Directive 2002/91/EC of the European Parliament and of the Council of 16 December 2002 on the energy performance of buildings
Date: 2002-12-16
Institutions: Council of the European Union, European Parliament
Subjects: air conditioning, building, energy consumption, energy efficiency, energy saving, heating, technical specification, thermal insulation

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DIRECTIVE 2002/91/EC OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

of 16 December 2002

on the energy performance of buildings

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE
EUROPEAN UNION,

(7)

Having regard to the Treaty establishing the European Commu-
nity, and in particular Article 175(1) thereof,

Having regard to the proposal from the Commission (1),

Having regard to the opinion of the Economic and Social
Committee (2),

Having regard to the opinion of
Regions (3),

the Committee of

the

Acting in accordance with the procedure laid down in Article
251 of the Treaty (4),

Whereas:

(1)

(2)

(3)

(4)

(5)

(6)

Article 6 of the Treaty requires environmental protection
requirements to be integrated into the definition and
implementation of Community policies and actions.

The natural resources, to the prudent and rational utilisa-
tion of which Article 174 of the Treaty refers, include
oil products, natural gas and solid fuels, which are essen-
tial sources of energy but also the leading sources of
carbon dioxide emissions.

Increased energy efficiency constitutes an important part
of
the package of policies and measures needed to
comply with the Kyoto Protocol and should appear in
any policy package to meet further commitments.

Demand management of energy is an important tool
enabling the Community to influence the global energy
market and hence the security of energy supply in the
medium and long term.

In its conclusions of 30 May 2000 and of 5 December
2000, the Council endorsed the Commission's action
plan on energy
and requested specific
measures in the building sector.

efficiency

The residential and tertiary sector, the major part of
which is buildings, accounts for more than 40 % of final
energy
is
consumption in the Community
expanding, a trend which is bound to increase its energy
consumption and hence also its carbon dioxide emis-
sions.

and

(8)

(9)

(10)

Council Directive 93/76/EEC of 13 September 1993 to
limit carbon dioxide emissions by improving energy effi-
ciency (SAVE) (5), which requires Member States to
develop, implement and report on programmes in the
field of energy efficiency in the building sector, is now
starting to show some important benefits. However, a
complementary legal instrument is needed to lay down
more concrete actions with a view to achieving the great
unrealised potential for energy savings and reducing the
large differences between Member States' results in this
sector.

the Member States

Council Directive 89/106/EEC of 21 December 1988 on
the approximation of laws, regulations and administra-
tive provisions of
relating to
construction products (6)
requires construction works
and their heating, cooling and ventilation installations to
be designed and built in such a way that the amount of
energy required in use will be low, having regard to the
climatic conditions of the location and the occupants.

The measures further to improve the energy perfor-
mance of buildings should take into account climatic
and local conditions as well as indoor climate environ-
ment and cost-effectiveness. They should not contravene
other essential requirements concerning buildings such
as accessibility, prudence and the intended use of the
building.

The energy performance of buildings should be calcu-
lated on the basis of a methodology, which may be
differentiated at regional level, that includes, in addition
to thermal insulation other factors that play an increas-
ingly important role such as heating and air-condi-
tioning installations, application of renewable energy
sources and design of the building. A common approach
to this process, carried out by qualified and/or accredited
experts, whose independence is to be guaranteed on the
basis of objective criteria, will contribute to a level
playing field as regards efforts made in Member States to
energy saving in the buildings sector and will introduce
transparency for prospective owners or users with regard
to the energy performance in the Community property
market.

(1) OJ C 213 E, 31.7.2001, p. 266 and OJ C 203 E, 27.8.2002, p. 69.
(2) OJ C 36, 8.2.2002, p. 20.
(3) OJ C 107, 3.5.2002, p. 76.
(4) Opinion of the European Parliament of 6 February 2002 (not yet
published in the Official Journal), Council Common Position of 7
June 2002 (OJ C 197, 20.8.2002, p. 6) and decision of
the
European Parliament of 10 October 2002 (not yet published in the
Official Journal).

(11)

The Commission intends further to develop standards
such as EN 832 and prEN 13790, also including consid-
eration of air-conditioning systems and lighting.

(5) OJ L 237, 22.9.1993, p. 28.
(6) OJ L 40, 11.2.1989, p. 12. Directive as amended by Directive 93/

68/EEC (OJ L 220, 30.8.1993, p.1).

