Assessing the progress of Nearly Zero Energy Buildings (NZEBs) implementation in Europe.
Date: 2025-04-25
Institutions: Joint Research Centre
Subjects: EU Member State, building, building performance, building technique, energy consumption, energy efficiency, improvement of housing, renewable energy, research report

ISSN 1831-9424 

Assessing the progress of Nearly Zero 
Energy Buildings (NZEBs) implementation 
in Europe  

ostino, D., Maduta, C., Tsemekidi Tzeiranak, S., Paci, 

D
D., Castellazzi, L. 

2025 

 EUR 40112 

service. It aims to provide evidence-based scientific support to the European policymaking process. The contents of this 
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Contact information 

Name: Delia D gostino 
Email: delia.dagostino@ec.europa.eu 

EU Science Hub 

JRC138771 
https://joint-research-centre.ec.europa.eu
EUR 40112 

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ISBN 978-92-68-22049-8   ISSN 1831-9424   doi:10.2760/3333880 

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How to cite this report: European Commission: Joint Research Centre, D 
Paci, D. and Castellazzi, L., Assessing the progress of Nearly Zero Energy Buildings (NZEBs) implementation in Europe, 
Publications Office of the European Union, Luxembourg, 2025, https://data.europa.eu/doi/10.2760/3333880, JRC138771. 

ostino, D., Maduta, C., Tsemekidi Tzeiranak, S., 

 
 
 
 
 
 
 
 
 
 
 
 
 
Contents 

Abstract ...................................................................................................................................................................................................... 2 

Acknowledgements .............................................................................................................................................................................. 3 

Executive summary .............................................................................................................................................................................. 4 

1.  Introduction ....................................................................................................................................................................................... 6 

2.  NZEB definition updates ............................................................................................................................................................. 8 

2.1.  Comparative NZEB performance levels ............................................................................................................... 10 

2.2.  NZEBs and renewables .................................................................................................................................................. 20 

2.3.  NZEBs U-values ................................................................................................................................................................. 23 

2.4.  NZEBs and benchmark levels..................................................................................................................................... 26 

3.  NZEBs information from LTRS 2020, NECPR 2023 and draft NECPs 2023 .............................................. 30 

4.  NZEB performance levels and cost-optimal levels of minimum energy performance requirements 
in Member States ............................................................................................................................................................................... 58 

5.  Overview of technologies for NZEBs ................................................................................................................................ 63 

6.  From NZEBs to ZEBs .................................................................................................................................................................. 71 

6.1.  Projected ZEB levels ........................................................................................................................................................ 71 

6.2.  Open issues .......................................................................................................................................................................... 73 

7.  Conclusions ..................................................................................................................................................................................... 78 

References ............................................................................................................................................................................................. 80 

List of abbreviations and definitions ...................................................................................................................................... 84 

List of figures ....................................................................................................................................................................................... 87 

List of tables ......................................................................................................................................................................................... 89 

Annexes ................................................................................................................................................................................................... 90 

Annex 1. Country-sheets of collected definitions per Member States ................................................................ 90 

1 

 
 
Abstract  

The building sector holds a relevant position in decreasing greenhouse gas (GHG) emissions within 
the  European  Union  (EU).  The  revised  Energy  Performance  of  Buildings  Directive  (EPBD)  recently 
adopted1, sets forth ambitious goals to make the EU building stock carbon-neutral by 2050. As Nearly 
Zero-Energy Buildings (NZEBs) remain the mandatory target for new buildings from 2021 to 2030, 
this  report  provides  a  comprehensive  assessment  of  Member  States  progress  towards  the 
implementation of NZEBs.  

It depicts the uptake of definitions, providing NZEB primary energy demand (total and non-renewable) 
across Member States, distinguishing new and existing, residential and non-residential buildings and 
envelope thermal  transmittances thresholds.  A focus is given to renewable energy role,  including 
renewable  energy  share  and  accounted  renewable  energy  technologies  and  overview  of  common 
building technologies is included.  The report compares the national NZEB performance levels with 
the recommended benchmarks as well as with the latest cost-optimal  energy  performance levels. 
Moreover,  information  regarding  the  typical  measures,  number  and  floor  area  of  NZEBs  from  the 
2020 Long-Term Renovation Strategies (LTRS), 2023 draft National Energy and Climate Plans (NECPs) 
and 2023 Progress Reports (NECPR) are collected and discussed.  

As the revised EPBD further introduces Zero-Emission Buildings (ZEBs) as the objective for all new 
buildings starting in 2030, this report also explores how ZEB performance levels might evolve based 
starting with current NZEB definitions. 

1 Directive (EU) 2024/1275 of the European Parliament and of the Council of 24 April 2024 on the energy performance of 
buildings (recast): Directive - EU - 2024/1275 - EN - EUR-Lex (europa.eu)  

2 

 
 
                                                 
 
 
 
Acknowledgements  

This report was prepared in the framework of the Administrative Agreement between DG ENER and 
DG  JRC  "Technical  assistance  to  the  implementation  of  the  EED  and  EPBD",  where  JRC  provides 
technical and scientific assistance to support the development, implementation and review of relevant 
provisions of EU energy efficiency legislative frameworks. 

Authors 

Carmen Maduta 

Sofia Tsemekidi-Tzeiranaki 

Daniele Paci 

Luca Castellazzi 

3 

 
 
 
Executive summary 

Policy context 

A  core  point  of  the  European  Green  Deal  is  decarbonising  the  energy  demand  sector,  including 
buildings to achieve a climate neutral society by 2050. The adoption of highly energy efficient building 
concept, such as Nearly Zero-Energy Buildings (NZEBs) is a strong pillar to drive decarbonisation of 
EU buildings. According to the revised Energy Performance of Buildings Directive (EPBD), NZEB has a 
very high energy performance, as determined in accordance with Annex I, which is no worse than the 
2023 cost-optimal level reported by Member States pursuant to Article 6(2) and where the nearly 
zero or very low amount of energy required is covered to a very significant extent by energy from 
renewable  sources,  including  energy  from  renewable  sources  produced  on-site  or  energy  from 
renewable sources produced nearby. As of 2021, NZEB is the mandatory target for all new buildings, 
while starting in 2030, the Zero-Emission Building (ZEB) will become the required standard. 

Main findings 

The JRC carried out an overview of the status of the development of NZEBs definitions in Member 
States  to  comply  with  the  EPBD  requirements.  Apart  from  performance  values  (for  new,  existing, 
residential and non-residential buildings), the analysis takes into account different aspects related to 
definitions (such as envelope thermal transmittances (U-values), renewable energy and technologies, 
end-uses, operational GHG emissions requirements). 

The report identifies common features and main differences among NZEBs definitions in place. Based 
on the national definitions, the NZEB performance level expressed in non-renewable primary energy 
demand kWh/(m2y) in Member States and  averaged at EU level  was estimated. The average non-
renewable primary energy demand for new single-family houses varies from 15 to 95 kWh/(m2y) with 
an average at EU level of 54 kWh/(m2y). For new offices, the estimated performance level ranges 
between 20 and 220 kWh/(m2y) with an EU average of 73 kWh/(m2y). For existing buildings under 
renovation  to  NZEB  level,  the  average  non-renewable  primary  energy  demand  varies  between  30 
kWh/(m2y) and 135 kWh/(m2y) with an average at EU level of 70 kWh/(m2y) for single family houses, 
while for offices it ranges between 30 and 152 kWh/(m2y) with a EU average of 90 kWh/(m2y). In 
most cases, the NZEB requirements for new buildings are stricter than those for NZEB renovation. On 
average, the NZEB non-renewable primary energy demand of new buildings is about 30% lower than 
for renovated  buildings. This may  also be  explained by stricter thresholds and more common and 
stringent renewable energy requirements in new buildings compared to existing buildings renovated 
to NZEB level.  

Regarding the envelope, thermal transmittance (U-value, expressed in W/m2K) requirements for both 
new and existing NZEB buildings are provided in about 80-85% of current NZEB definitions. Values 
range between 0.09 to 0.49 W/m2K for roofs and from 0.13 to 1.57 W/m2K for walls. Most common 
NZEBs  technologies  include  efficient  heating,  ventilation  and  cooling  technologies,  including  heat 
pumps and mechanical ventilation with heat recovery,  efficient lighting and appliances.  Regarding 
renewable  energy  technologies,  photovoltaics  (PV)  and  solar  thermal  are  the  most  commonly 
implemented technologies. 

Related and future Joint Research Centre work 

The JRC has been providing support to the implementation of NZEBs definitions in Member States 
over last decade. The JRC is following the evolution of NZEBs definitions and energy performance 

4 

 
 
levels,  tackling  also  NZEBs  retrofit  progress  in  the  light  of  the  need  to  strengthen  measures  to 
successfully stimulate cost-effective NZEBs renovation. As future work, the JRC plans to follow ZEB 
implementation in Member States. 

Quick guide 

The  structure  of  the  report is  as  follows.  After  an  introduction  of the  policy  framework  related to 
NZEBs in Section 1, Section 2 assesses the progress of NZEBs definitions in Member States, in terms 
of primary energy demand, U-values and renewables. It also compares NZEBs performance levels 
with  the  benchmark  levels  of  the  Commission  Recommendation  on  NZEBs.  Section  3  extracts 
information from Long Term Renovation Strategies (LTRS), draft National Energy and Climate Plans 
(NECPs) and Progress Reports (NECPR), identifying main NZEBs measures. Section 4 compares NZEB 
performance with recent cost-optimal levels. An overview of technologies is given in Section 5, while 
Section 6 depicts the path from NZEB to ZEB, providing potential ZEB levels and discussing the key 
challenges of this transition. Conclusions are drawn in Section 7. At the end of the report, the Annex 
reports  the  country-sheet  evaluation  template  used  for  this  assessment  in  relation  to  NZEBs 
definitions, as collected by the JRC from Member States.  

5 

 
 
 
 
 
1.  Introduction  

The  building  sector  plays  a  significant  role  in  energy  consumption  and  greenhouse  gas  (GHG) 
emissions in the European Union (EU), accounting for approximately 40% of energy consumed and 
36% of energy-related GHG emissions. Consequently, the sector is a primary focus of EU energy and 
climate  policies.  The  European  Green  Deal,  launched  in  2019,  aims  to  achieve  EU-wide  climate 
neutrality by 2050 through a holistic and cross-sectoral approach [EC, 2019a]. It aims to transform 
the EU in a fair and prosperous society, with a modern, resource efficient, competitive economy having 
no net greenhouse gas emissions in 2050 [EC, 2019b]. In line with the Paris agreement to keep the 
global temperature increase to well below 2°C and pursue efforts to keep it to 1.5°C [EC, 2013], the 
Energy and Climate Union strategy support the EU climate neutral transition setting energy efficiency 
as  one  of  its  strategic  dimensions  [EC,  2018].  This  ambitious  target  requires  to  maximise  energy 
efficiency and renewable production within an overall conversion of several sectors.  

The 'Fit for 55'2 package underscores the importance of building renovation and proposes measures 
to  facilitate  the  transition  to  environmentally  friendly  practices,  such  as  supporting  building 
renovation, adopting clean heating and cooling technologies, and integrating renewable energy. The 
REPowerEU plan further emphasizes the crucial role that EU buildings play in reducing reliance on 
foreign energy sources [EC, 2022]. 

The fist legal pathways for a decarbonized building stock in the EU have been designed under the 
Energy Performance of Buildings Directive 2010/31/EU [EPBD, 2010]. This Directive provides policies 
and  measures  to  guide  Member  States  in  enacting  legislation  to  improve  building  energy 
performance.  It  establishes  requirements  for  new  energy-efficient  buildings  and  outlines  the 
transformation  of  existing  buildings.  For  new  buildings,  the  EPBD  mandates  that  Member  States 
ensure they meet the Nearly Zero-Energy Building (NZEB)  standard from 2021 onward. A NZEB is 
defined as a highly energy-efficient building where the nearly zero or very low amount of energy 
required is covered to a very significant extent by energy from renewable sources produced on-site 
or nearby [4]. 

It is evident how buildings, and NZEBs play a key role combining energy efficiency with renewables 
[EC, 2017]. Indeed, new buildings occupied by public authorities and properties have to be NZEBs by 
December 31, 2018 and all new buildings by December 31, 2020. The EPBD states that Member 
States shall detail NZEB definitions, reflecting national, regional or local conditions, and including a 
numerical  indicator  of  primary  energy  use  expressed  in  kWh/m2y.  Due  to  the  variety  of  climates, 
market and local conditions throughout Europe, the implementation of NZEBs definitions has not been 

provide financing to foster the transition to NZEBs. They  have to take the necessary measures to 
ensure  that  minimum  energy  performance  requirements  are  met  to  achieve  cost-optimal  levels. 
These  have  to  be  derived  in  relation  to  minimum  energy  performance  requirements  for  new  and 
existing buildings in compliance with the comparative methodology framework established by the 
Commission with the Delegated Act No. 244/2012 of 16 January 2012 and related Guidelines [EC, 
2012a, b].  

2 

scope to deliver the EU's 2030 climate targets. 

6 

 
 
                                                 
 
The revised EPBD recently adopted [EPBD, 2024] aligns with the EU goal of a 55% GHG emission 
reduction by 2030. In pursuit of decarbonizing the building stock by 2050, the revised EPBD introduces 
a  definition  for  Zero-Emission  Buildings  (ZEBs).  A  ZEB  is  characterized  by  a  very  high  energy 
performance, requiring zero or a very low amount of energy, producing zero on-site carbon emissions 
from fossil fuels, and generating zero or a very low amount of operational GHG emissions. The total 
annual primary energy use must be covered from on-site and nearby renewables, renewable energy 
communities,  district  heating  and  cooling  systems,  or  other  carbon-free  sources.  Additionally,  the 
Directive mandates Member States to introduce maximum thresholds for the total annual primary 
energy use of ZEBs that should be at least 10% lower than the national NZEB thresholds at the time 
of implementation. Furthermore, the operational GHG emissions must adhere to a national maximum 
threshold. The primary objective at the EU level is for public-owned new buildings to be ZEBs by 2028, 
with the broader goal that all new buildings meet the ZEB standard by 2030 and existing buildings 
transformed into ZEBs by 2050 (Figure 1). 

Figure 1. Timeline with building targets for climate neutrality 

Source: JRC elaboration, 2025. 

The revised EPBD also includes a definition for deep renovation. Deep renovation prioritizes energy 
efficiency and focuses on essential building elements, transforming buildings into NZEBs before 2030 
and ZEBs from 2030 onward. The ultimate objective is to achieve a zero-emission EU building stock 
by 2050. Deep renovations may  also serve as an opportunity to address various aspects, such as 
indoor environmental quality, safety, and resilience against disasters. Member States must establish 
a comprehensive strategy aimed at achieving a highly efficient and decarbonised building stock by 
2050 and cost-effective transformation of existing buildings into NZEBs. With the need of increasing 
(at least double) the current low renovation rate (between 0.4% and 1.2 % in Member States), it is 
clear that renovation to deep levels remains the hugest challenge for Europe. Given the climate and 
energy emergency, the role of NZEBs in achieving EU goals is critical. This report offers an overview 
of  NZEBs,  addressing  the  current  status  of  implementation,  challenges  and  future  developments 
across the EU. 

7 

 
 
 
 
2.  NZEB definition updates 

This section assesses the progress of NZEB implementation in the Member States. The EPBD does not 
advocate  a  uniform  approach  for  implementing  the NZEB  concept  across the EU,  leaving  Member 
States to detail their NZEB definitions, accounting for the variety of building types and climates.  

The progress has been assessed through a country-sheet template filled in by Member States to allow 
comparison  and  evaluation  of  provided  definitions.  Out  of  29  contacted  entities,  24  provided 
feedback, while 4 did not respond (Bulgaria, Brussels, Italy and Latvia), and 1 response was marked 
confidential  (France).  For  the  non-responding  entities  and  the  confidential  response,  existing  data 
were  updated  by  referencing  the  Concerted  Action  on  the  EPBD  database  [CA  EPBD,  2020]3.  The 
country sheets are included in the Annex.  

It is observed that the definition varies greatly among the countries. A main difference is the indicator 
used  to  benchmark  the  NZEB  level.  Many  definitions  rely  on  comparisons  with  national  reference 
buildings  or  on  a  formula  involving  additional  indicators  instead  of  a  fixed  energy  indicator. 
Furthermore, several countries have varying performance values based on building types, geometry 
(heated/cooled conditioned floor area), climate zone, and other parameters. Table 1 summarizes the 
relevant indicators present in the national NZEB definitions.  

3 The Concerted Action on the Energy Performance of Buildings Directive (CA EPBD) is a joint initiative between the EU 
Member States and the European Commission and has the scope to facilitate information and experience sharing 
from national adoption and implementation of the EPBD. 

8 

 
 
                                                 
 
Table 1. Main indicators used by Member States in the national NZEB definitions. 

Non-renewable 
primary energy  

Total primary energy de-
mand  

Energy class 

Heating, Cooling de-
mand 

AT 

BE - Br 

BE - 
Wa 
BE - Fl 

HR 

CY 

CZ 

DE 

DK 

EE 

FI 

FR 

HU 

IE 

IT 

LT 

LU 

MT 

NL 

PL 

PT 

RO 

SK 

SI 

ES 

SE 

Source: JRC elaboration, 2025 

It is observed that 20 countries/regions rely on total primary energy, while 13 definitions employ non-
renewable  primary  energy  demand.  Eight  countries  use  both.  Another  indicator  is  the  energy 
performance  class,  present  in  12  definitions.  Indeed,  one  of  the  most  debated  issues  around  the 
NZEBs has been identified in the difficulty of having harmonization among calculation methodologies 
and definitions [D'Agostino et al, 2016].  

9 

 
 
 
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
 
 
 
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
 
 
 
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
  
  
  
 
 
2.1.  Comparative NZEB performance levels 

To  provide  an  overall  NZEB  progress  at  EU  level  and  enable  comparison  between  national  NZEB 
definitions, this section addresses the harmonisation of NZEB indicators. The focus is on the maximum 
allowed non-renewable primary energy demand, which is framed by many national definitions and it 
also  allow  for  comparison  with  previous  assessment  of  NZEB  levels.  Similar  methodology  was 

total primary energy, the non-renewable energy share is calculated considering the renewable energy 
requirements, for those cases providing the total primary energy and not quantifying the share of 
renewable energy, the non-renewable energy demand was considered equal with the total primary 
energy demand. 

The steps to derive performance values for residential and non-residential, new and existing NZEBs 
are as follows: 

1.  The values correspond to single-family houses (SFH) and offices, where this distinction was 
made by the national definition between building sub-categories. This approach was adopted 
to enable comparison with the recommended NZEB performance levels that are set for single-
family houses and offices, discussed in Section NZEBs and benchmark levels. 

2.  For countries that have in place performance values that vary with the national climatic zones, 
the average values across the zones are considered (Greece, Spain, Italy) or the representative 
climatic zone in the country (Croatia, Romania). 

3.  The share of renewable energy is subtracted from the primary energy demand value provided 

in the national definition (Flanders, Bulgaria, Cyprus, Finland, and Hungary). 

4.  For several countries specific methodologies are necessary to estimate national performance 

values, as follows: 

(a)  Austria: The NZEB levels for new buildings are sourced from CA EPBD database. 

(b)  Brussels-Capital  Region:  The  NZEB  levels  of  offices  equals  the  upper  boundary  of 

energy class B for new buildings and of class C for renovated buildings. 

(c)  Czechia:  The  NZEB  levels  are  calculated  using  the  reference  buildings  for  new 

buildings defined in the 2023 cost-optimal report. 

(d)  Denmark: The NZEB levels are calculated using the reference buildings defined in the 

2023 cost-optimal report. 

(e)  Finland:  A share of 15% is subtracted from the Member State values to eliminate 
appliances and user equipment energy demand. The NZEB levels are calculated using 
the reference buildings defined in the 2023 cost-optimal report. 

(f)  France: The NZEB levels for new buildings are sourced from CA EPBD database and 
average between the two indicated options for each building sub-category. The NZEB 
level of renovated SFH is calculated using average values for coefficients a and b 
according  to  CA  EPBD  database.  The  NZEB  level  of  renovated  office  is  calculated 
based on the reference office building defined in the 2023 cost-optimal report. 

(g)  Germany:  The  NZEB  levels  are  calculated  using  the  reference  buildings  for  new 

buildings defined in the 2018 cost-optimal report. 

10 

 
 
(h)  Greece:  NZEB  levels  corresponds  to  Energy  Performance  Certificate  (EPC)  class  A 
upper  boundary  for  new  buildings  and  class  B+  upper  boundary  for  renovated 
building. The reference building performance level was extracted from the 2018 cost-
optimal report.  

(i)  Poland:  The NZEB  levels  of  offices include  primary energy  for  cooling  and  lighting 

according to the CA EPBD database. 

(j)  Portugal:  The  NZEB  levels  are  calculated  using  the  reference  buildings  for  new 

buildings defined in the 2018 cost-optimal report. 

Following the above methodology,  

Table 2 and  Table 3 summarise the calculated NZEB performance levels, differentiating between 
new and existing, residential and non-residential buildings. 

11 

 
 
Table 2. NZEB primary energy demand in new buildings. 

MS 

AT 

BE - Br 

BE - Wa 

BE - Fl 

BG 

HR 

CY 

CZ 

DK 

EE 

FI 

FR 

Primary energy demand (kWh/m²y) new buildings 

SFH 

Office 

Total 

Non-ren 

Renewable 

Total 

Non-ren 

Renewable 

notes 

45 

85 

30 

95 

n.a 

100 

81 

37 

95 

55 

41 

45 

64 

15 

43 

40 

75 

65 

37 

93 

59 

50 

depends on technology and 
end use covered 

n.a 

25% 

15 

55% 

30% 

25 

not explicitly provided  

not included as share but re-
flected in Primary Enery Fac-
tors 

not quantified 

38% 

5 

12 

84 

95 

n.a. 

20 

63 

30 

94 

72 

62 

53 

depends on technology 
and end use covered 

n.a. 

25% 

30 

55% 

30% 

31 

not explicitly provided 

not included as renewable 
energy  share but re-
flected in Primary Energy 
Factors 

not quantified 

38% 

average climate zones 

15% subtracted for ex-
cluding appliances energy 
use 

95 

n.a. 

50 

140 

n.a 

125 

90 

41 

85 

100 

100 

not quantified 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
DE 

GR 

HU 

IE 

IT 

LV 

LT 

LU 

MT 

NL 

PL 

PT 

RO 

SK 

55 

100 

40 

95 

30 

65 

75 

128 

55 

75 

32 

30 

95 

60 

30 

65 

30 

75 

35 

90 

54 

covers heating and cooling 
and depends on technology 

60% DHW4 

25% 

20% 

60% 

62 

90 

65 

not quantified 

95 

50% 

not quantified; typically 
around 65% 

40 

55 

68 

55 

117 

95 

80 

40 

not quantified (proposal: 1-
15% depending on the tech-
nology) 

220 

220 

40-50% 

not quantified 

50% for DHW 

38 

not set yet 

95 

98 

40 

95 

71 

69 

61 

covers heating and cool-
ing and depends on tech-
nology 

60% DHW 

25% 

15% 

average value for office 

60% (65% public build-
ings) 

from previous study 

average value for SFH 

not quantified 

50% 

not quantified; typically 
around 65% 

not quantified (proposal: 
1-15% depending on the 
technology) 

30-50% non-residential 

not quantified 

50% for DHW 

29 

not set yet 

4 DHW = domestic hot water 

13 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
 
SI 

ES 

SE 

75 

62 

95 

38 

31 

95 

37.5 (50%, public buildings 
55%) 

50% 

not quantified 

55 

197 

70 

28 (50%, public buildings 
55%) 

88 

70 

50% 

average climate zones 

not quantified 

Source: JRC elaboration, 2025 

Table 3. NZEB primary energy demand in existing buildings. 

Member State 

AT 

BE - Br 

BE - Wa 

BE - Fl 

BG 

HR 

CY 

CZ 

DK 

EE 

Primary energy demand (kWh/m²y) existing buildings 

SFH 

Office 

Total 

Non-ren 

Renewable 

Total 

Non-ren 

Renewable 

no overall energy indicator defined 

54 

85 

60 

95 

n.a 

100 

113 

90 

54 

85 

45 

43 

40 

75 

90 

90 

n.a 

not quantified 

15 

55% 

30% 

25 

not explicitly provided 

not included as RES share 
but reflected in PEF 

150 

n.a. 

90 

140 

n.a 

125 

100 

96 

150 

n.a. 

75 

63 

30 

94 

80 

96 

n.a. 

not quantified 

15 

55% 

30% 

31 

not explicitly provided 

not included as RES share 
but reflected in PEF 

113 

not quantified 

122 

not quantified 

14 

 
 
 
 
 
 
 
 
 
 
 
 
 
FI 

FR 

DE 

GR 

HU 

IE 

IT 

LV 

LT 

LU 

MT 

NL 

PL 

PT 

RO 

SK 

SI 

ES 

103 

92 

93 

100 

125 

95 

64 

92 

75 

125 

30 

95 

60 

not quantified 

not quantified 

85 

140 

no legal definition of NZEB renovation 

60% DHW 

25% 

n.a. 

60% 

145 

90 

152 

not quantified 

95 

50% 

53 

140 

68 

152 

117 

95 

80 

38% 

not quantified 

60% DHW 

25% 

n.a. 

60% (65% public build-
ings) 

not quantified 

50% 

no energy indicator defined; renovation must comply with requirements for building components 

65 

not quantified (proposal: 1-
15% depending on the tech-
nology) 

No requirement 

no legal NZEB renovation definition 

no energy indicator requirements 

149 

95 

87 

35 

134 

54 

48 

60 

50% for DHW 

10% 

117 

not set yet 

45 (50%, public buildings 
55%) 

50% 

15 

65 

197 

71 

106 

61 

38 

88 

50% for DHW 

10% 

not set yet 

 (50%, public buildings 
55%) 

50% 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
SE 

95 

not quantified 

70 

not quantified 

Source: JRC elaboration, 2025

16 

 
 
 
 
In comparison with a previous assessment (2022) of NZEB performance levels, new residential NZEBs are 
currently  on  average  9%  more  ambitious.  This  improvement  was  obtained  progressivity  in  almost  all 
Member States. Renewable energy requirements are quantified in almost 70% of NZEB definitions for new 
buildings,  provided  either  as  percentages  or  absolute  values  in  kWh/(m²y)  and  over  40%  for  existing 
buildings  undergoing  NZEB  renovation.  The  minimum  renewable  energy  share  for  new  buildings  ranges 
between 20% and 60%. A detailed analysis is included later in this report.  

A common NZEB definition involves a year-long energy balance at the building level, considering on-site 
renewables, using as an indicator the primary energy demand for heating, cooling, ventilation, domestic hot 
water,  built-in  lighting,  and  auxiliary  energy.  Some  definitions  also  cover  additional  energy  uses  like 
-uses considered 

in the calculation for new buildings are reported in Table 4. 

17 

 
 
Table 4. End-uses considered in the calculation. 

Heating 

Cooling 

Ventilation 

DHW 

Lighting 

Other 

Notes 

auxiliary energy 

auxiliary energy 

auxiliary energy 

auxiliary energy, 
appliances 
auxiliary energy 

auxiliary energy 

auxiliary energy 
and other building 
services 
auxiliary energy 

auxiliary energy 

auxiliary energy 

AT 

BE - Br 

BE - 
Wa 
BE - Fl 

BG 

HR 

CY 

CZ 

DK 

EE 

FI 

FR 

DE 

GR 

HU 

IE 

IT 

LV 

LT 

LU 

MT 

NL 

PL 

PT 

RO 

SK 

SI 

ES 

SE 

Included 
Not included 
Included only for non-residential 

18 

 
 
  
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
 
  
  
  
  
  
  
  
  
  
 
 
 
 
 
Figure 2 shows that the average non-renewable primary energy consumption for new single-family houses 
varies from a minimum of 15 kWh/(m²y) to a maximum of 95 kWh/(m² year), with an overall EU average 
of 54 kWh/(m²y). For renovated single-family houses, the estimated performance level range is broader, 
between 30  and 135 kWh/(m²y) with an EU average of 73 kWh/(m²y). 

Figure 2. NZEB energy performance in new and renovated residential buildings (single family houses) expressed in 
non-renewable primary energy demand kWh/(m2y) by country 

Source: JRC elaboration, 2025. 

19 

 
 
 
 
 
 
Figure 3. NZEB energy performance in renovated buildings (single family house) expressed in non-renewable 
primary energy demand kWh/(m2y). 

Source: JRC elaboration, 2025 

In non-residential buildings (offices), the average non-renewable primary energy consumption is found to 
be between 28 and 220 kWh/(m²y) for new offices (as depicted in Figure 3 with an overall EU average of 
73 kWh/(m²y). For renovation to NZEB level of offices, the values range from 30 to 152 kWh/(m²y), with a 
corresponding EU average of 90 kWh/(m²y).  

In most cases, the NZEB levels for new buildings are more demanding than those for NZEB renovation. On 
average, the non-renewable primary energy consumption of new NZEBs is approximately 30% lower than 
that of renovated NZEBs. This difference can potentially be attributed to stricter thresholds (Czechia, Estonia, 
France, Greece and Slovenia)  and the more widespread and stringent renewable energy requirements in 
new buildings compared to existing ones (Walloon, Ireland, Malta and Romania). 

2.2.  NZEBs and renewables 

The share of renewable energy from the total primary energy demand in new NZEBs is detailed in Figure 4 
.Out  of  29  definitions,  19  quantify  the  share  of  renewable  energy  in  new  buildings  and  12  in  NZEB 
renovation.  

20 

 
 
Figure 4. Renewable energy share (%) from the total primary energy demand in new and renovated 

Source: JRC elaboration, 2025 

The renewable energy contribution varies widely in both new and renovated NZEBs, ranging from 9-10% to 
60% in new NZEBs, and up to 55% in NZEB renovations. 

