COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU 'Save Energy'
Date: 2022-05-18
Institutions: Directorate-General for Energy, European Commission
Subjects: EU energy policy, climate change policy, energy consumption, energy cooperation, energy efficiency, energy saving, fossil fuel, price of energy, security of supply, self-sufficiency in energy

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 18.5.2022  COM(2022) 240 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU 'Save Energy'  
 
 
1. 

INTRODUCTION  

Saving energy, i.e. reducing energy consumption through price signals, energy efficiency 
measures or voluntary efforts can often be the cheapest, safest and cleanest way to reduce 
our  reliance  on  fossil  fuel  imports  from  Russia.  Moreover,  using  less  energy  supports 
security  of  supply,  facilitates  storage  requirements  and  underpins  the  clean  energy 
transition. 

Voluntarily  reducing  unnecessary  energy  consumption  and  fast-tracking  energy 
efficiency measures will reduce the volume of gas and oil shortage in case of a disruption 
of  flows  from  Russia.  As  such  it  is  a  critical  element  to  stabilise  markets  and  prevent 
further price volatility. Over the medium to long-term, energy savings would contribute 
to  lower  the  prices  of  energy,  help  responding  effectively  to  sudden  price  hikes  and 
supply shortages.  

Saving energy directly reduces our energy bills and makes our economy more resilient. 
High prices for fossil fuel-based energy already hurt households and all industrial sectors, 
from  services  to  manufacturing  and  from  agriculture  to  transport.  For  the  energy  poor, 
vulnerable  households,  micro,  small  and  medium-sized  enterprises  and  for  energy 
intensive industries, they force uncomfortable choices about forgoing energy use. Higher 
energy  prices  also  affect  the  relative  competitiveness  of  firms  with  possible  knock-on 
effects on employment and incomes. 

Last year, as part of the ‘Fit for 55’ package and delivering on the European Green Deal, 
the  Commission  proposed  an  increase  of  the  energy  efficiency  ambition  by  the  end  of 
this decade. While primarily framed to support the decarbonisation of the EU economy, 
the  proposal  also  implied  other  substantial  benefits  such  as  higher  energy  security  and 
lower GHG emissions, air pollution and natural resources depletion. 

Implementation  of  the  full  “Fit  for  55”  package  would  lower  our  gas  consumption  by 
30%  (equivalent  to  100  bcm)  by  2030.  More  than  one  third  of  this  would  come  from 
meeting the EU energy efficiency target put forward in the Energy Efficiency Directive 
(EED)  recast  proposal.  The  target  would  be  delivered  by  the  implementation  of  the 
relevant energy efficiency policy proposals such as the recast EED itself, the recast of the 
Energy  Performance  of  Buildings  Directive  (EPBD),  Ecodesign  and  Energy  Labelling 
legislation,  as  well  as  other  policy  instruments  with  an  impact  on  energy  consumption 
such as the CO2 emission standards for new vehicles, the EU Emission Trading System 
(ETS) and the proposed new ETS for buildings and road transport. 

Implementing  these  policies  would  deliver  a  structural  reduction  in  energy  use.  In  the 
wake of the Russian invasion of Ukraine, those changes should now happen even faster 
to increase the EU’s resilience and energy independence at greater speed. 

At the same time, significant energy savings driven by voluntary choices can be achieved 
relatively  quickly.  The  latest  IPCC  report1  highlights  that  changes  to  our  lifestyles  and 
behaviour  can  help  significantly  lower  our  energy  consumption.  Choosing  to  reduce 
heating  temperatures,  drive  more  economically  and  shift  to  more  public  transport  and 

1  

IPCC, 2022: Climate Change 2022: Mitigation of Climate Change. Contribution of Working Group III 
to the Sixth Assessment Report of the Intergovernmental Panel on Climate Change  

 
 
                                                 
active  mobility,  use  household  appliances  and  air-conditioning  more  efficiently  and 
switch off the lights can deliver substantial, short-term savings2.  

Therefore, this EU ‘Save Energy’ plan takes a two-pronged approach: 

(1) 

(2) 

Achieving immediate energy savings through voluntary choices; and 

Accelerating  and  strengthening  structural,  mid-  to  long-term  energy  efficiency 
measures. 

Both  approaches  will  need  to  be  supported  by  an  effective  financial  framework  and 
governance structure. 

2.  ACHIEVING IMMEDIATE ENERGY SAVINGS THROUGH PERSONAL CHOICES 

In view of the current geopolitical and market situation, we cannot afford to wait until the 
important  structural  energy  efficiency  measures  are  in  place.  It  is  vital  to  look  for 
immediate opportunities to reduce energy consumption while the current crisis endures. 
In  the  shorter  term,  most  of  those  opportunities  would  come  from  voluntary  choices, 
some of which could also last into the mid-to-long term if they lead to changes in habits. 