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(12)

full potential,

Buildings will have an impact on long-term energy
consumption and new buildings should therefore meet
minimum energy performance requirements tailored to
the local climate. Best practice should in this respect be
geared to the optimum use of factors relevant to enhan-
cing energy performance. As the application of alterna-
tive energy supply systems is generally not explored to
its
the technical, environmental and
economic feasibility of alternative energy supply systems
should be considered; this can be carried out once, by
the Member State, through a study which produces a list
of energy conservation measures,
for average local
market conditions, meeting cost-effectiveness criteria.
Before construction starts,
specific studies may be
the measure, or measures, are deemed
requested if
feasible.

(13) Major renovations of existing buildings above a certain
size should be regarded as an opportunity to take cost-
effective measures
to enhance energy performance.
Major renovations are cases such as those where the
total cost of the renovation related to the building shell
and/or energy installations such as heating, hot water
supply, air-conditioning, ventilation and lighting is
higher than 25 % of the value of the building, excluding
the value of the land upon which the building is situated,
or those where more than 25 % of the building shell
undergoes renovation.

(14) However, the improvement of the overall energy perfor-
mance of an existing building does not necessarily mean
a total renovation of the building but could be confined
to those parts that are most relevant for the energy
performance of the building and are cost-effective.

(15)

(16)

Renovation requirements for existing buildings should
not be incompatible with the intended function, quality
or character of the building. It should be possible to
recover additional costs involved in such renovation
within a reasonable period of time in relation to the
expected technical lifetime of the investment by accrued
energy savings.

be

supported

certification process may

by
The
programmes
to improved
to facilitate equal access
energy performance; based upon agreements between
organisations of stakeholders and a body appointed by
the Member States; carried out by energy service compa-
nies which agree to commit themselves to undertake the
identified investments. The schemes adopted should be
supervised and followed up by Member States, which
should also facilitate the use of incentive systems. To the
extent possible, the certificate should describe the actual
energy-performance situation of the building and may
be revised accordingly. Public authority buildings and
buildings frequently visited by the public should set an
example by taking environmental and energy considera-
tions into account and therefore should be subject to

energy certification on a regular basis. The dissemination
to the public of this information on energy performance
should be enhanced by clearly displaying these energy
certificates. Moreover, the displaying of officially recom-
mended indoor temperatures, together with the actual
measured temperature, should discourage the misuse of
heating, air-conditioning and ventilation systems. This
should contribute to avoiding unnecessary use of energy
and to safeguarding comfortable indoor climatic condi-
tions
in relation to the outside
temperature.

(thermal comfort)

(17) Member States may also employ other means/measures,
not provided for
to encourage
enhanced energy performance. Member States should
encourage
into
good energy management,
account the intensity of use of buildings.

in this Directive,

taking

(18)

(19)

(20)

(21)

Recent years have seen a rise in the number of air-condi-
tioning systems in southern European countries. This
creates considerable problems at peak load times,
increasing the cost of electricity and disrupting the
energy balance in those countries. Priority should be
given to strategies which enhance the thermal perfor-
mance of buildings during the summer period. To this
end there should be further development of passive
cooling techniques, primarily those that improve indoor
climatic conditions and the microclimate around build-
ings.

Regular maintenance of boilers and of air-conditioning
systems by qualified personnel contributes to main-
taining their correct adjustment in accordance with the
product specification and in that way will ensure optimal
performance from an environmental, safety and energy
point of view. An independent assessment of the total
heating installation is appropriate whenever replacement
could be considered on the basis of cost-effectiveness.

The billing, to occupants of buildings, of the costs of
heating, air-conditioning and hot water, calculated in
proportion to actual consumption, could contribute
towards energy saving in the residential sector. Occu-
pants should be enabled to regulate their own consump-
tion of heat and hot water, in so far as such measures
are cost effective.

In accordance with the principles of subsidiarity and
proportionality as set out in Article 5 of the Treaty,
general principles providing for a system of energy
performance requirements and its objectives should be
established at Community level, but the detailed imple-
mentation should be left
thus
allowing each Member State to choose the regime which
corresponds best to its particular situation. This Directive
confines itself to the minimum required in order to
achieve those objectives and does not go beyond what is
necessary for that purpose.

to Member States,

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(22)

(23)

Provision should be made for the possibility of rapidly
adapting the methodology of calculation and of Member
States regularly reviewing minimum requirements in the
field of energy performance of buildings with regard to
technical progress, inter alia, as concerns the insulation
properties (or quality) of the construction material, and
to future developments in standardisation.

