Energy efficiency helps reduce overall energy consumption and is therefore central to achieving the EU s climate ambition, while enhancing present and future energy security and affordability. To ensure that the EU s 2030 target of reducing greenhouse gas emissions by at least 55% (compared to 1990) can be met, the Commission has revised the Energy Efficiency Directive, together with other energy and climate rules. The revised directive
The revised Energy Efficiency Directive (EU/2023/1791) significantly raises the EU s ambition on energy efficiency. It establishes energy efficiency first as a fundamental principle of EU energy policy, giving it legal-standing for the first time. In practical terms, this means that energy efficiency must be considered by EU countries in all relevant policy and major investment decisions taken in the energy and non-energy sectors. The 2023 revision of the directive follows a proposal for a recast directive on energy efficiency put forward by the Commission in July 2021, as part of the EU Green Deal package. The 2021 proposal was further enhanced as part of the REPowerEU plan, presented by the Commission in May 2022, aiming to decrease the EU s dependency on fossil fuel imports from Russia. Full implementation of the Energy Efficiency Directive will be key for the EU to comply with the commitment of the Global Pledge to double the global rate of energy efficiency improvements from about 2% to over 4% by 2030. Timeline 2012-2023
The revised directive was published in the EU Official Journal and entered into force on 10 October 2023. Formal agreement of the revised Energy Efficiency Directive
The REPowerEU Plan proposing to raise the energy efficiency targets further
Commission proposal for a recast of the directive, part of Fit for 55 package
Agreement of the amending energy Efficiency Directive 2018/2002
Directive on Energy Efficiency 2012/27/EU
Recommendations and guidance notes
The Commission has published a series of recommendations, consisting of 9 guidance documents related to the revised directive, to help EU countries when transposing its different elements into national law. The deadline for transposition is 11 October 2025.
Commission Recommendation (EU) 2024/2143 setting out guidelines for the interpretation of Article 3 of Directive (EU) 2023/1791 as regards the energy efficiency first principle
Corrigendum to the Recommendation of 5 September 2024
Commission Recommendation (EU) 2024/1722 setting out guidelines for the interpretation of Article 4 of Directive (EU) 2023/1791 as regards energy efficiency targets and national contributions
Commission Recommendation (EU) 2024/1716 setting out guidelines for the interpretation of Articles 5, 6 and 7 of Directive (EU) 2023/1791 as regards energy consumption in the public sector, renovation of public buildings and public procurement
Commission Recommendation (EU) 2024/1590 on transposing Articles 8, 9 and 10 on the energy saving obligation s provisions of the Directive (EU) 2023/1791
Commission Recommendation (EU) 2024/2002 setting out guidelines for the interpretation of Article 11 of Directive (EU) 2023/1791 as regards energy management systems and energy audits
Commission Recommendation (EU) 2024/2395 setting out guidelines for the interpretation of Article 26 of Directive (EU) 2023/1791 as regards the heating and cooling supply
Commission Recommendation (EU) 2024/2481 setting out guidelines for the interpretation of Articles 21, 22 and 24 as regards the consumer related provisions of Directive (EU) 2023/1791
Commission Recommendation (EU) 2024/2476 setting out guidelines for the interpretation of Article 29 of Directive (EU) 2023/1791 as regards energy services
Commission Recommendation (C/2023/8558) on transposing Article 30 on national energy efficiency funds, financing and technical support of the Directive (EU) 2023/1791
Examples of good practices illustrating how the new and revised provisions could be implemented are compiled in the contractors report on good practices. Energy consumption targets
The 2023 revised directive raises the EU energy efficiency target, making it binding for EU countries to collectively ensure an additional 11.7% reduction in energy consumption by 2030, compared to the projections of the EU reference scenario 2020. As a result, overall EU energy consumption by 2030 should not exceed 992.5 million tonnes of oil equivalent (Mtoe) for primary energy and 763 Mtoe for final energy. Under the updated rules, EU countries have agreed to help achieve the EU target by setting indicative national contributions using a combination of objective criteria which reflect national circumstances (energy intensity, GDP per capita, energy savings potential and earlier efforts for energy efficiency by EU countries). The directive also includes an enhanced 'gap-filling mechanism' that will be triggered if countries fall behind in delivering their national contributions. In setting these indicative national contributions, EU countries could use either the projections of the EU reference scenario 2020 or its updated version (communicated to them in December 2023).
