In 2012, Directive 2012/27/EU of the European Parliament and the Council, on Energy Efficiency, was approved to create a new common framework for the promotion of energy efficiency within the EU. This directive is derogated by Directive 2023/1791 of 13 September 2023 (“Directive 2023/1791”) with effect from 25 October 2025.

The main objective of this new Directive 2023/1791 is to comply with the legal requirements of the “Fit for 55” package, a measure aimed at regional decarbonization by 2030 by reducing emissions of these gases by at least 55% compared to 1990. The previous target set out in Directive 2012/27/EU was 40%.

Directive 2023/1791 aims to achieve a much more efficient use of energy and, consequently, large energy savings. Specifically, it sets the objective of reducing energy consumption across the EU by 11.7% by 2030, compared to the 2020 target, making the EU’s final energy consumption not exceed 763 million tons of oil equivalent.

Spain is fully committed to achieving the energy efficiency improvement targets imposed by the directive and reiterates its commitment through the Integrated National Energy and Climate Plan (PNIEC) 2021-2030.

The structure of the PNIEC is faithful to the content required by the directive and sets forth the measures for improving energy efficiency underway in Spain and those that it plans to execute.

The PNIEC aims to reduce greenhouse gas emissions by 32% compared to 1990 by establishing the following measures that directly affect the building sector:

• Integration of thermal renewable energies in buildings: It revises and raises the energy efficiency and renewable energy requirements set forth in the Technical Building Code and the Regulation on Thermal Installations in Buildings for new buildings and renovations, including technical modifications and digitalization objectives.
• To reduce the energy consumption of existing residential buildings for residential use through energy rehabilitation actions, the PNIEC proposes the following rehabilitation actions:
  • Replacing heat and cold production equipment, and moving heat transfer fluids, including improving the thermal insulation of piping networks and equipment to reduce losses in the transportation of fluids
  • Installing free outdoor air cooling, and recovering heat from the exhaust air
  • Installing new centralized district or district heating and cooling systems or those serving several buildings, as well as refurbishing and expanding existing ones

   

• Apart from the above-mentioned measures, the PNIEC also provides for the following actions:
  • Thermal building envelope: The building’s thermal envelope will be acted on to achieve a reduction in the building’s heating and cooling demand. Energy efficiency actions may be taken, among others, on facades, roofs, floors, exterior carpentry, glazing and solar protection.
  • Thermal installations: Actions will be taken on thermal installations for heating, air-conditioning, domestic hot water production and ventilation, regulated by the Regulation of Thermal Installations in Buildings. The measure considers incorporating renewable thermal energy sources to cover the demand in accordance with the final energy consumption targets established in the PNIEC.
  • Information and communication technologies: This includes the use of monitoring, control and automation tools to manage equipment for efficient energy consumption.
  • Efficient heating and cooling networks: This include connection to efficient heating and cooling networks that enable the supply of heat, cooling and domestic hot water to the building from waste energy, renewable energy and other efficient renewable energies and other efficient systems.

   

• The above-mentioned measures also apply to buildings for the tertiary sector (i.e., buildings for commercial purposes), for which the following measure is also provided in the PNIEC:
  • Lighting installations: Action will be taken on the buildings’ interior lighting installations, adapting them to the energy efficiency values required according to the use of each zone, implementing systems to regulate and control lighting depending on the activity in each zone of the building, and adapting the lighting level according to the contribution of natural light.

The plan provides a broad range of energy savings and efficiency measures in all sectors, some of which are already being executed despite the restrictions brought on by the current economic scene.

In conclusion, the new PNIEC operates as a central tool in Spanish energy policy, and its enforcement will allow Spain to achieve the energy savings and efficiency goals set by Directive 2023/1791. This will improve the competitiveness of the Spanish economy, with the expectation of seeing it reflected in the indicators of economic activity and employment.