The measures necessary for the implementation of this
Directive should be adopted in accordance with Council
Decision 1999/468/EC of 28 June 1999 laying down
the procedures for the exercise of implementing powers
conferred on the Commission (1),

HAVE ADOPTED THIS DIRECTIVE:

Article 1

Objective

The objective of this Directive is to promote the improvement
of the energy performance of buildings within the Community,
taking into account outdoor climatic and local conditions, as
well as indoor climate requirements and cost-effectiveness.

This Directive lays down requirements as regards:

(a) the general framework for a methodology of calculation of

the integrated energy performance of buildings;

(b) the application of minimum requirements on the energy

performance of new buildings;

(c) the application of minimum requirements on the energy
performance of large existing buildings that are subject to
major renovation;

(d) energy certification of buildings; and

(e) regular

inspection of boilers and of air-conditioning
systems in buildings and in addition an assessment of the
heating installation in which the boilers are more than 15
years old.

Article 2

Definitions

For the purpose of this Directive, the following definitions shall
apply:

1.

2.

‘building’: a roofed construction having walls, for which
energy is used to condition the indoor climate; a building
may refer to the building as a whole or parts thereof that
have been designed or altered to be used separately;

‘energy performance of a building’: the amount of energy
actually consumed or estimated to meet the different needs
associated with a standardised use of the building, which
may include, inter alia, heating, hot water heating, cooling,
ventilation and lighting. This amount shall be reflected in
one or more numeric indicators which have been calculated,
taking into account
technical and installation
characteristics, design and positioning in relation to climatic
aspects, solar exposure and influence of neighbouring struc-
tures, own-energy generation and other factors,
including
indoor climate, that influence the energy demand;

insulation,

(1) OJ L 184, 17.7.1999, p. 23.

3.

4.

5.

6.

7.

‘energy performance certificate of a building’: a certificate
recognised by the Member State or a legal person designated
by it, which includes the energy performance of a building
calculated according to a methodology based on the general
framework set out in the Annex;

‘CHP’ (combined heat and power): the simultaneous conver-
sion of primary fuels into mechanical or electrical and
thermal energy, meeting certain quality criteria of energy
efficiency;

‘air-conditioning system’: a combination of all components
required to provide a form of air treatment
in which
temperature is controlled or can be lowered, possibly in
combination with the control of ventilation, humidity and
air cleanliness;

‘boiler’: the combined boiler body and burner-unit designed
to transmit to water the heat released from combustion;

‘effective rated output (expressed in kW)’: the maximum
calorific output specified and guaranteed by the manufac-
turer as being deliverable during continuous operation while
complying with the useful efficiency indicated by the manu-
facturer;

8.

‘heat pump’: a device or installation that extracts heat at low
temperature from air, water or earth and supplies the heat
to the building.

Article 3

Adoption of a methodology

Member States shall apply a methodology, at national or
regional
level, of calculation of the energy performance of
buildings on the basis of the general framework set out in the
Annex. Parts 1 and 2 of this framework shall be adapted to
technical progress in accordance with the procedure referred to
in Article 14(2),
taking into account standards or norms
applied in Member State legislation.

This methodology shall be set at national or regional level.

The energy performance of a building shall be expressed in a
transparent manner and may include a CO2 emission indicator.

Article 4

Setting of energy performance requirements

1. Member States shall
take the necessary measures to
ensure that minimum energy performance requirements for
buildings are set, based on the methodology referred to in
Article 3. When setting requirements, Member States may
differentiate between new and existing buildings and different
categories of buildings. These requirements shall take account
of general indoor climate conditions, in order to avoid possible
negative effects such as inadequate ventilation, as well as local
conditions and the designated function and the age of the
building. These requirements shall be reviewed at regular inter-
vals which should not be longer than five years and, if neces-
technical progress in the
sary, updated in order to reflect
building sector.

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The energy performance requirements shall be applied in

2.
accordance with Articles 5 and 6.

