A European Policy Framework for Sustainable Buildings

The Energy Performance of Buildings Directive (EPBD) stands as a cornerstone of European Union legislation aimed at promoting energy efficiency and environmental sustainability in the built environment. This comprehensive framework addresses one of Europe's most significant challenges in achieving climate neutrality: the substantial energy consumption and emissions produced by buildings.

Origins and Historical Development

The EPBD evolved from Europe's commitment to the Kyoto Protocol and the recognition that buildings represent a critical sector for reducing greenhouse gas emissions. The first iteration of the directive, Directive 2002/91/EC, was approved on December 16, 2002, and came into force on January 4, 2003. This initial version established fundamental requirements for improving building energy efficiency across the European Union.

The directive was inspired by compelling statistics: buildings account for approximately 40% of final energy consumption and 36% of energy-related greenhouse gas emissions in the EU. These figures underscored the urgent need for a coordinated European approach to building energy performance.

In 2010, the directive underwent its first major revision with Directive 2010/31/EU, commonly referred to as the "EPBD recast." This update broadened the scope to include the concept of Nearly Zero-Energy Buildings (nZEBs) and introduced more stringent requirements for energy performance certificates and inspection systems.

The most recent and substantial revision, Directive 2024/1275, was published in the Official Journal on May 8, 2024, and entered into force on May 28, 2024. This latest version represents an ambitious leap forward in the EU's approach to building decarbonization.

Core Policy Framework

The EPBD establishes a comprehensive policy framework that spans multiple dimensions of building energy performance. Its structure addresses both new construction and existing building stock through several key mechanisms:

Methodological Framework for Energy Performance Calculation

At its foundation, the directive mandates a common methodology for calculating the integrated energy performance of buildings and building units. This methodology takes into account numerous factors, including:

• Thermal characteristics of buildings (shell, partitions, air-tightness)
• Heating and hot water installations
• Air-conditioning systems
• Ventilation
• Built-in lighting installations
• Building position and orientation
• Passive solar systems and solar protection
• Natural ventilation
• Indoor climate conditions

Minimum Energy Performance Requirements

The directive requires Member States to establish minimum energy performance requirements for:

• New buildings and building units
• Existing buildings undergoing major renovations
• Building elements that significantly impact energy performance when retrofitted or replaced
• Technical building systems when installed, replaced, or upgraded

Zero-Emission Buildings Standard

One of the most transformative elements of the revised EPBD is the introduction of the zero-emission building standard. This requires:

• All new buildings to be zero-emission by 2030
• All new public buildings to be zero-emission by 2028
• Existing buildings to be renovated to achieve zero-emission status by 2050

A zero-emission building is characterized by very high energy performance, minimal energy needs primarily fulfilled by renewable energy sources, and no on-site carbon emissions from fossil fuels.

National Building Renovation Plans

Member States must develop and implement national building renovation plans that replace previous long-term renovation strategies. These plans must include:

• Targets for reducing average primary energy use in residential buildings (16% reduction by 2030, 20-22% by 2035)
• Strategies for renovating the worst-performing buildings (16% of non-residential buildings by 2030, 26% by 2033)
• Financial mechanisms and support measures
• Timelines and milestones for achieving a zero-emission building stock by 2050

Energy Performance Certification

The EPBD mandates energy performance certificates (EPCs) for buildings when constructed, sold, or rented. These certificates:

• Provide information about the building's energy performance
• Must be stated in advertisements when buildings are offered for sale or rent
• Serve as a transparency tool for property markets

Other Key Provisions

The revised directive also introduces several innovative elements:

• Renovation Passports: Customized roadmaps for the staged renovation of specific buildings
• Solar Energy Requirements: Gradual introduction of solar obligations for buildings
• Sustainable Mobility Infrastructure: Requirements for charging infrastructure for electric vehicles and bicycle parking
• Smart Building Standards: Provisions for buildings that can respond to external signals and adjust energy consumption, production, or storage
• Indoor Environmental Quality: For the first time, the EPBD defines and mandates standards for healthy indoor air quality

