Implementation of the EPBD-IV in the Netherlands

Keywords: EPBD, ZEB, Decarbonisation, IEQ, TVVL, the Netherlands

Authors on behalf of TVVL:

A step-by-step approach towards 2030

As the deadline for the implementation of the EPBD-IV approaches, the consequences are becoming clear in the Netherlands as well. On May 28, 2026, an amendment to the Building Code (‘Besluit bouwwerken leefomgeving’) will come into force, an updated version of NTA 8800 will be mandated the calculation methodology for energy performance of buildings), and an update to the Energy Performance Certificate (EPC, ‘Energielabel’ in Dutch) will be released. With these changes, the Netherlands meets the implementation requirements for 2026. At this stage, these adjustments do not have major consequences for building services and the building sector as a whole. We do foresee that major impact for 2030, with the ZEB-requirements (Zero Emission Building) for all new buildings, a new calculation methodology and a completely revised order of the EPC. Members of TVVL, the Netherlands REHVA member association, contribute to this implementation and in the area of knowledge transfer. It is important to note that the ‘E’ in ‘EPBD’ has been given a new meaning. In previous directive, the E stood for energy. In the EPBD-IV, this has been broadened to emission.

The newly appointed Minister of Housing and Spatial Planning, Elanor Boekholt-O’Sullivan, has addressed the Netherlands Parliament (Tweede Kamer) about the implementation of the EPBD-IV this month by letter. She emphasises the utmost importance of substantial sustainability of the built environment for keeping energy bills affordable, avoiding CO₂ emissions, and reducing geopolitical dependency. She also points out the benefits of well-insulated and ventilated homes and buildings for the health of the occupants. This is in accordance with what TVVL and REHVA also advocate: in addition to the necessity of energy-saving measures, sufficient attention must be paid to a good indoor climate, an adequate IEQ (Indoor Environmental Quality).

What does the implementation of the EPBD-IV mean for the practice of the installation consultant and the building service engineer? Here too, we see a phased impact: currently a limited adjustment, but from 2029 onwards we will begin to see the consequences of the implementation of the ZEB requirements in projects, which will come into force for all new buildings in 2030. The Netherlands belongs to the group of EU member states that may postpone the revision of the EPC-order until 2030, because they revised this system after January 1, 2019. By combining the implementation of the ZEB requirements with a new calculation methodology and the new EPC-order, a single moment of broad adjustment of the energy performance system is created for the market. It’s important to emphasize that a major exception is at hand for governmental buildings, which are required to match the ZEB-requirements starting from 2028.

Adjustments in 2026

For the adjustments coming into effect in 2026, we highlight the following subjects that may be of importance for professionals working on HVAC or other building services.

·         As of January 1, 2026, there is a mandatory requirement to install a Building Automation and Control System (BACS) for buildings with an installed heating and/or cooling capacity of 290 kW. From May 2026, a surcharge will be applied to the EPC-indicator if a required GACS is missing. As a result, that building will receive a lower EPC-score.

·         A home battery of > 5 kWh that is permanently connected to the grid will receive a small fixed deduction in an EPC-calculation. As a result, the home will receive a slightly better EPC-score. The current monthly calculation method is not suitable for a more balanced valuation. In the new energy performance standard that will come into effect from 2030, the direct use of on-site renewables can be assessed more realistically.

·         Low temperature networks for heat supply (such as some of the 5th generation district heating systems) will receive a more realistic valuation that aligns better with reality.

Outlook on 2030

As mentioned before, in 2030 a major revision of the system of energy performance of buildings will come to effect. The new standard for energy performance calculation will be developed according to the main characteristics of the ISO/CEN-EPB-standards and the EU guidance documents. To both, professionals from REHVA, EPB-Center and the REHVA-member associations have contributed Unfortunately, the revision of those standards which is foreseen for 2028–2030 will be too late to be implemented entirely.

Although the new energy performance standard is still work in progress and policy decisions still need to be made, it is already possible to provide an estimate of the most important consequences.

·         For all new built buildings, the standard will be ‘ZEB’: a zero-emission building. Such a building has four characteristics:

o   A very low energy demand

o   No fossil emissions on site; in the context of the Netherlands meaning: no natural gas boilers

o   On site renewables, such as PV

o   A very low energy consumption

These characteristics will be specified in minimum requirements in the building code, which will be specified according to the new energy performance standard.

·         Also, for existing buildings the ZEB-level will be specified. This provides clarity for the market regarding the energy label class a building will already have to meet in 2050. A very low energy demand for existing buildings serves two purposes: reducing energy consumption and preparing the building for low-temperature systems (LT-ready). For non-residential buildings, this will be reflected in target values for what will be known as the ‘insulation standard’. This is an expansion of the net heat demand, which is already part of the requirements for residential buildings.

·         The new main indicator for the evaluation of the energy performance will be the calculated ‘total primary energy consumption’, instead of the ‘total primary fossil energy consumption’ which is in use to calculate the nZEB-indicator (nearly zero energy building) according to the previous EPBD. This seems like a subtle difference, but is an essential different approach and can have substantial consequences for the evaluation of the energy system for a building. For example: simply calculate a zero-energy building by adding PV on the rooftop, will not be sufficient. But self-consumption of the on-site renewables will become more effective.

·          A new, realistic, and up-to-date outdoor climate dataset is being developed as the basis for the energy performance calculation, taking into account a changed outdoor climate and urban warming. It is expected that, as a result, the net heat demand in the energy performance calculation will decrease and the cooling demand will increase. This will have implications for building design and the assessment of the various installations in relation to the final energy performance.

·         In the new calculation standard for energy performance of buildings, more realistic and practice-based assumptions are applied regarding the energy quality of structures, the performance of building services and the behaviour of building users. The aim is to minimize the difference between calculated and measured energy consumption (the so-called ‘performance gap’) as much as possible. Although the method will never be able to predict the energy consumption of a specific building, the average calculation result should align better with what is measured on average. In this regard, measurement data assessed with the WEii-methodology, developed by TVVL and DGBC, can serve as an important benchmark.

·         A new EPC-classification is being set. Because this is combined with the new calculation standard and the new indicators, it will not result in a one-to-one shift from the old system. As soon as calculation standard is ready and incorporated into software, more clarity can be provided regarding the new EPC-order. This is expected to be in the course of 2028.

·         The EPBD requests a phase-out of the worst performing buildings, from an energy point of view. For the residential sector, this will be affected by phasing out the dwellings with the poorest EPC (current E, F and G-labels). For non-residential buildings, the government will apply a dual system. If an EPC is present, this will be indicated on the label. In the absence of an energy-label, it may be based on measured energy consumption per m² floor area, for instance evaluated with the WEii-methodology of TVVL and DGBC.

All in all, the introduction of the EPBD-IV brings about the necessary changes, both this year and certainly in the years to come. For architects, planners and engineers it is advisable to already take into account the consequences of the completely revised energy performance system that will come into effect in 2030 when planning projects. For that may seem far away now, given the lead times of plans, it will soon become a reality.