EPBD Implementation in Latvia

Keywords: EPBD, ZEB, Decarbonisation, IEQ, Latvia, LATVAC

In Latvia, the process of building energy certification was initiated in 2013, following the entry into force of the Law on the Energy Performance of Buildings on 9 January 2013. Based on this law, detailed regulations on the energy certification of buildings were subsequently introduced. The certification methodology and reference energy efficiency classes were established based on heating energy demand. However, despite the formal requirements, the registration and systematic use of energy performance certificates (EPCs) remained limited until around 2020. By August 2023, a total of 21,277 EPCs had been registered in the Building Information System (BIS), representing less than 5% of the total building stock registered as of 1 January 2023.

As of the end of April 2026, the number of EPCs in the database has increased to 54,123. Nevertheless, only 27,054 of these certificates are currently valid, indicating that a significant share has expired and highlighting ongoing challenges in maintaining an up-to-date and comprehensive certification system.

In 2021, a revised energy certification methodology and classification system were introduced through Cabinet of Ministers Regulation No. 222, “Methods for calculating the energy efficiency of buildings and rules for energy certification of buildings.” This update introduced non-renewable primary energy consumption into the certification framework. As a result, two energy performance indicators are currently used in Latvian energy performance certificates: space heating energy demand and non-renewable primary energy consumption. The heating-based classification is expressed using energy classes from A+ to F, while the non-renewable primary energy classification ranges from A to G. The primary energy indicator provides a more comprehensive assessment, as it includes energy use for domestic hot water, ventilation systems (including fans and frost protection), cooling, and, in the case of non-residential buildings, lighting.

The threshold values for each energy class depend on the heated floor area of the building. The regulation distinguishes three size categories: 50–120 m², 120–250 m², and above 250 m². Requirements are less stringent for smaller buildings, while buildings with a heated floor area above 250 m² must meet stricter energy performance thresholds.

Figure 1. “A” class Energy performance levels for different building types.

The current regulation also specifies stricter indoor boundary conditions for the energy performance calculation. The indoor air exchange rate during occupancy must be assumed to be no lower than Category III, and indoor temperature conditions during the heating season must correspond to at least Category II according to EN 16798-1:2019.

Amendments introduced in 2025 allows energy certification to be carried out using the “assumed system” approach in cases where the actual energy consumption cannot be determined in accordance with the provisions of the regulation. This approach applies only to buildings designed before 1 January 1992 that have not undergone renovation. The tabulated default values provide reference annual energy use (kWh/m²·year) for space heating, domestic hot water, mechanical ventilation, lighting, and cooling, differentiated by building type.

The Latvian policy framework for building decarbonisation has evolved significantly since 2020, aligning progressively with the requirements of the Energy Performance of Buildings Directive and broader EU climate neutrality objectives for 2050.

The 2020 document “Long-term strategy for building renovation” represents Latvia’s initial systemic response to EPBD requirements, particularly the obligation to develop long-term renovation strategies. The strategy emphasises large-scale renovation of existing buildings, reduction of heating energy demand, and a gradual transition toward nearly zero-energy buildings (nZEB). It also defines intermediate milestones for 2030 and 2040, reflecting the staged tightening of performance requirements under the EPBD framework. However, despite clearly defined targets, implementation has been relatively slow, highlighting structural and institutional barriers.

A key limitation during the early implementation phase was the lack of comprehensive data on the energy performance of the building stock. Not all buildings had undergone energy certification, making it impossible to determine their energy efficiency class at a national level. To address this gap, regulatory amendments made in 2025 were introduced allowing energy certification to be based on measured energy consumption data thus enabling large-scale (mass) certification of buildings.

The Latvian Social Climate Fund Plan for 2026–2032 represents a subsequent phase in policy development, shifting from strategic planning toward implementation and social targeting. It proposes financial support for energy-efficiency improvements, renewable-energy integration, and measures to reduce energy poverty, particularly among vulnerable households and occupants of the worst-performing buildings.

From a long-term perspective (2020–2050), these two policy instruments illustrate a clear evolution. The 2020 strategy defines the technical vision and performance targets, primarily focused on reducing heating energy demand and improving building efficiency. In contrast, the 2026–2032 plan operationalises these objectives through targeted financial mechanisms and improved data availability, while also addressing affordability and social equity.

Looking ahead, Latvia is planning the submission of a National Building Renovation Plan by the end of 2026, in line with the revised EPBD requirements. This document will define a national building renovation trajectory with clear milestones toward 2030, 2040, and 2050, ensuring consistency with climate neutrality targets. A central element will be the clarification and application of updated building performance concepts introduced in Directive (EU) 2024/1275, particularly the transition from nearly zero-energy buildings (nZEB) to zero-emission buildings (ZEB). The plan is expected to establish national definitions and implementation pathways for zero-emission buildings (bezemisiju ēkas), characterised by very high energy performance and no on-site carbon emissions from fossil fuels, as well as to further refine the role of low-energy building standards within the regulatory framework.