In March 2024, the Commission communicated on corrected indicative national contributions (covering also the update of the reference scenario) to be used in the EU countries' updated integrated national energy and climate plans (NECPs) in June 2024. Annual energy savings obligation
The revised directive more than doubles the annual energy savings obligation (Article 8) by 2028. This is one of the key policy instruments of the directive to meet the headline target and to drive energy savings in end-use sectors, such as buildings, industry and transport. EU countries are required to achieve cumulative end-use energy savings for the entire obligation period (running from 2021 to 2030), equivalent to new annual savings of at least 0.8% of final energy consumption in 2021-2023, at least 1.3% in 2024-2025, 1.5% in 2026-2027 and 1.9% in 2028-2030. Energy poverty and consumers
The revised directive also puts a stronger focus on alleviating energy poverty. It aims at empowering consumers through stronger requirements for EU countries to raise awareness and provide information on energy efficiency. It also emphasises the creation of one-stop shops, technical and financial advice and consumer protection via out-of-court mechanisms for the settlement of disputes. Furthermore, it includes improved regulations to identify and remove barriers related to split incentives for energy efficiency renovations between tenants and owners or among multiple owners. The changes introduced require EU countries to prioritise energy efficiency improvements for vulnerable customers, individuals affected by energy poverty and those living in social housing. To address any potential negative impacts, the revenue generated from the extension of the EU Emissions Trading System (ETS) to buildings and transport will be used through the Social Climate Fund. Under the energy savings obligation, each EU country is responsible for achieving a share of its energy savings among vulnerable customers and those affected by energy poverty.
The criteria for determining these targets will be defined by each country, allowing flexibility for tailored solutions based on country-specific circumstances. Energy performance of data centres
The revised directive introduces an obligation for the monitoring and reporting of the energy performance of data centres. A European database will collect and publish data, which is relevant for the energy performance and water footprint of data centres with a significant energy consumption. The Delegated Regulation (EU/2024/1364) sets out the information and key performance indicators for the reporting obligation. The European database on data centres, prepared by the Commission, be available for the first reporting deadline of 15 September 2024. For the reporting obligation on data centres: List of national contact points and information resources (24/07/2025)
For questions on the Delegated Regulation and/or the reporting scheme please contact: ENER-B2-DATA-CENTERec [dot] europa [dot] eu (ENER-B2-DATA-CENTER[at]ec[dot]europa[dot]eu). For questions on or problems when using the reporting platform, please log in to the platform and use the contact us form (top right corner). The Commission will regularly assess the energy efficiency and sustainability of data centres in Europe that have reported their data and indicators. For 2025, the Commission published a study which covers all dimensions of Annex IV of the Delegated Regulation and could be used by any interested parties, while the public website that will present the aggregated data from the database is being prepared. The Commission has taken several steps to help EU countries and reporting data centres better understand the European database and fulfil their reporting obligations
For the preparation of the delegated regulation, the Commission ordered a study that was completed at the end of 2023 on the energy performance and sustainability of data centres. Its 3 published deliverables are listed here
Heating and cooling supply
To ensure a fully decarbonised district heating and cooling supply by 2050, the definition of efficient district heating and cooling was modified in the revised Energy Efficiency Directive 2023. Minimum requirements will be gradually changed to allow for a progressive integration of renewable energy and waste heat and cold in the system. Support to new high-efficiency cogeneration units using natural gas and connected to district heating in efficient district heating and cooling systems will only be possible until 2030, whereas any other fossil fuel use will be banned for new heat generation capacities in such systems.