These  choices  should  primarily  focus  on  where  the  greatest  savings  in  gas  and  oil 
consumption  can  be  achieved.  Natural  gas  plays  the  largest  role  in  heating,  accounting 
for around 42% of energy used for space heating in the residential and household sectors. 
Oil  is  the  next  most  important  fossil  fuel  for  heating  accounting  for  14%  while  coal 
accounts for around 3%. Fossil fuels use in transport represent 288 million tonnes of oil 
equivalent  per  year,  or  93%  of  the  transport  sector  energy  needs.  Air  transport  and 
shipping are almost entirely dependent on fossil fuels, while fossil fuels provide 93% of 
the  energy  use  in  road  transport  and  23%  of  the  energy  use  in  rail.      Around  25%  of 
passenger car activity takes place in the urban mobility environment. 

Therefore,  the  key  sectors  for  significant  short-term  savings  are  heating  in  households 
and  services,  and  transport  and  mobility,  with  some  additional  short-term  potential  in 
industry  sectors.  Actions  to  immediately  reduce  gas  consumption  are  particularly 
important  as  any  savings  that  can  be  made  early  will  help  in  refilling  storage  and  thus 
reduce the supply risks over the winter season. At the same time, it is also important to 
save  electricity  as  gas,  oil  and  coal  are  also  used  for  power  generation.  The  main 
reductions in oil use are likely to be achievable by reducing private car use and air travel, 
as well as more efficient driving for trucks. 

These choices can reduce energy demand that can help to reduce fossil fuel imports and 
avoid  more  serious  shortages  and  consequently  the  imposition  of  curtailment  measures 
with all their ensuing economic and social consequences. 

Change  is,  of  course,  already  driven  by  current  high  market  prices  as  households  and 
businesses seek out  ways to  curb the increase in their energy  bills.  Such market-driven 
savings, however, may fall short for various reasons. Actors may not be aware of the best 

2  Analysis  of  behaviour  change  due  to  electricity  crisis:  Japanese  household  electricity  consumer 
behaviour  since  the  earthquake;  Murakoshi  et  al,  2013.  Can  Rationing  Affect  Long  Run  Behavior? 
Evidence from Brazil; Costa, 2012. See also Policies for energy conservation and sufficiency: Review 
of existing policies and recommendations for new and effective policies in OECD countries: Bertoldi,  
2022 (https://doi.org/10.1016/j.enbuild.2022.112075) 

2 

 
 
                                                 
savings  opportunities.  Coordination  may  be  necessary  to  achieve  the  best  results. 
Fairness and solidarity are also not necessarily guaranteed: the wealthier may or may not 
adjust their behaviour. Others, especially the most vulnerable, may instead be forced to 
take painful measures. Finally, market prices will not necessarily lead to an appropriate 
effort from the point of point of view of the REPowerEU objectives.  

The types of support actions that can be taken can therefore be divided into: 

  Information  actions  –  to  ensure  the  different  types  of  energy  users  understand  the 

importance of reducing energy demand and know what they can do to contribute. 

  Incitement  and  supporting  actions  –to  help  energy  users  in  their  efforts  to  reduce 
energy  consumption,  for  example  by  offering  rebates  on  the  purchase  of  the  most 
efficient appliances.  

The  key  advantage  of  change  driven  by  this  sort  of  measures  is  that  their  impact  on 
energy consumption is immediate, no (or very little) up-front investment is required, and 
only  a small  change of  habit is  needed, with  no or a very limited impact  on welfare as 
only those who want and can make such choices will do. 

Such  measures  will  mainly  be  voluntary  and  rely  on  goodwill,  and  on  the  effective 
communication to energy users of the most effective steps they can take. Since the main 
uses of gas and oil are relatively limited (primarily heating for gas and transport for oil) 
the messages can be relatively well targeted. 

Delivering targeted information to citizens is crucial for them to make informed choices. 
The right messages need to be delivered at the right time. This is likely to mean a small 
number of broadly targeted measures underpinned by accessible information.  

These actions need to be taken by trusted bodies that have a good understanding of local 
circumstances and are able to engage a broad section of the population in concrete action. 
Member States often are best placed to promote these types of energy saving actions at 
the appropriate time and in view of their local circumstances. Local authorities, through 
e.g.  local,  regional  and  national  energy  agencies,  the  Covenant  of  Mayors  and  the  100 
Climate-neutral and Smart Cities Mission have a key role to play. 

Information actions may also be reinforced by including energy savings related skills in 
school  curricula  and  promoting  skills  acquisition  in  the  sectors  which  are  crucial  for 
achieving the ambitious targets of the REPowerEU plan. 

Quite a few Member States have already taken actions to address the potential for short 
term  energy  savings3  but  more  could  be  done.  To  support  these  efforts,  the  joint 
Commission  -  IEA  ‘Playing  my  part’  campaign  provides  simple  information  on  some 
key steps that individuals and companies can take voluntarily when possible to contribute 
to reducing our energy imports from Russia.  