For new buildings, 7 countries aim at 25% or less renewable energy while 9aim at up to 50% renewable 
energy. Two countries report more than 50% renewable energy share in the total primary energy demand 
(Bulgaria 55% and Italy 60%)  

For  renovations  to  NZEB  levels,  5  countries  target  up  to  a  25%  renewable  energy  share,  6  aim  for  a 
maximum of 50%, and only one country (Bulgaria) reports more than 50% renewable energy, at 55%.  

Additionally, Luxembourg notes that renewable energy typically constitutes about 65%, though this is not 
prescribed and depends on the reference building. Other countries report requirements only for specific end-
uses (e.g., Greece and Portugal for domestic hot water preparation). Slovenia mandates a 55% renewable 
energy contribution in public buildings. 

Within the JRC data collection, Member States were asked to detail which technologies and energy sources 
are considered in NZEBs, either new or existing. Table lists the main technologies considered by 17 countries 
that provided such information. Apart from these technologies, countries also mentioned heat pumps, waste 
heat, co-generation and renewable energy from the grid. More details are in Section 5. 

21 

 
 
 
Table 5. Renewable energy type in NZEBs definitions 

PV 

Solar thermal 

Biomass 

Wind turbines 

Geothermal 

Austria 

Belgium-Wallonia 

Belgium-Flanders 

Croatia 

Cyprus 

Czechia 

Denmark 

Estonia 

Germany 

Ireland 

Luxembourg 

Malta 

Netherlands 

Slovenia 

Spain 

Hungary 

Romania 

Note: Green means that the technology is reported, red means that the technology is not reported. 

Source: JRC elaboration, 2025 

It is observed that solar technologies, such as photovoltaics (PV) and solar thermal collectors are considered 
by all countries. Figure 5 provides further insights into the PV contribution in renewable energy requirements 
in new NZEBs. 16 definitions considered PV but with no quantification, while three definitions includes a 
quantification of the PV contribution. Finally, for 10 countries either the information is not available.  

22 

 
 
   
   
   
  
  
  
  
  
  
  
   
   
   
  
  
  
  
  
  
  
   
   
  
  
  
  
  
  
  
  
   
   
   
  
  
  
  
  
  
  
   
   
   
  
  
   
   
   
  
  
   
   
   
  
  
  
  
  
  
  
   
   
   
  
  
   
   
   
  
  
   
   
   
  
  
  
   
   
  
  
  
  
  
  
  
 
Figure 5. PV contribution in renewable energy requirements in new NZEBs 

Source: JRC elaboration, 2025 

Two countries (Austria and Germany) quantify the PV energy supply share in new NZEB (20% and 15%, 
respectively), while Denmark set the maximum renewable electricity to be included in the energy balance 
of NZEB to 25 kWh/(m2y). Two countries (Ireland and Italy) report specific requirements regarding PV system 
size and power, while the Netherlands estimates that a regular row house can meet RES requirement with 
about 25% of its roof covered with PV-panels. 

2.3.  NZEBs U-values 

As for the building envelope, thermal transmittance (U-value, expressed in W/m²K) requirements for both 
new and existing NZEBs are present in around 80-85% of current NZEB definitions. An efficient thermal 
insulation is an important passive method to reduce energy demand and achieve energy savings. NZEBs U-
values are reported for new buildings in Figure 6 as follows: for a) roof, b) wall, c) floor, and d) windows as 
collected by JRC in new buildings.  

Figure 6. NZEB U-values in new buildings 

23 

 
 
 
Source: JRC elaboration, 2025. 

Apart from Estonia, France and Sweden that do not have in place specific requirements for the envelope, 
most  countries  have  benchmarked  the  envelope  U-values.  To  note  that  values  reported  by  Portugal 
correspond  to  residential  buildings,  whereas  values  reported  for  Denmark  correspond  to  non-residential 
buildings. 

For new buildings, walls U-values range from 0.13 to 1.57 W/(m2K) with an average of 0.32 W/(m2K), roof 
U-values from 0.09 to 0.49 W/(m2K) with an average of 0.23 W/(m2K), windows U-values from 0.85 to 4.00 
W/(m2K) with an average of 1.59 W/(m2K), floors U-values from 0.14 to 1.97 W/(m2K) with an average of 
0.36 W/(m2K). Overall, the most ambitious requirements are for roofs, followed by walls, roofs, and windows. 
However, countries reported the U-values existing buildings renovated to NZEB level. These are shown in 
Figure 7 as follows:  a) roof, b) wall, c) floor, and d) windows. 

24 

 
 
 
 
 
 
Figure 7. NZEB U-values in existing buildings 

Source: JRC elaboration, 2025 

Croatia, Czechia, and Estonia do not have in place specific requirements for the envelope of existing building 
undergoing NZEB renovation. Moreover, the U-values reported by Germany correspond to non-residential 
buildings, whereas U-values reported by Portugal correspond to residential buildings. 

25 

 
 
 
 
 
 
 
 
For existing buildings, walls U-values range from 0.13 to 1.57 W/(m2K) with an average of 0.33 W/(m2K), 
roof U-values from 0.09 to 0.49 W/(m2K) with an average of 0.24 W/(m2K), windows U-values  from 0.85 
to  4.00  W/(m2K)  with  an  average  of  1.64  W/(m2K),  floors  U-values  from  0.14  to  1.97  W/(m2K)  with  an 
average of 0.37 W/(m2K). Similar to new buildings, the most ambitious requirements are for roofs, followed 
by walls, floors, and windows. When comparing the average U-values of new NZEBs to those of renovated 
NZEBs,  it  is  evident  that U-values  for  new  buildings  are  only marginally  more  ambitious  than  those  for 
existing buildings, being 3 to 4% lower. 

2.4.  NZEBs and benchmark levels 

The European Commission introduced recommended benchmarks for both total and non-renewable primary 
energy demand of NZEB [EC, 2016]. The benchmarks are defined per building type (specifically single-family 
houses and offices) and climatic zone. The EU macro climatic zones, as outlined in Table 6, consider location 
with  similar  global  radiation,  heating  degree-days,  cooling  degree-days,  and  cooling  potential  by  night 
ventilation.  These  climatic  zones  are  extrapolated  at  national  level  resulting in  the  grouping  of  Member 
States are presented in Figure 8. The recommended NZEBs benchmark level of performance kWh/(m2y) per 
building type  depending  on  the  climatic zone  are  reported  in  Table  7.  Figure 9  compares  national  NZEB 
performance level and EC recommended values (non-renewable primary energy) for residential buildings 
(single family houses). 

Table 6. Climatic zones as defined in [EU, 2016]. 

Mediterranean 

Oceanic 

Continental 

Nordic 

Catania (others: Athens, 
Larnaca, Luga, Seville, Pa-
lermo) 

Paris (others: Amsterdam, Berlin, 
Brussels, Copenhagen, Dublin, 
London, Macon, Nancy, Prague, 
Warszawa) 

Budapest (others: Brati-
slava, Ljubljana, Milan, Vi-
enna) 

Stockholm (others: Helsinki, 
Riga, Stockholm, Gdansk, To-
varene) 

26 

 
 
 
 
 
Figure  8.  Member  States  division  within  climatic  zones:  Mediterranean:  Cyprus,  Croatia,  Italy,  Greece,  Spain  and 
Portugal, Oceanic: Belgium,  Denmark,  Ireland,  Germany,  France  Luxembourg, and  Netherlands, Continental: Austria, 
Bulgaria, Hungary, Poland, Romania, Slovenia, and Slovakia, Nordic: Estonia, Finland, Latvia, Lithuania, and Sweden. 

Table 7. NZEBs Recommendation level of performance (kWh/m2y) per building type according to the climatic zone 

Source: JRC elaboration, 2025 

NZEB RECOMMENDATION BENCHMARK 

Net primary use  

(on-site RES ex-
cluded)  
kWh/(m2y) 

Primary use 
kWh/(m2y) 

Mediterranean 

40-55 

0-15 

40-55 

15-30 

40-55 

20-40 

85-100 

50-65 

85-100 

50-65 

85-100 

50-70 

Oceanic 

Continental 

Nordic 

27 

National NZEB average 
LEVELS 
kWh/(m2y) 

30-112 

30-75 

20-110 

15-64 

38-100 

41-90 

Office 

Single family house  

Office 

Single family house   

Office 

Single family houses  

 
 
 
  
Office 

Single family house  

55-70 

40-65 

85-100 

65-90 

53-95 

59-95 

Source: JRC elaboration, 2025. 

Figure 9. Comparison between national NZEB performance level and EC recommended values (non-renewable 
primary energy) for residential buildings (single family houses) 

Source: JRC elaboration, 2025. 

It can be observed that in most cases the national NZEB primary energy demand is less ambitious than the 
recommended benchmarks for single family houses, particularly for existing buildings renovated to NZEB 
level.  

For new buildings, the gap between the current levels and benchmarks varies from 400% (Cyprus) to -50% 
(Flanders). For NZEB renovation, the gap ranges between 400% (Cyprus and Greece) to -8% (Lithuania). On 
average,  the  primary  energy  demand  of  new  NZEBs  is  about  75%  higher  than  the  recommended 
benchmarks,  while  the  primary  energy  demand  of  renovated  NZEBs  is  147%  higher  than  the  same 
benchmarks.  

Looking at the lower boundary of the benchmark range, only Flanders reports a compliant level for new 
buildings. Looking at the upper boundary of the benchmark range, good practices are observed in Flanders, 
Luxembourg, Netherlands, Slovenia, Finland and Lithuania for new buildings, while for NZEB renovation only 
Finland and Lithuania report a level more ambitious than the EC recommendation. 

Figure 10 compares national NZEB performance level and EC recommended values (non-renewable primary 
energy) for non-residential buildings (offices). 

28 

 
 
   
 Figure 10. Comparison between national NZEB performance level and EC recommended values (non-renewable 
primary energy) for non-residential buildings (offices) 

Source: JRC elaboration, 2025 

Looking at the performance level of new and renovated NZEB offices, it can be observed that in most cases, 
the primary energy demand is higher than the recommended levels.  

For new offices, the gap between the current levels and benchmarks varies from 213% (Cyprus) to -49% 
(Slovenia). For NZEB renovation, the gap ranges between 230% (Greece) to -47% (Finland). However, the 
situation  looks  more  positive  than  in  the  case  of  residential  buildings.  On  average,  the  primary  energy 
demand of new NZEBs is about 58% higher than the recommended benchmarks, while the primary energy 
demand of renovated NZEBs is 75% higher than the same benchmarks.  

Looking at the lower boundary of the benchmark range Flanders, Denmark, Germany, Ireland, Luxembourg 
are within the range for new buildings, while in Slovenia and Finland both new and NZEB renovation levels 
are within the recommended levels. Looking at the upper boundary, good practices are observed in Croatia, 
Flanders, Denmark, Germany, Ireland, Luxembourg, Netherlands, Slovenia, Estonia, Finland, and Sweden for 
new buildings, while for NZEB renovated offices, Estonia, Finland and Sweden  report a level more ambitious 
than the EC recommendation levels on NZEBs. 

29 

 
 
 
3.  NZEBs information from LTRS 2020, NECPR 2023 and draft NECPs 

2023 

Other  relevant  source  of  information  to  assess  the  progress  of  NZEB  implementation  in  the  EU  is 
represented  by  Long-Term  Renovation  Strategies  (LTRS)  submitted  in  2020,  draft  National  Energy  and 
Climate Plans (NECPs) and Progress Reports (NECPR) submitted by the Member States in 2023.  

Eleven  Member  States  have  defined  long-term  milestones  for  2030,  2040  and  2050  related  to  NZEBs 
implementation (highlighted in green). The NZEB milestones could be related to the percentage of NZEB to 
the total building stock (i.e. Croatia, Hungary, Sweden), the energy savings from the conversion to NZEB (i.e. 
Hungary), the number of dwellings to be renovated to NZEB (i.e. Ireland), floor are of NZEB buildings (i.e. 
Romania, Slovenia).  The annual renovation of the 3% of public buildings to NZEB as defined by the EPBD 
Recast has also been mentioned by some Member States (i.e. Hungary, Germany). Other Member States (i.e. 
Slovenia)  plan  to  use  also  NZEB  indicators  to  monitor  the  progress  towards  the  decarbonisation  of  the 
building stock in 2050. Table 8 include such milestones for countries with available data. Other long-term 
milestones  could  regard  energy  and  emissions  reduction,  renovation  rates,  area  to  be  deeply  renovated 
without mentioned or defining NZEB explicitly. These cases are highlighted in grey in Table 8.  

A selection of measures is also reported in Table 9 and Table 10 as extracted from LTRS and NECP. As seen 
from the tables, financial incentives, updates of NZEB standards definitions, NZEB pilot projects, training 
and energy consultancy programmes are included.  

30 

 
 
Table 8. NZEBs targets for 2030, 2040 and 2050 (source: Long term Renovation strategies 2020, NECPs 2023) 

RESIDENTIAL 

NON-RESIDENTIAL 

Methods 

2030 

2040 

2050 

2030 

2040 

2050 

energy-efficient renovations and energy-efficient/ 
household appliances/ reduction of space heating 
demand/ reduction of GHG emissions of building 
sector  

No NZEB milestones included 

AT 

BE-
BR 

 aim in 2050 to-
wards an average 
decarbonised EPB 
label for the entire 
housing stock and 
prioritise deep ren-
ovation of the 
worst-performing 
dwellings, while 
ensuring 
that any renova-
tion project is part 
of a comprehen-
sive reflection con-
sistent with the re-

objectives, struc-
tured in the time-
table for imple-
menting the reno-
vation strategy 

long-term target 
definition for resi-
dential buildings 
under preparation 
through Renova-
tion Pact (reduc-
tion of current en-
ergy performance 
requirement  indi-
cator by 65-85%) 

No NZEB mile-
stones included 

Milestones on en-
ergy, CO2 emis-
sions, renovated 
area 

BE-
WA 

Intermediate targets to 
achieve 2050 goals 

BE-
FLA 

BG 

No NZEB 
milestones 
included 

Update of 
NZEB defini-
tion (2021-
2030) 

Milestones 
on energy, 

No NZEB 
milestones in-
cluded 

Milestones on 
energy, CO2 
emissions, 
renovated 
area 

Carbon neutrality by 2035 for 
schools, offices and shops, and 
by 2040 for the rest 

energy-neutral 
building stock 
for heating, 
cooling and 
lighting (build-
ings will pro-
duce as much 
energy as they 
consume) 

deep reno-
vation, 
building 
passports, 
renovation 
roadmaps 

a carbon-neu-
tral non-resi-
dential building 
stock for heat-
ing, domestic 
hot water, cool-
ing and 
lighting by 
2050, with the 
government 
leading by ex-
ample 

No NZEB mile-
stones included 

Milestones on 
energy, CO2 
emissions, reno-
vated area 

No NZEB mile-
stones included 

Update of NZEB 
definition 
(2021-2030) 

Milestones on 
energy, CO2 
emissions, reno-
vated area 

No NZEB 
milestones 
included 

Milestones 
on energy, 
CO2 emis-
sions, reno-
vated area 

31 

 
 
 
  
 
 
 
  
 
 
 
 
  
 
  
  
 
  
  
 
  
 
  
 
 
 
 
 
 
 
 
 
CO2 emis-
sions, reno-
vated area 
No NZEB 
milestone 
included. 
Target: 373 
ktoe final 
energy de-
mand 

CY 

CZ 

HR 

nearly zero-
energy 
buildings to 
reach 20% 

HU 

IE 

355,000 
new dwell-
ings will be 
constructed 

No NZEB 
milestone in-
cluded. 
Target: 373 
ktoe final en-
ergy demand 

No NZEB mile-
stone included.  
Target: 361 ktoe 
final energy de-
mand 

No NZEB mile-
stone included 
Target: 266 ktoe 
final energy de-
mand 

No NZEB 
milestone 
included 
Target: 277 
ktoe final 
energy de-
mand 

No NZEB mile-
stone included.  
Target: 279 ktoe 
final energy de-
mand 

combina-
tion of 
public and 
private 
funds 

No NZEB milestones included 

Promoting 
NZEB con-
struction 
and reno-
vation 
standards, 
monitoring 
number 
and floor 
are of 
NZEBs 
through 
Certifi-
cates, pro-
moting 
skills and 
technolo-
gies in the 
field of 
NZEB, in-
vestments: 
26544 
million 
EUR 
(2021-
2030 for 
new NZEB 

Readjust 
legislation 
require-
ments, en-
ergy cer-
tificates 
methodol-
ogy, moni-
toring of 
NZEB indi-
cators, 
training/ 
skills, mo-
bilisation 
of invest-
ments 

60% of 
nearly zero-
energy or 
high energy 
efficiency 
buildings 

All nearly zero-en-
ergy or high-en-
ergy efficiency 
buildings /  
reducing GHG in 
buildings by 80%. 

60% of 
nearly 
zero-en-
ergy or 
high energy 
efficiency 
buildings 

All nearly zero-
energy or high-
energy effi-
ciency buildings 
/  
reducing GHG in 
buildings by 
80%. 

6.6 PJ/10 
years of new 
savings based 
on a linear 
trajectory and 
14,615/10 
years PJ over 
10 years for 
the conver-
sion to NZEB 

nearly zero-
energy build-
ings to reach 
60% 

157,638 ktoe/10 
years of new sav-
ings based on a 
linear trajectory 
and 349,073 ktoe 
over 10 years for 
the conversion to 
NZEB 

nearly zero-energy 
buildings to reach 
90 % by 2050. 

20% energy 
savings in public 
building or 80 
PJ (cumulative) 
additional sav-
ings resulting 
from the 
strengthening of 
the target from 
cost-optimal to 
NZEB. 

nearly zero-en-
ergy buildings to 
reach 20% 

3 % annual ren-
ovation to 
nearly zero en-
ergy in public 
buildings. 

6.6 PJ/10 
years of 
new sav-
ings based 
on a linear 
trajectory 
and 
14,615/10 
years PJ 
over 10 
years for 
the conver-
sion to 
NZEB 

nearly 
zero-en-
ergy build-
ings to 
reach 60% 

157,638 
ktoe/10 years of 
new savings 
based on a lin-
ear trajectory 
and 349,073 
ktoe over 10 
years for the 
conversion to 
NZEB 

nearly zero-en-
ergy buildings to 
reach 90 % by 
2050. 

ensuring that new 
buildings are to at 
least a nearly 
zero-energy build-
ing (NZEB) 
standard 

32 

ensuring that 
new buildings 
are to at least a 
nearly zero-en-
ergy building 
(NZEB) 

advanced 
perfor-
mance re-
quire-
ments in 
the current 

 
 
  
 
 
 
 
 
 
 
 
 
 
 
standard 

regula-
tions com-
bined with 
a manda-
tory re-
newables 
require-
ment, 
NZEB 
training 

energy-neutral 
building stock 
(non-renewable 
primary energy 
demand to be 
reduced by 
80%) 

regulatory 
law, finan-
cial 
incentives, 
infor-
mation 
and ad-
vice. 

No NZEB milestones included 

energy-neutral 
building stock 
(non-renewable 
primary energy 
demand to be re-
duced by 80%) 

3 % of the total 
floor area of 
heated and/or 
cooled buildings 
must be owned 
by the public 
every year. Fa-
cilities (federal, 
state, municipal) 
are renovated at 
least into nearly 
zero-energy 
buildings 
(NZEBs) or zero-
emission build-
ings (ZEBs) 

No NZEB milestones included 

The number of NZEBs is monitored as an indicator describing the development of the 
building stock in next decades with the information available in the energy performance 
certificate register. The milestones are based on results of the calculation model used 
as the basis for the  Long Term  Renovation strategy. They are used to anticipate the 
development of the average E-value of the different building types during each decade. 

to a Building 
Energy Rat-
ing (BER) 
level of A by 
2030 (cur-
rent NZEB 
level=A2) 

DK 

DE 

EE 

FI 

FR 

No NZEB 
milestones 

No NZEB 
milestones 

No NZEB mile-
stones 

The annual ren-
ovation of 3 % 
of buildings 
above 250 m² 
at NZEB level   

No NZEB 
milestones 

No NZEB mile-
stones 

EL 

Reduction of 
final energy 
consump-
tion in build-
ings of 8 % 
compared to 
2015 

Reduction of 
final energy 
consumption 
in buildings of 
8 % 
compared to 
2015 

Reduction of final 
energy consump-
tion in buildings of 
between 
28 % and 40 % 
compared to 2015 

Reduction of fi-
nal energy con-
sumption in 
buildings of 8 % 
compared to 
2015 

Reduction 
of final en-
ergy con-
sumption in 
buildings of 
8 % 
compared 
to 2015 

Reduction of fi-
nal energy con-
sumption in 
buildings of be-
tween 
28 % and 40 % 
compared to 
2015 

fiscal and 
economic 
incentives, 
regulatory 
framework 
develop-
ments, ca-
pacity 
building 

33 

 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
1.4% reno-
vation rate 
per year in 
the residen-
tial sector 

1.5% renova-
tion rate per 
year in the 
residential 
sector 

76% aver-
age energy 
savings due 
to renova-
tion in resi-
dential sec-
tor 

61% average 
energy sav-
ings due to 
renovation in 
residential 
sector 

ES 

1.7% renovation 
rate per year in 
the residential 
sector 

0,8% renovation 
rate per year in 
the services 
sector 

0.6% reno-
vation rate 
per year in 
the ser-
vices sector 

0.6% renovation 
rate per year in 
the services 
sector 

and good 
practices, 
Public Pri-
vate Part-
nerships 

37% average en-
ergy savings due 
to renovation in 
residential sector 

All buildings in the 
building stock will 
be Zero Emission 
Buildings (ZEB) by 
2050. 

In 2050, 7,1 mil-
lions houses are 
expected to had 
deep renovation, 
lowering their indi-
vidual consump-
tion at 12 
kWh/m2. The stock 
of new buildings 
between 2020 and 
2050 is projected 
to be of 3,9 mil-
lions houses, all of 
them NZEBs, as 
prescribed by the 
new regulations. 

All buildings in 
the building 
stock will be 
Zero Emission 
Buildings (ZEB) 
by 2050 

IT 

1.9% annual 
retrofitting 
rate 2021-
2030 

2.7% annual 
retrofitting 
rate 2031-
2040 

2.7% annual retro-
fitting rate 2041-
2050 

2.8% annual 
retrofitting rate 
2021-2030 

2.6% an-
nual retro-
fitting rate 
2031-2040 

2.6% annual 
retrofitting rate 
2041-2050 

LV 

the construction of 
all new buildings 
meets the require-
ments of zero-en-
ergy buildings, and 
the renovation and 
conversion of all 
buildings meets 
the requirements 
of zero or near 
zero-energy 
buildings  

GHG 111.9 kt of 
CO2 in entire 
buildings sector 

199766 buildings 
to be insulated 

34 

the construction 
of all new build-
ings 
meets the re-
quirements of 
zero-energy 
buildings, and 
the renovation 
and 
conversion of all 
buildings meets 
the require-
ments of zero or 
near zero-en-
ergy 
buildings. 

GHG 111.9 kt of 
CO2 in entire 
buildings sector 

97200 buildings 
to be insulated 

Retrofit-
ting 
measures, 
i.e. Ther-
mal En-
ergy Ac-
count 
5.7 billion 
EUR for 
renovation 
of the en-
tire build-
ing stock 
(2021   
2030 and 
2031-
2040), 7.6 
billion EUR 
for reno-
vation of 
the entire 
building 
stock 
(2041-
2050) 

National 
Energy Ef-
ficiency 
Fund and 
other fi-
nancial 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
and fiscal 
mecha-
nisms 

Subsidies, 
benefits to 
owners, 
develop-
ment of 
RES tech-
nologies 

Updated 
NZEB Plan 
2023 

Energy 
Agenda 
strategy 

mass re-
placement 
of heat 
sources, 
connection 
of build-
ings to 
zero-emis-
sion dis-
trict heat-
ing net-
works, the 
installation 
of bio-
mass 
sources, 
insulation 

LT 

LU 

MT 

NL 

PL 

No NZEB 
milestones 

66% CO2 
emissions in 
multi-apart-
ment build-
ings and 
78% in pri-
vate 
houses(202
0=100%) 

No NZEB 
milestones 

30% CO2 
emissions in 
multi-apart-
ment build-
ings and 42% 
in private 
houses(2020
=100%)  

No NZEB mile-
stones 

nual primary en-
ergy consumption 
of the building 
stock to 16.2 TWh 
(~60%) compared 
to 2020; 

nual consumption 
of primary energy 
from fossil fuels in 
the building stock 
to 0 TWh 
(100%); 

nual CO2 emis-
sions of the build-
ing stock to 0 
mtCO2 (100%) 

No NZEB mile-
stones 

79% CO2 emis-
sions 
(2020=100%) 

No NZEB 
milestones 

43% CO2 
emissions  
(2020=100
%) 

No NZEB mile-
stones 

annual primary 
energy con-
sumption of the 
building stock to 
16.2 TWh 
(~60%) com-
pared to 2020; 

annual con-
sumption of pri-
mary energy 
from fossil fuels 
in the building 
stock to 0 TWh 
(100%); 

annual CO2 
emissions of the 
building stock to 
0 mtCO2 (100%) 

No NZEB milestones 

CO2 emission and energy consumption milestones 

NZEB milestones will be developed in line with the updated NZEB plan (2023) 

CO2 neutral low 
temperature  
heating, reduction 
of the use of natu-
ral gas 

No qualitative 
NZEB milestones 

phasing out the 
use of fossil fuels 
by replacing heat 
sources or using 
zero-emission 
alternatives (e.g. 
biomethane, syn-
thetic fuels, hydro-
gen) in the other 
buildings with 
parallel deep en-
ergy renovation by 
2050 

No qualita-
tive NZEB 
milestones 

phasing out 
the use of 
sources 
based on 
fossil fuels 
(including 
natural gas) 
as the key 
energy car-
riers in the 
context of 
the energy 
renovation 

No qualitative 
NZEB mile-
stones 

phasing out 
the use of 
coal by 2040 
in all residen-
tial buildings 

CO2 neutral low 
temperature  
heating, reduc-
tion of the use 
of natural gas 

No qualitative 
NZEB mile-
stones 

phasing out the 
use of fossil 
fuels by replac-
ing heat sources 
or using zero-
emission 
alternatives (e.g. 
biomethane, 
synthetic fuels, 
hydrogen) in the 
other buildings 
with 

No qualita-
tive NZEB 
milestones 

No qualitative 
NZEB mile-
stones 

phasing out the 
use of sources 
based on fossil 
fuels (including 
natural gas) as 
the key 
energy carriers 
in the context of 
the energy ren-
ovation of resi-
dential and non- 
residential 
buildings by 

35 

 
 
 
 
 
 
 
  
 
  
 
 
 
 
 
 
 
parallel deep 
energy renova-
tion by 2050 

2030, while 
maintaining the 
use of hybrid 
solutions and 
sources adapted 
to the use of 
zero-emission 
alternatives 

of residen-
tial and 
non- 
residential 
buildings by 
2030, while 
maintaining 
the use of 
hybrid solu-
tions and 
sources 
adapted to 
the use of 
zero-emis-
sion alter-
natives 

No specific 
NZEB mile-
stones 

No specific 
NZEB mile-
stones 

15% pri-
mary energy 
savings 
compared to 
2018 

37% primary 
energy sav-
ings com-
pared to 
2018 

PT 

16% CO2 re-
duction 
compared to 
2018 

56% CO2 re-
duction com-
pared to 
2018 

No specific NZEB 
milestones 

40% primary en-
ergy savings com-
pared to 2018 

85% CO2 reduction 
compared to 2018 

No specific 
NZEB mile-
stones 

7% primary en-
ergy savings 
compared to 
2018 

15% CO2 reduc-
tion compared 
to 2018 

RO 

NZEB target 
values in-
creased by 
1% (incre-
mental 
growth) 

NZEB target 
values in-
creased by 
4% (incre-
mental 
growth) 

1.52 Mm2 
NZEB build-
ings 

13.31 Mm2 
NZEB build-
ings 

NZEB target val-
ues increased by 
23% (incremental 
growth) 

NZEB target val-
ues increased 
by 1% (incre-
mental growth) 

93.06 Mm2 NZEB 
buildings 

2.6 Mm2 NZEB 
buildings 

No specific 
NZEB mile-
stones 

15% pri-
mary en-
ergy sav-
ings com-
pared to 
2018 

37% CO2 
reduction 
compared 
to 2018 

NZEB tar-
get values 
increased 
by 4% (in-
cremental 
growth) 

7.27 Mm2 
NZEB build-
ings 

No specific 
NZEB mile-
stones 

28% primary 
energy savings 
compared to 
2018 

68% CO2 reduc-
tion compared 
to 2018 

NZEB target val-
ues increased 
by 23% (incre-
mental growth) 

24.3 Mm2 NZEB 
buildings 

of the en-
velope 
plus re-
moval of 
asbestos-
containing 
products, 
replace-
ment of 
window 
and door 
frames 

Improve 
energy re-
quire-
ments, 
contribu-
tion of re-
newable 
energies,  
credit lines 
for reno-
vation,  
tax incen-
tives, 
adapt the 
training of 
profes-
sionals, 
monitoring 
of NZEB 
indicators 
Public 
funds 
,subsidies, 
training 
pro-
grammes 
and ac-
creditation 
of a mini-
mum 
number of 
graduates 
with new 
skills 

36 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Approximately 15% of single-family houses with an energy certification fulfil the NZEB requirement (Figure below). 

For apartment buildings, the requirement of NZEBs (classes A-C) is reached in approximately 5% of buildings (Figure 
below).  

SE 

Milestones are foreseen in 2030, 2040 and 2050 to increase the number of NZEBs (classes A-C). The year 2020 is 
considered the baseline to monitor the increasing number of NZEBs through the Energy declaration register. 

