” for even hotter summers to come.

Europe is the fastest-warming continent in the world, at a pace of more than twice the global average. Heatwaves are no longer isolated or rare incidents; more than 200,000 people across Europe have died from heat in the last four years, with over 1,300 excess deaths linked to the extreme heat in Europe between 21 and 29 June alone. WHO projections suggest a steep increase in heat-related deaths in the second half of this century.

Besides the evident human cost, heatwaves are associated with increasing wildfires and drought, which significantly impact our ecosystems. The International Panel on Climate Change (IPCC) specifies four main risks of increasingly severe global warming for people, economies and infrastructure in Europe:

• Mortality and morbidity of people and changes in ecosystems due to heat
• Losses in agricultural production due to heat and drought
• Water scarcity
• Flooding and rising sea levels.

EU policies – mitigation and adaptation

The EU has a plethora of mitigation measures in place to tackle global warming. The main package of laws and measures is Fit for 55, referring to the EU’s goal of reducing greenhouse gas emissions in the EU by at least 55% by 2030 and achieving net zero emissions by 2050. In March 2026, the EU adopted an amendment to the European Climate Law, setting an additional interim target of 90% by 2040.

The EU Climate Action Tracker (CAT) shows that the EU has made progress in adopting the measures of the European Green Deal and is coming closer to achieving its 2030 target, but more action is required to close the gap. In 2024, CAT rated the EU’s overall climate action and current 2030 emissions reduction target as ‘insufficient’; two years later, despite EU countries leading on climate change in international comparison, experts warn that there is still not enough progress. The EU is increasingly struggling to reconcile the need for accelerated decarbonisation with competitiveness. Despite the clean transition being fundamental to the EU’s competitiveness ambitions, institutions are coming under increasing pressure by some parts of industry and Member States to delay or dilute crucial pillars of its climate policy such as the ETS, which is currently under review.

As government action across Europe is not keeping pace with the rapidly growing climate risks, mitigation measures need to be complemented with effective adaptation solutions that increase preparedness for heatwaves and other extreme weather events in the shorter term.

Heat as a health hazard

The dangers of extreme heat exposure are well known: heatwaves can cause heat stroke and heat exhaustion, illnesses including heart attacks, and even premature deaths. Vulnerable groups, such as older people and babies, are particularly at risk. The IPCC warns that the number of deaths and people at risk of heat stress will increase two- to threefold if global warming reaches 3°C rather than the 1.5°C targeted under the Paris Agreement.

According to a report by the European Trade Union Institute (ETUI) in June 2026, increasing heat exposure is not only a major public health concern, but also a growing occupational risk for workers who are regularly exposed to high temperatures while performing their work. One third of workers across the EU report being exposed to at least one climate change-related risk factor at work, with one fifth reporting exposure to extreme heat (either indoors or outdoors).

The EU occupational safety and health (OSH) framework directive does not specifically address all emerging risks of climate change, including rising heat exposure in the workplace. Currently, the OSH recognises the risks of heat exposure in principle but does not specify any measurable triggers or physiological safeguards. ETUI recommends “a mandatory heat risk assessment, in order to oblige employers to assess and identify the risks related to heat exposure in their workplace.” WHO’s Heat-Health Action Plans Guidance includes recommendations such as flexible working hours during a heatwave.

The risks of increased heat exposure are not spread equally within Europe: people in Southern and Western Central Europe and in urban areas are disproportionately affected by rising temperatures. The IPCC warns that above a global warming level of 3°C, there are limits to how people and health systems can adapt, particularly in Southern Europe, Eastern Europe and areas where health systems are already under pressure. Most European housing and infrastructure are not built for prolonged periods of extreme heat – only 20% of homes have air conditioning. More than 74% of the EU population lives in urban areas, a figure projected to increase to over 83% by 2050 – meaning that about 370 million people in Europe will be exposed to increased risks associated with the urban heat island effect. This is largely caused by the replacement of natural features such as trees, plants and ponds with man-made roads and buildings, along with the concentration of heat-generating human activities such as the use of power, cars and air conditioners.

Beyond the direct consequences for human health, rising temperatures have implications for the EU’s food supply. Spain is the leading producer and exporter of fresh fruit and vegetables in the EU – but temperatures above 40 degrees will make it impossible to work in fields and polytunnels, coupled with the fact that crops will be increasingly affected by drought. Europe’s energy security is another concern, as heatwaves put energy grids under severe stress, due to higher electricity demands combined with an elevated risk of thermal power plant outages.

Where does Ireland stand on climate action?