In addition, to support consumers in choosing more efficient appliances, the Commission 
is  launching  the  consumer  interface  of  the  European  Product  Registration  for  Energy 
Labelling  (EPREL)  database4.  The  Commission  is  also  working  on  an  information 

3 

4 

For  example,  the  Belgian  government  has  launched  the  ‘J’ai  un  impact  /  ik  heb  impact’  campaign 
aiming  to  achieve  short  term  energy  savings  in  view  of  the  Ukraine  crisis.  Italy  has  announced  a 
decision to limit heating and cooling temperatures in public buildings. 

For more information see: https://eprel.ec.europa.eu/screen/home 

3 

 
 
                                                 
campaign  to  provide  awareness  raising  information  and  materials  to  be  used  for 
communication to individuals by other bodies. Member States should also make full use 
of the opportunities available to them to promote energy efficiency such as reduced VAT 
rates for high efficiency heating systems, ensuring energy pricing encourages switching 
to  heat  pumps  and  encouraging  purchase  of  more  efficient  appliances.  Member  States 
will  be  best  placed  to  identify  the  most  effective  and  fairest  ones  for  their  own 
circumstances 

Many  specific  immediate  recommendations  can  be  envisaged  and  an  illustration  of  the 
types  of  measures,  including  indicative  estimated  savings  potentials,  is  provided  in  the 
annex and the most significant ones are summarised in the table below5.  

Gas saving measures  

savings 

Oil 
(Mtoe)  

Gas 
(bcm)  

savings 

about 

keeping 

condensing 

information 

Savings  from  turning  down  heating,  turning  off  heating  in  unused 
rooms, block draughts etc.  
boiler 
Providing 
temperatures  below  60  degrees  and  encouraging  people  to  check 
theirs.  
Information  about  servicing  boilers,  simple  insulation  measures, 
draught proofing, fitting Thermostatic Radiator Valves and heating 
controllers and encouragement to act.  
Consider modifying the energy pricing and introducing progressive 
tariff structures and other solutions to encourage energy savings and 
switch from gas to electricity. 

≈1.5  

≈0.3  

Incentivise  energy  audits  and  implementation  to  avoid  heat  losses 
from  high  temperature  processes, supporting  switching  away  from 
fossil energy. 

Transport measures  

Industry 

Recommending reducing  motorway speeds.  
Encouraging  walking,  cycling,  public  transport,  micro-mobility  in 
urban areas.  
Encouraging train transport. 

≈8   
≈5   

≈2   
Illustrative potential  ≈16   

≈6   

≈3  

≈1   

≈1    

≈2   

≈13   

The  IEA  estimates  that  these  types  of  short-term  gas-related  measures  could  achieve  a 
5% reduction in (final) gas use (around 13 bcm) over a year. Similarly, and depending 
on the Member State  and its overall transport demand, measures could  achieve up to  a 
5%  reduction  in  (final)  oil  use  (around  16  mtoe),  while  not  preventing  necessary 
journeys. 

In support of these efforts, the Commission will: 

5  The indicated estimated energy savings are based on a range of sources and are dependent on a wide 
range  of  factors  including  the  degree  to  which  individuals  respond  to  publicity  and  information 
campaigns and other incitements. In view of this, they should be understood as purely indicative of the 
possible relative magnitude of effect at EU level. In addition, the impacts of the measures can overlap. 

4 

 
 
  
  
  
  
  
  
  
  
 
                                                 
  Develop a campaign in the context of the EU response to the effects of Russia’s war 
against  Ukraine  and  high  energy  prices,  intended  to  raise  awareness  and  provide 
materials for use by other bodies.  

  Disseminate information on the ‘Playing my part’ campaign on energy saving actions 
for  individuals  and  work  with  stakeholder  groups  to  increase  the  reach  of  these 
information measures and create the greatest impact.  

  Launch  the  European  Product  Registration  for  Energy  Labelling  (EPREL)  database 
consumer  interface  to  support  consumers  and  procurers  choosing  more  efficient 
appliances. 

3.  ACCELERATING  AND  STRENGTHENING  STRUCTURAL,  MID-  TO  LONG-TERM 

ENERGY EFFICIENCY MEASURES 

The  current  EU’s  energy  efficiency  targets  significantly  contribute  to  the  EU’s  climate 
ambitions. The 20-20-20 targets and the 2030 climate targets set under the Climate Law 
are clear examples where energy efficiency measures have allowed growth and reduced 
energy consumption to  go hand in hand and played an important role for achieving the 
greenhouse  gas reduction target. As confirmed by research6,  energy efficiency policies 
also provided wider benefits in terms of that can be monetised to differing degrees. These 
include aspects such as reduced energy poverty, increased health and welfare, increased 
business competitiveness and enhanced energy security. 

Member States have established the necessary frameworks and institutional arrangements 
to deliver on their previous and current energy efficiency targets. A governance structure 
is in place through the National Energy and Climate Plans (NECPs) to ensure that these 
ambitions  are  consistent  with  the  overall  EU  objectives.  There  is  now  an  urgency  to 
accelerate  these  energy  efficiency  improvements  to  increase  the  EU’s  resilience.  With 
higher energy prices reducing the pay-back period of energy efficiency investment, there 
is a need for a renewed effort to remove the liquidity and information constraints holding 
back such profitable investment. 