 

 
1.Energy 
consump-
 
tion  will  be 
reduced  by 
6.05  PJ  or 
26  %,  with 
36  per  cent 
 
of 
NZEBs.(2.48 
PJ savings in 
heating) 

SI 

 
  2.  1422000 
m2 dwellings 
renovated to 
NZEB 
(2021-
2030) 

1.  3.  
24
50
5 
m2 
NZ
EB 
dw
el-
lin

1.  15359000 
m2  dwellings 
renovated  to 
NZEB  (2031-
2040) 

2.  2. 
4.6
7 PJ 
 
sav-
ings 
in 
heat
ing 
fro
m 
NZE
Bs 

3.  3. 

447
98 
- 
m2 
NZE
B 
dwe
lling
s  in 

1.  1. 

430960
00  m2 
dwellings 
reno-
vated  to 
NZEB 
(2041-
2050) 

2.  2.  5.18 
PJ  sav-
ings 
in 
heating 
from 
NZEBs 

3.  3. 51666 
m2  NZEB 
dwellings 
in 2050 

4.  Energy  demand 
for  heating 
re-
duced  by  30%  (as 
a result of renova-
tions) 

4.  1.Pub-
lic:  En-
ergy 
con-
sump-
tion 
will  be 
re-
duced 
by  0.7 
PJ  or 
20  %, 
with 
26  per 
cent of 
NZEBs 
(2.8 PJ 
sav-
ings  in 
heat-
ing) 

5. 

2.Public: 25.7% 
of public sector 
buildings to be 
NZEB 

3.Private: En-
ergy consump-

37 

1.Public: 
2.5 PJ sav-
ings in 
heating 

2.Public: 
50.2% of 
public sec-
tor build-
ings to be 
NZEB 

3.Private:  
3.5 PJ sav-
ings in 
heating 

4.Private: 
48.4% of 
private sec-
tor build-
ings to be 
NZEB 

 1.Public: 2.6 PJ 
savings in heat-
ing 

2.Public: 75.1% 
of public sector 
buildings to be 
NZEB 

3.Private:  
3.7 PJ savings 
in heating 

4.Private: 72.4% 
of private sector 
buildings to be 
NZEB 

  Moni-
toring 
indi-
cator 
3:  en-
ergy 
sav-
ings 
and 
the 
role 
of 
nearly 
zero 
en-
ergy 
build-
ings 
Fi-
nan-
cial 
incen-
tives 
for 
RES 
Re-
draft-
ing 
legis-
lation 

 

 

 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
204
0 

gs 
in 
20
30 

tion will be re-
duced by 3.7 PJ 
or 16 %, 
with 24 per cent 
of NZEBs (3.7 PJ 
savings in heat-
ing) 

4.Private: 24.4% 
of private sector 
buildings to be 
NZEB 

SK 

Forecast of 
around 3% 
renovation 
to NZEB 

Forecast of 
around 8% 
renovation to 
NZEB 

Emission 
and energy 
savings 
milestones 

Emission and 
energy sav-
ings mile-
stones 

Source: JRC elaboration, 2025 

Forecast of around 
10% renovation to 
NZEB 

Forecast of 
around 3% ren-
ovation to NZEB 

Emission and en-
ergy savings mile-
stones 

Emission and 
energy savings 
milestones 

Forecast of 
around 8% 
renovation 
to NZEB 

Emission 
and energy 
savings 
milestones 

Forecast of 
around 10% 
renovation to 
NZEB 

Emission and 
energy savings 
milestones 

 

Fi-
nanc-
ing by 
the 
Eco 
Fund 

Loans for 
renova-
tion, im-
proving 
skills and 
aware-
ness, read-
just build-
ing stand-
ards, intro-
duce of 
RES 

Table 9. Measures/Projects/Programmes for NZEBs in Member States as extracted from Long Term Renovation 
strategies 

 Intermediate Financial Institution: ERSTE BANK DER ÖSTERREICHISCHEN SPARKASSEN AG 

Description: 

and  2023.  The  final  beneficiaries  of  this  project  brokered  by  Erste  Bank  are  non-profit  municipalities  and 

-profit/supported housing in Austria between 2018 

commercial/private companies. 

EIB financing: EUR 100 000 000, Total cost: EUR 200 000 000 

Environmental aspects: 

The housing projects to be financed under the project must meet high environmental standards and will con-

tribute significantly to the improvement of the urban environment by rehabilitating brownfields and unused 

urban regeneration sites.  

The housing units to be financed must meet the legal requirements for the energy performance of residential 

AT 

buildings  (low-energy  house  standard).  Part  of  the  investments  will  reach  higher  energy  efficiency  classes 

(NZEB). 

38 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 Intermediary Financial Institution: HYPO VORARLBERG 

Description: 

The EIB Group, consisting of the European Investment Bank (EIB) and the European Investment Fund (EIF), has 

provided two guarantees for a EUR 330 million portfolio of Austrian and German loans to small and medium-

sized enterprises (SMEs) and mid-caps issued by Hypo Vorarlberg Bank AG. 

EIB financing: EUR 68 165  

Environmental aspects: 

This transaction is the first synthetic securitisation to allow a significant transfer of risk to a bank under the 

Standardised Approach to Capital Requirements. Therefore, instead of a single guarantee for the mezzanine 

tranche, the EIB Group provided two guarantees for the mezzanine and senior tranches of the transaction. 

As a result of the regulatory capital relief, Hypo Vorarlberg will increase its lending to households and corporate 

clients for energy efficient renovation of buildings or the construction of NZEB. 

Partial subsidy from the National Decarbonisation Fund, 2021-2030 

achieved, taking into account the requirement for NZEB, Specialist credit lines /Concessional loans from re-

BG 

volving funds/financial instruments with revolving capita, 2021 

with a view to upgrading buildings to energy Class A or the NZEB standard 

 national definition of NZEB 

renovation, including the achievement of the requirements for NZEB, available to designers, supervisors, en-

ergy auditors and building supervision bodies, 2021-2030 

-2: Promoting NZEB construction and renovation standards 

Information measure; 2019 2030 implementation 

Description of the measure and its goal: After 31 December 2018, all public buildings in Croatia occupied or 

HR 

owned by public bodies must be constructed according to the NZEB standard, and the obligation for all other 

newly constructed buildings takes effect after 31 December 2020. These legal provisions ensure that all newly 

constructed buildings from 2021 onwards comply with the NZEB standard. However, in order to ensure the 

correct application of these provisions and encourage the energy renovation of buildings to the NZEB standard, 

a series of information and educational activities are planned in the coming period to promote construction 

and renovation according to the NZEB standard. 

Sources of financing: State Budget, Ministry of Physical Planning, Construction and State Assets  

-residential buildings of local authorities and non-profit organisations 

(EBK): New construction consultancy for non-residential buildings is also promoted in order to help municipal-

ities implement the example-setting role of public bodies (Nearly Zero Energy Buildings). 

ding measure Innovative Projects for the Nearly Climate-Neutral Building Stock in 2050 (notification 

DE 

of the support initiative 'EnEff.Gebäude.2050 

 Innovative Projects for the  Nearly Climate-Neutral Building 

Stock in 2050' of 14 March 2016 and 20 October 2017) will be continued as part of the 7th ERP. 

39 

 
 
 
 
 
 
 
 
 
 
 
 
The Conto Termico [Thermal Energy Account] is a non-repayable capital contribution granted for implementing 

small energy efficiency measures and producing thermal energy from renewable sources in existing air-con-

ditioned public buildings registered with the Land Registry. Energy efficiency measures can involve the building 

IT 

envelope, systems or both, with other benefits for NZEB transformation projects. The grant may cover up to 

65% of the costs connected to energy efficiency that meet the technical requirements set out by the Conto 

Termico decree, including as part of more extensive building retrofitting projects. For schools and health facil-

ities, the grant may cover up to 100% of costs. Design costs are compensated at the same percentage as that 

set  for  measures;  the  costs  of  energy  audits  and  post  operam  energy  performance  certificates,  which  are 

mandatory in many cases, are fully covered. 

provides financial support for a package of measures that upgrade the building to a minimum level of energy 

efficiency. A larger subsidy is awarded to buildings that are refurbished into NZEB and vulner

s of buildings owned or operated by SMEs. The project 

homes. 

-going policy instrument is Order No 1 of 2014 (Additional floor space "allowance" for new 

buildings and building that are renovated), as issued by the Minister for Interior on the basis of the Town and 

Country Planning Law. New buildings and buildings to be renovated shall be allowed to increase the building 

CY 

rate by 5 % for Energy Class A building, with primary energy not exceeding 50 kWh/m2y, and at least 25% of 

their  total  energy  needs  shall  be  covered  by  renewables.  The  objective  is  to  stimulate  the  construction  or 

renovation of buildings to go beyond the requirements applicable to NZEB, obtaining 16.5 ktoe of cumulative 

end use energy savings. 

proposal relates to the energy upgrading of dwellings in NZEBs. The proposal has a budget of EUR 40 million, 

while  the  contribution  of  private  funds  has a  total  expenditure  of  EUR  80  million.  It  is estimated  that  this 

-2027 programme of the European Structural Funds, a 

proposal will renovate approximately 1.600 homes. 

(Unit  for  Education  for  the  Environment  and  the  Sustainable  Development),  has  secured  funding  of  EUR 

500.000 from the European Commission and Horizon 2020 to implement the technical assistance called PEDIA 

(Promoting  Energy  Efficiency  &  Developing  Innovative  Approaches in  schools).  The  PEDIA  aims to  define  a 

long-term strategy for the upgrading of public schools in NZEB. The installation of PV systems with a total 

capacity of 4 MW and roof insulation and EU funds are secured for technical assistance with the aim to develop 

a long-term strategy for the upgrading of public schools to NZEB. 

lic awareness, an on- going (since 2018) informative cross-sectoral policy relates to Technical 

guidance  promotion  of  NZEBs.  This  policy  allows  consumers  to  decide  the  most  beneficial  option  for  their 

related products.  

Energiesprong is an open approach involving collaboration between stakeholders in the ecosystem. National 

and local authorities, stakeholders on the demand side   social landlords and tenants   and on the supply side 

 contracting bodies, builders, maintainers, industrial manufacturers and distributors 

 work together to re-

move obstacles to the roll-out of such an approach. In France, market support for the roll-out of these net-

40 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
FR 

zero energy renovations is provided by GreenFlex together with the Social Union for Housing (Union sociale 

Cluster, working in close liaison with all of their fellow signatories of the EnergieSprong France commitment 

charter. This support is made possible by financial backing from the European Union through the programmes 

Interreg North-West Europe (project E=0) and Horizon2020 (project Transition Zéro), from ADEME and from 

the Caisse des Dépôts. Following its financial support from the European Union, the  project is now funded 

under a programme implemented in the framework of the Energy Saving Certificates (CEE) scheme. 

-Energivie Competitiveness 

The main objective of the call is to improve energy efficiency in school buildings used for educational purposes 

by supporting comprehensive investment activities which involve deep energy renovation and are undertaken 

PL 

in order to br

-

programme projects should reduce CO2 emissions, reduce primary energy consumption, increase the share of 

renewable energy (if the project also involves energy production) and increase public awareness with regard 

to energy efficiency. Funding will be available for energy renovation work, the scope of which is so wide that, 

once it is completed, the energy standard of the school building will come close to the passive or nearly zero-

emission standard. 

of a so-called 'nearly zero-

cy and RES use in residential buildings: In order to target renovations 

and achieve the targets in 2030, a separate call for partial and integrated renovations shall be introduced, 

SI 

with at least 70% of the foreseen resources dedicated to financial incentives for energy efficiency and the 

use of RES in residential buildings to be allocated to integrated energy and renovations in NZEBs, while also 

increasing leverage. Deadline: 2022 

new financing models for energy renovation of multi-apartment buildings. Pilot projects shall adequately ad-

on of new financial instruments and 

dress diffuse ownership, sharing of incentives, NZEBs 

and wider renovation of buildings 

n of NZEB and deep renovation programmes will be financially supported with public funds 

to ensure the quality of training programmes and the accreditation of a minimum number of graduates with 

RO 

new skills. 

and decision makers for deep energy efficiency renovations (at NZEB level).  

specialists (architects, designers, experts, energy auditors) 

field of deep renovations and NZEB, for certain types of buildings. 

Source: JRC elaboration, 2025 

Table 10. Measures/Projects/Programmes for NZEBs in Member States as extracted from NECP 2023 

Measure 

Type 

41 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
BG 

Renovation of the existing building stock to the level of optimised energy consump-

tion with a view to reaching the nearly zero-energy building standards for the period 

Planning 

2021-2030 

Increasing the capacity and expanding the operation of the National Council of Ex-

perts to promote and coordinate the increase in the number of nearly zero-energy 

Planning 

buildings in an efficient manner, in the period 2030-2021 

Transition  from  the  promotion  of  NZEB  buildings  to  the  promotion  of  NZEB/ZEB 

buildings 

Economic/regulatory 

Encouraging more efficient construction and renovation: Through the support of dif-

ferent projects by the RRP, it is intended that new constructions will have to meet 

the requirement of being NZEB20 and in rehabilitation that a thermal comfort indi-

cator is 10 % better than for new construction by the end of 2026. 

PT 

Promote  training  for  construction  technicians  and  specialists  and  NZEB  and  ZEB 

buildings 

Regulatory 

Education 

Taxation for the decarbonisation of the residential sector and services: Introduce tax 

incentives  for  energy  efficiency  and  the  introduction  of  renewable  energy  and  a 

more favourable tax regime for renewable energy buildings (e.g.: create tax incen-

Fiscal 

tives, such as reducing IMI, for nearly zero-energy buildings (NZEB). [Planned date: 

2020-2024] 

Increasing requirements   technical and construction regulations and requirements 

laying down standards for the design of buildings: they will include a broader anal-

PL 

ysis of the availability of resources used to implement the provisions of the new 

Regulatory 

EPBD for the construction of zero-emission buildings. 

 Clean Air Priority Programme. 

NL 

Energy performance requirements   new buildings (NZEB) 

Regulatory measures to promote nearly zero energy buildings 

EL 

New  regulatory,  fiscal  and financial  measures  to  create  the  right  framework and 

create incentives for new and deeply renovated buildings will help to maximise the 

number of buildings that go beyond minimum energy performance requirements. 

Fiscal, economic 

Regulatory 

Regulatory 

Regulatory, economic, 

fiscal 

ES  Hybridisation of renewable technolog

-

  Other 

FI  Nearly zero-energy regulations (instead of earlier Towards zero-energy buildings) 

Regulatory 

ciple in buildings: The measure aims at creating a network of professionals to en-

Information 

HR 

gage and contribute to building decarbonisation and transition to NZEB. 

Energy renovation programme for public sector buildings: Market models need to be 

combined with grants with the aim of meeting the NZEB standard. 

Economic 

42 

 
 
Environmental regulations (RE2020) of buildings: Construction of nearly zero-energy 

FR 

buildings  complying  with  the  environmental  regulations  (RE2020)  of  buildings,  in 

Regulatory 

force since 2020. 

IT 

Strengthening of minimum energy performance requirements for buildings / NZEBs 

definition update 

Regulatory 

Renovation of public office buildings: The project gave new insights as to the best 

MT 

methods to achieve nearly zero-energy levels and reduced primary energy demand 

Planning 

by 50,400 kWh annually. 

Education and training courses in near-zero energy building (NZEB) and a Retrofit 

Upskilling and Reskilling programmes 

Action plans to achieve zero emissions federal buildings 

Intro

C-IZEBs project: Intelligent School Buildings for Zero Consumption 

Education 

Planning 

Regulatory 

Economic 

energy upgrading of a dwelling in a building with zero energy consumption (NZEB) 

Economic 

IE 

BE 

CY 

can be implemented 

Source: JRC elaboration, 2025 

43 

 
 
 
 
 
In the draft National Energy and Climate Plans submitted in 2023, 48 measures related to NZEB or including 
NZEB provisions have been identified. Most of them have been listed by Portugal (21%), Cyprus and Italy 
(10% both). These measures can affect the whole building sector (61%), to be targeted to public buildings 
(15%) or to households and services (private sector) (7% both). Some measures could include provisions 
that regard other sectors as well (i.e. installations for electric mobility in buildings). Less than a half of these 
measures  are  already  implemented  (or  their  previous  versions)  while  around  the  one  third  consists  of 
planned measures for the next period. 

As shown in the Figure 11, many measure types are involved. Most NZEB related measures are regulatory 
and legislative (34%). Examples could include the review of National NZEB definitions. Economic measures 
are also responsible for an important share (29%). Examples are the financial incentives for renovation of 
buildings to NZEB. Planning measures (i.e. NZEB action plans) represent the 16%.  

Figure 11. NZEB related measures in NECPs by measure type 

6 200%

Other
3%

Information
7%

Regulatory
34%

7 400%

Planning
16%

Economic
29%

Source: JRC elaboration, 2025 

Some Member States communicated expected updates with stricter requirements in their national NZEB 
definitions during the following period or have updated their requirements recently. The most important 
ones, as identified in their National  Energy and Climate Plans submitted in June 2023, are presented in 
Table 11. 

44 

 
 
 
 
Table 11. NZEB definitions, National Energy and Climate Plans 2023 

MT 

BG 

FR 

LU 

FI 

IT 

Expected revision (stricter requirements): 2024 

Regulation No RD-02-20-3 of 9.11.2022 on technical requirements for the energy performance of build-
ings: Energy Class A, at least 55 % of the energy consumed (supplied) for heating, cooling, ventilation, 
domestic hot water and lighting shall be renewable energy located  on-site at building level or near the 
building 

New Regulations since Jan 2022 (RE2020): stricter GHG  thresholds, BBC Renovation Label for existing 
buildings 

Amended  Grand-
residential buildings 

ts  for 

Decree  of  the  Ministry  of  the  Environment  on  the  Energy  Performance  of  New  Buildings  (1010/2017) 
(same requirements for private and public/new and existing buildings 

Annex 1 to Ministerial Decree No 26/6/2015 for nearly zero-energy buildings (NZEB): energy consumption, 
thermal performance indicators, average coefficient of heat transfer by transmission, summer equivalent 
solar area per useful floor area, efficiency of heating, air conditioning and hot water production systems 
requirements 

Revision: technical building systems, advanced regulatory and control systems, promotion of healthy in-
door weather conditions, fire safety, seismic activity, rules for the integration of electric vehicle charging 
infrastructure into buildings 

EE 

Proposal for NZEB requirements in 2024 revision: 

New buildings (Nearly Zero Energy in 2024, Class A kWh/(m2y)) 

Existing buildings (Approximate zero energy for major renovations in 2024 kWh/(m2 y)) 

BE-
WA 

NZEB requirements (2021):  

Ew (new buildings): 45 kWh/m²y 

Espec (new buildings): 85 kWh/m²y 

K (new buildings): 35 

U-value wall/roof/floor: 0.24 

U-value window: 1.5 

Source: JRC elaboration, 2025

45 

 
 
 
 
 
 
 
 
A selection of NZEB or ZEB related measures is reported in Error! Not a valid bookmark self-reference. 
as extracted from the integrated National Climate and Progress Reports submitted by the Member 
States on March 2023. In total, 54 measures have been reported by the Member States, affecting 
NZEB  or  having  NZEB/ZEB  among  their  objectives.  Most  Member  States  adopted  a  number  of 
measures  to  promote  the  increase  the  number  of  NZEB  buildings.  Mainly  measures  can  be 
distinguished as follows: 

—  Regulatory (eg: energy standards, definition of NZEB requirements, adoption of regulation and 

laws); 

—  Financial (eg: subsidies, renovation grants, operational programmes, fiscal incentives); 

—  Informative (eg: information campaigns, leaflets, websites); 

—  Educational (eg: training courses for engineers and architects, publication of NZEB guidelines); 

—  Strategic (eg: national plans, renovation strategies); 

—  Research (eg: implementation of NZEB pilot projects). 

Table 12. Measures from NECPR 2023. 

Measure 

Type 

Climate Neutral New Buildings: including the requirements for NZEB, ad-

Economic, 

Regulatory, 

AT 

ditional funding if stronger standards than the minimum criteria for the 

Voluntary/negotiated 

building envelope and for the choice of heating systems are succeeded 

agreements 

Energy  performance  buildings  directive  2018/844  EC:  Introduction  of  a 

SE 

Regulatory 

buildings from 2027 and to all renovated buildings from 2030 

Promoting NZEB construction and renovation standards 

Information, Regulatory 

Energy renovation programme for apartment buildings: encouraging ren-

ovation according to the NZEB standard 

Energy renovation programme for single-family houses: encouraging ren-

HR 

ovation according to the NZEB standard 

Energy renovation programme for public buildings: Renovation of public 

sector buildings needs to be directed towards the NZEB standard wherever 

technically feasible. Market models need to be combined with grants in 

order to achieve NZEB. 

Economic 

Economic 

Economic 

Promoting energy rehabilitation of buildings, NZEB buildings, the  use of 

PT 

more energy efficient equipment and renewables 

Promoting NZEB buildings 

Economic, Fiscal, Regula-

tory, Voluntary/negoti-

ated agreements 

Regulatory,  planning 

National Emissions Allowances Auctioning Instrument (EAAI): Investment 

Support  Programmes  to  reduce  GHG  emissions  in  public  sector,  1st  call 

including Nearly Zero Energy public Buildings  comprising smart technolo-

LV 

Economic 

gies  

46 

 
 
Subsidies for retrofitting in housing: The aim is also to increase the num-

ber  of  nearly  zero-energy  buildings  in  renovation.  Available  budget  for 

Economic 

FI 

Nearly zero-energy regulation 

Regulatory 

Regulations on the energy performance of buildings: revision of the defi-

nition of a NZEB energy performance level for energy renovation (based 

Regulatory 

on the cost-optimal performance method (EPBD) 

LU 

Pioneering  role  of  municipalities  in  building  matters:  The  requirement 

based on the EED to renovate at least 3 % of the surface area of buildings 

per year will be reinforced as the level to be achieved by renovation will 

be energy  NZEB 

New requirements on the energy performance of buildings: Nearly Zero 

Energy consumption up to 100 kWh/m²/year for residential buildings, up 

Economic, Information, 

Voluntary/negotiated 

agreements 

HU 

to  90  kWh/m²/year  for  commercial  and  office  buildings  and  up  to  80 

Regulatory 

kWh/m²/year for educational buildings. 25% of the annual energy demand 

shall be provided from renewable energy sources. 

Simplification and acceleration of procedures for implementing energy ef-

ficiency measures: The measure aims to promote the rapid energy con-

Regulatory 

IT 

version of the building stock, deep refurbishment and conversion NZEB 

Thermal Account 

 Decree of 28 December 2012 and Decree of 16 Feb-

ruary 2016, incentives including among others the capital contribution up 

Economic 

to 65 % for the demolition and reconstruction of NZEB 

Energy performance   BENG: For all new construction, both residential and 

NL 

non-residential,  the  permit  applications  must  comply  with  the  require-

Regulatory 

ments for NZEB since 1 January 2021 

IE 

2019 NZEB Building Regulations - Dwellings  

Regulatory 

CY 

renovated: the aim is to incentivize the construction or renovation of build-

Regulatory 

ings that go beyond NZEB requirements 

Regulations on the energy efficiency and renewable energy use in build-

SI 

ings: supplementing the existing regulations (PURES buildings codes) with 

Regulatory 

requirements for the introduction of NZEB 

Renovation of buildings 

 Multiple building categories 

 Public 

 OP KZP 

2014-2020: supporting complex projects to reduce energy consumption 

to the level of low-energy buildings, ultra-low-energy buildings and build-

SK 

Economic 

ings with almost zero energy needs. 

Obligation to set an example for public buildings: EPB standards for public 

BE 

buildings: obligation to reach NZEB standards and obligation to display the 

Regulatory 

Energy performance of buildings certificate. 

47 

 
  
Promote  renewable  energy  sources  in  new  buildings:  Implementing  the 

obligation to have renewable energy sources for new constructions and 

implementation of the quazi zero energy (QZEN) standard for new build-

Regulatory 

ings. 

BG  Requirements for using renewable energy in buildings 

Regulatory 

DK 

CZ 

Minimum  energy  requirements  for  buildings:  All  new  buildings  must  be 

constructed as NZEB 

Regulatory, Information 

Operational  Programme  Enterprise  and  Innovation  for  Competitiveness: 

the support of extra costs in achieving the standard of a NZEB and a pas-

sive energy standard in the reconstruction or construction of new business 

buildings 

Operational Programme Prague Growth Pole: implementation of pilot pro-

jects to convert energy intensive municipal buildings into NZEB 

Economic 

Economic 

Source: JRC elaboration, 2025 

Twenty Member States have reported NZEB measures found in the NECPRs. Most of them have been 
reported by Slovenia (13%), Portugal  and Belgium (11% each of them). The 89% of the reported 
measures  are  already  implemented.  Figure  12  regards  the measure  types.  As in  the  NECPs, most 
NZEB  related  measures  are  regulatory  and  legislative  (38%),  followed  by  economic  ones  (29%), 
information (11%), planning (6%), voluntary/negotiated agreements, education and other (4% each 
of  them).  Measures  classified  as  research  or  fiscal  by  the  Member  States  occupy  less  important 
shares (Figure 12). 

Figure 12. NZEB related measures in NECPRs by measure type 

Research
3%

Education
4%

Planning
6%

Fiscal
1%

Other
4%

Economic
29%

Information
11%

Voluntary/negotiated 
agreements
4%

Regulatory
38%

Source: JRC elaboration, 2025 

48 

 
 
 
NZEBs should have a reduced energy demand through the deployment of energy efficiency measures 
and covering the remaining demand from renewable sources. For existing buildings, a widespread 
NZEBs retrofit implementation is still a challenge to be overcome in the light of the Renovation Wave 
and the need of further boosting renovation (at least doubled) [Renovation Wave, 2020]. The current 
renovation rate is assessed between 0.5% and 2.5% per year with buildings dating between 1945 
and  1980  having  the  largest  energy  demand  [Attia  et  al.,  2017].  Moreover,  the  existing  stock  is 
characterized by a high heterogeneity in terms of uses, climatic areas, construction traditions and 
systems. Different barriers persist towards NZEBs renovation [EC, 2019]. These are mainly technical, 
financial, social, political and institutional, as shown in Table 1.  

Table 13. Barriers and benefits deriving from retrofit NZEBs 

Barrier 

Financial 

Regulatory  

Technical 

Process 
Awareness 

Structural 

Lack of expertise 
Information 

Benefit 
Environmental 

Economic 

Social 

Description 

Costs of renovation, access to finance, energy price, insufficient attractive financial products, 
limited use of mechanisms that leverage public capital to attract private investment. 

Varying  level  of  NZEB  performance  requirements  and  local  climatic  variations  preventing 
standardised approaches. 
Lack of knowledge of construction industry, costs of technical solutions, limited uptake of en-
ergy efficiency, renewable and smart technologies. 
Fragmentation of supply chain, burdening of home owners, complex permit procedures. 
Lack of understanding of building energy use and potential energy savings, poor data on build-
ings, lack of awareness of the benefits. 
Characteristics of the building sector, small-scale nature of renovation projects which obstruct 
cost effectiveness, long lifetime of buildings, limited industrialisation, need for engaging with 
citizens directly or via local or other intermediaries. 
Lack of provider's expertise, insufficient work force, need of trainings and digital skills. 
Insufficient knowledge of the scope of financing programmes and products available, need for 
intensified technical assistance, capacity building and support  to home owners, project pro-
moters, intermediaries and local and national administrations. 
Description 
Increase energy savings, decrease GHG emissions, decrease material and fossil use deploy-
ment. 
Employment,  Gross  Domestic  Product,  innovation,  productivity,  sectoral  modernization,  de-
crease energy bills, increase property value. 
Energy security, health, well-being, comfort, decreased energy poverty. 

Source: JRC elaboration, 2025 

In  some  cases,  existing  structures  limit  the  choice  of  the  technical  solutions  that  can  be  used, 
especially in buildings of architectural value. Technical solutions may be expensive and request high 
investments, considering the payback period for renovation [Economidou et al, 2020]. Other aspects 
to be considered towards a wide NZEB retrofit implementation are: 

  Stimulate NZEBs from regulatory and non-regulatory policy instruments; 

 

Industrialise the process of NZEBs renovation; 

  Scale up private investments; 

  Better use and easier access to funds; 

  Tackle energy poverty, social housing, low income households; 

  Public sector as leading example; 

  Drive smart technologies and digital data; 

49 

 
  Explore innovative financing instruments and approaches; 

 

Involve and train citizen and local authorities; 

  Harmonise policy instruments, which need to be concrete, coherent, ambitious; 

  Address building-integrated renewables and efficient systems. 

From the JRC data collection, also information on the NZEB building stock were collected, for new 
(Table 14) and existing (Table 15).

