The European Parliament adopted by 370 votes to 199, with 46 abstentions, a legislative resolution on the proposal for a directive of the European Parliament and of the Council on the energy performance of buildings (recast).

The European Parliament's position adopted at first reading under the ordinary legislative procedure amends the proposal as follows:

Subject matter

The proposed Directive promotes the improvement of the energy performance of buildings and the reduction of greenhouse gas emissions from buildings within the Union, with a view to achieving a zero-emission building stock by 2050, taking into account the outdoor climatic conditions, the local conditions, the requirements for indoor environmental quality, and cost-effectiveness.

Members stated that the Directive lays down requirements as regards: (i) the calculation and disclosure of the life-cycle global warming potential of buildings; (ii) solar energy in buildings; (iii) the indoor environmental quality performance of buildings.

New buildings

Member States should ensure that new buildings are zero-emission buildings: (i) from 1 January 2028 , new buildings owned by public bodies; and (ii) from 1 January 2030 , all new buildings.

Member States should ensure that the life-cycle global warming potential (GWP) is calculated in accordance with Annex III and disclosed in the energy performance certificate of the building: (i) from 1 January 2028, for all new buildings with a useful floor area larger than 1000 m2; (ii) from 1 January 2030, for all new buildings.

Minimum energy performance standards for non-residential buildings and trajectories for progressive renovation of the residential building stock

Each Member State should: (i) set a maximum energy performance threshold to the effect that 16 % of its national non-residential building stock is above that threshold; (ii) set a maximum energy performance threshold to the effect that 26 % of its national non-residential building stock is above that threshold.

The minimum energy performance standards should ensure, at least, that all non-residential buildings are below the 16 % threshold from 2030 ; and the 26 % threshold from 2033 . Compliance of individual non-residential buildings with the thresholds should be checked on the basis of energy performance certificates or, where appropriate, other available means.

Member States should ensure that at least 55 % of the decrease in the average primary energy use is achieved through the renovation of the 43 % worst-performing residential buildings .

Member States may decide not to apply the minimum energy performance standards to the following categories of building: (a) buildings officially protected as part of a designated environment or because of their special architectural or historical merit , or other heritage buildings; (b) buildings owned by the armed forces or central government and serving national defence purposes.

Solar energy in buildings

Member States should ensure the deployment of suitable solar energy installations, if technically suitable and economically and functionally feasible, as follows:

(a) by 31 December 2026, on all new public and non-residential buildings with useful floor area larger than 250 m2;

(b) on all existing public buildings with useful floor area larger than: (i) 2 000 m2, by 31 December 2027; (ii) 750 m2, by 31 December 2028; (iii) 250 m2, by 31 December 2030;

(c) by 31 December 2027, on existing non-residential buildings with useful floor area larger than 500 m2, where the building undergoes a major renovation or an action that requires an administrative permit for building renovations, works on the roof or the installation of a technical building system;

(d) by 31 December 2029, on all new residential buildings and on all new roofed car parks physically adjacent to buildings.

Zero-emission buildings

According to the amended text, a zero-emission building should not cause any on-site carbon emissions from fossil fuels .

In order to decarbonise the building sector, Member States should indicate their national policies and measures to phase out fossil fuels in heating and cooling in their national building renovation plans. They should strive to phase out stand-alone boilers powered by fossil fuels, and, as a first step, they should not provide, from 2025, financial incentives for the installation of stand-alone boilers powered by fossil fuels. It should still be possible to provide financial incentives for the installation of hybrid heating systems with a considerable share of renewable energy, such as the combination of a boiler with solar thermal or with a heat pump.

Renovation passport

By 2 years from the date of entry into force of this Directive, Member States should introduce a scheme for renovation passports. The scheme should be of voluntary use by owners of buildings and building units, unless the Member State decides to make it mandatory.

Member States should take measures to ensure that renovation passports are affordable and should consider whether to provide financial support to vulnerable households wishing to renovate their buildings.