Because of the work that has been done over the past decade, this ramping up of effort 
should  not  require  the  creation  of  new  structures  or  bodies.  For  example,  all  Member 
States  have  long-term  renovation  strategies,  large  businesses  are  required  to  carry  out 
energy audits every four years and efforts have gone into adequate training and quality 
assurance.  Increasing  the  rate  of  energy  efficiency  improvements  may  however  require 
existing  levels  of  resourcing  to  be  strengthened,  for  example  for  providing  advice  and 
information as well as mechanisms to enable more private investments. 

The  current EU  rules  on  ecodesign  and  energy  labelling have  resulted  in 10%  lower 
annual energy consumption by  the  products  in  their  scope,  significantly  reducing  EU 
primary energy demand and saving costs to consumers. The Commission proposal for a 
Regulation  on  Ecodesign  for  Sustainable  Products7  extends  the  scope  of  the  Ecodesign 
framework  to  cover  the  broadest  possible  range  of  products. As  the  use  of  materials  in 

6 

See for example https://combi-project.eu/ 

7  COM(2022) 142 final 

5 

 
 
                                                 
products  has  an  important  energy  footprint,  this  new  framework  will  significantly 
increase energy savings through boosting both energy and material efficiency. 

3.1. 

Indication of a higher EU energy efficiency target 

The Commission’s EED recast proposal of July 2021 includes a higher energy efficiency 
target of 9% by 2030 (compared to the 2020 reference scenario). 

In 2021, the Commission also undertook a study on energy savings potentials of energy 
efficiency measures, which showed that the economic saving potential for 2030 could be 
as high as 13% of FEC (752 Mtoe) if the EU intensifies funding and efforts for energy 
efficiency. According to the same study8, the technical potential for energy savings could 
be as high as 19% of FEC (696 Mtoe). 

Following  the  REPowerEU  communication  of  8  March,  further  modelling  of  the 
REPowerEU9 scenario with structurally higher gas prices also results in a cost-effective 
energy efficiency target of 13% in 2030. 

3.2.  Possible strengthening of energy efficiency measures 

In  view  of  the  need  to  speed  up  the  Union’s  independence  from  fossil  fuel  imports, 
Member  States  should  consider  fast-tracking  existing,  and  implementing  additional, 
energy efficiency measures. Each Member State will know best where to focus its efforts 
and in addition there are clear areas at the EU level where a common approach can bring 
added value. 

In the ongoing co-decision processes on different elements of the ‘Fit for 55’ package the 
co-legislators may strengthen the regulatory framework for energy efficiency in the short 
term  and  to  deliver  more  energy  savings  in  the  mid-  to  long-term  in  the  context  of 
REPowerEU, including: 

  Increasing the ambition of national energy savings obligation. 

 

Introducing  obligations  to  ensure  that  in  key  sectors,  energy  efficiency  will  be 
increased,  subsidies  for  fossil  fuel  technologies  will  be  stopped,  renewable  energy 
technologies  are  consistently  promoted  and  energy  savings  technologies  and 
equipment are quickly developed. 

  Strengthening  the  implementation  of  energy  audit  results  to  ensure  that  cost-
effective  measures  are  implemented  and  that  companies  (in  particular  SMEs)  and 
other entities such as public bodies that are not subject to the energy audit obligation 
are incentivised to undertake such audits and act on its results. Data centres and the 
use of waste heat should also be addressed in this context. 

  Introduce  additional  Minimum  Energy  Performance  Standards  for  buildings  to 
boost  renovations  that  encompass  also  heating  (and  cooling)  systems,  with 
sufficiently  ambitious  timelines  and  setting  a  pathway  to  upgrade  worst-
performing  buildings  in  the  Energy  Performance  Certificate  “G  class”  up  to  “D 
class”. 

8 

9 

https://op.europa.eu/en/publication-detail/-/publication/511bb328-f8b9-11eb-b520-
01aa75ed71a1/language-en 

SWD(2022) 230 final 

6 

 
 
                                                 
  Phase out Member States’  subsidies for fossil fuel-based boilers in buildings as 
of 2025 as a minimum (noting that in most situations such incentives are contrary to 
Article  7(2)  of  the  Energy  Labelling  Regulation)  and  encourage  redirection  to 
incentivise support schemes for heat pumps instead. 

  Strengthen  national  energy  (and  resource  efficiency)  requirements  of  new 
buildings  through  heating  system  requirements  and  introducing  zero-emission 
standards before 2030 (before 2027 in the case of public buildings). 