50 

 
Table 14. New NZEB stock information 

Mem-
ber 
State 
AT 

BE - 
Wa 

Residential 

Non-residential 

Total 

additional info 

41,103 

15,501 

56,604 

9,000 building units 

300 building units 

9,300 building units 

Renovated: to date 
non-
No data available for renovated 

BE - Fl 

±86, 000 

±4,000 

±413,000 (new buildings since 
2006) 

HR 

CY 

CZ 

DK 

EE 

FI 

FR 

4,071 

15,154 

75,610 

66,809 

861 

1,644 

4,112 

2,572 

EPCs issued as of 2020*: 
1) EPCs (class A) of buildings 
under construction = 643 
2) EPCs (class A) of buildings in 
use = 1435 
3) EPCs (class A) of buildings 
planned = 406 

EPCs issued as of 2020*: 
1) EPCs (class A) of buildings under 
construction = 53 
2) EPCs (class A) of buildings in use = 
437 
3) EPCs (class A) of buildings planned = 
78 

Total EPCs (class A) = 2484 

Total EPCs (class A) = 568 

Source: Building Registry 
(26.06.23) 
43,819 buildings (2.3.2023) 
(www.energiatodistusrekisteri.fi,  

Source: Building Registry (26.06.23) 

6,234 buildings (2.3.2023) 
(www.energiatodistusrekisteri.fi 

~3.7 million dwellings 
(au 01/01/2023) 

~257 million m² 
(Au 01/01/2023) 

4,932 

79,722 

69,381  The statistical foundation for the number of renovated NZEBs is 

currently limited, so these figures are therefore subject to un-
certainty. 
Total number of residential buildings in Estonia (taken into use 
before 2000): 
Single-houses (private houses): ~155,150  
Apartment buildings: ~22,600  
Total ~178,000 
Source: Estonian LTRS 2020  

50,053 

51 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
DE 

GR 

HU 

IE 

LU 

MT 

NL 

PT 

SK 

SE 

2016: 109,990 
2017: 110,051 
2018: 107,581 
2019: 108,071 
2020: 112,935 
2021: 102,955 

2016: 24,402 
2017: 23,956 
2018: 24,321 
2019: 23,642 
2020: 24,310 
2021: 22,358 

403-1,068 

90-213 

2016: 134,392 
2017: 134,007 
2018: 131,902 
2019: 131,713 
2020: 137,245 
2021: 125,313 

493-1,281 

The NZEB-standard in Germany was introduced in 2016 and 
tightened in 2023. The given data relates to the first NZEB-
standard 

30,784 

3,379 

34,163  Please note that not all buildings have an energy certificate. 

6,434 (to Q1 2023) 

1,663 (Q1 2020-Q1 2023) 

Since 2017 every new residen-
tial building is a NZEB 

Since 2021 every new non-residential 
building is a NZEB 

the right column 

right column 

the right column 

The preparation of an energy certificate is mandatory for new 
buildings before they get the occupancy permit, so the numbers 
provided here are complete, however, the number of renovated 
buildings may be higher than the numbers provided. The num-
bers provided are based on the e-certification database. 

residential: 31,532 new and renovated together 
non-residential: 545 new and renovated together 
total: 32,077 

140,000 (Number of building 
units with valid EP-certificate on 
January 1st 2023.) 
Design phase 50,812 building 
units  
Built 675 building units 

6,500 (  Estimation of non-residential 
building units) 

146,500 

of residential buildings in the period 2015-2020.  

Design phase 1,693 
Built 79 

Design phase 52,505 
Built 754 

21,422 

518 

21,940  Status: april 2023 (CA EPBD), unit: building, source: Inforeg 

(central evidence of ECs) 

Totally 23,198 new NZEB build-
ings in 2022, i.e., got energy 
class  
A C in 2022.  
(Includes renovated buildings in 
2022.) 

Totally 1,426 new NZEB buildings in 
2022,  
i.e., got energy class  
A C in 2022.  
(Includes renovated buildings in 2022.) 

Source: JRC elaboration, 2025 

52 

 
 
 
 
 
 
 
 
 
 
Table 15. Renovated NZEB stock number 

Residential 

Non-residential 

Total 

additional info 

BE 
- 
Wa 

BE 
- 
Fl 

HR 

CY 

DK 

EE 

FI 

FR 

DE 

7,000 building units 

7,000 building 
units 

Renovated: to date 
non-
No data available for renovated 

±6,000 (IER),  
±21,000 apartments label A 
±6,000 SFH label A 

±3 mill (residen-
tial) 

±1 mill valid Energy Performance 

dential building stock 

714 

1,860 

246 

619 

960 

15,642 

1,665 

17,307 

28,000 

~33,00 

Source: Estonian LTRS 2020 

~700 

Source: 
Estonian LTRS 
2020 

Estimation on the basis of 
energy certificate registry is 
24,400 buildings. 

Estimation on the 
basis of energy 
certificate registry 
is 3,600 buildings. 

2,377 buildings 
representing 157,945 homes 

~4.3 mill m² 
(au 01/01/2023 

The following numbers are 
from a subsidy program. 
Therefore, they only describe 
some renovations and do not 
include all renovations to 
NZEB. This is owed to a lack 
of data. 

2021: 9,345 
2022: 22,898 
*the numbers for 2022 are 
preliminary. 

The following 
numbers are from 
a subsidy pro-
gram. Therefore, 
they only describe 
some renovations 
and do not include 
all renovations to 
NZEB. This is 
owed to a lack of 
data. 

2021: 496 
2022: 1,703 
*the numbers for 
2022 are prelimi-
nary. 

The statistical foundation for the 
number of renovated NZEBs is cur-
rently limited, so these figures are 
therefore subject to uncertainty. 
Total number of non-residential 
buildings in Estonia (taken into use 
before 2000): 
~32,000 (buildings with climate 
control, i.e. office, educational and 
commercial buildings etc).  
Source: Estonian LTRS 2020 

The NZEB-standard in Germany 
was introduced in 2016 and tight-
ened in 2023. The given data re-
lates to the first NZEB-standard 

GR 

10,663-15,446 

1,595-18,87 

12,258-17,333 

HU 

6,006 

3,770 

9,776 

IE 

27,281 to date 

53 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
MT 

on the right column 

right column 

right column 

NL 

4,800  

residential: 31,532 new and reno-
vated together 
non-residential: 545 new and reno-
vated together 
total: 32,077 
NL has monitored the amount of 

residential buildings in the period 
2015-2020.  

PT 

SK 

SE 

Design phase 1,806  
Built 10 

Design phase 612 
Built 16 

Design phase 
2,418 
Built 26 

3,011 

379 

3,390 

Status: april 2023 (CA EPBD), unit: 
building, source: Inforeg (central 
evidence of ECs) 

Not available. Can´t be sepa-
rated from newly constructed 
NZEB buildings.  

Not available. 
Can´t be sepa-
rated from newly 
constructed NZEB 
buildings 

Source: JRC elaboration, 2025 

Some Member States provided information about NZEB related indicators in their NECPRs, reporting 
their values for the year 2022 (not cumulative). The monitored indicators are the number and the 
total floor area of NZEBs (in m2). Both indicators are requested to be completed by Member States in 
total  numbers,  as  well  as  distinguished  by  residential,  non-residential  (private  sector)  and  public 
buildings.  They  are  also  disaggregated  as  new  and  renovated  NZEBs.  Even  if  less  than  the  half 
Member States completed this field, the available information is illustrated in the following figures. 

54 

 
 
 
 
 
 
 
Figure 13. Percentage of residential NZEBs added to the total building stock in Member States with available 
data (2022)5 

Source: JRC elaboration, Building Stock Observatory, 2025 

Figure 14. Percentage of non-residential NZEB (private and public sector) added to the total building stock in 
Member States with available data (2022)6 

Source: JRC elaboration, Building Stock Observatory, 2025 

5 The data for the total building stock are exported from the Building Stock Observatory and correspond to the year 2020 (the only year 
with available data) 

6 The data for the total building stock are exported from the Building Stock Observatory and correspond to the year 2020 (the only year 
with available data) 

55 

 
 
 
                                                 
 
Ireland  reported  more  than  15,000  new  residential  buildings,  while  a  similar  number  of  NZEB 
renovation was reported by  Greece, leading to shares of residential NZEBs to the total  residential 
building stock of 0.99% and 0.45%, respectively. Indicators such as the number of renovated and 
new NZEBs as percentages to the total building stock or divided by population can give more insights 
about  the  trends.  Non-residential  NZEBs  are  significantly  fewer  than  residential  ones.  For  private 
sector, Greece and Hungary reported the highest number of renovated buildings (1,754 and 1,297 
respectively), while Czechia reported the highest number of new NZEBs (706). Finally, for public sector, 
Hungary  reported  the  highest  number  of  both  new  and  renovated  NZEBs.  Hungary  registered  the 
largest share of non-residential NZEBs to the total building stock (1.93%). 

Floor area data are reported in Figure 15 and Figure 16. 

Figure 15. Percentage of floor area of residential NZEBs added to the total building stock in Member States 
with available data (2022)7 

Source: JRC elaboration, Building Stock Observatory, 2025 

7 The data for the total building stock are exported from the Building Stock Observatory and correspond to the year 2020 (the only year 
with available data) 

56 

 
 
 
 
                                                 
 
Figure 16. Percentage of floor area of non-residential NZEBs (private and public sector) added to the total 
building stock in Member States with available data (2022)8 

Source: JRC elaboration, Building Stock Observatory, 2025 

The findings are similar for floor area indicators (Figure 15, Figure 16). Regarding new and renovated 
residential  NZEBs,  Hungary  reported  the  highest  number,  while  Ireland  reported  the  highest  share 
(1.12%). As regards renovated NZEB floor area, Greece reported the highest value for non-residential 
ones (public and private sector), while Hungary registered the highest value for new non-residential 
buildings. The highest share of NZEB floor area to the total non-residential buildings useful floor area 
is registered by Croatia (2.1%). 

Despite  the  fragmented,  conservative  and  high  technical  building  sector,  policies  are  effectively 
contributing to mitigate the energy demand and boost NZEBs implementation. 

As  reported,  measures  can  target  the  envelope  (thermal  insulation,  glazing,  thermal  bridges)  or 
heating  /cooling  generation  and  distribution  systems.  Furthermore,  measures  targeting  smart 
metering and control systems to better control supplied services, giving information to the occupant 
and  their  behaviour  to  encourage  conservation  measures.  Additional  measures  address  air 
conditioning, ventilation, hot water and lighting. 

To further increase energy savings, apart from the progress in energy efficiency, change in consumer 
behaviour, the inclusion of social- economical characteristics and the human dimension will be crucial 
for NZEBs development. 

8 The data for the total building stock are exported from the Building Stock Observatory and correspond to the year 2020 (the only year 
with available data) 

57 

 
 
 
 
                                                 
 
4.  NZEB performance levels and cost-optimal levels of minimum 

energy performance requirements in Member States 

Member States are required to calculate minimum energy performance requirements for buildings to 
establish  cost-effective  levels  for  new  and  existing buildings.  The  provisions  outlined in  the  EPBD 
must be updated regularly, at least every five years. The 'cost-optimal methodology' is a comparative 
framework  introduced  in  the  Commission  Delegated  Regulation  no.  244/2012  along  with  its 
implementation Guidelines. This methodology employs a cost-benefit analysis principle, considering 
both financial and macroeconomic perspectives, the first includes taxes, while the second greenhouse 
gas  emission  costs  [EC,  2012a,  2012b].  Member  States  have  to  ensure  that  minimum  energy 
performance requirements for buildings or building units are set with a view to at least achieving 
cost-optimal levels as well as more stringent reference values of NZEB and ZEB requirements. The 
energy performance shall be calculated in accordance with the methodology referred to in Article 4. 
As stated in Article 5 of the revised EPBD, cost-optimal levels shall be calculated in accordance with 
the comparative methodology framework referred to in Article 6. 

Initiated in 2013, subsequent rounds of cost-optimal level calculations were conducted in 2018 and 
2023. The JRC evaluated national calculations for adherence to the common methodology and the 
plausibility of results in both 2018 and 2023 [Zangheri et al., 2022a, b]. The deadline for the third 
revision of cost-optimal energy performance levels was March 2023. By June 2024, 22 countries had 
submitted their updated calculations and the assessment is on-going. 

This  section  compares  the  cost-optimal  levels  of  the  first  11  reports  received  (from  Flanders, 
Wallonia, Bulgaria, Cyprus, Czechia, Denmark, Estonia, Finland, France, Poland, and Spain) with their 
national/regional  NZEB  performance  levels,  by  building  category.  The  comparison  is  based  on  the 
primary  energy  demand  level,  whether  total  or  non-renewable,  depending  on  how  each  country 
calculated and defined the cost-optimal level of energy performance. For instance, Flanders, Wallonia, 
Cyprus, and Finland compared the cost-optimal levels with the requirements in force (NZEB) of total 
primary energy. Therefore, for these countries/regions, the figures below refer to the total primary 
energy demand for both cost-optimal  and NZEB levels. For the other countries, the comparison is 
based on non-renewable energy demand for both cost-optimal and NZEB levels.  

In addition, the gap between NZEB and cost-optimal levels is illustrated for each country (red dots 
with values reading on the secondary vertical axis). For clarity, the 15% gap benchmark is also shown 
(red line). 

58 

 
Figure 17. Comparison between cost-optimal and NZEB levels of energy performance (in primary energy 
demand) for new single-family houses 

15% gap 

Source: JRC elaboration, 2025 

Notes: Comparison based on total primary energy: Flanders, Walloon, Cyprus, and Finland. Comparison based on non-

renewable primary energy for the rest of Member States. 

It is observed that, in most cases, cost-optimal levels are aligned with NZEB levels, indicating that the 
current national NZEB definitions for single family houses are set at cost-optimal levels according to 
the  most  recent  national  reports  on  the  cost-optimal  methodology  (Figure  17).  This  alignment  is 
logical for new buildings, considering that NZEB has been a mandatory target since 2021. Indeed, 
another  interesting  aspect  of  this  comparison  is  determining  whether  the  current  requirements 
identified by countries in the cost-optimal calculations correspond NZEB definitions. For almost all 10 
countries, the requirements in force meet NZEB levels, as verified by cross-checking the cost-optimal 
report with JRC data collection. However, this is not the case for Estonia, and Czechia did not provide 
current requirements for new buildings in the cost-optimal reports. 

59 

 
 
Figure 18. Comparison between cost-optimal and NZEB levels of energy performance (in primary energy 
demand) for new offices 

15% gap 

Source: JRC elaboration, 2025 

Looking  at  new  non-residential  buildings  with  offices  as  case-study,  Figure    compares  the  cost-
optimal levels of primary energy demand with NZEB levels. Similar to new single family houses, cost-
optimal  levels  and  NZEB  levels  appear  aligned  (or  within  15%  gap)  in  almost  all  10  investigated 
countries/regions. Similarly, for new offices, current requirements are identified as NZEB levels, as 
verified by cross-checking the cost-optimal reports with JRC data collection. 

60 

 
 
Figure 19. Comparison between cost-optimal and NZEB levels of energy performance (in primary energy 
demand) for existing single-family houses 

15% gap 

Source: JRC elaboration, 2025 

The comparison of cost-optimal levels with NZEB levels for existing single family houses undergoing 
NZEB renovation reveals that in almost all countries NZEB levels are significantly more ambitious 
than the cost-optimal levels, with all gaps being below 0% (except Cyprus) (Figure ). This suggests 
that these countries have set very ambitious NZEB renovation levels compared to what is identified 
as cost-optimal. Indeed, in some countries, NZEB renovation is as ambitious as new NZEB (Wallonia, 
Bulgaria, Cyprus, Czechia) or more ambitious (Finland).  

However,  the  situation  is  slightly  different  for  existing  offices  undergoing  NZEB  renovation  as 
compared to cost-optimal levels (Figure 2). Among the nine countries for which the comparison was 
feasible, in three the cost-optimal primary energy demand is lower than the current NZEB primary 
energy  demand (Flanders,  Cyprus  and  Denmark),  while  in the  others is  either  aligned  (Czechia)  or 
higher.  

61 

 
 
Figure 20. Comparison between cost-optimal and NZEB levels of energy performance (in primary energy 
demand) for existing offices 

15% gap 

Source: JRC elaboration, 2025 

In the previous assessment of NZEB levels compared to cost-optimal levels in 2018, NZEB primary 
energy demand was found to be 50% lower than cost-optimal primary energy demand. In the present 
assessment, this difference has been reduced. Except for existing single-family houses, where the 
overall difference remains about 50%, NZEB primary energy demand is now within a 10% lower than 
the cost-optimal levels in other cases. However, so far, the analysis includes only 11 countries. For 
consolidated results, it is necessary to include the other Member States in the assessment. 

62 

 
 
 
5. Overview of technologies for NZEBs

The  NZEB  target  is  reachable  with  targeted  technologies  and  best  practices  (Figure  21).  The 
combination  of  high  efficient  solutions  (e.g.  thermal  insulation,  efficient  windows,  heat  recovery, 
airtightness) to minimise the energy demand for building operation and supply the remaining demand 
to a large extend with renewables produced onsite. 
lifestyle.  

Figure 21. Concept of NZEB 

Source: modi

A broad scale shift towards NZEBs requires an effort to integrate efficient solutions and renewables 
(e.g. photovoltaics, solar thermal, geothermal, ambient heat and biomass). These could be on site or 
close to the building site, as shown in Table 16 [modified from: Feng et al, 2019]. 

63 

Table 16. Renewable options for NZEBs 

Renewable location 

Example scheme 

Renewable energy within the building footprint 

Renewable energy within the boundary of the building site 

Off-site renewable energy to provide energy  

Purchase renewable energy generate off-site. 

Source: modified from: [Feng et al, 2019] 

Within a cluster of private and public units, the energy demand can be met by renewable energy self-
produced within the neighborhood. NZEB can be scaled-up and integrated to a district level, shifting 
from  single  buildings  to  districts.  At  city  scale,  this  concept  includes  a  wider  vision  of  urban 
sustainability that foresees innovative solutions for lighting, urban mobility, and public safety (Figure 
2).  

64 

 
 
 
 
 
 
Figure 22. Design of new NZEBs 

Source: JRC elaboration, 2025 (generated using DALL-E version 4.0) 

As reported in Section 2 of this report, some Member States include energy produced from renewables 
in  their  primary  energy  indicator  while  others  no.  Not  all  types  of  renewables  are  considered  by 
countries.  Most  countries  count  mostly  on  PV  (whose  benchmark  cost  of  electricity  generated 
decreased by over 75% since 2009 [Jäger-Waldau, 2022]) and solar thermal for their NZEB, while 
other less used sources are: biomass (sometimes under certain conditions), wind, hydro, renewable 
district heating, etc. (Figure 23).  

65 

 
 
 
Figure 23. Renewable energy technologies included in NZEB definition, EU Member States 

Biogas

Renwables district heating

Hydro/wave

Wind

geothermal/heat pumps

Biomass

PV

Solar thermal

0

2

6

4
10
Number of Member States

8

12

14

Source: JRC elaboration, 2025 

From JRC data collection, most Member States provided information on commonly used technologies 
for  NZEB,  distinguished  by  new  and  existing  buildings  and  on  the  minimum  requirements  of  the 
technical  systems if any. These could regard requirements for heating, cooling, DHW, lighting and 
ventilation  systems.  Other  requirements  relate  thermal  insulation,  indoor  air  temperature  or  air 
humidity, and comfort criteria.  

The majority of Member States reported explicit requirements for heating, for both new and existing 
NZEBs  (19  and  15  Member  States  respectively).  Among  these  requirements  are  included:  pipe 
insulation (i.e. Slovakia), mandatory accreditation of gas and oil boilers prior to the use (i.e. Belgium 
 Walloon region), the compatibility with specific national standards (i.e. Denmark), maximum energy 
demand for heating (i.e. Cyprus), minimum Seasonal Coefficient of Performance indicator (i.e. Greece) 
or others.  

More  than  the  half  of  Member  Stated  included  specific  requirements  for  DHW  for  both  new  and 
existing NZEBs. These requirements could regard the pipe insulation (i.e. Belgium 
 Walloon region), 
the compatibility with specific national standards (i.e. Denmark), the minimum and maximum water 
temperature (i.e. Finland or Slovakia), the minimum RES share (i.e. Greece), the minimum Seasonal 
Coefficient  of  Performance  indicator  (i.e.  Spain)  or  others.  Most  Member  States  used  the  same 
requirements for DHW and heating in both new and renovated NZEB. Among the exceptions, there is 
the case of France, where specific standards for DHW in existing buildings have been set, while there 
are no explicit requirements for the new ones. Table 17 highlights in green the Member States that 
provided information about their minimum requirements for DHW and heating in new and renovated 
NZEB. 

Table 17. Domestic Hot Water (DHW) in new and existing NZEB, EU Member States 

Domestic Hot Water 

New 
NZEB 

Existing 
NZEB 

Heating 

New NZEB 

Existing NZEB 

AT 
BE - Br 
BE - 
Wa 
BE - Fl 

66 

 
 
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
BG 
HR 
CY 
CZ 
DK 
EE 
FI 
FR 
DE 
GR 
HU 
IE 
IT 
LV 
LT 
LU 
MT 
NL 
PL 
PT 
RO 
SK 
SI 
ES 
SE 

Source: JRC elaboration, 2025. 

Common NZEB technologies encompass both passive (e.g., sunshades, green, reflective and cool roofs, 
natural ventilation and lighting, night cooling) and active solutions (e.g., mechanical ventilation with 
heat recovery, heat pumps, efficient lighting, appliances, envelope). Integrating passive Phase Change 
Materials (PCMs) is emerging with applications within walls, ceilings, floors [Stritih et al., 2018] to 
reduce overheating by absorbing heat excess during daytime and releasing the stored heat at night, 
decreasing the need of Heating, Ventilation and Air Conditioning (HVAC) systems. Additionally, several 
Member States established specifications for cooling systems as these will be much more important 
in buildings due to foreseen climate change scenarios of temperature increase [D'Agostino & Parker 
2019]. In relation to cooling, less than the half of the Member States reported the inclusion of specific 
requirements for the cooling systems for new and existing NZEBs. These requirements could regard 
the distribution temperature (i.e. Luxembourg), the compatibility with specific national standards (i.e. 
Denmark, Croatia), the Seasonal Energy Efficiency Ratio (i.e. Greece) or other. Most Member States 
used  the  same  requirements  in  both  new  and  renovated  NZEB.  There  are  also  Member  Sates 
mentioning  the  inclusion  of  cooling  under  primary  energy  definition,  without  setting  specific 
requirements (i.e. Czechia). 

Ventilation,  central  or  decentralised,  is  very  important  also  to  improve  air  quality  through  the 
exchange of air, especially mechanical ventilation with heat recovery system  used in the largest part 
of NZEB buildings. Mechanical ventilation can include fans, ceiling fans, exhaust air systems, heat 
exchangers,  VRV  system  (variable  refrigerant  volume),  heat  recovery  units.  Requirements  on 
ventilation  systems  are  used  by  most  Member  States  (17  of  them  have  reported  information  on 
them). The mandatory use of ventilations systems with heat recovery is among the most common 
requirements. The heat recovery requirements range from 55% annual efficiency (Finland) to 85% 
(Luxembourg) as regards the new NZEB. Other requirements on ventilation systems include the air 
flows (i.e. Belgium or Finland), the specific fan power (i.e. Ireland or Sweden) or the compatibility with 
national standards and national legislation (i.e. Croatia or Malta). 

67 

 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
Member States can include the different end-uses in their NZEB definitions considering or not the co-
generation and waste heat.  According to the information collected, the 52% of Member States (Table 
18)  considers waste heat, co-generation or both in their primary energy indicator for new buildings, 
while less Member States provided explicit information showing that they consider these amounts in 
their definitions for existing buildings. Some countries reported that they consider them only under 
specific conditions (i.e. if RES, if a declaration of quality is available). Finally, 5 countries reported that 
they do not account waste heat in their primary energy definition, while 3 countries do not account 
co-generation.  

Table 18. Inclusion of co-generation and waste heat in primary energy definitions of new and existing NZEB, 
EU Member States 

New NZEB 

Existing NZEB 

Waste heat 

Co-generation 

Waste heat  Co-generation 

AT 
BE - Br 
BE - Wa 
BE - Fl 
BG 
HR 
CY 
CZ 
DK 
EE 
FI 
FR 
DE 
GR 
HU 
IE 
IT 
LV 
LT 
LU 
MT 
NL 
PL 
PT 
RO 
SK 
SI 
ES 

SE 

Colour code: green - included, red   non included, grey - not reported 

Source: NZEB data collection 

As for lighting systems, energy savings can be achieved by increasing the efficient use of daylight as 
well as by smart lighting systems. Explicit requirements on lighting systems have been set by 13 
countries. These requirements could regard indicators like the Watt/m2 ratio (i.e. Belgium 
 Walloon 
Region), the compatibility with standards (i.e. Croatia), the minimal efficacy and the maximal specific 
power  (i.e.  Spain).  Some  Member  States  set  requirements  for  lighting  systems  only  for  the  non-
residential buildings (i.e. the Netherlands). 

NZEBs can include on-site energy storage, smart technologies, electric vehicles charging [Wells et al, 
2018]. The incorporation of Vehicle-to-Home (V2H) technology in NZEBs has facilitated the growth of 
renewable  energy  deployment  and  there  is  a  growing  global  interest  in  electric  vehicles  and  V2H 

68 

 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
potential  to  minimize  renewable  energy  waste  and  emissions  [Ohene  et  al,  2021;  Alirezaei  et  al, 
2016].  This  technology  leverages  the  idle  batteries  of  electric  vehicles  as  grid  storage  resources, 
helping  to  stabilize  renewable  power  fluctuations  and  serve  as  backup  power  in  emergencies. 
Moreover, it is estimated that substituting fossil fuel cars within NZEB boundaries could lead to a 
reduction in emissions between 11% and 35% [Rehman et al, 2021].  

Over  last  decade,  developments  have  been  made  in  the  field  of  recovering  waste  to  energy  and 
energy  conservation  measures.  Other emerging  technologies  are:  nanotechnologies,  phase  change 
materials, prefabricated modules, 3D printing, vacuum insulated panels, ventilated facades with PV 
panels, electrochromic windows, integrated heating, ventilation, air conditioning along with electricity 
[Buonomano et al, 2020].  

The  higher  future  consideration  of  the  impacts  on  natural  environments  appears  important,  for 
example with the inclusion of regenerative energy strategies, vertical green, rainwater storage and 
treatment, waste management (Figure 2). 

Figure 24. Regenerative design principles. 

Source: Craft et al, 2017 

 Automation systems in lighting like presence detectors and daylight detectors can also guarantee 
energy  savings.  Building  management  and  energy  use  optimization  systems  (e.g.,  Intelligent  and 
Smart Technologies) are promising technologies, including the Internet of Things (IoTs) and Artificial 
Intelligence (AI) for intelligent home energy management for affordable NZEBs [Aliero et al, 2021]. 
AI has demonstrated its capabilities in various areas, including learning techniques (such as Artificial 
Neural  Networks,  machine  learning,  Support  Vector  Machines,  deep  learning,  and  reinforcement 
learning), optimization methods (genetic algorithms, particle  swarm optimization), control  systems 
(expert systems, fuzzy logic, model-based predictive control,  and multi-agent systems)  for energy 
system management focused on energy conservation [Lee et al, 2022; Yan et al, 2021]. 

69 

 
 
Among AI key applications for NZEBs: indoor environment detection and control (e.g., temperature, 
humidity, and air quality), efficiency in multi-energy utilization, the predictive accuracy of forecasting 
for optimal control (Heating, Ventilation and Air-Conditioning - HVAC and lighting systems) [Yang et 
al, 2020]. AI has also played a significant role in simplifying the optimization of renewable energy 
technologies and minimizing energy consumption and emissions to achieve NZEBs. For instance, a 
machine learning model based on Residual Neural Networks was developed to predict and optimize 
the performance of HVAC systems in NZEBs [Pittarello et al., 2021]. This model is believed to reduce 
computational  time  and  improve  simulation-based  optimization  in  NZEB  design.  Additionally,  an 
automatic  energy  assessment  tools  using  Artificial  Neural  Networks  was  developed  to  estimate 
energy consumption in buildings with limited data [Ferrara et al, 2021]. Further effort is needed to 
enhance  automatic  load  tracking  and  self-adaptive  control  for  logic  and  process,  which  can  help 
analyze occupant behaviour, a crucial aspect of building and energy performance simulation.  

70 

 
 
6.  From NZEBs to ZEBs 

To achieve a decarbonized building stock by 2050, Zero-Emission Buildings (ZEBs) were introduced in 
the EPBD revision among other measures. A ZEB is defined as a building with very low energy demand, 
zero  on-site  carbon  emissions  from  fossil  fuels  and  zero  or  a  very  low  amount  of  operational 
greenhouse gas emissions. All new buildings should be zero-emission buildings by 2030, and existing 
buildings should be transformed into ZEBs by 2050. 

The  total  annual  primary  energy  consumption  must  be  covered  by  on-site  and  nearby  renewable 
energy  sources,  renewable  energy  communities,  efficient  district  heating  and  cooling  systems,  or 
other carbon-free energy sources. Member States should establish maximum thresholds for the total 
annual primary energy use of ZEBs that are at least 10% lower than national NZEBs at the time of 
implementation. Additionally, operational GHG emissions should meet a national maximum threshold. 
The  primary  objective  at  the  EU  level  is  for  public  buildings  to  be  ZEBs  by  2028  and  for  all  new 
buildings to meet the ZEB standard by 2030. 

The  concept  of  ZEBs  must  be  properly  understood  and  implemented,  avoiding  the  delays  that 
characterized  the  initial  NZEB  implementation  [Maduta  et  al,  2022].  This  concept  has  gained 
prominence and adoption globally over the past two decades as a key strategy for decarbonizing the 
building sector. A general consensus is that a ZEB represents an innovative sustainability approach, 
characterized  by  high  energy  efficiency  and  the  capacity  to  generate  renewable  energy  to 
counterbalance its (GHG) emissions. . The scientific terminology of Zero Emission [ZEB, 2022; Skaar 
et al, 2018] or Net Zero Emission [Good et al, 2015, Ruparathna et al, 2017], Zero Carbon [Riedy et 
al, 2011], or Zero Carbon Ready [IEA, 2021] encompasses energy efficiency upgrades, the integration 
of renewable energy resources, and cautious carbon offsetting strategies.  

6.1.  Projected ZEB levels 

To understand how potential ZEB performance levels would look at the national level based on current 
NZEB levels, Figure 2 and Figure 2 compare the national NZEB levels for new buildings, the indicative 
ZEB levels and the NZEB recommended benchmarks. The indicative ZEB levels are calculated by taking 
the current national levels of total primary energy demand for NZEBs and reducing them by 10%. The 
estimation of NZEB levels of total primary energy demand follows the methodology provided in this 
report. When insufficient information was available, total  primary energy demand was considered 
equal to the non-renewable primary energy demand. 