Infrastructure for sustainable mobility

With regard to new non-residential buildings with more than five car parking spaces and non-residential buildings undergoing major renovation, with more than five car parking spaces, Member States should ensure: (i) the installation of at least one recharging point for every five car parking spaces; (ii) the installation of pre-cabling for at least 50 % of car parking spaces; (iii) the provision of bicycle parking spaces representing at least 15 % of average or 10 % of total user capacity of non-residential buildings.

One-stop shops for the energy performance of buildings

Member States should ensure the establishment and the operation of technical assistance facilities, including through inclusive one-stop shops for the energy performance of buildings, targeting all actors involved in building renovations, inter alia home owners and administrative, financial and economic actors, such as SMEs, including microenterprises.

The European Parliament adopted by 343 votes to 216, with 78 abstentions, amendments to the proposal for a directive of the European Parliament and of the Council on the energy performance of buildings (recast).

The issue was referred back to the committee responsible for inter-institutional negotiations.

The proposal to revise the Energy Performance of Buildings Directive aims to significantly reduce greenhouse gas (GHG) emissions and energy consumption of buildings in the EU by 2030 and to make buildings climate neutral by 2050.

Requirements

Members stipulated that the Directive lays down requirements as regards: (i) a harmonised framework for assessing the life-cycle global warming potential; (ii) solar energy in buildings; (iii) the phasing out of fossil fuel use in buildings; (iv) nature-based solutions that reinforce the good use and adaptation of the public space surrounding the buildings with elements such as wood materials, greens roofs and facades; (v) the indoor environmental quality performance of buildings.

Members clarified the definition of ‘ deep renovation ’ to mean a renovation in line with the energy efficiency first principle and efforts to reduce whole life-cycle greenhouse gas emissions generated during the renovation, which focuses on essential building items, such as wall insulation, roof insulation, low floor insulation, replacement of external joinery, ventilation and heating or heating systems and treatment of thermal bridges, to ensure the necessary comfort of the occupants in summer and winter or a renovation resulting in a reduction of at least 60 % primary energy demand for worst-performing buildings for which it is technically and economically not feasible to achieve a zero-emission building standard, and which transforms a building or building unit: (a) before 1 January 2027, into a nearly zero-energy building; (b) from 1 January 2027, into a zero-emission building.

National building renovation plan

Each Member State should establish a national building renovation plan complying with the energy efficiency first principle and should encompass:

- a roadmap with established targets and measurable progress indicators set at national level. The roadmap would include indicative national targets to achieve the deep renovation of at least 35 million building units by 2030 to support reaching an annual energy renovation rate of 3 % or more for the period till 2050;

- a detailed roadmap up to 2050 of the investment needs for the implementation of the building renovation plan, public and private financing sources and measures, and the administrative resources for building renovation;

- a roadmap on the reduction of energy poverty and energy savings achieved among vulnerable households and people living in social housing comprising of nationally established targets and an overview of implemented and planned policies and funding measures supporting the elimination of energy poverty.

An integrated district approach to building renovation

Member States may empower regional and local authorities to identify integrated districts to roll-out integrated renovation programmes (IRPs) at district level. Member States should implement local level integrated mobility plans and sustainable urban mobility plans that are aligned with IRPs and encompass public transport planning and deployment with other means of active and shared mobility, as well as the related infrastructure for operating, recharging, storing and parking.

New buildings

Member States should ensure that new buildings are zero-emission buildings: (i) from 1 January 2026 for new buildings occupied, operated or owned by public authorities; and (ii) from 1 January 2028 for all new buildings.

No later than 24 months after the date of entry into force, new buildings should have optimal indoor environmental quality levels, including air quality, thermal comfort, a high capacity to mitigate and adapt to climate change through, inter alia , green infrastructure, adhere to fire safety and safety lighting standards and give priority to accessibility for persons with disabilities.

Member States should ensure that the use of fossil fuels in heating systems , for new buildings and buildings undergoing major renovation, major refurbishment or renovation of the heating system, is not authorised from the date of transposition of the directive. They should be completely phased out by 2035, unless the European Commission allows their use until 2040.