  Tighten  national  heating  system  requirements  for  existing  buildings  addressing 
major renovations and boiler replacements and connection to efficient district heating 
systems in densely populated areas. This would work hand in hand with the setting of 
stricter  ecodesign  limits  for  heating  systems  at  EU  level,  implying  2029  as  an  end 
date  for  ‘stand-alone’  fossil  fuel  boilers  being  placed  on  the  market  and  parallel 
rescaling of energy labels (by 2025/2026) that will result in  boilers and other fossil 
fuel-based  appliances  ending  up  in  the  bottom  energy  classes.  Such  EPBD  and 
ecodesign and energy labelling  measures will incentivise the roll-out of heat pumps 
and will contribute to the goal of doubling the rate of installation of heat pumps. 

  Introduce  national  bans  for  boilers  based  on  fossil  fuels  in  existing  and  new 
buildings by setting requirements for heat generators based on greenhouse gas 
emissions or the type of fuel used. Whilst the EPBD recast introduces a clear legal 
basis for such national bans to address current legal uncertainty, it is already possible 
under the existing legislative framework to go ahead with such measures, which are 
already being introduced by several Member States. 

In the mid- to long-term it will also be important to further increase energy efficiency 
in  transport  with  a  view  to  reduce  oil  consumption,  encourage  the  switch  to  efficient 
renewable alternatives and increase transport energy efficiency, for example through: 

  Aerodynamic  retrofitting  of  heavy-duty  vehicles  and  facilities  to  plug  refrigerated 
trailers; longer trucks with eco-design such as aerodynamic devices on their trailers; 

 

 

 

including  further  eco-design  requirements  or  higher  energy  efficiency  targets  for 
vehicles  and  trailers  the  upcoming  revision  of  the  CO2  performance  standards  for 
newly sold heavy-duty vehicles, due in December 2022; 

incentivising  the  uptake  of  zero-emission  heavy-duty  vehicles  and  boosting  the 
energy saving potential of longer and heavier trucks to drive cross-border within the 
European Union in the upcoming revision of the Weights and Dimensions Directive; 

boosting  the use of combined transport  generating  energy savings in  the  upcoming 
review of the Directive on Combined Transport; 

In view of this, the Commission: 

  Proposes to increase to 13% the binding target in the Energy Efficiency Directive;  

 

Invites the Parliament and Council to consider, during the ongoing negotiations, the 
relevant measures outlined above to enable additional savings and energy efficiency 
gains  in  buildings  through  the  Energy  Performance  of  Buildings  Directive  and  the 
Energy Efficiency Directive;  

7 

 
 
 

Invites  the  Parliament  and  Council  to  uphold  the  ambition  of  the  Commission 
proposal  for  a  Regulation  on  Ecodesign  for  Sustainable  Products10,  the  rapid 
deployment  of  which  will  lead  to  further  energy  savings  through  improved  energy 
and resource efficiency of a broad range of products; 

  Will consider a legislative initiative to increase the share of zero emission vehicles in 

public and corporate car fleets above a certain size; 

  Put forward a legislative package on greening freight transport 

The  Commission  also  urges  Member  States  to  speedily  adopt  the  reform  of  the  Single 
European  Sky  Regulation  on  the  modernisation  of  air  traffic  management  in  Europe  in 
view  of  the  significant  gains  in  reduced  fuel  burn  this  would  generate  through  higher 
flight efficiency. 

4.  FINANCING 

As regards financing for energy efficiency and building renovations, the investments put 
forward in the national Recovery and Resilience Plans (RRPs) are a good starting point, 
with  more  than  67  billion  euro  having  been  committed  to  such  investments  under  the 
Recovery  and  Resilience  Facility  (RRF).  The  major  share  of  the  funding  support  was 
dedicated to building renovations (mainly residential and public buildings), followed by 
the construction of energy efficient buildings, with energy efficiency in SMEs, industry 
and in tertiary buildings, often being less frequent. The REPowerEU discussions that are 
currently  taking  place  with  all  Member  States  are  a  good  opportunity  to  strengthen  the 
RRPs in these areas. 

The  EU  Emissions  Trading  System  (ETS)  including  the  Modernisation  Fund  and  the 
proposed new ETS for buildings and road transport and the related Social Climate Fund 
are  also  expected  to  provide  overall  revenues  of  at  least  a  similar  order  of  magnitude, 
with  energy  efficiency  investments  being  a  key  objective  for  revenue  use.  In  addition, 
within  the  current  Multi-Annual  Financial  Framework  under  the  cohesion  policy  funds 
(ERDF,  Cohesion  Fund  and  Just  Transition  Fund),  will  provide  significant  support  for 
energy efficiency and sustainable transport. In particular, the InvestEU Programme will 
mobilize private finance to support a wide range of investments in energy efficiency, by 
sharing  risks  with  implementing  partners,  including  the  EIB  Group.  In  addition,  the 
Common  Agricultural  Policy,  Horizon  Europe  and  the  LIFE  programme  all  provide 
support  for  investments  in  energy  efficiency.  In  total,  under  these  instruments  at  EU 
level, financial resources allocated to climate related spending amount up to 626 billion 
euros for the 2021-2027 MFF and NextGenerationEU (although these resources address 
several policy areas beyond energy efficiency). 