71 

 
 
 
Figure 25. Comparison between national NZEB levels for new buildings, indicative ZEB levels and NZEB 
recommended benchmarks in total primary energy demand for residential buildings (single family houses) 

Source: JRC elaboration, 2025 

The comparison shows a very diverse landscape. Looking at the upper boundary of the recommended 
benchmark  (Figure  2,  orange  line),  less  than  half  of  the  countries  fall  short  of  the  threshold  (14 
countries). The 10% more ambitious ZEBs further enhance the trends, with 8 countries above the 
upper threshold (Table 7). When considering different climatic zones, Continental countries are less 
compliant, with 4 out of 8 definitions being less ambitious than the upper boundary, whereas the 
Oceanic group has more compliant definitions, with only 1 out of 9 definitions exceeding the upper 
boundary.  .  However,  looking  at  the  lower  boundary  of  the  recommended  benchmark  range,  the 
performance  levels  of  both  NZEB  and  indicative  ZEB  are  not  compliant  in  most  countries.  In  this 
regard,  Oceanic  countries  tend  to  be  more  compliant,  while  the  Nordic  group  has  no  compliant 
definition. 

72 

 
   
 
Figure 26. Comparison between national NZEB levels for new buildings, indicative ZEB levels and NZEB 
recommended benchmarks in total primary energy demand for non-residential buildings (offices) 

Source: JRC elaboration, 2025 

Figure 2 compares the national NZEB performance levels, NZEB recommended benchmarks (lower 
and  upper  boundary,  table  7)  and  indicative  ZEB  performance  levels  in  total  primary  energy),  for 
offices. Similar to single-family houses, the national ZEB primary energy levels were calculated as 
10% lower than the NZEB primary energy levels for offices. 

Overall,  the  comparison  reveals  a  generally  positive  outlook.  In  this  case,  it  appears  that  only  6 
countries have higher NZEB performance values than the upper boundary of the recommended total 
primary energy range. A 10% more ambitious ZEB does not change this compliance. Looking at the 
lower limit of the recommended total primary energy, 13 current NZEB definition are not compliant, 
while only 8 indicative ZEB levels are non-compliant. Overall, the Mediterranean group appears the 
least ambitious, while the Oceanic group is the most ambitious.  

6.2.  Open issues 

A main challenge on the transition from NZEB to ZEB is the energy performance level. While this ZEB 
level  is  by  definition  more  stringent  than  NZEB  level  (at  least  10%),  a  significant  issue  is  its 
comparison to  the  NZEB  concept  in terms  of  energy  demand.  The  total  primary  energy  of NZEBs, 
which  vary  widely  across  Member  States from  30  kWh/(m²y)  in  Flanders  to  128  kWh/(m²y)  in 
Romania (climate zone 2) for new single-family houses, and from 40 kWh/(m²y) in Luxembourg to 
220 kWh/(m²y) in Malta for offices highlight this inconsistency. This indicates that also ZEB levels 
will vary considerably across the Member States with many definitions possibly not in line with the 
recommended NZEB levels. 

It is noted that when comparing the current NZEB levels with the EC-recommended benchmarks for 
non-renewable primary energy demand, they are less compliant than when compared based on total 
primary energy demand. Although the benchmarks suggest a high contribution of renewables (70% 

73 

 
 
for  Mediterranean  countries  and  50%  for  Oceanic  countries),  the  renewable  energy  contributions 
mandated  in  national  NZEBs  vary  significantly.  Concretely,  this  varies  widely  in  both  new  and 
renovated NZEBs, ranging from 9-10% to 60% in new NZEBs, and up to 55% in NZEB renovations. In 
several cases the renewable energy share is not well defined and thus the total energy reflects the 
non-renewable energy, marking several definitions non-compliant. Therefore, another significant ZEB 
challenge is the integration of renewable energy sources. 

The new ZEB requirements address this aspect this by clearly defining acceptable energy sources 
from 2030 onwards. On-site building systems (such as those for heating, cooling, ventilation, lighting, 
and domestic hot water) must produce no carbon emissions from fossil fuels, meaning they must be 
powered  by  renewable  energy.  This  may  prove  challenging  particularly  for  buildings  with  limited 
access  to  on-site  renewable  energy  sources.  To  meet  this  requirement,  buildings  must  drastically 
reduce their energy demand, in line with the "energy efficiency first" principle, to remain within the 
ZEB criteria. This could require substantial revisions to some existing NZEB thresholds. However, the 
directive provides additional energy source options for ZEBs such as nearby generated renewable 
energy, renewable energy communities, efficient district heating/cooling, and carbon-free sources
that could help facilitate the adoption and deployment of ZEBs, especially for buildings with limited 
access  to  locally  sourced  renewable  energy.  Currently,  the  majority  of  countries  rely  on  on-site 
production from solar energy (photovoltaics and thermal collectors) in their NZEB definition. Given 
this context, Member States will need to explore and exploit additional renewable options, as indicated 
by the recast directive. 

Furthermore, as the focus shifts towards decarbonisation, the revised EPBD requires Member States 
to establish maximum operational GHG emission thresholds for ZEBs. Currently, only few countries 
include emission requirements in their NZEB definition.  Table 1 summarises these requirements. It 
was observed that emissions criteria are generally considered a secondary indicator, with primary 
energy use especially non-renewable energy often serving as a proxy for operational emissions. 
Consequently,  countries  typically  prioritize  limiting  primary  energy  use  in  line  with  current  NZEB 
definitions rather than directly targeting emissions. However, in most countries, GHG emissions are 
calculated  and  displayed  on  the  EPC,  with  some  countries  (such  as  Austria,  France,  Luxembourg, 
Romania,  and  Spain)  including  an  EPC  class  specifically  for  emissions.  This  suggests  that  while 
emissions are not a central focus in most current NZEB definitions, they are partially addressed in 
national building standards, setting the stage for the potential introduction of emission thresholds by 
2030. In this context, the established cost-optimal methodology, which is already widely adopted by 
Member States, could be a valuable tool for benchmarking operational emissions. It helps find the 
most cost-effective balance between energy efficiency and renewable energy integration, tailored to 
the specific conditions of each country or region. 

Table 19. Requirements on GHG emissions in national NZEB definitions 

BE  Wa 

BE Fl 

HR 

CY 

CZ 

DK 

EE 

FI 

No 

No 

No 

No 

No  

Life-cycle emissions requirements. New buildings with energy requirements and a heated floor area 
of more than 1000 m2 shall not have emissions that exceed 12 kg CO2-eq//m2y) based on a life cycle 
assessment. 
No 

No 

74 

 
FR 

DE 

GR 

HU 

IE 

LU 

MT 

NL 

PL 

PT 

RO 

SK 

SI 

ES 

SE 

No 
The CO2 emissions are limited, the delivered energy for heating, DHW, ventilation, and cooling are not 
exceeding 55% of reference building value 
No 

No 

Yes 
Residential: New NZEB; 7-8 kg CO2/(m2y) 
Non-residential: Where the actual building performance has a carbon dioxide emissions performance 
equal to, or lower than 1.15 times the carbon dioxide performance (kgCO2/m2y) of the building mod-
elled it achieves the NZEB performance specification for carbon dioxide emissions.  
No 

No 

No 

No 

No 

Yes, with thresholds (details below) 

No 

No 

No 

No 

Source: JRC elaboration, 2025 

As shown in Table 1, the majority of Member States have not established requirements in NZEBs in 
relation to CO2 emissions. Among the countries that provided requirements, Romania distinguished 
new and existing NZEBs depending on climate (Table 20).  

Table 20. Romania requirements on CO2 emissions 

Climatic zone 1 

Single family house 

Multi-family house 

Offices 

Hotels 

Hospitals 

Others (Education) 

Others (Commercial) 

Others (Sporting activities) 

Climatic zone 2 

NEW NZEBs 

RENOVATED NZEBs 

CO2 emissions   
kg/(m2y) 

CO2 emissions   
kg/(m2y) 

14.7 

12 

10.1 

11.7 

19 

7.3 

11 

10.4 

22.1 

17.9 

15.4 

17.4 

28.4 

10.9 

16.5 

15.7 

NEW NZEBs 

RENOVATED NZEBs 

CO2 emissions   
kg/(m2y) 

CO2 emissions   
kg/(m2y)  

75 

 
 
 
 
 
 
 
 
 
 
Single family house 

Multi-family house 

Offices 

Hotels 

Hospitals 

Others (Education) 

Others (Commercial) 

Others (Sporting activities) 

Climatic zone 3 

Single family house 

Multi-family house 

Offices 

Hotels 

Hospitals 

Others (Education) 

Others (Commercial) 

Others (Sporting activities) 

Climatic zone  4 

Single family house 

Multi-family house 

Offices 

Hotels 

Hospitals 

Others (Education) 

Others (Commercial) 

Others (Sporting activities) 

Climatic zone 5 

16 

12.8 

10.9 

12.5 

20.2 

8.1 

12.2 

11.3 

26.3 

19.1 

16.5 

18.5 

30.1 

12 

18.3 

16.9 

NEW NZEBs 

RENOVATED NZEBs 

CO2 emissions   
kg/(m2y) 

CO2 emissions  
kg/(m2y) 

17.1 

13.5 

11.5 

13.1 

21.1 

8.8 

13.3 

12 

25.5 

19.9 

17.2 

19.4 

31.3 

13.1 

19.7 

17.9 

NEW NZEBs 

RENOVATED NZEBs 

CO2 emissions   
kg/(m2y) 

CO2 emissions   
kg/(m2y) 

18.5 

14.3 

12.2 

13.9 

22.3 

9.7 

14.6 

12.9 

27.5 

21.1 

18.2 

20.6 

32.9 

14.4 

21.6 

19.1 

NEW NZEBs 

RENOVATED NZEBs 

CO2 emissions   
kg/(m2y) 

CO2 emissions  
kg/(m2y) 

76 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Single family house 

Multi-family house 

Offices 

Hotels 

Hospitals 

Others (Education) 

Others (Commercial) 

Others (Sporting activities) 

Source: JRC elaboration, 2025 

19.9 

15.1 

13 

14.7 

23.5 

10.6 

16 

13.7 

29.5 

22.3 

19.2 

21.7 

34.5 

15.6 

23.5 

20.3 

To ensure the achievement of climate targets, NZEB could also include CO2 emission indicators as 
additional requirements for the energy performance of the building. It is estimated, starting from CO2 
emissions for the building sector of approximately 1.100 MtCO2 in 1990 (direct and indirect emissions 
for heating, domestic hot water (DHW) and cooling purposes) and assuming a useful floor area in 
2050 of 38 billion m² in 2050, a 90% decrease of emissions would require an average CO2 emissions 
of  maximum  3  kgCO2/(m²y)9.  So,  NZEB  requirements  for  new  buildings  should include  nearly zero 
carbon emissions below approx. 3 kgCO2/(m²y) [BPIE, 2021].  

Moving towards a decarbonised life-cycle of buildings, starting in 2030, life-cycle Global Warming 
Potential (GWP)10 calculations will be introduced for new buildings Looking ahead, reducing embodied 
carbon in the design phase of both new buildings and renovations will be crucial, potentially through 
the  use  of  binding  benchmarks.  According  to  the  International  Energy  Agency  (IEA),  newly  built 
buildings must not exceed a net CO2 emission rate of 8-10 kg CO2/(m2y) over the life-cycle of the 
building  [IEA,  2019].  Opting  for  locally  available,  low-carbon  materials  can  cut  emissions  from 
materials  and  transportation.  Additionally,  emphasizing  the  use  of  natural  materials  would  help 

9 1,100 MtCO2 x (100%-90%) / 38 billion m² = 2.89 kg/(m²y) 
10 The life-cycle GWP measures the total GHG emissions associated with the life-cycle of a building, expressed in terms of 

-eq). 

77 

 
 
 
 
 
                                                 
 
7.  Conclusions  

Reducing energy consumption in buildings is crucial for the EU strategy to meet future climate and 
energy  objectives.  NZEBs  play  a  critical  role  in  achieving  a  decarbonised  building  stock.  The  data 
collected  to  assess  the  status  of  NZEBs  implementation  in  Member  States  are  encouraging  and 
demonstrate  a  tangible  progress  compared  to  previous  assessments.  Based  on  Member  States 
national  definitions,  the  NZEB  performance  level  is  assessed  as  non-renewable  primary  energy 
demand as follows: 

for single-family houses from 15 to 95 kWh/(m2y) with an average at EU level of 54 kWh/(m2y) for 
new buildings, from 30 kWh/(m2y) and 135 kWh/(m2y) with an average at EU level of 73 kWh/(m2y) 
for existing buildings under renovation to NZEB level; 

for offices, from 28 and 220 kWh/(m2y) with an EU average of 73 kWh/(m2y) for new buildings, from 
30 and 152 kWh/(m2y) with a EU average of 90 kWh/(m2y) for existing buildings renovated to NZEB 
level. 

NZEB levels for new buildings are more demanding than those for NZEB renovation. On average, the 
non-renewable primary energy consumption of new NZEB buildings is approximately 30% lower than 
that of renovated NZEB buildings. Comparing the national NZEB levels with the NZEB recommended 
benchmark, it was observed that in most cases the national NZEB primary energy demand is less 
ambitious than the recommended benchmarks, particularly for existing buildings renovated to NZEB 
level. 

Interestingly, cost-optimal levels align with NZEB levels (within 15% gap), suggesting that current 
national NZEB definitions for single-family houses are established at cost-optimal levels, based on 
the most recent national cost-optimal reports (on going assessment). For existing buildings, in almost 
all Member States, NZEB levels are significantly more ambitious than the cost-optimal levels. NZEB 
primary energy demand is within a 10% lower than the cost-optimal levels except for existing single-
family houses. 

In terms of U-values in NZEBs, the data collected highlighted the following main outputs: 

For new buildings, walls U-values range from 0.13 to 1.57 W/(m2K) with an average of 0.32 W/(m2K), 
roof U-values from 0.09 to 0.49 W/(m2K) with an average of 0.23 W/(m2K), windows U-values from 
0.85 to 4.00 W/(m2K) with an average of 1.59 W/(m2K), floors U-values from 0.14 to 1.97 W/(m2K) 
with an average of 0.36 W/(m2K); 

For  existing  buildings,  walls  U-values  range  from  0.13  to  1.57  W/(m2K)  with  an  average  of  0.33 
W/(m2K),  roof  U-values  from  0.09  to  0.49  W/(m2K)  with  an  average  of  0.24  W/(m2K),  windows U-
values  from 0.85 to 4.00 W/(m2K) with an average of 1.64 W/(m2K), floors U-values from 0.14 to 
1.97 W/(m2K) with an average of 0.37 W/(m2K). 

In relation to renewable energy, in nearly 70% of NZEB definitions, renewable energy requirements 
are outlined for new buildings, while for existing buildings undergoing NZEB renovation, this number 
drops to over 40%. The renewable energy contribution varies widely in both new and renovated NZEBs, 
ranging from 9-10% to 60% in new NZEBs, and up to 55% in NZEB renovations. Solar technologies, 
(PV and solar thermal collectors) are considered by all countries, and a few quantify the PV supply 
share.  Most  implemented  technologies  in  NZEBs  are  passive  (sunshade,  natural  ventilation  and 
lighting,  thermal  mass,  night  cooling),  and  active  (mechanical  ventilation  with  heat  recovery,  heat 
pumps  or  district  heating),  in  combination  with  efficient  lighting  and  appliances.  Smart  and  new 
emerging technologies, digitalization, automation, AI, and the internet of things are more integrated 

78 

 
 
in NZEBs together with electric vehicles charging, recovering waste to energy, consideration of energy 
conservation, climate change, comfort, health, and embodied energy. 

The  analysis  from  LTRS,  NECPs,  NECPR  also  showed  how  progress  in  terms  of  national  policies, 
measures and provisions for NZEBs. Several Member States defined long-term milestones for 2030, 
2040 and 2050 related to NZEBs implementation (e.g. percentage of NZEB to the total building stock, 
energy savings from NZEB, number of dwellings to be renovated to NZEB, floor are of NZEB buildings). 
Twenty  Member  States  reported  NZEB  measures  in  the  NECPRs,  most  regulatory  and  legislative 
(38%),  economic  (29%),  information  (11%),  planning  (6%),  voluntary/negotiated  agreements, 
education and other (4%). These measures can affect the whole building sector (61%), be targeted 
to  public  buildings  (15%)  or  to  households  and  services  (private  sector)  (7%  both).  A  widespread 
NZEBs  retrofit  implementation  is  still  challenging  in  the  light  of  further  boosting  renovation. 
Refurbishment to NZEBs levels requires specific innovative tools and incentive mechanisms able to 
make  investment  more  attractive,  beside  an  appropriate  combination  of  efficient  technologies, 
systems and envelope solutions depending on location, legislation and market conditions. Dedicated 
planning goals as well as mid- and long- term plans for upgrading to NZEBs levels appear as useful 
instruments. As Member States present a wide range of building types and technologies, climatic, and 
financial conditions, targeted measures, cross sectoral policies and guidance can stimulate a large-
scale diffusion of NZEBs retrofit.  

As for ZEBs, the comparison between potential ZEB levels and NZEB recommended benchmarks in 
total primary energy demand showed a rather encouraging outlook, as most Member States showed 
a  better  compliance  than  considering  the  NZEB  non-renewable  primary  energy  demand.  However, 
results are quite variable depend on the country climate and accounted benchmark boundary (upper 
or lower). In the light of achieving the future ambitious goals of ZEBs, boosting the ambition by 10% 
beyond current NZEB standards could foster overall compliance. Although the ZEB framework focuses 
on  significantly  reducing  total  primary  energy  use  and  achieving  zero  on-site  emissions,  many 
countries  will  need  to  increase  the  level  of  renewable  energy  contributions.  Renewable  energy  is 
crucial in meeting the ZEB requirements, especially considering that ZEB standards mandate zero on-
site emissions and very low operational GHG emissions. It also appears that countries need to further 
exploit  additional  renewable  options,  such  as  renewable  energy  communities and  efficient district 
heating and cooling systems.  

Based on the results of this report, the following aspects can support ZEBs development: invest in 
energy-efficient  and  adaptable  building  designs  and  sustainable  materials  to  reduce  overall 
consumption,  encourage  the  use  of  renewable  energy  sources  (such  as  solar,  wind,  geothermal 
energy),  implement  energy-efficient  heating,  cooling,  and  ventilation  systems  to  minimize  energy 
waste,  promote  the  adoption  of  smart  home  technologies  and  energy  management  systems  to 
optimize energy usage, provide financial incentives and support programs for building owners and 
developers to encourage the construction of ZEBs. By addressing these aspects, Member States can 
work towards a more sustainable and energy-efficient building sector, with several advantages, such 
as decreasing greenhouse gas emissions, dependence on energy supply, and increasing jobs, energy 
security, and economic growth. 

The results of this assessment report on NZEBs showed the progress by Member States on different 
aspects related to NZEBs, and assume a strategic value in the light of the 2030 and 2050 targets for 
the building sector, contributing to the EU climate neutrality goal. 

79 

 
 
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83 

 
 
 
 
 
List of abbreviations and definitions  

Abbreviations 

Definitions 

AI 

CA 

DHW 

EC 

EE 

EPBD 

EED 

EPC 

ESCO 

GHG 

GWP 

HVAC 

IEA 

IoT 

LTRS 

NECP 

NECPR 

NZEB 

PCM 

PEF 

PV 

Artificial Intelligence 

Concerted Action 

Domestic Hot Water 

European Commission 

Energy Efficiency 

Energy Performance of Building Directive 

Energy Efficiency Directive 

Energy Performance Certificate 

Energy Service Company 

Greenhouse Gas 

Global Warming Potential 

Heating, Ventilation and Air Conditioning 

International Energy Agency 

Internet of Things 

Long-Term Renovation Strategy 

National Energy and Climate Plan 

National Energy and Climate Progress Report 

Nearly Zero Energy Building 

Phase Change Materials 

Primary Energy Factors 

Photovoltaics 

84 

 
 
Abbreviations 

Definitions 

RES 

SFH 

V2H 

ZEB 

EU 

AT 

BE - Br 

BE - Wa 

BE - Fl 

BG 

HR 

CY 

CZ 

DK 

EE 

FI 

FR 

DE 

GR 

HU 

IE 

IT 

Renewable Energies 

Single-Family Houses 

Vehicle to Home 

Zero-Emission Building 

European Union 

Austria 

Belgium Brussels 

Belgium Wallonia 

Belgium Flanders 

Bulgaria 

Croatia 

Cyprus 

Czech Republic 

Denmark 

Estonia 

Finland 

France 

Germany 

Greece 

Hungary 

Ireland 

Italy 

85 

 
 
Abbreviations 

Definitions 

LV 

LT 

LU 

MT 

NL 

PL 

PT 

RO 

SK 

SI 

ES 

Latvia 

Lithuania 

Luxembourg 

Malta 

Netherlands 

Poland 

Portugal 

Romania 

Slovakia 

Slovenia 

Spain 

86 

 
 
 
 
List of figures  

Figure 1. Timeline with building targets for climate neutrality ................................................................................. 7 

Figure 2. NZEB energy performance in new and renovated residential buildings (single family 
houses) expressed in non-renewable primary energy demand kWh/(m2y) by country ............................... 19 

Figure 3. NZEB energy performance in renovated buildings (single family house) expressed in non-
renewable primary energy demand kWh/(m2y). ................................................................................................................ 20 

Figure 4. Renewable energy share (%) from the total primary energy demand in new and renovated
 ....................................................................................................................................................................................................................... 21 

Figure 5. PV contribution in renewable energy requirements in new NZEBs .................................................. 23 

Figure 6. NZEB U-values in new buildings .......................................................................................................................... 23 

Figure 7. NZEB U-values in existing buildings .................................................................................................................. 25 

Figure 8. Member States division within climatic zones: Mediterranean: Cyprus, Croatia, Italy, 
Greece, Spain and Portugal, Oceanic: Belgium, Denmark, Ireland, Germany, France Luxembourg, and 
Netherlands, Continental: Austria, Bulgaria, Hungary, Poland, Romania, Slovenia, and Slovakia, 
Nordic: Estonia, Finland, Latvia, Lithuania, and Sweden. .............................................................................................. 27 

Figure 9. Comparison between national NZEB performance level and EC recommended values (non-
renewable primary energy) for residential buildings (single family houses) .................................................... 28 

Figure 10. Comparison between national NZEB performance level and EC recommended values 
(non-renewable primary energy) for non-residential buildings (offices) ............................................................ 29 

Figure 11. NZEB related measures in NECPs by measure type ............................................................................. 45 

Figure 12. NZEB related measures in NECPRs by measure type........................................................................... 48 

Figure 13. Percentage of residential NZEBs added to the total building stock in Member States with 
available data (2022) ....................................................................................................................................................................... 55 

Figure 14. Percentage of non-residential NZEB (private and public sector) added to the total 
building stock in Member States with available data (2022) .................................................................................... 55 

Figure 15. Percentage of floor area of residential NZEBs added to the total building stock in 
Member States with available data (2022) ......................................................................................................................... 56 

Figure 16. Percentage of floor area of non-residential NZEBs (private and public sector) added to 
the total building stock in Member States with available data (2022) ............................................................... 57 

Figure 17. Comparison between cost-optimal and NZEB levels of energy performance (in primary 
energy demand) for new single-family houses ................................................................................................................. 59 

Figure 18. Comparison between cost-optimal and NZEB levels of energy performance (in primary 
energy demand) for new offices ................................................................................................................................................ 60 

Figure 19. Comparison between cost-optimal and NZEB levels of energy performance (in primary 
energy demand) for existing single-family houses ......................................................................................................... 61 

87 

 
 
Figure 20. Comparison between cost-optimal and NZEB levels of energy performance (in primary 
energy demand) for existing offices ........................................................................................................................................ 62 

Figure 21. Concept of NZEB ........................................................................................................................................................ 63 

Figure 22. Design of new NZEBs ............................................................................................................................................. 65 

Figure 23. Renewable energy technologies included in NZEB definition, EU Member States ............... 66 

Figure 24. Regenerative design principles. ......................................................................................................................... 69 

Figure 25. Comparison between national NZEB levels for new buildings, indicative ZEB levels and 
NZEB recommended benchmarks in total primary energy demand for residential buildings (single 
family houses) ...................................................................................................................................................................................... 72 

Figure 26. Comparison between national NZEB levels for new buildings, indicative ZEB levels and 
NZEB recommended benchmarks in total primary energy demand for non-residential buildings 
(offices) ..................................................................................................................................................................................................... 73 

88 

 
 
 
List of tables  

Table 1. Main indicators used by Member States in the national NZEB definitions. ..................................... 9 

Table 2. NZEB primary energy demand in new buildings. ......................................................................................... 12 

Table 3. NZEB primary energy demand in existing buildings. .................................................................................. 14 

Table 4. End-uses considered in the calculation. ............................................................................................................ 18 

Table 5. Renewable energy type in NZEBs definitions ................................................................................................. 22 

Table 6. Climatic zones as defined in [EU, 2016]. .......................................................................................................... 26 

Table 7. NZEBs Recommendation level of performance (kWh/m2y) per building type according to 
the climatic zone ................................................................................................................................................................................. 27 

Table 8. NZEBs targets for 2030, 2040 and 2050 (source: Long term Renovation strategies 2020, 
NECPs 2023) .......................................................................................................................................................................................... 31 

Table 9. Measures/Projects/Programmes for NZEBs in Member States as extracted from Long Term 
Renovation strategies ....................................................................................................................................................................... 38 

Table 10. Measures/Projects/Programmes for NZEBs in Member States as extracted from NECP 
2023 ........................................................................................................................................................................................................... 41 

Table 11. NZEB definitions, National Energy and Climate Plans 2023 .............................................................. 45 

Table 12. Measures from NECPR 2023. ............................................................................................................................... 46 

Table 13. Barriers and benefits deriving from retrofit NZEBs................................................................................. 49 

Table 14. New NZEB stock information ............................................................................................................................... 51 

Table 15. Renovated NZEB stock number ........................................................................................................................... 53 

Table 16. Renewable options for NZEBs .............................................................................................................................. 64 

Table 17. Domestic Hot Water (DHW) in new and existing NZEB, EU Member States .............................. 66 

Table 18. Inclusion of co-generation and waste heat in primary energy definitions of new and 
existing NZEB, EU Member States ............................................................................................................................................. 68 

Table 19. Requirements on GHG emissions in national NZEB definitions ........................................................ 74 

Table 20. Romania requirements on CO2 emissions ..................................................................................................... 75 

89 

 
 
 
Annexes  

Annex 1. Country-sheets of collected definitions per Member States 

90 

 
 
 

AT, Austria 

Legal act on implemented 
NZEB definitions  

NZEB definition: new build-
ings 
NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Construction laws of the Austrian Länder 
Burgenland 10. April 2021; Kärnten 12. September 2020; Niederösterreich 1. July 2021; Oberösterreich 1. September 2020; Stei-
ermark 1. September 2020; Tirol 1. June 2020; Vorarlberg 1. January 2022; Wien 1. February 2020 
16x(1+3,0/lc) and fGEE =0,75  -> 14x(2,8/lc) and fGEE =0,75   

17x(1+2,9/lc) and EEBWGsan,RK,zul  -> 17x(1+2,5/lc) and EEBWGsan,RK,zul  
25x(1+2,5/lc) and fGEE =0,95  -> 21x(1+2,1/lc) and fGEE =0,95    

Total  
Primary 
 Energy  (kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

10x(1+3,0/lc) and EEBWGsan,RK,zul  
or 

16x(1+3,0/lc) and fGEE = 0,75 
10x(1+3,0/lc) and EEBWGsan,RK,zul  
or 

16x(1+3,0/lc) and fGEE = 0,75 

10x(1+3,0/lc) and EEBWG-

san,RK,zul  or 

16x(1+3,0/lc) and fGEE = 0,75 
10x(1+3,0/lc) and EEBWGsan,RK,zul  
or 

16x(1+3,0/lc) and fGEE = 0,75 
10x(1+3,0/lc) and EEBWGsan,RK,zul  
or 

16x(1+3,0/lc) and fGEE = 0,75 

Other 
Included end uses 
RENOVATED NZEB energy 
performance requirements 

Total  
primary  
energy (kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

91 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 
Included end uses 
NZEBs building elements 

17x(1+2,9/lc) and EEBWGsan,RK,zul  
or 
25x(1+2,5/lc) and fGEE = 0,95 
17x(1+2,9/lc) and EEBWGsan,RK,zul  
or 
25x(1+2,5/lc) and fGEE = 0,95 
17x(1+2,9/lc) and EEBWGsan,RK,zul  
or 
25x(1+2,5/lc) and fGEE = 0,95 
17x(1+2,9/lc) and EEBWGsan,RK,zul  
or 
25x(1+2,5/lc) and fGEE = 0,95 
17x(1+2,9/lc) and EEBWGsan,RK,zul  
or 
25x(1+2,5/lc) and fGEE = 0,95 

External 
walls 
(W/m2K) 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-
value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

Current requirements for 
new NZEBs 

0.35 

0.2 

1.4 

0.4 

Current requirements for 
renovated NZEBs 

0.35 

0.2 

1.4 

0.4 

Notes 

*for renovated NZEBs, minus 24% without renovation passport 

depending on the 
glazing 

depending on the 
glazing 

n50 from 1,50 to 3,00: 
ninf = 0,11 h-1 
n50 from  0,60 to 1,50: 
ninf = 0,07*n50 h-1 
n50 < 0,60: ninf = 0,04 
h-1 
n50 from 1,50 to 3,00: 
ninf = 0,11 h-1 
n50 from  0,60 to 1,50: 
ninf = 0,07*n50 h-1 
n50 < 0,60: ninf = 0,04 
h-1 

92 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 

BE- FLA, Belgium-Flemish region 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 

NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Energy Decree of 18/11/2011 (article 6), Decree of the Flemish Government of 29/11/2013 (article 7). 

that context that: 1° on January 1st of 2021 the latest, de EPB-requirements for all new buildings correspond to the EPB-

-requirements correspond to an NZEB building. The Flemish Government ensures in 

The Flemish Government has implemented the EPB-requirements until 2021, corresponding to NZEB buildings, in the Decree of 
29/11/2013. 

ed 

as an NZEB level.  

