Implementing the EPBD with Regional and Local Energy Agencies in the driving seat

The European Commission published a comprehensive implementation package to support Member States in transposing the revised Energy Performance of Buildings Directive (EPBD) into national legislation by May 2026. This package marks a major step forward in Europe’s journey to decarbonise its building stock and strengthen energy independence, and it clearly recognises the vital role of Regional and Local Energy Agencies in this transition.

From running Energy Performance Contracting (EPC) schemes to developing building stock observatories, from developing innovative financing schemes to running renovation one-stop shops (OSS), Regional and Local Energy Agencies have long been delivery agents of the EPBD.

The implementation toolbox includes: a Delegated Regulation revising the methodology for setting cost-optimal energy performance levels, adapted to national conditions; an Implementing Regulation standardising how Member States share building stock data with the EU Observatory; a Guidance Document (with 13 annexes) to help Member States interpret and implement key provisions of the recast EPBD.

It also further guides Member States on how to use their Energy Agencies effectively.

Energy Agencies as Implementers of MEPS

Minimum Energy Performance Standards (MEPS) are one of the novelties of the new EPBD, mandating Member States to establish binding renovation calendars for non-residential buildings. The EPBD guidance explicitly recognises the possibility for Member States to delegate implementation of MEPS to Energy Agencies:

“Alternatively, they could decide to organise a decentralised MEPS scheme, assigning responsibilities e.g. to local authorities or municipalities or public one-stop shops, or commission the implementation to energy agencies to enact the scheme on a regional or local scale.”

Binding renovation calendars, such as the ones provided by MEPS, are essential to build predictability for companies and investors in the energy efficiency sector, as well as mobilise the building owners. But the successful roll-out of MEPS will rely on enabling frameworks that stimulate the energy efficiency market. To this end, the facilitation activities provided by Energy Agencies through their regional OSS will be instrumental. Regardless of the governance structure of each country, Regional and Local Energy Agencies have a key role in the decentralised implementation of MEPS as they:

• provide hands-on support, guidance and monitoring, improving compliance and uptake;
• use their OSS to ensure tailored and local delivery, fostering trust and collaboration with communities and local authorities and encouraging smoother implementation;
• act as testing grounds for innovative enforcement or incentive mechanisms, which can then inform further national/regional policy instruments;
• drive skills development and workforce readiness, ensuring local markets are prepared to meet MEPS requirements. 

Previous experiences of MEPS show that embedded flexibilities within the instrument easily turn into loopholes leading to renovations entailing only strictly minimal measures ensuring compliance with the closest deadline, or based on the more convenient baselines that allow for the least effort in terms of energy savings. This is where territorial OSS step in and ensure the building owners choose immediate deep renovation, avoiding the necessity of subsequent renovations, avoiding the risk of lock-in of suboptimal renovations and tapping into the multiple benefits of such comprehensive renovations.

One-Stop Shops in the Spotlight

The guidance outlines how Member States can support the development of OSS as critical instruments in facilitating the renovation journey for citizens and businesses. Member States are encouraged to reach out to their established networks of local Energy Agencies, which could “be used to set up one-stop shops for energy renovations”. Networks such as the Italian Network of Local Energy Agencies (RENAEL) are already developing in partnership with their national government, OSS to support the development of renewable energy communities across regions in Italy. Existing examples of such OSS provide financial and technical expertise, facilitating the uptake of RECs in the territories.

Regional and Local Energy Agencies have been championing renovation OSS across Europe. Good practices such as Opengela and Superhomes are specifically referenced as successful examples of decentralised models that could be replicated or scaled up in other countries. This recognition is a testament to the pioneering work of Regional Energy Agencies and their ability to deliver high-impact solutions.

National networks of Regional/Local Energy Agencies stand ready to make sure OSS are deployed effectively across regions. A preliminary list of these networks is available below:

The synergy between renovation OSS and MEPS becomes particularly powerful when OSS are operated by Regional or Local Energy Agencies. MEPS create the needed regulatory “push” by requiring buildings to meet certain energy performance levels within specific timeframes. In parallel, OSS provide the essential “pull” by simplifying and supporting the renovation journey, offering integrated services such as technical advice, financial guidance, contractor coordination and monitoring. When run by trusted Regional and Local Energy Agencies, these OSS can tailor support to local building stock, socioeconomic contexts and available funding. This dynamic push-pull interaction accelerates deep renovations, ensures compliance with MEPS, and maximises the social and economic co-benefits of the EPBD on the ground.

“The EPBD demonstrates the importance of combining strong European ambition with robust local implementation. Regional and local energy agencies, through one-stop shops for renovation and support for MEPS standards, provide the expertise and confidence needed to make the decarbonisation of buildings a reality across Europe and make government decisions actionable for cities and citizens, because without cities, there is no transition.” – Benedetta Brighenti, General Director of RENAEL, President of AESS, Climate Pact Ambassador of the European Commission and FEDARENE’s Vice-President for Climate Neutral Cities and Regions.