Measures  involving  State  aid  are  subject  to  State  aid  rules.  The  Climate,  Energy  and 
Environmental Protection State aid Guidelines (CEEAG) provide ample opportunities for 
support to energy efficiency projects. Despite significant EU- and national, regional and 
local-level  public  financing  going  to  energy  efficiency,  such  funding  alone  will  not  be 
sufficient to cover energy efficiency investment needs and, therefore, scaling up private 
investments  is  essential  to  achieve  these  objectives.  Further  funding  needs  stem  from 
necessary  up-  and  re-skilling  of  workers  to  counter  the  shortage  of  skilled  labour  to 
implement many of the planned measures, including but not limited to the installation of 

10   COM(2022) 142 final. 

8 

 
 
                                                 
energy saving tools, efficient appliances, or renewable electricity  generation, as well as 
building and renovation measures. 

This means, on one side, to make the most cost-effective use of public financial support 
based  on  financing  instruments  and  innovative  financing  schemes.  To  achieve  this,  the 
Commission  will  continue  to  promote  technical  assistance  for  energy  efficiency 
investments, the uptake of energy efficiency innovative financing schemes (such as on-
bill  and  on-tax  recovery,  energy  performance  contracting  and  performance-based 
models),  and  financial  products  (such  as  energy  efficiency  mortgages  and  green  loans 
and financing schemes for acquisition of transport zero-emissions fleets). 

In  view  of  the  importance  of  developing  financing  schemes  for  energy  efficiency,  by 
combining  financial  instruments  and  grants,  the  Commission,  with  the  support  of  the 
European  Investment  Bank,  provides  a  model11  to  support  Member  States  with 
developing  Energy  Efficiency  Financial  Instruments  and  increase  the  uptake  of  these 
schemes under the Cohesion Policy Funds. 

On  the  other  side,  it  is  key  to  strengthen  the  cooperation  with  financial  institutions  on 
energy  efficiency  investments  and  to  mobilise  their  active  commitment  toward  the 
achievement of the REPowerEU and the European Green Deal objectives. In this regard, 
the Commission, in cooperation with Member States, continues to strengthen the work of 
the successful Energy Efficiency Financial Institutions Group (EEFIG), for example with 
a  view  to  transforming  it  into  a  high-level  European  Energy  Efficiency  Financing 
Coalition with the financial sector. Additionally, the Commission will examine additional 
ways to trigger further private investments, e.g. through mortgage portfolio standards or 
pay-for-performance schemes. 

In  view  of  the  need  for  increased  private  financing  for  energy  efficiency,  the 
Commission will: 

 

 

launch, in cooperation with Member States, a high-level European Energy Efficiency 
Financing  Coalition  with  the  financial  sector,  based  on  the  successful  Energy 
Efficiency Financial Institutions Group (EEFIG); 

examine  possible  additional  measures  to  trigger  further  private  investments,  e.g. 
through mortgage portfolio standards or pay-for-performance schemes. 

5.  GOVERNANCE AND PARTNERS 

Member States, and their regional and local authorities and organisations, are best placed 
to  reach  out  to  EU  citizens  and  business  to  encourage  them  to  take  energy  saving 
measures or to invest in energy efficiency measures. The Commission  will complement 
such  efforts  by  identifying  and  sharing  expertise  among  Member  States  on  the  most 
effective actions, where possible through existing structures, for example the Concerted 
Actions  on  the  EED  and  EPBD,  local  initiatives,  etc.  Under  the  Technical  Support 
Instrument,  the  Commission  is  helping  Member  States  to  identify  reforms  and 
investments  to  phase out fossil fuel  imports from Russia, including for the acceleration 
and strengthening of energy efficiency measures. The Commission is keen to work with 

11  https://www.fi-compass.eu/resources/factsheets-and-brochures/model-for-a-financial-instrument-with-

a-grant-component 

9 

 
 
                                                 
all relevant national, regional and local actors to provide the greatest support and sharing 
of information. 

Cities  and  towns  represent  three  quarters  of  the  EU’s  population  and  have  the  biggest 
potential  to  support  urgent  energy  savings  actions.  They  also  have  deep  knowledge 
about, and interface with, people facing or at risk of energy poverty. Within this context, 
the Covenant of Mayors and the 100 Climate-neutral and Smart Cities Mission  are key 
partnerships for action. An important aspect to ensure that all consumers  can play their 
role  is  strengthening  the  existing  networks  with  local  and  regional  governments,  and 
networks  of  experts  and  stakeholders  active  at  these  levels.  At  international  level  the 
Global  Covenant  of  Mayors  provides  an  established  channel  to  reach  11  000  cities, 
including in Ukraine that can be integrated into similar action after the conflict. 

There  are  specific  aspects  to  be  addressed  in  different  business  sectors  and  the 
Commission  intends  to  explore  whether  specific  energy  savings  partnerships  could  be 
created  with  appropriate  stakeholders  in  relevant  sectors  (e.g.  transport,  industry,  agri-
food,  ICT  including  data  centres,  water,  and  energy).  Other  existing  initiatives,  for 
example, the Clean Islands initiative, the initiative on Coal Regions in Transition, could 
be used to provide a framework to households, enterprises and services. 