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

Single family house 

E30 

15 

Multi family house 

E30 (per unit) 

15 

20 

20 

20 

E50 

E70 

E70 

Offices 

Hotel 

Hospital 

Other 
Included end uses 
RENOVATED NZEB energy 
performance requirements 

Single family house 

Multi family house 

Heating, cooling, ventilation, lighting (non-residential) 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

E60 (IER) 

E60 (IER) 

93 

15 (IER) 

15 (IER) 

A 

A 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Offices 

Hotel 

Hospital 

Other 

Included end uses 

NZEBs building elements 

Current requirements for 
new NZEBs 

E90 (IER) 

E85 (IER) 

E75 (IER) 

15 (IER) 

15 (IER) 

15 (IER) 

18 functions  (E-peil: eis voor niet-residentiële gebouwen (voor bouwaanvragen in 2021) | Vlaanderen.be)  
18 functions  (E-peil: eis voor niet-residentiële gebouwen - IER (voor bouwaanvragen van 01-01-2021 t.e.m. 31-12-
2021) | Vlaanderen.be) 
Heating, cooling, ventilation, lighting (non-residential) 

External 
walls 
(W/m2K) 

0.24 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

0.24 

1.5 

0.24 

S-level (residen-
tial) ; / (non-res-
idential) 

Max. overheat-
ing indicator 
(residential) 

(crucial in S-
level, incl. in E-
level) 

Current requirements for 
renovated NZEBs 

0.24 

0.24 

1.5 

0.24 

(incl. in pri-
mary energy) 

Notes 

94 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 

BE- WA, Belgium- Walloon Region 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 

NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Single family house 

EPB Decree (Décret PEB): https://wallex.wallonie.be/eli/loi-decret/2013/11/28/2013207272/2021/02/13  
EPB Executive Order (AGW PEB): https://wallex.wallonie.be/eli/arrete/2014/05/15/2014027210/2023/03/27  

-zero energy consuming building unit: a building unit that has very high energy performance, in which the very low 

amount of energy required is covered to a very large extent by energy produced from rene

vées, dans laquelle la quantité très basse d'énergie requise est couverte dans une très large mesure par de l'énergie 

same as above (new) 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy (kWh/m2y) 

Energy class 

& 

ing 

Multi family house 

 85 kWh/m²y & 

ing 

Offices 

of reference building a) 

95 

25% ER share of building primary 
consumption 
or 

& 

25% ER share of building primary 
consumption 
or 

A 

A 

offices and schools: 25% ER share of 
building primary consumption 
or 

a) 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Hotel 

Hospital 

Other 

ing a) 

ing a) 

25% ER share of building primary 
consumption 
or 

 a) 
[25% ER share of building primary 
consumption 
or 

 a) 

 a) 

Included end uses 

or 

-

-

 a) 

-

-residential only) 

RENOVATED NZEB energy 
performance requirements 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y) 

Renewable primary energy (kWh/m2y) 

Energy class 

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 

85 a) 

85 a) 

80 c) 
(final energy) 
offices and schools 

80 c) 
(final energy) 

80 c) 
(final energy) 

A a) 

A a) 

new:  
a) In case of non-
the Ew criterion value to be respected is a weighted average based on the floor surface of the different non-residen-
tial types in the building. 
Therefore, for some non-residential buildings, the values are between 45 et 90 (and it is also the case between 34 & 

-

96 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
68 for the RE% share criterion) 
renovated: 
a) Indicated by the Walloon LTRS. 
Expressed in Primary Energy & same end-
bonised & A-
c) Indicated by the Walloon LTRS. 
Expressed in Final Energy (incl
tion). This consumption must be fully covered by RES sources (as well on-site & off-site & via RE contracts). 

-

-site electricity genera-

Included end uses 
NZEBs building elements 

Current requirements for 
new NZEBs 

External 
walls 
(W/m2K) 

Current requirements for 
renovated NZEBs 

Notes 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

No criteria on 
overall U-Value 

K-

No criteria on 
average U-
Value 
No criteria on K-
Level 

Average Uw 
value on all 
the windows 
of the build-

Average Uw 
value on all 
the added 
and/or re-
placed win-
dows of a 
work phase 

97 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 

CY, Cyprus 

Legal act on im-
plemented NZEB 
definitions  
NZEB definition: 
new buildings 
NZEB definition: 
renovated build-
ings 
NEW NZEB energy 
performance re-
quirements  
Single family 
house 

Multi family 
house 

Offices 

Hotel 

Hospital 

"Nearly-zero energy building" means a building that has a very high energy performance, as determined in accordance to the methodology 
for calculating energy performance of buildings, and whose nearly zero or very low amount of energy required is covered to a very large 
extent by energy from renewable sources, including energy from renewable sources produced on-site or nearby. Technical details and mini-
mum requirements are determ

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

100 

100 

125 

125 

125 

At most 75% of Total primary en-
ergy 

At least 25% of Total primary en-
ergy 

At most 75% of Total primary en-
ergy 

At least 25% of Total primary en-
ergy 

At most 75% of Total primary en-
ergy 

At least 25% of Total primary en-
ergy 

At most 75% of Total primary en-
ergy 

At least 25% of Total primary en-
ergy 

At most 75% of Total primary en-
ergy 

At least 25% of Total primary en-
ergy 

A 

A 

A 

A 

A 

Other 
Included end uses  Heating, cooling, hot water, lighting, ventilation, exhaust air & auxiliary energy for the operation of end-uses systems. 

125, At most 75% of Total primary energy, At least 25% of Total primary energy, A 

98 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
RENOVATED NZEB 
energy perfor-
mance require-
ments 
Single family 
house 

Multi family 
house 

Offices 

Hotel 

Hospital 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

100 

100 

125 

125 

125 

At most 75% of Total primary en-
ergy 

At least 25% of Total primary en-
ergy 

At most 75% of Total primary en-
ergy 

At least 25% of Total primary en-
ergy 

At most 75% of Total primary en-
ergy 

At least 25% of Total primary en-
ergy 

At most 75% of Total primary en-
ergy 

At least 25% of Total primary en-
ergy 

At most 75% of Total primary en-
ergy 

At least 25% of Total primary en-
ergy 

A 

A 

A 

A 

A 

125, At most 75% of Total primary energy, At least 25% of Total primary energy, A 

Other 
Included end uses  Heating, cooling, hot water, lighting, ventilation, exhaust air & auxiliary energy for the operation of end-uses systems. 
NZEBs building el-
ements 

Overall U-value (W/m2K)  

Windows 
(W/m2K) 

Roofs 
(W/m2K) 

Floors  
(W/m2K) 

External 
walls 
(W/m2K) 

Solar en-
ergy trans-
mittance  

Air 
tight-
ness 

Current require-
ments for new 
NZEBs 

0,40 
W/m2K 

0,40 
W/m2K 

2,25 
W/m2K 

0,40 
W/m2K 

Alternatively, in order to be allowed to exceed the 
above maximum coefficients of thermal permea-
bility  (minimum  requirements)  of  the  walls  and 
elements of the load-bearing structure, the hori-
zontal structural elements and ceilings, and open-
ings  (doors  &  windows),  the  maximum  average 
coefficient of all the elements of the building en-
velope must not be greater than 0.65 W/m² K. 

99 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
Current require-
ments for reno-
vated NZEBs 
Notes 

0,40 
W/m2K 

0,40 
W/m2K 

2,25 
W/m2K 

0,40 
W/m2K 

Same as above 

 

CZ, Czech Republic 

Legal act on imple-
mented NZEB definitions  
NZEB definition: new 
buildings 
NZEB definition: reno-
vated buildings 
NEW NZEB energy perfor-
mance requirements  

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 

Included end uses 
Note 

Energy Management Act nu. 406/2000 Coll. 

A building with a very low energy demand, whose energy consumption should be largely covered by renewable sources. 

CZ does not have such definition, definition above applies to all cases. 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

B 

B 

B 

B 

B 

The energy performance calculation is based on a comparison of the assessed building with a reference building. A ref-
erence building is a computationally defined building of the same type, the same geometric shape and size, including 
glazed areas and parts, the same orientation to the cardinal points, shading by surrounding buildings and natural barri-
ers, the same internal layout, and the same typical use and the same considered climatic data as the building under 

100 

 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
assessment, but with reference values for the building performance, its structure and technical building systems. The 
energy performance requirements for NZEB are met if the values of the energy performance indicators of the assessed 
building are not higher than the reference values of the energy performance indicators for the reference building. No 
numbers can be filled in to the table because they are directly calculated for each building. Only the limit value of the 
energy performance indicator is inserted in the table. 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

RENOVATED NZEB energy 
performance require-
ments 
Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 
Included end uses 
NZEBs building elements 

External walls 
(W/m2K) 

Roofs (W/m2K) 

Current requirements for 
new NZEBs 

0,25(HEAVIER), 
0,20(LIGHTER) 

0,20  (The  steep  roof 
with  a  slope  of  more 
than  45°  (W/m2K)), 
0,16 (Flat and sloping 
roof with a slope of up 
to  and  including  45° 
(W/m2K)) 

Win-
dows 
(W/m2K) 

1.2 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

0.3  Based on calcu-
lation and com-
parison with a 
reference build-

Air tightness 

Solar energy 
transmit-
tance  

0.5 

Current requirements for 
renovated NZEBs 
Notes 

Reduction factor for the required average U-value  
fR=0,7 

101 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 

DE, Germany 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 

NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 
Included end uses 
RENOVATED NZEB energy 
performance requirements 

Single family house 

Multi family house 

Offices 

Buildings Energy Act (Gebäudeenergiegesetz (GEG)) 

An NZEB is defined as a building, that hast to be built to the following standards:  

-energy-demand cannot be higher than 55% of the energy demand of the reference building. 

There is no explicit legal NZEB definition for renovated buildings. 

nd has to be met by a certain percentage of renewable energy. 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

102 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Hotel 

Hospital 

Other 
Included end uses 
NZEBs building elements 

Current requirements for 
new NZEBs 

Current requirements for 
renovated NZEBs 
Notes 

External 
walls 
(W/m2K) 

No require-
ments for 
residential 
buildings. 
For non-resi-
dential build-
ings: 0,28 
W/(m2K) 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

No require-
ments 

No require-
ments 

No require-
ments for 
residential 
Buildings. 
For non-resi-
dential build-
ings: 1,5 
W/(m2K) 

No direct re-
quirements 
(NZEB mustn`t 
exceed the 
overall trans-
mission heat 
losses of the 
reference build-
ing) 

0.6 

The building 
envelope has 
to be airtight 
according to 
the state-of-
art norms. 

NEW: There are no explicit requirements for the U-Values of residential buildings. Nonetheless is it a requirement for 
all NZEB to not exceed the overall transmission heat losses of the reference building. At the same time, it is required 
to not exceed 0.55 of the energy demand of the reference building. 
renovated: There is no explicit legal NZEB definition for renovated buildings. 

103 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 

DK, Denmark 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 
NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 
Included end uses 

Danish Building Regulation   www.bygningsreglementet.dk 
Implemented in executive order no. 1399 of 12/12/2019, with latest amendments in executive order no. 1583 of 21/12/2022. 
New buildings that meet the energy requirements for new buildings in the Danish Building Regulation. 

Renovated buildings that meet the requirements for Renovation Class 2 in the Danish Building Regulation. 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

A2015 

A2015 

A2015 

A2015 

A2015 

Lighting (only for non-residential), heating, domestic hot water, cooling and ventilation. 

RENOVATED NZEB energy 
performance requirements 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y) 

Renewable primary energy 
(kWh/m2y) 

Energy class 

Single family house 

Multi family house 

Offices 

104 

B 

B 

B 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Hotel 

Hospital 

Other 
Included end uses 

NZEBs building elements 

Current requirements for 
new NZEBs 

Current requirements for 
renovated NZEBs 

Lighting (only for non-residential), heating, domestic hot water, cooling and ventilation. 

External 
walls 
(W/m2K) 

Roofs 
(W/m2K) 

Windows (W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

B 

B 

No  requirements  on 
thermal 
transmit-
tance,  but  only  for  a 
total  positive  energy 
balance  of  the  ele-

kWh/m2 per year 

No  requirements  on 
transmit-
thermal 
tance,  but  only  for  a 
total  positive  energy 
balance  of  the  ele-

kWh/m2 per year 

Taken  into  ac-
count in the cal-
culation. 

at 50 Pa 

Taken  into  ac-
count in the cal-
culation. 

Not  a  require-
but 
ment, 
taken  into  ac-
count 
in  the 
calculation. 

Notes 

new: Absolute requirements for building elements.  
Typical design values are lower (avg. 0,08 to 0,16 W/m2K) to meet requirements on total design transmission loss 
and primary energy.  

Renovated: The requirements only activate for the renovated building elements, not the whole building. 
In case building elements are replaced during a renovation, the requirements for external walls, roofs and floors the 
requirements are 0,18, 0,12, and 0,10 W/m2K respectively. 

105 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 

 

EE, Estonia 

Legal act on implemented 
NZEB definitions  

Regulatio
force on 10.07.2020) 

NZEB definition: new build-
ings 

NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Single family house 

Multi family house 

Offices 

Hotel 

All of the above-mentioned regulations are currently under revision. 

 Nearly zero energy building which is technically reasonably constructed building using energy efficient and renewable 

solutions. Energy performance value of NZEB needs to achieve class A, and additionally, at least class B (low-energy building 
limit value) without accounting on-site renewable electricity generation.  
All new buildings must meet NZEB requirements (must achieve energy class A). Class A requirement is so strict that typically PV-
panels are used.  
If the installation of a solar energy system is not economically justified (shaded surfaces) or technically feasible (lack of roof 
area), then the energy performance of the building without taking into account locally produced renewable electricity must meet 
low energy building requirements = must achieve energy class B. 
In case of a major renovation*, the building must meet at least energy class C.  

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Energy class 

Renewable 
primary en-
ergy 
(kWh/m2y) 

1)  Detached  house  <120  m2:  109.4  /  B 
2) Detached house 120   220 m2 and row 
houses: 
A 
93.4 
3) Detached house >220 m2: 59.5 / A 

/ 

to 

up 
>220 m2 A 

220  m2 

B  

45.9 

62.1 

138 

106 

A 

A 

A 

 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
  
 
 
  
 
 
  
 
Hospital 
Other 

Included end uses 

Schools: 
82.6  
EPBD minimum scope in the reported values.  

RENOVATED NZEB energy 
performance requirements 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

o appliances and lighting. 
Renewable 
primary en-
ergy 
(kWh/m2y) 

Energy class 

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 

Included end uses 
NZEBs building elements 

Current requirements for 
new NZEBs 
Current requirements for 
renovated NZEBs 
Notes 

1)  Detached  house  <120  m2  129.4  /  C 
 220 m2 and row 
2) Detached house 120 
houses: 
C 
113.4 
3) Detached house >220 m2: 99.5 / C 

/ 

90.9 

122.1 

213 

C 

C 

C 

C 

Schools: 
142.6 

External 
walls 
(W/m2K) 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

In Estonia, we do not have specific requirements for U-values or other building components. We have only primary 
energy requirements, EPC class A for new buildings and EPC class C for major renovation U-value and other recom-
mendations are provided in guidelines, not in the regulation. 

107 

 
 
 
 
 
 
 
 
  
 
 
  
 
 
  
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 

EL, Greece 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 
NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 
Included end uses 
RENOVATED NZEB energy 
performance requirements 

Single family house 

Multi family house 

Primary energy consumption of the building is regulated, taking into account weighting factors of energy carriers and 
renewable energy produced on-site, from which only the self-use is taken into account.  

Law 4122/2013 

Ministerial decision YPEN/DEPEA/85251/242-27.11.2018 

Ministerial decision YPEN/DEPEA/85251/242-27.11.2018 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

108 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Offices 

Hotel 

Hospital 

Other 
Included end uses 
NZEBs building elements 

Current requirements for 
new NZEBs 

Current requirements for 
renovated NZEBs 

Notes 

External 
walls 
(W/m2K) 

0.35-0.55 de-
pending on 
climate zone 

0.40-0.60 de-
pending on 
climate zone 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

0.30-0.45 
depending 
on climate 
zone 

0.30-0.45 
depending 
on climate 
zone 

2.20-2.80 
depending 
on climate 
zone 

2.20-2.80 
depending 
on climate 
zone 

0.30-0.45 de-
pending on cli-
mate zone 

0.30-0.45 de-
pending on cli-
mate zone 

0.55-1.25 de-
pending on ratio 
A/V and climate 
zone 

0.60-1.26 de-
pending on ratio 
A/V and climate 
zone 

109 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
  
 
 
 

ES, Spain 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 
NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Single family house 

Multi family house 

Offices 

Royal Decree 314/2006, of March 17, (modification. Royal Decree 450/2022, of June 2022) 

Buildings, either new or existing, with an energy use (total primary energy and non renewable primary energy) under the limits 
allowed to new buildings in the HE0 section. 
Buildings, either new or existing, with an energy use (total primary energy and non renewable primary energy) under the limits 
allowed to new buildings in the HE0 section. 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

 40 
A   50 
B   56 
C   64 
D   76 
E   86 

 40 
A   50 
B   56 
C   64 
D   76 
E   86 

   165 + 9·CFI 
A   155 + 9·CFI 
B   150 + 9·CFI 
C   140 + 9·CFI 
D   130 + 9·CFI 
E   120 + 9·CFI 

 20 
A   25 
B   28 
C   32 
D   38 
E   43 

 20 
A   25 
B   28 
C   32 
D   38 
E   43 

   70 + 8·CFI 
A   55 + 8·CFI 
B   50 + 8·CFI 
C   35 + 8·CFI 
D   20 + 8·CFI 
E   10 + 8·CFI 

110 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Hotel 

Hospital 

Other 

   165 + 9·CFI 
A   155 + 9·CFI 
B   150 + 9·CFI 
C   140 + 9·CFI 
D   130 + 9·CFI 
E   120 + 9·CFI 

   165 + 9·CFI 
A   155 + 9·CFI 
B   150 + 9·CFI 
C   140 + 9·CFI 
D   130 + 9·CFI 
E   120 + 9·CFI 

   70 + 8·CFI 
A   55 + 8·CFI 
B   50 + 8·CFI 
C   35 + 8·CFI 
D   20 + 8·CFI 
E   10 + 8·CFI 

   70 + 8·CFI 
A   55 + 8·CFI 
B   50 + 8·CFI 
C   35 + 8·CFI 
D   20 + 8·CFI 
E   10 + 8·CFI 

total: 

 165 + 9·CFI 
A   155 + 9·CFI 
B   150 + 9·CFI 
C   140 + 9·CFI 
D   130 + 9·CFI 
E   120 + 9·CFI 
non-renewable: 
 70 + 8·CFI 
A   55 + 8·CFI 
B   50 + 8·CFI 
C   35 + 8·CFI 
D   20 + 8·CFI 
E   10 + 8·CFI 

Included end uses 

Residential: heating, cooling, DHW, ventilation 
Non-residential: heating, cooling, DHW, ventilation, lighting 

RENOVATED NZEB energy 
performance requirements 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

111 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

 55 
A   75 
B   80 
C   90 
D   105 
E   115 

 55 
A   75 
B   80 
C   90 
D   105 
E   115 

   165 + 9·CFI 
A   155 + 9·CFI 
B   150 + 9·CFI 
C   140 + 9·CFI 
D   130 + 9·CFI 
E   120 + 9·CFI 

   165 + 9·CFI 
A   155 + 9·CFI 
B   150 + 9·CFI 
C   140 + 9·CFI 
D   130 + 9·CFI 
E   120 + 9·CFI 

   165 + 9·CFI 
A   155 + 9·CFI 
B   150 + 9·CFI 
C   140 + 9·CFI 
D   130 + 9·CFI 
E   120 + 9·CFI 

 40 
A   50 
B   55 
C   65 
D   70 
E   80 

 40 
A   50 
B   55 
C   65 
D   70 
E   80 

   70 + 8·CFI 
A   55 + 8·CFI 
B   50 + 8·CFI 
C   35 + 8·CFI 
D   20 + 8·CFI 
E   10 + 8·CFI 

   70 + 8·CFI 
A   55 + 8·CFI 
B   50 + 8·CFI 
C   35 + 8·CFI 
D   20 + 8·CFI 
E   10 + 8·CFI 

   70 + 8·CFI 
A   55 + 8·CFI 
B   50 + 8·CFI 
C   35 + 8·CFI 
D   20 + 8·CFI 
E   10 + 8·CFI 

112 

 
 
 
 
  
 
 
  
 
 
  
 
 
  
 
 
  
Other 

total: 

 165 + 9·CFI 
A   155 + 9·CFI 
B   150 + 9·CFI 
C   140 + 9·CFI 
D   130 + 9·CFI 
E   120 + 9·CFI 
non-renewable: 
 70 + 8·CFI 
A   55 + 8·CFI 
B   50 + 8·CFI 
C   35 + 8·CFI 
D   20 + 8·CFI 
E   10 + 8·CFI 

Included end uses 

Note 

Residential: heating, cooling, DHW, ventilation 
Non-residential: heating, cooling, DHW, ventilation, lighting 
Total primary energy calculated for Step A (k_exp=0), thus, it is not including in the energy performance of the build-
ing the impact of exported energy to the network. 

113 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
NZEBs building elements 

Current requirements for 
new NZEBs 

External 
walls 
(W/m2K) 

0,80-0,37 de-
pending on 
climatic zone: 
zone a: 0,80, 
zone A: 0,70, 
zone B: 0,56, 
zone C: 0,49, 
zone D: 0,41, 
zone E: 0,37 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

0,55-0,33 
depending 
on climatic 
zone: zone a: 
0,55, zone A: 
0,50, zone B: 
0,44, zone C: 
0,40, zone D: 
0,35, zone E: 
0,33 

3,20-1,80 
depending 
on climatic 
zone: zone a: 
3,2 zone A: 
2,70, zone B: 
2,30, zone C: 
2,10, zone D: 
1,80, zone E: 
1,80 

0,90-0,59 de-
pending on cli-
matic zone: 
zone a: 0,90 
zone A: 0,80, 
zone B: 0,75, 
zone C: 0,70, 
zone D: 0,65, 
zone E: 0,59 

0,86-0,43 (resi-
dential use) de-
pending on cli-
matic zone and 
compactness 

1,12-0,43 
(other uses) de-
pending on cli-
matic zone and 
compactness 

0,86-0,43 (resi-
dential use) de-
pending on cli-
matic zone and 
compactness 
1,12-0,43 
(other uses) de-
pending on cli-
matic zone and 
compactness 

Windows: 
Q100,lim 

[m3

- 

[m3/h·m2] de-
pending on cli-
matic zone:  

3/h·m2] 
Zone C, D, E : 

Whole thermal 
envelope (resi-
dential build-
ings): n50 < 3 
- 6 1/h de-
pending on 
compactness 
(V/S <=2 à 
n50<= 6 1/h, 
and V/S >=4 à 
n50 <= 3 1/h) 

114 

 
 
 
 
 
 
 
 
 
 
 
 
Current requirements for 
renovated NZEBs 

0,80-0,37 de-
pending on 
climatic zone: 
zone a: 0,80, 
zone A: 0,70, 
zone B: 0,56, 
zone C: 0,49, 
zone D: 0,41, 
zone E: 0,37 

0,55-0,33 
depending on 
climatic 
zone: zone a: 
0,55, zone A: 
0,50, zone B: 
0,44, zone C: 
0,40, zone D: 
0,35,  zone  E: 
0,33 

3,20-1,80 
depending on 
climatic 
zone: zone a: 
3,2  zone  A: 
2,70, zone B: 
2,30, zone C: 
2,10, zone D: 
1,80,  zone  E: 
1,80 

0,90-0,59  de-
pending on cli-
matic 
zone: 
zone  a:  0,90 
zone  A:  0,80, 
zone  B:  0,75, 
zone  C:  0,70, 
zone  D:  0,65, 
zone E: 0,59 

Windows: 
Q100,lim 
[m3/h·m2
3/h·m2] 
- 
depending  on 
climatic  zone:  

3/h·m2] 
Zone  C,  D,  E  : 

3/h·m2] 

1,07-0,54  (resi-
dential  use)  de-
pending  on  cli-
matic  zone  and 
compactness 

1,12-0,43 (other 
uses) depending 
on climatic zone 
compact-
and 
ness 

1,07-0,54  (resi-
dential  use)  de-
pending  on  cli-
matic  zone  and 
compactness 
1,12-0,43 (other 
uses) depending 
on climatic zone 
and 
compact-
ness 

Notes 

* There are 6 different values depending on each climatic zone. For renovated buildings, the renovated parts must 
meet the same requirements as for new buildings. 
4Glass plus frame 

qsol;jul,lim <= 2 kWh/m² month 

115 

 
 
 
 
 
 
 
 
 

FI, Finland 

Legal act on imple-
mented NZEB defini-
tions  
NZEB definition: new 
buildings 

NZEB definition: reno-
vated buildings 

NEW NZEB energy 
performance require-
ments  

Single family house 

Multi family house 

Land Use and Building Act (132/1999), especially sections 115a and 117a-l (https://www.finlex.fi/fi/laki/ajantasa/1999/19990132) 
Government Decree on the numerical values of coefficients for forms of energy used in buildings (788/2017)  
(https://www.finlex.fi/fi/laki/alkup/2017/20170788) 
Decree of the Ministry of the Environment on the energy performance of new buildings (1010/2017) 
(https://www.finlex.fi/fi/laki/alkup/2017/20171010) 
Decree of the Ministry of the Environment on the Indoor Climate and Ventilation of New Buildings (1009/2017) 
(https://www.finlex.fi/fi/laki/alkup/2017/20171009) 
Decree of the Ministry of the Environment on water and sewerage systems of buildings  
(https://www.finlex.fi/fi/laki/alkup/2017/20171047) 
The cost-effective deep renovation of buildings, including staged deep renovation requirement level in connection with repairs is in 
accordance with the following regulations: Ministry of the Environment degree on improving the energy performance of buildings un-
dergoing renovation or alteration, 4/2013 Ministry of the Environment degree on improving the energy performance of buildings un-
dergoing renovation or alteration  
https://www.finlex.fi/fi/viranomaiset/normi/700001/40799 and 2/2017 Decree of the Ministry of the Environment on Amending the 
Decree of the Ministry of the Environment on Improving the Energy Performance of Buildings Undergoing Renovation or Alteration 
https://www.finlex.fi/fi/viranomaiset/normi/700001/43242 

Total primary energy (kWh/m2y) 

Non-renewa-
ble primary  
energy  
(kWh/m2y)  

Renewable primary energy (kWh/m2y) 

Energy class 

- heated area (Anet) of 50 150 m2: 
200 0.6 Anet 
- net heated area 
(Anet) of  150-600 m2: 116-0.04 Anet 
-Terraced houses and blocks of flats 
with residential storeys on a maximum 
of two storeys: 105 
- Blocks of flats with residential sto-
reys on at least three 
storeys: 90 

116 

B 

B 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Offices 

Hotel 

Hospital 

Other 

Included end uses 

RENOVATED NZEB en-
ergy performance re-
quirements 

Single family house 

Multi family house 

Offices 

Hotel 

100 

160 (also accommodation establish-
ment buildings,  boarding 
houses, assisted living accommodation, 
retirement homes, residential 
care institutions) 
320 

B 

B 

B 

-Commercial buildings, department stores, shopping centres; 
wholesale and retail trade buildings, excluding grocery trade units under 
2,000 m2; shopping halls, theatres, opera, concert and congress halls, 
cinemas, libraries, archives, museums, art galleries, exhibition halls: 135 
- Buildings for sports and physical exercise, excluding indoor 
swimming pools and indoor ice rinks: 100 
Energy class: B 

dardised use consists 
of the energy consumption of the heating, ventilation and cooling systems as well as system 
auxiliary units, consumer equipment and lighting. 

Total primary energy  
(kWh/m2y) 

Non-renewa-
ble primary  
energy  
(kWh/m2y)  

Renewable primary energy (kWh/m2y) 

Energy class 

20 % lower E-value than the current E-
value 
15-20 % lower E- value than the cur-
rent E-value 
30 % lower E- value than the current 
E-value 
30 % lower E- value than the current 
E-value 
30 % lower E- value than the current 
E-value 

117 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Hospital 

Other 
Included end uses 

30 % lower E- value than the current 
E-value 

If used E-
sists 
of the energy consumption of the heating, ventilation and cooling systems as well as system 
auxiliary units, consumer equipment and lighting. 

s calculated consumption of delivered energy based on standardised use con-

NZEBs building ele-
ments 

External 
walls 
(W/m2K) 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall 
U-value 
(W/m2K)  

Solar 
energy 
trans-
mit-
tance  

Air tightness 

Current requirements 
for new NZEBs 

0.17 

0.09 

1 

0.16 

Current requirements 
for renovated NZEBs 

0,5 x U be-
fore renova-
tion (but not 
lower than 
0,17) or 
complete 
building E-
value calcu-
lation 

0,5  x  U  be-
fore renova-
tion (but not 
than 
lower 
0,09) 
or 
complete 
building  E-
value  calcu-
lation 

windows 1,0 
W/m2K 
or 
complete 
building  E-
value  calcu-
lation 

In  renovation 
the 
energy 
performance 
is 
improved 
where  possi-
ble. 

m2)  
m3/(h 
2,0 
Air leakage rate q50 (m3/(h m2)) means 
the average hourly rate of leakage air 
flow of the building envelope at a pres-
sure differential of 50 Pa per building 
envelope  surface  area  calculated  on 

dimensions. 

Same  as  in  new  buildings  if  used  E-
value calculation. 

Notes 

new: The heat loss of a building is the total combined heat losses from the building envelope, leakage air and ventilation. 