Minimum energy performance standards

Member States should ensure that all buildings meet minimum energy performance standards, starting with the worst performing buildings.

Residential buildings would have to achieve at least energy performance class E by 2030, and D by 2033 . Non-residential and public buildings would have to achieve the same classes by 2027 and 2030 respectively (Commission proposed F and E). Member States should exempt public social housing from these obligations where such renovations are not cost-neutral or would lead to rent increases for people living in social housing that go beyond the savings in energy bills. To take account of the diversity of the building stock in different European countries, the letter G will correspond to the 15% worst performing buildings in the national building stock. Member States may decide not to set or not to apply the requirements to buildings officially protected as part of a designated environment or because of their special architectural or historical merit requiring due conservation, or other heritage buildings.

The Commission could decide to allow a Member State to adapt the minimum energy performance standards for residential buildings and building units for reasons of economic and technical feasibility and availability of skilled workforce.

Solar energy in buildings

Member States should ensure the deployment of suitable solar energy installations, if technically suitable and economically and functionally feasible, as follows: (a) by 24 months after the date of entry into force], on all new public and new non-residential buildings; (b) by 31 December 2026 , on all existing public and non-residential buildings; (c) by 31 December 2028 , on all new residential buildings and roofed carparks; (d) by 31 December 2032 , on all buildings undergoing major renovation.

Financial incentives

Member States should provide appropriate financing and support measures in combination with other Union instruments such as the Recovery and Resilience Facility, the Social Climate Fund and the cohesion policy funds. Financial incentives in the form of grants or guarantees shall take revenue-based parameters into account when allocating financial support to ensure that they target as a priority vulnerable households and people living in social housing.

One-stop-shops

The amended text stressed that one-stop shops could play an important role in connecting potential projects with market actors, including citizens, public authorities and project developers, in particular smaller-scale projects as well as guidance on permit procedures, promoting access to funding for building renovation, and helping to disseminate information on terms and conditions.

One-stop shops are also important to encourage citizens to start renovation projects by providing advice and research options, facilitating the search for contractors, helping to navigate through tenders and quotations, and providing support during the renovations.

The Committee on Industry, Research and Energy adopted the report by Ciarán CUFFE (Greens/EFA, IE) on the proposal for a directive of the European Parliament and of the Council on the energy performance of buildings (recast).

The committee responsible recommended that the European Parliament's position adopted at first reading under the ordinary legislative procedure should amend the proposal as follows:

Subject matter

This Directive promotes the improvement of the energy performance of buildings and the reduction of greenhouse gas emissions from buildings within the Union, with a view to achieving a zero-emission building stock by 2050 , taking into account the outdoor climatic conditions, the local conditions, the requirements for indoor environmental quality and the contribution of the building stock to demand-side flexibility for the purpose of improving energy system efficiency and cost-effectiveness.

It is stipulated that the Directive lays down requirements as regards: (i) a harmonised framework for assessing the life-cycle global warming potential; (ii) solar energy in buildings; (iii) the phasing out of fossil fuel use in buildings; (iv) nature-based solutions that reinforce the good use and adaptation of the public space surrounding the buildings with elements such as wood materials, greens roofs and facades; (v) the indoor environmental quality performance of buildings.

National building renovation plan

Each Member State should establish a national building renovation plan complying with the energy efficiency first principle and should encompass: (i) specific timelines for all existing buildings to achieve higher energy performance classes by 2030, 2040 and 2050; (ii) a detailed roadmap up to 2050 of the investment needs for the implementation of the building renovation plan, public and private financing sources and measures, and the administrative resources for building renovation; (iii) a roadmap on the reduction of energy poverty and energy savings achieved among vulnerable households and people living in social housing comprising of nationally established targets and an overview of implemented and planned policies and funding measures supporting the elimination of energy poverty.