In times of urgency, deep local knowledge and tailor-made hands-on support is needed to 
advise  people  how  to  best  combine  renewable  energy  use  and  energy  efficiency 
measures,  or  how  to  become  members  of  a  renewable  energy  community.  It  must  be 
ensured  that  all  citizens  have  the  necessary  information  to  take  decisions.  Even  urgent 
actions must ensure inclusiveness, equality and non-discrimination. 

In view of this, the Commission will: 

 

 

 

continue  bringing  together  the  relevant  stakeholders,  energy  savings  partnerships, 
consumer  organisations,  skills  partnerships  and  alliances,  the  Committee  of  the 
Regions,  local  and  regional  networks,  and  Member  States  central  authorities,  to 
allow for the sharing of best practices on energy savings measures across the board 
and follow-up on the impacts of the energy saving measures toward next winter; 

continue  providing  dedicated  technical  assistance  on  energy  efficiency,  such  as 
through the Technical Support Instrument, cohesion policy and ELENA, which will 
help authorities and stakeholders removing bottlenecks to the deployment of energy 
efficiency programmes; 

convene  Member  States  to  report  by  1  July  on  the  actions  that  they  have  taken  to 
achieve  short-term  demand  reduction.  They  will  also  be  invited  to  set  out  what 
further actions they envisage and the expected impact from them, including on data 
centres and industrial waste heat. 

6.  CONCLUSION 

Energy efficiency is a key element of the European Green Deal and the Union’s strategy 
to achieve a decarbonised economy by 2050 in a cost-effective way. The currently high 
energy  prices  and  the  war  in  Ukraine  have  given  renewed  impetus  to  the  need  to  save 
energy  to  ensure  the  European  Union  becomes  independent  from  Russian  fossil  fuel 
imports as soon as possible. 

As  indicated  in  this  plan,  this  requires  both  mid-  to  long-term,  structural  energy 
efficiency  measures  as  well  as  immediate  changes.  It  will  require  appropriate  price 
signals,  smart  use  of  scarce  public  funding  and  more  private  investments,  and  further 

10 

 
 
support  along  with  accompanying  policies  for  concrete  action  on  the  ground.  It  will 
require  stronger  involvement  of  citizens,  local  and  regional  authorities  and  actors  to 
ensure strong ownership and quick deployment of the needed energy savings actions.  

Implementing  the  recommendations  and  actions  set  out  in  this  EU  Save  Energy 
communication will make it possible for everyone to save energy and thereby contribute 
to Europe’s energy independence. 

11 

 
 
Non-exclusive  toolbox  of  measures  to  achieve  immediate 
energy savings 

The  below  table  introduces  a  non-exhaustive  list  of  targeted  measures  able  to  generate 
significant  energy  savings  in  the  short-term  (over  a  one-year  period).  The  indicated 
estimated energy savings are dependent on a wide range of factors including the degree 
to  which  individuals  respond  to  publicity  and  information  campaigns  and  other 
incitements. In view of this they should be understood as purely indicative of the possible 
magnitude of effect at EU level. 

In  addition,  the  impacts  of  the  measures  can  overlap.  For  example,  the  same  energy 
savings  might  be  achieved  by  the  information  campaign  measures  or  by  the  increasing 
the roll-out of EPCs and targeted energy checks. In view of this, it is not possible to sum 
the estimated impacts to arrive at an overall energy saving figure.  

Possible measures  

Description of measures 

Cross-cutting energy services and financing measures 

Information campaign 
on multiple energy 
wastage in households 
and small businesses 

Certification and 
maintenance 

Modify energy pricing 
to encourage lower 
energy use and fuel  

Targeted information campaign, inciting citizens 
to turn down heating and boiler temperature, 
avoid consumption at peak hours, close doors, 
turn off heating in unused rooms, switch-off 
lights, block draughts, lower energy use in retail 
shops. This should also include advice services, 
such as one-stop-shops or energy efficiency kits, 
for citizens and SMEs. 

Free-of-charge advice, inspection, energy audits 
and energy performance certificates to create 
awareness and provide recommendation on 
energy savings, as well as spot checks in thermal 
heating systems and fast-track maintenance to 
reduce wastage 

Remove preferential treatment of fossil fuels and 
flat rates for energy. Introduce progressive 
tariffs and other solutions to foster savings and 
encourage switch from gas to electricity 

Encourage purchase of 
more efficient 
appliances 

Member States to provide information and 
incentives. The EPREL consumer interface 
provides readily accessible comparable 
information. 