(above).  
In reference heat loss calculations, the value used as the annual efficiency of heat recovery from ventilation extract air of 

t equal the reference heat loss determined for the building on the reference values 

118 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
renovated: -Same as in new buildings calculation except the annual efficiency of heat recovery from ventilation extract air 

 55 %. 

 

FR, France 

Legal act on imple-
mented NZEB defini-
tions  

NZEB definition: new 
buildings 
NZEB definition: 
renovated buildings 
NEW NZEB energy 
performance re-
quirements  

Batiments neufs :  

-10 à R. 172-13 

+ Arrêté du 26 octobre 2010 relatif aux caractéristiques thermiques et aux exigences de performance énergétique des bâti-
ments nouveaux et des parties nouvelles de bâtiments  
+ Arrêté du 28 décembre 2012 relatif aux caractéristiques thermiques et aux exigences de performance énergétique des 
bâtiments nouveaux et des parties nouvelles de bâtiments autres que ceux concernés par l'article 2 du décret du 26 octobre 
2010 relatif aux caractéristiques thermiques et à la performance énergétique des constructions 

Batiments existants :  
Arrêté du 29 septembre 2009 relatif au contenu et aux conditions d'attribution du label « haute performance énergétique 
rénovation »  
+ Articles R. 173-1 à R. 173-
+ Arrêté du 13 juin 2008 relatif à la performance énergétique des bâtiments existants de surface supérieure à 1 000 mètres 
carrés, lorsqu'ils font l'objet de travaux de rénovation importants 
+ Arrêté du 3 mai 2007 relatif aux caractéristiques thermiques et à la performance énergétique des bâtiments existants. 
Réglementation thermique 2012 

Label BBC rénovation et respect des exigences pour la renovation majeur.   

Total primary energy (kWh/m2y) 

Non-renewable 
primary  
energy  
(kWh/m2y)  

Renewable pri-
mary energy 
(kWh/m2y) 

Energy class 

Single family house 

Cepmax = 50 × Mctype × (Mcgéo + Mcalt + Mcsurf + McGES) 

5 

- Mctype : coefficient de modulation en fonction du type de 
bâtiment ou de la partie d'un bâtiment et de sa catégorie ; 

119 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Multi family house 

- Mcgeo : coefficient de modulation en fonction de l'emplace-
ment géographique ; 
- Mcalt : coefficient de modulation en fonction de l'altitude ; 
- Mcsurf : pour les maisons individuelles ou jumelées et les 
logements collectifs, coefficient de modulation en fonction de 
la surface moyenne des logements du bâtiment ou de la par-
tie du bâtiment ; 
- McGES : coefficient de modulation en fonction des émis-
sions de gaz à effet de serre de l'énergie utilisée. 
Cepmax = 50 × Mctype × (Mcgéo + Mcalt + Mcsurf + McGES) 

- Mctype : coefficient de modulation en fonction du type de 
bâtiment ou de la partie d'un bâtiment et de sa catégorie ; 
- Mcgeo : coefficient de modulation en fonction de l'emplace-
ment géographique ; 
- Mcalt : coefficient de modulation en fonction de l'altitude ; 
- Mcsurf : pour les maisons individuelles ou jumelées et les 
logements collectifs, coefficient de modulation en fonction de 
la surface moyenne des logements du bâtiment ou de la par-
tie du bâtiment ; 
- McGES : coefficient de modulation en fonction des émis-
sions de gaz à effet de serre de l'énergie utilisée. 

Offices 

Cepmax = 50 × Mctype × (Mcgéo + Mcalt + Mcsurf + McGES) 

- Mctype : coefficient de modulation en fonction du type de 
bâtiment ou de la partie d'un bâtiment et de sa catégorie ; 
- Mcgeo : coefficient de modulation en fonction de l'emplace-
ment géographique ; 
- Mcalt : coefficient de modulation en fonction de l'altitude ; 
- Mcsurf : pour les maisons individuelles ou jumelées et les 
logements collectifs, coefficient de modulation en fonction de 
la surface moyenne des logements du bâtiment ou de la par-
tie du bâtiment ; 

120 

 
 
 
 
 
 
 
 
 
 
 
 
 
- McGES : coefficient de modulation en fonction des émis-
sions de gaz à effet de serre de l'énergie utilisée. 

Hotel 

Cepmax = 50 × Mctype × (Mcgéo + Mcalt + Mcsurf + McGES) 

- Mctype : coefficient de modulation en fonction du type de 
bâtiment ou de la partie d'un bâtiment et de sa catégorie ; 
- Mcgeo : coefficient de modulation en fonction de l'emplace-
ment géographique ; 
- Mcalt : coefficient de modulation en fonction de l'altitude ; 
- Mcsurf : pour les maisons individuelles ou jumelées et les 
logements collectifs, coefficient de modulation en fonction de 
la surface moyenne des logements du bâtiment ou de la par-
tie du bâtiment ; 
- McGES : coefficient de modulation en fonction des émis-
sions de gaz à effet de serre de l'énergie utilisée. 

Hospital 

Cepmax = 50 × Mctype × (Mcgéo + Mcalt + Mcsurf + McGES) 

- Mctype : coefficient de modulation en fonction du type de 
bâtiment ou de la partie d'un bâtiment et de sa catégorie ; 
- Mcgeo : coefficient de modulation en fonction de l'emplace-
ment géographique ; 
- Mcalt : coefficient de modulation en fonction de l'altitude ; 
- Mcsurf : pour les maisons individuelles ou jumelées et les 
logements collectifs, coefficient de modulation en fonction de 
la surface moyenne des logements du bâtiment ou de la par-
tie du bâtiment ; 
- McGES : coefficient de modulation en fonction des émis-
sions de gaz à effet de serre de l'énergie utilisée. 

Other 
Included end uses 

121 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
RENOVATED NZEB 
energy performance 
requirements 

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 
Included end uses 
NZEBs building ele-
ments 

Current require-
ments for new 
NZEBs 

Total primary energy (kWh/m2y) 

Non-renewable 
primary  
energy  
(kWh/m2y)  

Renewable pri-
mary energy 
(kWh/m2y) 

Energy class 

80x(a+b) kWh/m², a et b des coefficients de modulation cli-
matique tels que : 
80x(a+b) kWh/m², a et b des coefficients de modulation cli-
matique tels que : 
Inférieur ou égal à 40% de la consummation conventionnel 
de reference en fonction de la forme du bâtiment existant et 
de l'utilisation du bâtiment rénové. 
Inférieur ou égal à 40% de la consummation conventionnel 
de reference en fonction de la forme du bâtiment existant et 
de l'utilisation du bâtiment rénové. 
Inférieur ou égal à 40% de la consummation conventionnel 
de reference en fonction de la forme du bâtiment existant et 
de l'utilisation du bâtiment rénové. 

External 
walls 
(W/m2K) 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

gence 

Pas d

gence 

gence 

gence 

gence concernant les 
besoins de chauffage, 
de climatisation et 
d'éclairage artificial) 

Pour les es-
paces de som-
meil, <0.1 à 
0.65%, en in-
cluant les pro-
tections so-
laires mobiles 

Maisons individuelles : 
<0,6 m3/h/m² de murs 
extérieurs et de toi-
tures, à une différence 
de pression de 4Pa. 
Logements collectifs : 
<1 m3/h/m² de murs 
extérieurs et de toi-
tures, à une différence 
de pression de 4Pa. 
Bureaux, écoles : <1,7 

122 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Current require-
ments for renovated 
NZEBs 

Surface > 
1000 m² et 
coûts des 
travaux > 
25% de la 
valeur du 
bâtiment : 
0.45 

Autres : 
0.32 - 0.45 

Surface > 
1000 m² et 
coûts des 
travaux > 
25% de la 
valeur du 
bâtiment : 
0.28   0.41 

Surface > 
1000 m² et 
coûts des 
travaux > 
25% de la 
valeur du 
bâtiment : 
2.6 

Surface > 
1000 m² et 
coûts des 
travaux > 
25% de la 
valeur du 
bâtiment : 
0.36 - 0.4 

Autres : 
0.20   0.25 

Autres : 
1.9 

Autres : 
0.3 - 0.47 

Surface > 1000 m² et 
coûts des travaux > 
25% de la valeur du 
bâtiment : 
Dépend de la forme 
du bâtiment et de 

Autres : 

Notes 

123 

m3/h/m² de murs ex-
térieurs et de toitures, 
à une différence de 
pression de 4Pa 

Surface > 1000 m² et 
coûts des travaux > 
25% de la valeur du 
bâtiment : 
Logements, bureau, 
hotel, restaurant, 
école, établissements 
médicaux :  
1.7 m3/h/m²  
Autres : 3 m3/h/m² 

Autres : 

Surface > 
1000 m² et 
coûts des tra-
vaux > 25% de 
la valeur du 
bâtiment : 
Pour les es-
paces de som-
meil, <0.1 à 
0.65%, en in-
cluant les pro-
tections so-
laires mobiles 

Autres :  
Pour les fe-
nêtres de toit, 
ou dans les 
pieces dans 
lesquelles un 
système de re-
froidissement 
est installé ou 
remplacé, ou 
en cas de rem-
placement 

tion solaire 
existante : 0,15 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 

HR, Croatia 

Legal act on implemented 
NZEB definitions  
NZEB definition: new 
buildings 

NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Technical regulation on the rational use of energy and thermal insulation in buildings 
(Official Gazette 128/15, 70/18, 73/18, 86/18, 102/20) 
A nearly zero energy building is building has very high energy characteristics. This almost a zero or very low amount of energy 
should, significantly, be covered by energy from renewable sources, including energy from renewable sources which is produced 
in the building, on site or nearby, and for which the requirements are established by Technical regulation. 
Currently there is no specific definition for renovated buildings, so for the renovated building to achieve the nZEB standard it must 
meet the requirements as a new building. 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 

Included end uses 
RENOVATED NZEB energy 
performance requirements 

Single family house 

45 / 35 (continental/coastal) 

80 / 50 (continental/coastal)- 
- Multi-residential building 

35 / 25 (continental/coastal) 

90 / 70 (continental/coastal) - 
hotels and restaurants 

250 / 250 (continen-
tal/coastal) 

non-renewable: educational: 55 / 55 (continental/coastal), sportshalll: 210 / 150 (continental/coastal), sportshalll: 170 
/ 150 (store),  
YES (energy delivered to the tech. systems) 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

124 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Multi family house 

Offices 

Hotel 

Hospital 

Other 
Included end uses 
NZEBs building elements 

External 
walls 
(W/m2K) 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Current requirements for 
new NZEBs 

0,30 conti-
nental / 0,45 
coastal 

0,25 
conti-
nental / 0,30 
coastal 

1,60 
conti-
nental / 1,80 
coastal 

0,40 continen-
/  0,50 
tal 
coastal 

- overall 
transfer 
by 

heat 
coefficient 
transmission 
[W/(m2K)],  de-
the 
pends  on 
building 
form 
factor ( f0) 

125 

Air tightness 

During  tests  of  air  tight-
ness according to HRN EN 
ISO  9972:2015,  for  the 
difference of pressure be-
tween the interior and ex-
terior  air  of  50  Pa,  the 
measured  air 
volume, 
measured  on  the  volume 
of internal air, shall not be 
higher than the value n50 
=  3,0  h  -1  in  buildings 
without ventilation, or n50 
= 1,5 h-1 in buildings with 
a mechanical ventilation 

Solar 
energy 
trans-
mit-
tance  

from 
0,  50 
till 
0,60 
(with 
out-
side 
shad-
ing  el-
e-
ments) 
or 
0,20 
till 
0,25 
(with-
out 
out-
side 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Current requirements for 
renovated NZEBs 
Notes 

- specific annual energy need for heating [kWh/(m2a)]  

shad-
ing  el-
e-
ments) 

126 

 
 
 
 
 
 
 
 
 
 
 
 

HU, Hungary 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 

7/2006. (24.May.2006) Decree on the determination of the energy performance of buildings 

Building complying with the requirements of Annex 6. * 
The Annex VI. lays down 4 requirements levels for near-zero energy buildings: 
I. Requirements for thermal transmittance of boundary and glazing constructions; 
II. Specific heat loss coefficient requirements; 
III. Overall energy (based on specific primary energy)  performance requirements; 
IV. Minimum percentage of renewable energy used. 

NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

*According to the main rule, in the case of a new building which having an occupancy permit after December 31, 2020, the new building must 
meet the requirements contained in Annex 6. However, if, based on the architectural and technical planning documentation, the building is not 
an NZEB, and it is getting the occupancy permit after December 31, 2020, the building must meet the requirements contained in Annex 6 if it is 
occupied after June 30, 2024, with the fact that the energy regulations in force on December 31, 2020 shall also be applied. 

The requirement is the same as for new buildings, there is no specific NZEB requirement for renovations. 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Energy class 

Renewa-
ble pri-
mary en-
ergy 
(kWh/m2y) 

Single family house 

100 (excluding lighting 
energy) 

Multi family house 

100 (excluding lighting 
energy) 

127 

BB  (or  CC*)  (If  the  minimum  renewable  en-
ergy  requirement  can  be  met  with  an  in-
creased  level  of  energy  efficiency  but  the 
25% RES share is not achieved the NZEB re-
quirements is covered, but the Energy Class 
is only CC.) 

BB  (or  CC*)  (If  the  minimum  renewable  en-
ergy  requirement  can  be  met  with  an  in-
creased  level  of  energy  efficiency  but  the 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Offices 

90 

the threshold is based on 
the reference building 
method 

the threshold is based on 
the reference building 
method 

Hotel 

Hospital 

Other 

25% RES share is not achieved the NZEB re-
quirements is covered, but the Energy Class 
is only CC.) 

BB  (or  CC*)  (If  the  minimum  renewable  en-
ergy  requirement  can  be  met  with  an  in-
creased  level  of  energy  efficiency  but  the 
25% RES share is not achieved the NZEB re-
quirements is covered, but the Energy Class 
is only CC.) 

BB  (or  CC*)  (If  the  minimum  renewable  en-
ergy  requirement  can  be  met  with  an  in-
creased  level  of  energy  efficiency  but  the 
25% RES share is not achieved the NZEB re-
quirements is covered, but the Energy Class 
is only CC.) 

BB  (or  CC*)  (If  the  minimum  renewable  en-
ergy  requirement  can  be  met  with  an  in-
creased  level  of  energy  efficiency  but  the 
25% RES share is not achieved the NZEB re-
quirements is covered, but the Energy Class 
is only CC.) 

Educational buildings and buildings typically including lecture halls, exhibition halls (including lighting energy require-
ments): 85, BB (or CC*) (If the minimum renewable energy requirement can be met with an increased level of energy 
efficiency but the 25% RES share is not achieved the NZEB requirements is covered, but the Energy Class is only CC.) 

Included end uses 

heating energy demand, hot water supply energy demand, ventilation system energy demand, mechanical cooling 
energy consumption, installed lighting 

RENOVATED NZEB energy 
performance requirements 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewa-
ble pri-

Energy class 

128 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Single family house 

100 (excluding lighting 
energy) 

Multi family house 

100 (excluding lighting 
energy) 

Offices 

90 

Hotel 

Hospital 

the threshold is based on 
the reference building 
method 

the threshold is based on 
the reference building 
method 

129 

mary en-
ergy 
(kWh/m2y) 

BB  (or  CC*)  (If  the  minimum  renewable  en-
ergy  requirement  can  be  met  with  an  in-
creased  level  of  energy  efficiency  but  the 
25% RES share is not achieved the NZEB re-
quirements is covered, but the Energy Class 
is only CC.) 

BB  (or  CC*)  (If  the  minimum  renewable  en-
ergy  requirement  can  be  met  with  an  in-
creased  level  of  energy  efficiency  but  the 
25% RES share is not achieved the NZEB re-
quirements is covered, but the Energy Class 
is only CC.) 

BB  (or  CC*)  (If  the  minimum  renewable  en-
ergy  requirement  can  be  met  with  an  in-
creased  level  of  energy  efficiency  but  the 
25% RES share is not achieved the NZEB re-
quirements is covered, but the Energy Class 
is only CC.) 

BB  (or  CC*)  (If  the  minimum  renewable  en-
ergy  requirement  can  be  met  with  an  in-
creased  level  of  energy  efficiency  but  the 
25% RES share is not achieved the NZEB re-
quirements is covered, but the Energy Class 
is only CC.) 

BB  (or  CC*)  (If  the  minimum  renewable  en-
ergy  requirement  can  be  met  with  an  in-
creased  level  of  energy  efficiency  but  the 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
25% RES share is not achieved the NZEB re-
quirements is covered, but the Energy Class 
is only CC.) 

Other 

Educational buildings and buildings typically including lecture halls, exhibition halls (including lighting energy require-
ments): 85, BB (or CC*) (If the minimum renewable energy requirement can be met with an increased level of energy 
efficiency but the 25% RES share is not achieved the NZEB requirements is covered, but the Energy Class is only CC.) 
**An additional 10 kWh/m2a may be added to the cooled part of the building for a fraction of the useful floor area 
covered by cooling. 

Included end uses 

heating energy demand, hot water supply energy demand, ventilation system energy demand, mechanical cooling 
energy consumption, installed lighting 

NZEBs building elements 

External 
walls 
(W/m2K) 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall 
U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

Current requirements for 
new NZEBs 

0.24 

0.17 

no 
1.15 
quire-
(PVC/timber)                                                     
ment 
1.40 (metal) 

0.3  (The  floor  on  the 
ground  in  a  1.5  m  wide 
strip along the perimeter. 
It can be replaced by in-
sulation of the same re-
sistance on the plinth) 

re-

no requirement  no 

require-

ment 

Current requirements for 
renovated NZEBs 

0.24 

0.17 

no 
no requirement 
1.15 
quire-
(PVC/timber)                                                     
ment 
1.40 (metal) 

re-

no requirement  no 

require-

ment 

Notes 

Some several other specific U-value requirements can be found in 7/2006.  Decree Annex V. Table 1: Heat transfer 
coefficient requirements 
* Instead of the Overall U-value the requirement is the Specific Heat Loss Factor (W/m3K), which calculates the total 
heat loss from the building (including heat bridge losses) minus the utilized passive solar gains divided by the heating 
degree-hours. The maximum allowable value, as a function of the building's cooling surface (A) and heated spaces air 
volume (V) ratio, is calculated as follows:  
§ A/V < 0.3 qm: 0.12  [W/m3K];  

130 

 
 
 
 
 
 
 
 
 
 
 
§ 0,3 > A/V > 1.0 qm: 0.05143 + [0.2296 (A/V)]  [W/m3K];  
§ A/V > 1,0 qm: 0,28 [W/m3K] 

131 

 
 
 
 
 

IE, Ireland 

Legal act on implemented 
NZEB definitions  

NZEB definition: new build-
ings 

NZEB definition: renovated 
buildings 

NEW NZEB energy perfor-
mance requirements  

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Residential: NZEB definitions in Statutory Instrument No 4 of 2017 
Implementation of NZEB definitions in Statutory Instrument No 183 of 2019 
Non-residential: NZEB definitions in Statutory Instrument No. 4 of 2017 
Implementation of NZEB definitions in Statutory Instrument No. 538 of 2017 
Residential: Nearly Zero-Energy Building (NZEB): means a building that has a very high energy performance, as determined in 
accordance with Annex I of the EU Energy Performance of Buildings Directive Recast (EPBD Recast) 2010/31/EU of 19th May 
2010. The nearly zero or very low amount of energy required should be covered to a very significant extent by energy from re-
newable sources, including energy from renewable sources produced on-site or nearby. 
Non-residential: Nearly Zero-Energy Building (NZEB): means a building that has a very high energy performance, as determined 
in accordance with Annex I to Directive 2010/31/EU of the European Parliament and of the Council of 19 May 2010 on the en-
ergy performance of buildings (recast). The nearly zero or very low amount of energy required should be covered to a very sig-
nificant extent by energy from renewable sources, including energy from renewable sources produced on-site or nearby. 
Major Renovation: means the renovation of a building where more than 25 % of the surface of the building envelope undergoes 
renovation. 
Non-residential: Not applicable. 
Total primary energy 
(kWh/m2y) 

Renewable primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Energy class 

40 

40 

Office Air-conditioned 44-
58 kWh/m2/yr 

Office Naturally Venti-
lated 71-87 kWh/m2/yr 

Hotel Air-conditioned 305 
kWh/m2/yr 

369 kWh/m2/yr 

25-32 

25-32 

8-15 

8-15 

A2 

A2 

132 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Other 

Retail Air-conditioned 142 kWh/m2/yr 
Schools  
44-45 kWh/m2/yr 

Included end uses 
RENOVATED NZEB energy 
performance requirements 

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 

Included end uses 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

B2 

B2 

125 

125 

Office Air-conditioned = 
180 kWh/m2/yr 

Naturally Ventilated Of-
fices = 124 kWh/m2/yr 

Hotel Air-conditioned = 
342 kWh/m2/yr 

Retail Air-conditioned = 338 kWh/m2/yr 

Schools = 60 kWh/m2/yr 

Other Air-conditioned Buildings = 338 kWh/m2/yr 

Other Naturally Ventilated Buildings = 124 kWh/m2/yr 

133 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
NZEBs building elements 

Current requirements for 
new NZEBs 

Current requirements for 
renovated NZEBs 

External 
walls 
(W/m2K) 

residential: 
0.18, non-
residential: 
0.21 

0.55 cavity 
walls 
0.35 other 
walls 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

residential: 
1.4, non-res-
idential: 1.6 

residential: 
0.18, non-resi-
dential: 0.21 

5 m3/hr.m2 

residential: 
1.4, non-res-
idential: 1.6 

residential: 
0.45 when 
floor is re-
placed, non-
residential: 
0.45 

residential: 
0.16, non-
residential: 
0.2 (flat 
roof) 
0.16 (Pitched 
roof) 

residential: 
0.16, non-
residential: 
0.25 (flat 
roof) 
0.16 (Pitched 
roof   insu-
lation at ceil-
ing) 
0.25 (Pitched 
roof   insu-
lation on 
slope) 

Notes 

new residential: Minimum Renewable Energy Ratio of 20% (produced on site or nearby) 
Maximum Permitted Energy Performance Coefficient MPEPC = 30% of reference dwellings in 2005 
Maximum Permitted Carbon Performance Coefficient MPCPC = 35% of reference dwellings in 2005 
renovated residential: Primary Energy use 125 kWh/m2.yr 
new non-residential: Maximum Permitted Energy Performance Coefficient (MPEPC) = 1 

Maximum Permitted Carbon Performance Coefficient (MPCPC) = 1.15 

Minimum Renewable Energy Ratio (RER) of 20% (0.2) produced on site or nearby. 

134 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The MPEPC and MPCPC represent an improvement in the order of 60% over 2008 Building Regulation requirements 
with 20% of the buildings energy provided from onsite or nearby renewables. 

Where an EPC of 0.9 and a CPC of 1.04 is achieved an RER of 0.10 represents a very significant level of energy pro-
vision from renewable energy technology.  

renovated non-residential: To achieve major renovation requirements there is the option to implement a suite of 
measures as follows: 

ct electric space heating systems; 

Or 
Achieve the following whole building primary energy performance levels as calculated in the national calculation 
methodology: 

Retail Air-conditioned = 338 kWh/m2/yr 

Naturally Ventilated Offices and Other Buildings = 124 kWh/m2/yr 

Office Air-conditioned = 180 kWh/m2/yr 

Hotel Air-conditioned = 342 kWh/m2/yr 

Schools = 60 kWh/m2/yr 

Other Air-conditioned Buildings = 338 kWh/m2/yr 

135 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 

 

LT, Lithuania 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 
NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

A++ 

A++ 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

Single family house 

kh·546·Ap-0,2 

Multi family house 

kh·307·Ap-0,07 

kh·320·Ap-0,1 

kh·375·Ap-0,08 

kh·519·Ap-0,1 

Offices 

Hotel 

Hospital 

Other 
Included end uses 
RENOVATED NZEB energy 
performance requirements 

>50% 

>50% 

>50% 

>50% 

>50% 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

Single family house 

kh·546·Ap-0,2 

Multi family house 

kh·307·Ap-0,07 

Offices 

kh·320·Ap-0,1 

>50% 

>50% 

>50% 

136 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Hotel 

Hospital 

Other 
Included end uses 
NZEBs building elements 

Current requirements for 
new NZEBs 
Current requirements for 
renovated NZEBs 
Notes 

kh·375·Ap-0,08 

kh·519·Ap-0,1 

>50% 

>50% 

External 
walls 
(W/m2K) 

0.13 

0.13 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

0.12 

0.12 

0.9 

0.9 

0.14 

0.14 

137 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
  
 
 
 

LU, Luxembourg 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 

Règlement grand-ducal modifié du 9 juin 2021 concernant la performance énergétique des bâtiments (http://data.le-
gilux.public.lu/eli/etat/leg/rgd/2021/06/09/a439/jo) 
The NZEB is defined as a building with a very high energy performance that respects specific minimum requirements (element-
specific limits on U-values, thermal protection in summer, minimal air-tightness, E-mobility- and PV-readiness, pipe insulation, 
etc.) as well as upper limits on its heating demand and on its primary energy demand (determined using a so-

NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Currently there is no (separate) NZEB definition applicable to renovations. In case of a renovation, the affected parts must com-
ply with the respective minimum requirements. 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 

30* 

25* 

40* 

45* 

70* 

30* 

25* 

40* 

45* 

70* 

Schools: total: 30, non-renewable: 30, energy class: A 

A 

A 

A 

A 

A 

Included end uses 

Heating, cooling, DHW, ventilation, lighting, auxiliary energy, and other building services 

RENOVATED NZEB energy 
performance requirements 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

Single family house 

n/a** 

n/a** 

n/a** 

n/a** 

138 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Multi family house 

Offices 

Hotel 

Hospital 

Other 
Included end uses 

Note 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

n/a** 

Heating, cooling, DHW, ventilation, lighting, auxiliary energy, and other building services 

new: * The indicated values are typical for the respective building category. The primary energy limit is fixed dynami-
cally using a so-
performance classes (A+ to I) are defined with respect to the performance of the reference building (the class A cor-
responds to the performance of the reference building). 
Important note: Energy performance requirements and a classification based on fixed absolute values cannot be 
used, especially for buildings with a very high energy performance. 
renovated: ** The current regulation imposes requirements on the modified building elements and technical systems 
based on cost-optimal calculations. 

NZEBs building elements 

Current requirements for 
new NZEBs 

External 
walls 
(W/m2K) 

0.13 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-
value (W/m2K)  

Solar energy trans-
mittance  

Air tight-
ness 

0.11 

0.9 

to ground: 0,17 
W/(m2K) 

0,6 1/h 

g^ = 0,50 
Thermal comfort: 
gtot between 0,05 
and 0,5 as a func-
tion of window/wall 
fraction 

Current requirements for 
renovated NZEBs 

0.28 

0.22 

1.2 

to ground: 0,36 
W/(m2K) 

Notes 

For new buildings, the upper limits on their heating and primary energy demand are determined using a so-called 

139 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
values in the right column are element-specific limits that have to be respected individually by the elements of the 
building. 

 

MT, Malta 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 
NZEB definition: renovated 
buildings 

Government Notice 1069 (2015) 

Building constructed to minimum energy performance requirements and to parameters mentioned in NZEB plan for Malta, 2015 
including overall energy performance. Energy performance according to building typology. Range 55kWh/m2yr-220kWh/m2yr 
Current minimum requirements does not require buildings to be renovated to reach NZEB level. These are required to reach Cur-
rent minimum energy performance requirements for buildings undergoing renovation. Definition for NZEB in case of renovated 
buildings is same as for new buildings as described above. 