An integrated district approach to building renovation

Member States may empower regional and local authorities to identify integrated districts in order to roll-out integrated renovation programmes (IRPs) at district level. The IRPs should address social pattern, energy, mobility, green infrastructures, waste and water treatment, and management and other aspects of urban planning to be considered at a district level, and shall take into account local and regional resources, circularity and sufficiency.

New buildings

Member States should ensure that new buildings are zero-emission buildings: (i) from 1 January 2026 for new buildings occupied, operated or owned by public authorities; and (ii) from 1 January 2028 for all new buildings.

No later than 24 months after the date of entry into force, new buildings should have optimal indoor environmental quality levels, including air quality, thermal comfort, a high capacity to mitigate and adapt to climate change through, inter alia, green infrastructure, adhere to fire safety and safety lighting standards.

Member States should ensure that the use of fossil fuels in heating systems , for new buildings and buildings undergoing major renovation, major refurbishment or renovation of the heating system, is not authorised from the date of transposition of the directive. They should be completely phased out by 2035, unless the European Commission allows their use until 2040.

Minimum energy performance standards

Member States should ensure that all buildings meet minimum energy performance standards, starting with the worst performing buildings.

Residential buildings would have to achieve at least energy performance class E by 2030, and D by 2033 . Non-residential and public buildings would have to achieve the same classes by 2027 and 2030 respectively (Commission proposed F and E). Member States should exempt public social housing from these obligations where such renovations are not cost-neutral or would lead to rent increases for people living in social housing that go beyond the savings in energy bills. To take account of the diversity of the building stock in different European countries, the letter G will correspond to the 15% worst performing buildings in the national building stock. Member States should put in place a framework to ensure that a sufficient and skilled workforce is available to enable the timely implementation of minimum energy performance standards in accordance with national building renovation plans.

Solar energy in buildings

Member States should ensure the deployment of suitable solar energy installations, if technically suitable and economically and functionally feasible, as follows: (a) by 24 months after the date of entry into force], on all new public and new non-residential buildings; (b) by 31 December 2026 , on all existing public and non-residential buildings; (c) by 31 December 2028 , on all new residential buildings and roofed carparks; (d) by 31 December 2032 , on all buildings undergoing major renovation.

Financial incentives

Member States should provide appropriate financing and support measures in combination with other Union instruments such as the Recovery and Resilience Facility, the Social Climate Fund and the cohesion policy funds.

The application and procedures for financing should be simple and streamlined in order to facilitate the access to financing for households. Public financing should address up-front costs associated with renovations faced by households. Member States should also facilitate the access to affordable bank loans, dedicated credit lines, or fully publicly financed renovations.

Financial incentives in the form of grants or guarantees shall take revenue-based parameters into account when allocating financial support to ensure that they target as a priority vulnerable households and people living in social housing.

One-stop-shops

The amended text stressed that one-stop shops could play an important role in connecting potential projects with market actors, including citizens, public authorities and project developers, in particular smaller-scale projects as well as guidance on permit procedures, promoting access to funding for building renovation, and helping to disseminate information on terms and conditions.

Member States should ensure the establishment of technical assistance facilities, including through inclusive one-stop-shops for energy efficiency in buildings, targeting all actors involved in building renovations, including homeowners and administrative, financial and economic actors, including microenterprises and SMEs.

PURPOSE: to revise the energy performance of buildings Directive in order to make sure that buildings are fit for the enhanced climate ambition.

PROPOSED ACT: Directive of the European Parliament and of the Council.

ROLE OF THE EUROPEAN PARLIAMENT: the European Parliament decides in accordance with the ordinary legislative procedure and on an equal footing with the Council.

BACKGROUND: the revision of Directive 2010/31/EU on the energy performance of buildings Directive (EPBD) is part of the 2021 Commission Work Programme ‘ Fit for 55 ’ package which sets the vision for achieving a zero-emission building stock by 2050. The proposal is particularly important because buildings account for 40% of energy consumed and 36% of energy-related direct and indirect greenhouse gas emissions. In the EU, heating, cooling and domestic hot water account for 80% of the energy that households consume. Making Europe more resilient calls for renovation of EU buildings, making them more energy efficient and less dependent on fossil fuels. Renovation is key for reducing the energy consumption of buildings, for bringing down emissions and for reducing energy bills.