3. Member States may decide not to set or apply the require-
ments referred to in paragraph 1 for the following categories of
buildings:

— buildings and monuments officially protected as part of a
designated environment or because of their special architec-
tural or historic merit, where compliance with the require-
ments would unacceptably alter their character or appear-
ance,

— buildings used as places of worship and for religious

activities,

— temporary buildings with a planned time of use of two
years or less, industrial sites, workshops and non-residential
agricultural buildings with low energy demand and non-
residential agricultural buildings which are in use by a
sector covered by a national sectoral agreement on energy
performance,

are part of a renovation to be carried out within a limited time
period, with the abovementioned objective of improving the
overall energy performance of the building.

Article 7

Energy performance certificate

1. Member States shall ensure that, when buildings are
constructed, sold or rented out, an energy performance certifi-
cate is made available to the owner or by the owner to the
prospective buyer or tenant, as the case might be. The validity
of the certificate shall not exceed 10 years.

Certification for apartments or units designed for separate use
in blocks may be based:

— on a common certification of the whole building for blocks

with a common heating system, or

— on the assessment of another representative apartment in

— residential buildings which are intended to be used less than

the same block.

four months of the year,

— stand-alone buildings with a total useful floor area of less

than 50 m2.

Article 5

New buildings

Member States shall take the necessary measures to ensure that
new buildings meet the minimum energy performance require-
ments referred to in Article 4.

For new buildings with a total useful floor area over 1 000 m2,
Member States shall ensure that the technical, environmental
and economic feasibility of alternative systems such as:

— decentralised energy supply systems based on renewable

energy,

— CHP,

— district or block heating or cooling, if available,

— heat pumps, under certain conditions,

is considered and is taken into account before construction
starts.

Member States may exclude the categories referred to in Article
4(3) from the application of this paragraph.

2.
The energy performance certificate for buildings shall
include reference values such as current legal standards and
benchmarks in order to make it possible for consumers to
compare and assess the energy performance of the building.
The certificate shall be accompanied by recommendations for
the cost-effective improvement of the energy performance.

The objective of the certificates shall be limited to the provision
of information and any effects of these certificates in terms of
legal proceedings or otherwise shall be decided in accordance
with national rules.

3. Member States shall take measures to ensure that for
buildings with a total useful floor area over 1 000 m2 occupied
by public authorities and by institutions providing public
services to a large number of persons and therefore frequently
visited by these persons an energy certificate, not older than 10
years,
is placed in a prominent place clearly visible to the
public.

The range of recommended and current indoor temperatures
and, when appropriate, other relevant climatic factors may also
be clearly displayed.

Article 6

Existing buildings

Article 8

Inspection of boilers

is

their

renovation,

energy performance

Member States shall take the necessary measures to ensure that
when buildings with a total useful floor area over 1 000 m2
undergo major
is
upgraded in order to meet minimum requirements in so far as
this
functionally and economically feasible.
Member States shall derive these minimum energy performance
requirements on the basis of the energy performance require-
ments set
for buildings in accordance with Article 4. The
requirements may be set either for the renovated building as a
whole or for the renovated systems or components when these

technically,

With regard to reducing energy consumption and limiting
carbon dioxide emissions, Member States shall either:

(a) lay down the necessary measures to establish a regular
inspection of boilers fired by non-renewable liquid or solid
fuel of an effective rated output of 20 kW to 100 kW. Such
inspection may also be applied to boilers using other fuels.

Boilers of an effective rated output of more than 100 kW
shall be inspected at least every two years. For gas boilers,
this period may be extended to four years.

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For heating installations with boilers of an effective rated
output of more than 20 kW which are older than 15 years,
Member States shall lay down the necessary measures to
establish a one-off inspection of the whole heating installa-
tion. On the basis of this inspection, which shall include an
assessment of the boiler efficiency and the boiler sizing
compared to the heating requirements of the building, the
experts shall provide advice to the users on the replacement
of the boilers, other modifications to the heating system
and on alternative solutions; or

(b) take steps to ensure the provision of advice to the users on
the replacement of boilers, other modifications to the
heating system and on alternative solutions which may
include inspections to assess the efficiency and appropriate
size of the boiler. The overall
impact of this approach
should be broadly equivalent to that arising from the provi-
sions set out in (a). Member States that choose this option
shall submit a report on the equivalence of their approach
to the Commission every two years.