Objectives and Vision

The overarching goal of the EPBD is to achieve a fully decarbonized and highly energy-efficient building stock across Europe by 2050. This vision is supported by several specific objectives:

• Substantially reducing greenhouse gas emissions from the building sector
• Decreasing energy consumption and dependency on fossil fuels
• Creating a stable environment for investment decisions in building renovation
• Enabling consumers and businesses to make informed choices about energy efficiency
• Supporting better air quality and healthier indoor environments
• Promoting digitalization of energy systems for buildings
• Facilitating the roll-out of infrastructure for sustainable mobility

Implementation and Financing

The successful implementation of the EPBD relies heavily on adequate financing mechanisms. The directive recognizes that the transformation of Europe's building stock requires substantial investment. To address this challenge:

• Member States must facilitate access to appropriate mechanisms for financing renovations
• The EU provides support through various instruments, including the Recovery and Resilience Facility
• Public-private partnerships are encouraged to develop attractive financial products for building renovation
• Special attention is given to vulnerable households through targeted financial support

Member States have until May 29, 2026, to transpose the latest revision of the directive into their national laws. This process involves adapting the directive's requirements to each country's specific circumstances, building stock characteristics, and climate conditions.

Conclusion

The Energy Performance of Buildings Directive represents one of Europe's most significant policy frameworks for achieving its climate and energy goals. By addressing the substantial contribution of buildings to energy consumption and emissions, the EPBD provides a comprehensive roadmap for transforming Europe's building stock into a highly efficient, decarbonized sector by 2050.

Through its evolving provisions and increasingly ambitious targets, the directive has established itself as a driving force for innovation in construction practices, renovation approaches, and financing mechanisms. As implementation continues across Member States, the EPBD will continue to shape Europe's built environment for decades to come, contributing substantially to the continent's broader climate neutrality objectives.

References

• European Commission. "Energy Performance of Buildings Directive." https://energy.ec.europa.eu/topics/energy-efficiency/energy-efficient-buildings/energy-performance-buildings-directive_en
• Climate Action Network Europe. "EPBD Revision Briefing." https://caneurope.org/content/uploads/2021/10/EPBD-revision-briefing.pdf
• eu.bac. "The revised Energy Performance of Buildings Directive (EPBD) published in the Official Journal." https://eubac.org/news/the-revised-energy-performance-of-buildings-directive-epbd-published-in-the-official-journal/
• GVW. "Zero-emission buildings by 2050: New European requirements for the energy efficiency of buildings." https://www.gvw.com/en/news/blog/detail/zero-emission-buildings-by-2050-new-european-requirements-for-the-energy-efficiency-of-buildings
• EUR-Lex. "Directive 2002/91/EC on the energy performance of buildings." https://eur-lex.europa.eu/eli/dir/2002/91/oj/eng
• Dentons. "Proposed recast of the Energy Performance on Buildings Directive." https://www.dentons.com/en/insights/articles/2023/december/8/proposed-recast-of-energy-performance-on-buildings-directive
• Wikipedia. "Energy Performance of Buildings Directive 2024." https://en.wikipedia.org/wiki/Energy_Performance_of_Buildings_Directive_2024
• REHVA. "Energy Performance of Buildings Directive (EPBD)." https://www.rehva.eu/eu-policy/energy-performance-of-buildings-directive-epbd
• International Energy Agency. "Energy Performance of Buildings Directive - EPBD (2002/91/EC)." https://www.iea.org/policies/868-energy-performance-of-buildings-directive-epbd-200291ec
• EASE. "Briefing on Energy Performance of Buildings Directive." https://ease-storage.eu/wp-content/uploads/2024/05/2024.05.27-EASE-Analysis-on-Energy-Performance-of-Buildings-Directive.pdf
• RICS. "Energy Performance of Buildings Directive (EPBD): overview." https://www.rics.org/content/dam/ricsglobal/documents/latest-news/RICS-EPBD-oveview.pdf
• Bruegel. "How to finance the European Union's building decarbonisation plan." https://www.bruegel.org/policy-brief/how-finance-european-unions-building-decarbonisation-plan