NEW NZEB energy perfor-
mance requirements  

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

Single family house 

55 Detached and semi-
detached 
75 Terraced 

Proposed With RES: 10-15 

N/A requirement is over bal-
ance 
Proposed Without RES: 40 for 
Semi Detached House 
50 for Terraced house and 
Detached bungalow 

Yes, Amount not specified 
Proposed minimum 10% of 
demand + 50-80% of hot 
water from RES 

Does not translate to 
specific energy class 

Multi family house 

115 

Proposed With RES: 30 

Offices 

220 

N/A requirement is over bal-
ance 
Proposed Without RES: 50-70 
depending on typology 

Yes, Amount not specified 
Proposed minimum 10% of 
demand + 50-80% of hot 
water from RES 

Does not translate to 
specific energy class 

N/A requirement is over bal-
ance 

Yes, Amount not specified 

Does not translate to 
specific energy class 

Proposed With RES :220 

Proposed Without RES :290 

140 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Hotel 

220 

N/A requirement is over bal-
ance 

Yes, Amount not specified 

Does not translate to 
specific energy class 

Proposed With RES 480 

Proposed Without RES 600 

Hospital 

220 

N/A requirement is over bal-
ance 

Yes, Amount not specified 

Does not translate to 
specific energy class 

Other 
Included end uses 
RENOVATED NZEB energy 
performance requirements 

Single family house 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y) 

Renewable primary energy 
(kWh/m2y) 

Energy class 

55 Detached and semi-
detached 75 Terraced 

Proposed With 
RES: 40 

N/A requirement is over bal-
ance 

Yes, Amount not specified 

Does not translate to 
specific energy class 

Multi family house 

140 

Offices 

Proposed With RES: 60-75 

N/A no NZEB for Reno-
vated 

Proposed With RES :270 

Proposed Without RES: 70 
Terraced house and detached 
dwellings; 60 for Semi-de-
tached 

N/A requirement is over bal-
ance 

Proposed Without RES: 60-80 

N/A requirement is over bal-
ance 
Proposed Without RES :350 

141 

no 

no 

Does not translate to 
specific energy class 

N/A no NZEB for Reno-
vated 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Hotel 

Hospital 

N/A no NZEB for Reno-
vated 

Proposed With RES :625 
N/A no NZEB for Reno-
vated 

N/A requirement is over bal-
ance 
Proposed Without RES :780 

N/A requirement is over bal-
ance 

no 

no 

N/A no NZEB for Reno-
vated 

N/A no NZEB for Reno-
vated 

Other 
Included end uses 
NZEBs building elements 

External 
walls 
(W/m2K) 

Current requirements for 
new NZEBs 

1.57            

Proposed:1.22 

Current requirements for 
renovated NZEBs 

1.57            

Proposed:1.22 

Notes 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors 
(W/m2K) 

Overall U-value 
(W/m2K) 

Solar energy 
transmittance 

Air tightness 

0.57/0.4    
Proposed: 
0.57/0.4 

0.57/0.4    
Proposed: 
0.57/0.4 

4                 

1.97           

Proposed : 4 

Proposed: Ex-
posed floors: 
0.59 

4                 

1.97           

Proposed : 4 

Proposed: Ex-
posed floors: 
0.59 

142 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 

NL, Netherlands 

Legal act on implemented 
NZEB definitions  
NZEB definition: new 
buildings 

NZEB definition: reno-
vated buildings 
NEW NZEB energy perfor-
mance requirements  

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Building Decree 2012 

Definition is the same for new buildings and buildings undergoing a major renovation: 
Art. 1.1 
Bijna energieneutraal gebouw: gebouw met een zeer hoge energieprestatie, waarbij de dicht bij nul liggende of zeer lage hoeveel-
heid energie die is vereist in zeer aanzienlijke mate wordt geleverd uit hernieuwbare bronnen die deels ter plaatse of dichtbij wordt 
geproduceerd. 
In English: 
Nearly zero energy building: building with a very high energy performance, where the close to zero or very low amount of energy 
required is provided to a very significant extent from renewable sources produced in part on-site or nearby 
See above. For buildings undergoing a non-major renovation,  there is no NZEB definition yet. This possibly needs to be developed 
now in order to implement the revised Energy Efficiency Directive (EED) 

 article 6 correctly. 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

30 

50 

40 

130 (= Lodging: in a lodging 
building) 

130 ((= Healthcare with bed 
area)) 

143 

A+++ : 0,01   50,00 
kWh/m2y 

A+++ : 0,01   50,00 
kWh/m2y 

A++++: 0,01   40,00 
kWh/m2y 

A++: 100,01   150,00 
kWh/m2y 

A+++: 90,01   180,00 
kWh/m2y 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Other 

Included end uses 
RENOVATED NZEB energy 
performance require-
ments 
Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 
Included end uses 
NZEBs building elements 

school buildings: non-renewable 70, energy class: A+++: 50,01   100,00 kWh/m2y 
Assembly building: child care: non-renewable 70, energy class: A+++: 
55,01 - 110,00 kWh/m2y 
Assembly building: other: non-renewable 60, energy class: A+++: 
50,01   100,00 kWh/m2y 
Lodging building: other: non-renewable 40, energy class: A++++: 
0,01   50,00 kWh/m2y 
Sports building: non-renewable 90, energy class: A++: 
70,01   105,00 
Retail building (shops): non-renewable 60, energy class: A++++: 
0,01   60,00 kWh/m2y 
Healthcare without bed area: non-renewable 50, energy class: A+++: 
45,01   90,00 kWh/m2y 
Prison: non-renewable 120, energy class: A+++: 
60,01   120,00 kWh/m2y 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

External 
walls 
(W/m2K) 

Roofs 
(W/m2K) 

Windows 
 (W/m2K) 

Floors  
(W/m2K) 

Overall 
U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

144 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Current requirements for 
new NZEBs 

4,7 m2K/W) 

6,3 m2K/W) 

Current requirements for 
renovated NZEBs 

4,7 m2K/W) 

6,3 m2K/W) 

1,65 (average for all 
windows, doors and 
frames in the building) 

Uwi
1,65 (average for all 
windows, doors and 
frames in the building) 

m2K/W) 

m2K/W) 

Notes 

2K 

- Less stringent insulation requirements for mobile homes / trailers 
- Note: requirements mentioned only apply to the renovated parts of the building. 

m3/s 

Legally ob-
tained level 

145 

 
 
 
 
 
 
 
 
 

PL, Poland 

Legal act on imple-
mented NZEB defini-
tions  

NZEB definition: new 
buildings 

NZEB definition: reno-
vated buildings 
NEW NZEB energy per-
formance requirements  

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 

Included end uses 
Note 

1) definition of NZEB (buildings with low consumption energy) is included in the National Plan to increase the number of low  energy 
buildings. 
In accordance with Art. 39 of the Act of August 29, 2014 on the energy performance of buildings (Journal of Laws of 2021, item 497, 
as amended) [1], 
2) requirements is included in the Regulation of the Minister of Infrastructure of 12 April 2002 on the technical conditions to be met 
by buildings and their location (Journal of Laws of 2022, item 1225) [2]. 
"low energy consumption building" means a building that meets the requirements related to energy saving and thermal insulation 
contained in the technical and construction regulations referred to in art. 7 sec. 1 point 1 of the Construction Law [3] (in particular 
Section X and Appendix 2 to the Regulation of the Minister of Infrastructure on the technical conditions to be met by buildings and 
their location [2], applicable from December 31, 2020 and in the case of buildings occupied by public authorities and owned by them 
- from January 1, 2019. 
The partitions and technical equipment of the reconstructed building meet at least the requirements for thermal insulation and win-
dow area specified in Annex 2 to the Regulation [2] 
Non-renewable pri-
mary  
energy  (kWh/m2y) * 

Renewable pri-
mary energy 
(kWh/m2y) 

Total primary energy 
(kWh/m2y) * 

Energy class 

70 

65 

45 

75 

190 

70 

65 

45 

75 

Not specified 

based on the non-renewable primary energy index 

Not specified 

based on the non-renewable primary energy index 

Not specified 

based on the non-renewable primary energy index 

Not specified 

based on the non-renewable primary energy index 

190 

Not specified 

based on the non-renewable primary energy index 

70 (utility, warehouse and production building), energy class:based on the non-renewable primary energy index 

*The values refer to the energy demand for heating, ventilation and hot water preparation. In addition, there are allow-
ances for lighting (in non-residential buildings) and cooling (in buildings with such installations) 

146 

 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
RENOVATED NZEB en-
ergy performance re-
quirements 

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 
Included end uses 
Note 

NZEBs building ele-
ments 

Current requirements 
for new NZEBs 

Total primary energy 
(kWh/m2y) 

Non-renewable pri-
mary  
energy  (kWh/m2y)  

Renewable pri-
mary energy 
(kWh/m2y) 

Energy class 

For renovated NZEBs, the partitions and technical equipment of the building to be reconstructed meet at least the ther-
mal insulation requirements set out in Annex 2 to the technical regulation [2] 

External 
walls 
(W/m2K) 

0,2-1 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall 
U-value 
(W/m2K)  

Solar energy trans-
mittance  

Air tightness 

0,15-0,7 

0,9-1,4 

0,15-1,5 

Not 
speci-
fied 

Specified in annex 2 
of the technical regu-
lations  

Not specified 
while the technical regu-
lations indicate in the 
scope of designing the 
calculation of the appro-
priate tightness in ac-
cordance with the given 
formula, depending on 
the ventilation used 

147 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Current requirements 
for renovated NZEBs 

0,2-1 

0,15-0,7 

0,9-1,4 

0,15-1,5 

Not 
speci-
fied 

Specified in annex 2 
of the technical regu-
lations  

Not specified 

Notes 

 

PT, Portugal 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 

NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Single family house 

Multi family house 

Offices 

Decree-Law 101-D/2020, 7th December 2020 

which the energy needs (almost zero or very small amount) are covered, to a large extent, by energy from renewable sources, 
preferably local or near-by the building, when local is not enough. 
The same for new as long as they fulfil all requirements/indicators 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable 
primary en-
ergy 
(kWh/m2y) 

Energy class 

Primary energy needs less than 50% of 
reference building. 
A, A+ 

Primary energy needs less than 50% of 
reference building. 
A, A+ 

Primary energy needs less than 75% of 
reference building. 
B, A, A+ 

148 

 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
  
 
 
Hotel 

Hospital 

Primary energy needs less than 75% of 
reference building. 
B, A, A+ 

Primary energy needs less than 75% of 
reference building. 
B, A, A+ 

Other 
Included end uses 

Heating, Cooling, DWH and lighting (only for non-residential buildings) 

RENOVATED NZEB energy 
performance requirements 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable 
primary en-
ergy 
(kWh/m2y) 

Energy class 

Single family house 

Multi family house 

Offices 

Hotel 

Primary energy needs less than 50% of 
reference building. 
A, A+ 

Primary energy needs less than 50% of 
reference building. 
A, A+ 

Primary energy needs less than 75% of 
reference building. 
B, A, A+ 

Primary energy needs less than 75% of 
reference building. 
B, A, A+ 

149 

 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
  
 
 
 
  
 
 
Hospital 

Other 
Included end uses 

NZEBs building elements 

Current requirements for 
new NZEBs 

Current requirements for 
renovated NZEBs 

Heating, Cooling, DWH and lighting (only for non-residential buildings) 

Primary energy needs less than 75% of 
reference building. 
B, A, A+ 

External 
walls 
(W/m2K) 

0,35   0,50 
(mainland cli-
matic zones) 
0,35   0,50 
(Madeira cli-
matic zones) 
1,45   1,75 
(Azores cli-
matic zones) 

0,35   0,50 
(mainland cli-
matic zones) 
0,35   0,50 
(Madeira cli-
matic zones) 
1,45   1,75 
(Azores cli-
matic zones) 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

0,30   0,40 
(mainland 
climatic 
zones) 
0,30   0,40 
(Madeira cli-
matic zones) 
0,90   1,25 
(Azores cli-
matic zones) 

0,30   0,40 
(mainland 
climatic 
zones) 
0,30   0,40 
(Madeira cli-
matic zones) 
0,90   1,25 
(Azores cli-
matic zones) 

2,20   2,80 
(mainland 
climatic 
zones) 
2,20   2,80 
(Madeira cli-
matic zones) 
2,40   2,90 
(Azores cli-
matic zones) 

2,20   2,80 
(mainland 
climatic 
zones) 
2,20   2,80 
(Madeira cli-
matic zones) 
2,40   2,90 
(Azores cli-
matic zones) 

0,30   0,40 
(mainland cli-
matic zones) 
0,30   0,40 
(Madeira cli-
matic zones) 
0,90   1,25 
(Azores cli-
matic zones) 

0,30   0,40 
(mainland cli-
matic zones) 
0,30   0,40 
(Madeira cli-
matic zones) 
0,90   1,25 
(Azores cli-
matic zones) 

0,50 minimum 
hourly air ren-
ovation 

0,10   0,15 
(low inertia) 
0,50   0,56 
(medium or 
high inertia) 

0,50 minimum 
hourly air ren-
ovation 

0,10   0,15 
(low inertia) 
0,50   0,56 
(medium or 
high inertia) 

Notes 

only residential buildings 

150 

 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 

RO, Romania 

Legal act on implemented 
NZEB definitions  

NZEB definition: new build-
ings 

NZEB definition: renovated 
buildings 

'- Law no. 372/2005 regarding the energy performance of buildings, republished 
- Methodology for calculating the energy performance of buildings, Mc 001-2022" approved by Order of the Minister of Develop-
ment, Public Works and Administration no. 16/2023 
Building with a very high energy performance, where energy consumption is close to zero or very low and is covered, at least 
30%, by renewable energy, including renewable energy produced on site, or nearby, within a radius of 30 km from the GPS coor-
dinates of the building, starting from 2021 (after 2031 the minimum proportion of energy from renewable sources will be es-
tablished by Government Decision, according to the provisions of Law no. 372/2005, republished). 
Romania does not have explicitly defined by the legislation in force the renovation of existing buildings to nzeb standards. How-
ever, the methodology for calculating energy performance provides for total primary energy consumption clear values, defined 
by building types and climatic zones, for major building renovation. It also stipulates the obligation to insure at least 10% by 
renewable energy, including renewable energy produced on site, or nearby, within a radius of 30 km from the GPS coordinates of 
the building. 

NEW NZEB energy perfor-
mance requirements  

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

Single family house 

Multi family house 

Offices 

climatic zone 1: 120,1 
climaftic zone 2: 127,9 
climaftic zone 3: 133,3 
climaftic zone 4: 140,6 
climaftic zone 5: 140,6 

climatic zone 1: 99,1 
climaftic zone 2: 103,7 
climaftic zone 3: 105,9 
climaftic zone 4: 109,5 
climaftic zone 5: 109,5 

climatic zone 1: 94,7 
climaftic zone 2: 98,4 
climaftic zone 3: 98,9 
climaftic zone 4: 100,6 
climaftic zone 5: 100,6 

climatic zone 1: 84,07 
climaftic zone 2: 89,53 
climaftic zone 3: 93,31 
climaftic zone 4: 98,42 
climaftic zone 5: 98,42 

climatic zone 1: 84,07 
climaftic zone 2: 89,53 
climaftic zone 3: 93,31 
climaftic zone 4: 98,42 
climaftic zone 5: 98,42 

climatic zone 1:66,29 
climaftic zone 2: 68,88 
climaftic zone 3: 69,23 
climaftic zone 4: 70,42 
climaftic zone 5: 70,42 

151 

climatic zone 1: 36,03 
climaftic zone 2: 38,37 
climaftic zone 3: 39,99 
climaftic zone 4: 42,18 
climaftic zone 5: 42,18 

climatic zone 1: 29,73 
climaftic zone 2: 31,11 
climaftic zone 3: 31,77 
climaftic zone 4: 32,85 
climaftic zone 5: 32,85 

climatic zone 1: 28,41 
climaftic zone 2: 29,52 
climaftic zone 3: 29,67 
climaftic zone 4: 30,18 
climaftic zone 5: 30,18 

climatic zone 1: A 
climaftic zone 2: A 
climaftic zone 3: B 
climaftic zone 4:B 
climaftic zone 5: B 

climatic zone 1: A 
climaftic zone 2: B 
climaftic zone 3: B 
climaftic zone 4:B 
climaftic zone 5: B 

climatic zone 1: A 
climaftic zone 2: B 
climaftic zone 3: B 
climaftic zone 4:B 
climaftic zone 5: B 

 
 
 
 
 
 
 
 
 
 
Hotel 

Hospital 

Other 

climatic zone 1: 96,5 
climaftic zone 2: 101 
climaftic zone 3: 103,7 
climaftic zone 4: 107,4 
climaftic zone 5: 107,4 

climatic zone 1: 162,5 
climaftic zone 2: 168,8 
climaftic zone 3: 170,9 
climaftic zone 4: 174,8 
climaftic zone 5: 174,8 

climatic zone 1:67,55 
climaftic zone 2: 70,7 
climaftic zone 3: 72,59 
climaftic zone 4: 75,18 
climaftic zone 5: 75,18 

climatic zone 1:113,75 
climaftic zone 2: 118,16 
climaftic zone 3: 119,63 
climaftic zone 4: 122,36 
climaftic zone 5: 122,36 

climatic zone 1: 28,95 
climaftic zone 2: 30,3 
climaftic zone 3: 31,11 
climaftic zone 4: 32,22 
climaftic zone 5: 32,22 

climatic zone 1: 48,75 
climaftic zone 2: 50,64 
climaftic zone 3: 51,27 
climaftic zone 4: 52,44 
climaftic zone 5: 52,44 

climatic zone 1: B 
climaftic zone 2: B 
climaftic zone 3: B 
climaftic zone 4:B 
climaftic zone 5: B 

climatic zone 1: A 
climaftic zone 2: B 
climaftic zone 3: B 
climaftic zone 4:B 
climaftic zone 5: B 

total-non-renewable-renewable-energy class 
education 
climatic zone 1: 61,6 - 43,12 - 18,48 -A 
climaftic zone 2: 66,8 - 46,76 - 20,04 - A 
climaftic zone 3: 71 - 49,7 - 21,3 - B 
climaftic zone 4: 76,5 - 53,55 -22,95 -B 
climaftic zone 5: 76,5 - 53,55 -22,95 -B 
commercial 
climatic zone 1: 95,5 - 66,85 - 28,65 -A 
climaftic zone 2: 102,9 - 72,03 - 30,87 - A 
climaftic zone 3: 107,7 - 75,39 - 32,31 - A 
climaftic zone 4: 114,5 - 80,15 -34,35 -A 
climaftic zone 5: 114,5 - 80,15 -34,35 -A 
sporting activities 
climatic zone 1: 93,4 - 65,38 - 28,02 -A 
climaftic zone 2: 98,2 - 68,74 - 29,46 - A 
climaftic zone 3: 100,3- 70,21 - 30,09 - A 
climaftic zone 4: 103,8 - 72,66 -31,14 -A 
climaftic zone 5: 103,8 - 72,66 -31,14 -A 

Included end uses 
RENOVATED NZEB energy 
performance requirements 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

152 

 
 
 
 
 
 
 
 
 
 
Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 

climatic zone 1: 143,2 
climaftic zone 2: 149,1 
climaftic zone 3: 156,8 
climaftic zone 4: 164,1 
climaftic zone 5: 164,1 

climatic zone 1: 116,4 
climaftic zone 2: 121,2 
climaftic zone 3: 123,1 
climaftic zone 4: 126,4 
climaftic zone 5: 126,4 

climatic zone 1: 113,5 
climaftic zone 2: 117,3 
climaftic zone 3: 116,9 
climaftic zone 4: 117,7 
climaftic zone 5: 117,7 

climatic zone 1: 113 
climaftic zone 2: 117,8 
climaftic zone 3: 120,4 
climaftic zone 4: 124,3 
climaftic zone 5: 124,3 

climatic zone 1: 191,9 
climaftic zone 2: 198,4 
climaftic zone 3: 199,6 
climaftic zone 4: 202,9 
climaftic zone 5: 202,9 

climatic zone 1: 128,88 
climaftic zone 2: 134,19 
climaftic zone 3: 141,12 
climaftic zone 4: 147,69 
climaftic zone 5: 147,69 

climatic zone 1:104,76 
climaftic zone 2: 109,08 
climaftic zone 3: 110,79 
climaftic zone 4: 113,76 
climaftic zone 5: 113,76 

climatic zone 1:102,15 
climaftic zone 2: 105,57 
climaftic zone 3: 105,21 
climaftic zone 4: 105,93 
climaftic zone 5: 105,93 

climatic zone 1:101,7 
climaftic zone 2: 106,02 
climaftic zone 3: 108,36 
climaftic zone 4: 111,87 
climaftic zone 5: 111,87 

climatic zone 1:172,71 
climaftic zone 2: 178,56 
climaftic zone 3: 179,64 
climaftic zone 4: 182,61 
climaftic zone 5: 182,61 

total-non-renewable-renewable-energy class 
education 
climatic zone 1: 72,5 - 65,25 - 7,25 -A 
climaftic zone 2: 78,2 - 70,38 - 7,82 - B 
climaftic zone 3: 82,7 - 74,43 - 8,27 - B 
climaftic zone 4: 88,6 - 79,74 - 8,86 - B 

153 

climatic zone 1: 14,32 
climaftic zone 2: 14,91 
climaftic zone 3: 15,68 
climaftic zone 4: 16,41 
climaftic zone 5: 16,41 

climatic zone 1: 11,64 
climaftic zone 2: 12,12 
climaftic zone 3: 12,31 
climaftic zone 4: 12,64 
climaftic zone 5: 12,64 

climatic zone 1: 11,35 
climaftic zone 2: 11,73 
climaftic zone 3: 11,69 
climaftic zone 4: 11,77 
climaftic zone 5: 11,77 

climatic zone 1: 11,3 
climaftic zone 2: 11,78 
climaftic zone 3: 12,04 
climaftic zone 4: 12,43 
climaftic zone 5: 12,43 

climatic zone 1: 19,19 
climaftic zone 2: 19,84 
climaftic zone 3: 19,96 
climaftic zone 4: 20,29 
climaftic zone 5: 20,29 

climatic zone 1:  B 
climaftic zone 2: B 
climaftic zone 3: B 
climaftic zone 4:B 
climaftic zone 5: B 

climatic zone 1:  B 
climaftic zone 2: B 
climaftic zone 3: B 
climaftic zone 4:B 
climaftic zone 5: B 

climatic zone 1: B 
climaftic zone 2: B 
climaftic zone 3: B 
climaftic zone 4:B 
climaftic zone 5: B 

climatic zone 1: B 
climaftic zone 2: B 
climaftic zone 3: B 
climaftic zone 4:B 
climaftic zone 5: B 

climatic zone 1: B 
climaftic zone 2: B 
climaftic zone 3: B 
climaftic zone 4:B 
climaftic zone 5: B 

 
 
 
 
 
 
 
climaftic zone 5: 88,6 - 79,74 - 8,86 - B 
commercial 
climatic zone 1: 113,1 - 101,79 - 11,31 -A 
climaftic zone 2: 121,1 - 108,99 - 12,11- A 
climaftic zone 3: 125,8 - 113,22 -  12,58 - B 
climaftic zone 4: 132,7 - 119,43 - 13,27 - B 
climaftic zone 5: 132,7 - 119,43 - 13,27 - B 
sporting activities 
climatic zone 1: 111,2 - 100,08 - 11,12 -B 
climaftic zone 2: 116,2 - 104,58 - 11,62 - B 
climaftic zone 3: 117,9 - 106,11 - 11,79 - B 
climaftic zone 4: 121,3 - 109,17 - 12,13 - B 
climaftic zone 5: 121,3 - 109,17 - 12,13 - B 

Included end uses 
NZEBs building elements 

Current requirements for 
new NZEBs 
Current requirements for 
renovated NZEBs 
Notes 

External 
walls 
(W/m2K) 

0.33 

0.33 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

0.17 

0.2 

1.2 

1.2 

0.2 

0.4 

154 

 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
  
 
 
 

SE, Sweden 

Legal act on 
imple-
mented 
NZEB defi-
nitions  
NZEB defi-
nition: new 
buildings 

NZEB defi-
nition: reno-
vated build-
ings 
NEW NZEB 
energy per-
formance 
require-
ments  
Single fam-
ily house 

Multi family 
house 

Planning and Building Act, PBL (parliament)   no changes due to the 2018 EPBD 
Planning and Building Ordinance, PBF (government)   June 4, 2020  
Boverket´s Building Regulations 
September 1, 2020 

 mandatory provisions and general recommendations, BBR (National board of building, planning and housing) 

Planning and Building Ordinance, PBF, 3 kap 14 § 

Plan- och byggförordning (2011:338) | Sveriges riksdag (riksdagen.se) (In Swedish) 

Total primary energy (kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable 
primary en-
ergy 
(kWh/m2y) 

90 kWh/m2a 

95 kWh/m2, a (90 130 m2) 

100 kWh/m2a (50 90 m2) 
75 kWh/m2 a 

155 

-nollenergibygg-

s (near-zero en-

the NZEB definition. 

Energy class 

C 

C 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Offices 

See non-residential 

Hotel 

See non-residential 

Hospital 

See non-residential 

Other 

Non-residential: 70 kWh/m2, a  
and a ventilation flow addition, maximum 
26 kWh/m2, a, 
energy class: C 

See non-residen-
tial 

See non-residen-
tial 

See non-residen-
tial 

Included 
end uses 
RENOVATED 
NZEB en-
ergy perfor-
mance re-
quirements 
Single fam-
ily house 
Multi family 
house 
Offices 
Hotel 
Hospital 
Other 
Included 
end uses 
NZEBs 
building el-
ements 

No (end uses = household energy or similar) 

Total primary energy (kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Energy class 

Renewable 
primary en-
ergy 
(kWh/m2y) 

External walls 
(W/m2K) 

Roofs (W/m2K) 

Windows (W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmit-
tance  

Air tightness 

156 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Current re-
quirements 
for new 
NZEBs 

Current re-
quirements 
for reno-
vated 
NZEBs 

Notes 

Um  =  0.30 (single-
houses) 
family 
Um  =  0.40  (multi-
family 
houses) 
Um  =  0.50  (non-
build-
residential 
ings) 

Air  tightness  re-
(<0.6 
quirement 
l/s,  m2)  only  for 
buildings  with  an 
area  less  than  50 
larger 
m2.  For 
building  shall  the 
energy  consump-
tion  due  to  air 
in-
leakage  be 
cluded  in  the  en-
ergy  consumption 
calculations. 

The  building  code 
also  states  that 
the  building  shall 
have  an  air  tight-
ness which avoids 
moisture 
prob-
lems. 

0.18  
(Recommendation 
for added building 
unit) * 

0.13  
(Recommendation 
for added building 
unit) * 

1.20  
(Recommendation 
for added building 
unit) * 

0.15  
(Recommen-
for 
dation 
added  build-
ing unit) * 

* Sweden has chosen not to differentiate between new and existing buildings when defining NZEB and setting minimum energy per-
formance requirements. This means that when an existing building undergoes a major renovation, the building shall strive to meet 
the requirements for new buildings. Exceptions from these requirements may be made due to special architectural or historical merit, 
technical and economic feasibility etc.  
In case minimum energy performance requirements for new buildings is not possible for the renovated building to meet, the building 
shall strive to meet the numerical values specified in this column. These values are not a part of an NZEB definition. 

157 

 
 
  
  
  
  
  
 
  
  
  
 
 

SI, Slovenia 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 
NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Pravilnik o energijski 
Rules on efficient use of energy in buildings 

-3) 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

Single family house 

75 

< 37,5 

> 37,5 

Multi family house 

Offices 

Hotel 

Hospital 

Other 

75 
EPtot,an < EPtot,ref,an 

EPtot,an < EPtot,ref,an 

EPtot,an < EPtot,ref,an 

EPtot,an < EPtot,ref,an 

< 37,5 
EPnren,an < 0,5 EPtot,an 

> 37,5 
EPren,an > 0,5 EPtot,an 

EPnren,an < 0,5 EPtot,an 

EPren,an > 0,5 EPtot,an 

EPnren,an < 0,5 EPtot,an 

EPren,an > 0,5 EPtot,an 

EPnren,an < 0,5 EPtot,an 

EPren,an > 0,5 EPtot,an 

total: EPtot,an < EPtot,ref,an 
non-renewable: EPnren,an < 0,5 EPtot,an 
renewable: EPren,an > 0,5 EPtot,an 

Public buildings:  
EPtot,an,pb = 0,9 EPtot,an ( 10 %) 
EPren,an,pb > 0,55 EPtot,an (+10%) 

Included end uses 
RENOVATED NZEB energy 
performance requirements 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

158 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Single family house 

90 

< 45 

> 45 

Multi family house 

Offices 

Hotel 

Hospital 

Other 

Included end uses 
Note 

NZEBs building elements 

Current requirements for 
new NZEBs 
Current requirements for 
renovated NZEBs 
Notes 

90 
EPtot,an < EPtot,ref,an 

EPtot,an < EPtot,ref,an 

EPtot,an < EPtot,ref,an 

EPtot,an < EPtot,ref,an 

< 45 
EPnren,an < 0,5 EPtot,an 

> 45 
EPren,an  > 0,5 EPtot,an 

EPnren,an < 0,5 EPtot,an 

EPren,an  > 0,5 EPtot,an 

EPnren,an < 0,5 EPtot,an 

EPren,an  > 0,5 EPtot,an 

EPnren,an < 0,5 EPtot,an 

EPren,an  > 0,5 EPtot,an 

total: EPtot,an < EPtot,ref,an 
non-renewable: EPnren,an < 0,5 EPtot,an 
renewable: EPren,an > 0,5 EPtot,an 

Public buildings:  
EPtot,an,pb = 0,9 EPtot,an ( 10 %) 
EPren,an,pb > 0,55 EPtot,an (+10%) 

Single family house (Ause = 50 to 500 m2) 
Multi-family house (Ause = 50 to 500 m2) 
Multi-family house 

External 
walls 
(W/m2K) 

0.18 

0.18 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors  
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance  

Air tightness 

0.15 

0.15 

1 

1 

0.35 

0.35 

1,5 h-1 

1,5 h-1 

See PURES-3 in TSG-1-004:2022 

159 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 

SK, Slovakia 

Legal act on implemented 
NZEB definitions  
NZEB definition: new build-
ings 

NZEB definition: renovated 
buildings 
NEW NZEB energy perfor-
mance requirements  

Single family house 

Multi family house 

Offices 

Hotel 

Hospital 

Other 

Included end uses 
RENOVATED NZEB energy 
performance requirements 

Single family house 

Multi family house 

Act No. 300/2012 Coll. amending Act No. 555/2005 Coll. on energy performance of buildings 

Nearly zero energy building is a building with a very high energy performance. Nearly zero or a very low energy needed for us-
age of such building is ensured by sufficient thermal insulation and to a very high extent covered by the energy delivered from 
renewable energy sources on-site or nearby. 
If it´s technically, functionally and economically feasible, existing building after the major renovation must comply with the min-
imum energy performance of buildings requirements set for new buildings. 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

54 

32 

61 

82 

98 

A0 

A0 

A0 

A0 

A0 

34, A0 (SCHOOLS) 

Total primary energy 
(kWh/m2y) 

Non-renewable primary  
energy  (kWh/m2y)  

Renewable primary energy 
(kWh/m2y) 

Energy class 

54 

32 

160 

A0 

A0 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
  
 
Offices 

Hotel 

Hospital 

Other 
Included end uses 
NZEBs building elements 

Current requirements for 
new NZEBs 

34, A0 (SCHOOLS) 

External 
walls 
(W/m2K) 

0.22 

61 

82 

98 

A0 

A0 

A0 

Roofs 
(W/m2K) 

Windows 
(W/m2K) 

Floors 
(W/m2K) 

Overall U-value 
(W/m2K)  

Solar energy 
transmittance 

Air tightness 

0.15 

0.85 

Not set 

0.6 

0,6 1/h 

0.6 

0,6 1/h 

Recommended 
value depending 
on the form 
factor of a 
building (e.g. 
0,35 for 0,4  
1/m) 

Recommended 
value depending 
on the form 
factor of a 
building (e.g. 
0,35 for 0,4  
1/m) 

Current requirements for 
renovated NZEBs 

0.22 

0.15 

0.85 

Not set 

Notes 

161 

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