(b) general incentives for further energy efficiency measures in

buildings.

Article 12

Information

Member States may take the necessary measures to inform the
users of buildings as to the different methods and practices that
serve to enhance energy performance. Upon Member States'
request, the Commission shall assist Member States in staging
the information campaigns concerned, which may be dealt with
in Community programmes.

Article 13

Adaptation of the framework

Article 9

Inspection of air-conditioning systems

Points 1 and 2 of the Annex shall be reviewed at regular inter-
vals, which shall not be shorter than two years.

With regard to reducing energy consumption and limiting
carbon dioxide emissions, Member States shall lay down the
necessary measures to establish a regular inspection of air-
conditioning systems of an effective rated output of more than
12 kW.

This inspection shall include an assessment of the air-condi-
tioning efficiency and the sizing compared to the cooling
requirements of
the building. Appropriate advice shall be
provided to the users on possible improvement or replacement
of the air-conditioning system and on alternative solutions.

Article 10

Independent experts

Member States shall ensure that the certification of buildings,
the drafting of the accompanying recommendations and the
inspection of boilers and air-conditioning systems are carried
out in an independent manner by qualified and/or accredited
experts, whether operating as sole traders or employed by
public or private enterprise bodies.

Article 11

Review

The Commission, assisted by the Committee established by
Article 14, shall evaluate this Directive in the light of experi-
ence gained during its application, and,
if necessary, make
proposals with respect to, inter alia:

(a) possible complementary measures referring to the renova-
tions in buildings with a total useful floor area less than
1 000 m2;

Any amendments necessary in order to adapt points 1 and 2 of
the Annex to technical progress shall be adopted in accordance
with the procedure referred to in Article 14(2).

Article 14

Committee

1.

The Commission shall be assisted by a Committee.

2. Where reference is made to this paragraph, Articles 5 and
7 of Decision 1999/468/EC shall apply, having regard to the
provisions of Article 8 thereof.

The period laid down in Article 5(6) of Decision 1999/468/EC
shall be set at three months.

3.

The Committee shall adopt its Rules of Procedure.

Article 15

Transposition

1. Member States shall bring into force the laws, regulations
and administrative provisions necessary to comply with this
Directive at the latest on 4 January 2006. They shall forthwith
inform the Commission thereof.

When Member States adopt these measures, they shall contain
a reference to this Directive or shall be accompanied by such
reference on the occasion of their official publication. Member
States shall determine how such reference is to be made.

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2. Member States may, because of lack of qualified and/or
accredited experts, have an additional period of three years to
apply fully the provisions of Articles 7, 8 and 9. When making
use of this option, Member States shall notify the Commission,
providing the appropriate justification together with a time
schedule with respect to the further implementation of this
Directive.

Article 16

Entry into force

This Directive shall enter into force on the day of its publica-
tion in the Official Journal of the European Communities.

Article 17

Addressees

This Directive is addressed to the Member States.

Done at Brussels, 16 December 2002.

For the European Parliament

The President

P. COX

For the Council

The President

M. FISCHER BOEL

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ANNEX

General framework for the calculation of energy performance of buildings (Article 3)

1. The methodology of calculation of energy performances of buildings shall include at least the following aspects:

(a) thermal characteristics of the building (shell and internal partitions, etc.). These characteristics may also include

air-tightness;

(b) heating installation and hot water supply, including their insulation characteristics;

(c) air-conditioning installation;

(d) ventilation;

(e) built-in lighting installation (mainly the non-residential sector);

(f) position and orientation of buildings, including outdoor climate;

(g) passive solar systems and solar protection;

(h) natural ventilation;

(i) indoor climatic conditions, including the designed indoor climate.

2. The positive influence of the following aspects shall, where relevant in this calculation, be taken into account:

(a) active solar systems and other heating and electricity systems based on renewable energy sources;

(b) electricity produced by CHP;

(c) district or block heating and cooling systems;

(d) natural lighting.

3. For the purpose of this calculation buildings should be adequately classified into categories such as:

(a) single-family houses of different types;

(b) apartment blocks;

(c) offices;

(d) education buildings;

(e) hospitals;

(f) hotels and restaurants;

(g) sports facilities;

(h) wholesale and retail trade services buildings;

(i) other types of energy-consuming buildings.