The current Irish government set the national target of reducing emissions by at least 51% by 2030 (compared to 2018 levels) and achieving climate neutrality by 2050. However, projections released by the Environmental Protection Agency (EPA) in May 2026 show that Ireland is on track to miss the 2030 target by a significant margin, with a reduction of up to 25% only likely if “a wide range of policies and plans across all sectors” are implemented. Nearly all sectors are set to go over their emissions limit under the second carbon budget by 2030, according to the EPA. The transport, industry and buildings (commercial and public) sectors are projected to be the furthest from achieving their sectoral emission ceilings in 2030, while emissions in agriculture – Ireland’s most polluting sector, accounting for 32% of emissions – are projected to fall by 4% to 19%.

A report by the European Commission in 2023 already indicated that “progress towards the Union’s climate-neutrality objective appears largely insufficient for Ireland.” As of early July 2026, Ireland had no national climate resilience plan in place and the long-awaited 2026 Climate Action Plan is still outstanding. Ireland is also one of few countries in the EU that does not have a heat-health action plan. If Ireland fails to rapidly step up climate efforts, it could face EU fines of €8 to €26 billion, according to the Irish Fiscal Advisory Council. These could fall to €3 to €12 billion if the Irish government implements the additional measures in its own Climate Action Plan by 2030. The funding required for drastic measures to reduce emissions would amount to less than these fines.

Moreover, current levels of climate adaptation finance in Ireland fall short of what is needed, a joint report by the Climate Change Advisory Council and the Central Bank of Ireland shows. Without more finance for this area, increasingly frequent extreme weather events, such as heatwaves and flooding, will put significant strain on Ireland’s economic and financial stability. Extreme weather events cost Europe about €43 billion in 2025 alone and are projected to cost a total of €126 billion by 2029.

Against this background, Friends of the Earth Ireland has warned that Ireland’s slow progress on climate action domestically could create a “credibility gap” in steering negotiations at EU level during its Presidency of the Council of the EU. Ireland’s Presidency programme recognises the need for a coordinated EU-wide approach to effective climate adaptation and commits to advancing the proposed European Climate Resilience and Risk Management Integrated Framework. However, Environmental Justice Network Ireland (EJNI) points out that, in the context of the MFF, the Presidency programme omits key environmental safeguards such as a climate or environment spending target, biodiversity, and the “do no significant harm” principle. Furthermore, the MFF section of the programme does not connect environmental targets to the social agenda and affordability – essential to ensuring a socially just transition. Another central concern is that environmental and social safeguards could be weakened through the Irish Presidency’s strong focus on simplification, with the EU Environmental Simplification Omnibus being a stated priority.

The missing pieces: faster implementation, greater ambition

An assessment by the European Commission of progress on climate adaptation at the national level shows that Member States need to take significantly more action to adapt to climate change – including on governance, funding, risk assessments, nature-based solutions, as well as monitoring, reporting and evaluation – in order to reduce their social and economic vulnerabilities to the worsening climate-related risks. As outlined above, different regions and socio-economic groups are unequally exposed to impacts of global warming, with pre-existing inequalities and vulnerabilities being exacerbated: those most vulnerable to high heat stress due to their living conditions are also least likely to have access to relief, for example in the form of proximity to green or blue space or being able to afford fans or AC units. Homeless people are also at particular risk of dehydration, heat stress and sunburn. However, almost all heat-related deaths are preventable: social conditions and cultural contexts play just as much of a role as solar radiation. Thermal justice is therefore a crucial part of climate justice.

Much of the tangible progress on heat protection in Europe is taking place at local level: cities and communities play a central role in protecting citizens against increased heat, for example by reintroducing vegetation and parklands into urban areas. Some municipalities have created designated “cool spaces” or “climate shelters” to provide heat relief to citizens. Since 2018, Ireland’s National Adaptation Framework requires local authorities to prepare climate action plans/adaptation strategies for their areas. Irish cities could follow the recent example of London and develop their own Heat Plans, while the Irish government could take up WHO’s recommendation to develop a heat-health action plan to improve resilience to ongoing and future heatwaves.

Against the current backdrop of tangible, disruptive and deadly consequences of climate change in Europe, the Irish Presidency needs to be ambitious in its actions on climate and reflect this in coordinated EU positions, including in international fora such as COP 31 in October 2026. In doing so, it needs to include and ensure funding for civil society organisations, as drivers of the EU sustainability agenda. The Irish government can only perform effectively on climate if it leads by example and makes demonstrable progress in the implementation of EU climate laws and towards its own national targets. Ireland’s Presidency programme states that “enhanced climate action is urgently needed, whilst safeguarding Europe’s competitiveness”. Ultimately, Europe will only become more competitive if climate action is treated not as a limitation, but as the foundation of competitiveness – and if increasing preparedness for the impacts of climate change is treated with equal importance.