Estimated 
impacts in 
one year 
(Mtoe) 

11 Mtoe 

3.5 Mtoe 

2.4 Mtoe 

Roll-out of innovative 
financing practices and 
further support 
ESCOs 

Fast-track innovative financing schemes and 
financial products can support the increased 
uptake of energy efficiency measures and 
generate energy savings in the short-term (on-tax 
and on-bill financing schemes, energy efficiency 

0.7 Mtoe 

12 

 
 
 
 
 
 
 
 
Smarter control 
practices in district 
heating sub-stations 

Buildings 

Heating and air-
conditioning use in 
buildings 

Speedy heat pumps 
roll-out through 
dedicated financing 
incentives 

mortgages, ESCOs financing) 

Introduce smart control and monitoring of 
centralised district heating sub-stations, which 
are unequipped to ensure control and eliminate 
supply temperature fluctuations and the increase 
flow of hot water to radiators 

Default settings on condensing boilers can often 
be adjusted to increase efficiency and save up to 
8% of the energy used to heat rooms and water. 

Activate financing and fiscal incentives for fast-
tracked heat pumps roll-out, for example 
through VAT reduction and energy efficiency 
obligation. Bonus grants to replace fossil-fuel 
based boilers to direct offset natural gas demand.  

Building automation 
and energy 
management systems 

Encourage fitting of Building automation and 
control systems (BACS) that monitor and 
automatically adjust energy use in buildings.  

Provide information on 
easy to install 
insulation measures in 
buildings  

Industry 

Address easy to install insulation measures in 
attics and roofs, and through high performance 
windows and double-glazing 

Energy audits and 
actions to address heat 
loss  

Incentivise heat loss audits and actions to avoid 
heat losses from high temperature processes. 
Encourage SMEs to carry out audits. 

Accelerate and 
financially support the 
replacement of fossil 
fuel systems with 
renewables  

Incentives, such as tax breaks or subsidies, to 
accelerate the replacement of fossil fuel systems 
with renewables, particularly in existing 
buildings with boilers more than 12 years old. 

2.5 Mtoe 

2.5 Mtoe 

1.5 Mtoe 

1.5 Mtoe 

1.5 Mtoe 

2.5 Mtoe 

5 Mtoe 

As  regards  transport,  various  ‘win-win’  measures  could  be  taken  at  local,  regional  or 
national  levels  as  illustrated  in  the  table  below,  in  line  with  the  Sustainable  and  Smart 
Mobility  Strategy  and  particularly  the  new  urban  mobility  policy  framework.  These 
actions  can  be  quickly  put  in  place  or  accelerated  by  public  authorities,  transport 
operators and employers or other agents (individually as per measure) can be quickly put 
in place or accelerated. 

Description of the measure  

Possible measure 

Potential 
impact 
(depending 
on 
specific 
design) 

the 

13 

 
 
 
 
 
Reinforce 
the 
adoption  of  electric 
and  more  efficient 
cars,  vans, 
trucks 
and buses 

High 

  Continued/extended public support for sustainable 

vehicle purchase  

  Dedicated  support  schemes  for  specialized  and 
captive  fleets  (taxis,  shared  fleets,  logistic  fleets, 
buses)  

  Investment  in  publicly  accessible  recharging  and 
refueling infrastructure (public and private market 
actors) 

  Support for the deployment of private  recharging 
infrastructure  (at  home/in  offices/in  businesses) 
by means of subsidies or tax incentives 

  Investment in zero emissions public transport 

infrastructure with the aim of reducing private car 
usage (metro, tram, metropolitan trains, 
trolleybus)  

Encourage  reducing 
speed while driving 

Medium 
high 

to 

  Reducing motorway speeds  
  Recommend reduced-speed zones in urban 

Reduce  the  price  of 
public  transport  and 
rail  

Medium 
high  

Incentivize  walking, 
cycling  and  micro-
mobility in cities 

Medium 
high 

areasDevelop car-free zones to facilitate soft mobility 

to 

  Price reduction for public and rail transport based 

on public support to operators  

to 

  Support  for  free  bike  sharing  and  other  micro-

mobility solutions 

  Incentivizing  bike  purchases 

through  bike 

purchase subsidies or tax/VAT reductions 

  Incentives/rewards  for  employees  that  use  public 
transport or active modes for commuting to work  
  Investing in new bike lanes in and around/towards 

cities  

  Promoting/incentivizing 

last-mile  delivery  by 

cargo bike or smaller delivery e-vehicles  

  Increasing  possibilities 

to 

travel  on  public 

transport (train, metro) with a bike  

Promote 
more 
efficient  driving  and 
operation  of  freight 
and 
vehicles 
delivery of goods 

Medium  

  Ensuring  better/full 

loading  of  heavy-duty 

vehicles through better planning/data  
  Optimising  multi-modal  delivery 
through 

including 
solutions and pick up stations  

last-mile 

solutions, 
zero-emission 

  Offering eco-drive training  
  Accelerating rollout of ITS services  

Car free days 

Low 
medium 

to 

Organizing car free days in cities  

Adapt  existing  road  Low 

to  Road  charging  schemes  reducing  congestion  during 
peak  times  and/or  incentivizing  more  sustainable 

14 

 
 
  
 
 
 
charging schemes 

medium 

vehicles  

15