Directive 2010/31/EU on the energy performance of buildings has been substantially amended several times. Since further amendments are to be made, that Directive should be recast in the interests of clarity.

CONTENT: the proposal aims to revise the energy performance of buildings Directive with a view to reducing buildings’ greenhouse gas (GHG) emissions and final energy consumption by 2030 and setting a long-term vision for buildings towards EU-wide climate neutrality in 2050. The proposal’s specific objectives include: (i) to increase the rate and depth of buildings renovations and (ii) to improve information on energy performance and sustainability of buildings.

The main measures in the new proposal concern:

- setting the vision for achieving a zero-emission building stock by 2050 and to reflect a new complementary carbon metric to orient choices towards decarbonised solutions;

- a new definition of zero-emission building is introduced to mean a building with a very high energy performance in line with the energy efficiency first principle, and where the very low amount of energy still required is fully covered by energy from renewable sources at the building or district or community level where technically feasible (notably those generated on-site, from a renewable energy community or from renewable energy or waste heat from a district heating and cooling system).

- For new buildings , the Commission proposes that from 2030 all new buildings should be zero-emission. All new public buildings should be zero emission from 2027;

- For existing buildings , new EU-wide minimum energy performance standards are proposed, which require the worst performing 15% of the building stock in each Member State to be upgraded from at least energy efficiency class G to class F, by 2027 for non-residential buildings and by 2030 for residential buildings;

- national building renovation plans (previously named long-term renovation strategies) are made more operational. Each Member State should establish a national building renovation plan to ensure the renovation of the national stock of residential and non-residential buildings, both public and private, into a highly energy efficient and decarbonised building stock by 2050, with the objective to transform existing buildings into zero-emission buildings. National building renovation plans should be fully integrated into national energy and climate plans;

- the methodology for calculating the energy performance of buildings is updated to clarify the possible use of metered energy use to calculate energy performance, and verify the correctness of calculated energy use;

- the setting of minimum energy performance requirements is amended to adapt the previously possible total exemption of protected buildings to technical progress, which allows improving the energy performance of such buildings without altering their technical character and appearance;

- the introduction of voluntary renovation passports would provide homeowners with a tool to facilitate a staged renovation towards zero emissions and the corresponding planning. Member States should introduce a scheme of renovation passports based on the common framework to be developed by the Commission by the end of 2024;

- the provision of stronger provisions on the removal of obstacles and barriers to renovation , and on the mobilisation of financial incentives with one-stop-shops accessible to all building ecosystem’s stakeholders, so that all barriers to building renovation, not only the costs, are addressed and Member States promote appropriate training. No financial incentives should be given for the installation of fossil fuel boilers from 2027 and Member States would have the legal possibility to ban the use of fossil fuels in buildings;

- the reliability, quality and digitalisation of Energy Performance Certificates would be increased. The obligation to have an energy performance certificate would be extended to buildings undergoing major renovation, to buildings whose lease contracts are renewed and to all public buildings. Buildings offered for sale or rent would also have to have a certificate. By 2025, all certificates should be based on a harmonised scale from A to G;

- financial support which should be provided to alleviate energy poverty and to support social housing, and to shield tenants from disproportionate rent levels following renovation;

- pre-cabling should become the norm for all new buildings and buildings undergoing major renovation, and the roll-out of recharging points in new and renovated office buildings is reinforced in particular. Mandatory bicycle parking spaces in new buildings and buildings undergoing major renovation are introduced.

Review clause

The proposal sets the date for the next review at the end of 2027, at the latest. The Commission will assess whether measures under EU law, including carbon pricing, will bring sufficient improvements to deliver a fully decarbonised, zero-emission building stock by 2050, or whether further binding measures at Union level such as strengthened minimum energy performance need to be introduced.