EU countries will also have to promote local heating and cooling plans in large municipalities having populations above 45 000. Audit obligations, technical competence requirements and investments reporting
To optimise energy savings in the industrial sector, the directive expands the scope of energy audit obligations to include all those companies, regardless of their size, which are consuming energy above a certain threshold. Therefore, small and medium-sized enterprises (SMEs) would also have to carry out an energy audit, where there is significant energy saving potential. Meanwhile, the directive makes energy management systems a mandatory requirement for large industrial energy consumers to monitor and optimise their energy efficiency. Additionally, under the revised directive, EU countries will need to ensure an appropriate level of competence for energy efficiency related professionals, aligning them with market needs and enforcing clearer and stricter requirements for the necessary competencies. This includes energy service providers, energy auditors, energy managers and installers. The directive mandates EU countries to report on energy efficiency investments, including energy performance contracts, as part of the Governance Regulation, ensuring transparency and accountability. It also establishes project development assistance mechanisms at national, regional, and local levels to support energy efficiency investments and facilitate the attainment of the EU s ambitious energy efficiency targets. Previous versions of the directive
The Energy Efficiency Directive 2012/27/EU required all EU countries to show how they intended to meet their 2020 energy efficiency targets. This planning was done every 3 years, as of 2014, and countries had to report on the progress achieved towards their national energy efficiency targets on annual basis. All the National Energy Efficiency Action Plans and Annual Progress Reports from 2007 to 2020 are published in dedicated folders, organised per country. EU countries have reported on their achievement of the 2020 targets in 2022. Planning and reporting as of 2020 is covered by the National Energy and Climate Plans (NECPs) and the related bi-annual reports. In 2018, the 'Clean energy for all Europeans package' introduced the amending Directive on Energy Efficiency (EU/2018/2002) to update the policy framework to 2030 and beyond. It established a binding energy efficiency target for a reduction in final energy consumption of at least 32.5% by 2030 (relative to the 2007 reference scenario), following on from the existing 20% target for 2020. The amending directive also included an extension of the energy savings obligation in end use, introduced in the 2012 directive. Under the amending directive, EU countries were set a target of achieving new final energy consumption savings of 0.8% each year for the 2021-2030 period, except Cyprus and Malta, whose annual target was 0.24% instead. Under the Governance Regulation 2018/1999, EU countries are required to draw up integrated 10-year national energy and climate plans (NECPs), outlining how they intend to meet energy efficiency and other targets for 2030. Examples of other elements introduced in the amended directive
Updated measures relating to national long-term renovation strategies are now covered under the amended Energy Performance of Buildings Directive (EU)2018/844. Directive 2012/27/EU established a set of binding measures to help the EU reach its 20% energy efficiency target by 2020. This meant that the overall EU energy consumption should be no more than 1312 million tonnes of oil equivalent (Mtoe) of primary energy or 959 Mtoe of final energy (following the UK's withdrawal). Under the directive, all EU countries were required to use energy more efficiently at all stages of the energy chain, including energy generation, transmission, distribution and end-use consumption. Both targets were overachieved in 2020, with final energy consumption reaching 907 Mtoe and primary energy consumption 1236 Mtoe.
This was highly influenced by the Covid-19 pandemic. Examples of measures to improve energy efficiency
In the context of the directive, a number of important measures were adopted throughout the EU to improve energy efficiency in Europe
The European Commission published guidance notes to help EU countries fully transpose the different elements of the 2018 amending directive into national law. Guidance notes were also published to help EU countries fully transpose the different elements of the 2012 directive into national law.
More specific good practice guidance for EU countries on the implementation of aspects of Articles 9-11 relating to collectively provided thermal energy in multi-apartment buildings has also been developed at the request of the Commission and is available at CIRCABC. Commission recommendations
Guidance notes
Implementing the Energy Efficiency Directive 2012/27/EU Commission Guidance (COM(2013) 762)
Documents
Related Links