REPowerEU - 3 years on

All imports of Russian coal have been banned by sanctions. Oil imports have shrunk from 27% at the beginning of 2022 to 3% in 2024. In nuclear, EU countries that are operating Russian-designed VVER reactors (water-cooled water-moderated energy reactors) have made progress in replacing Russian nuclear fuel with fuel from other producers.

But, despite these efforts, in 2024, the EU still imported 52 bcm of Russian gas, as well as 13 million tonnes of crude oil and more than 2 800 tonnes of uranium in enriched or fuel form. 10 EU countries imported Russian gas in 2024, 3 countries still imported Russian oil and 7 countries imported enriched uranium or uranium services from Russia.

Save energy

One of the main objectives of the REPowerEU Plan is to save energy and enhance energy efficiency. This is because the safest, cleanest and cheapest energy is the energy we do not use. 

The EU has therefore taken firm actions to lower overall gas consumption to rapidly reduce dependence on Russian imports.

Reducing gas demand

In response to the energy crisis triggered by Russia's war of aggression, the EU adopted the Gas Demand Reduction Regulation as an emergency measure in 2022. It set a voluntary target to reduce gas demand by 15% compared to the average demand between 2017 and 2021.

Thanks to the collective efforts of citizens, businesses, and EU countries, the EU had exceeded its voluntary target when the regulation was in effect. The EU gas demand continues to be reduced, even after the regulation's expiry in March 2024. This voluntary demand reduction has been instrumental in phasing out Russian gas in line with the REPowerEU objectives.

Between August 2022 and January 2025, the EU has successfully reduced its gas demand by 17%, equivalent to 70 bcm of gas per year.

Furthermore, demand reduction significantly enhanced energy security ahead of the last 3 winters by contributing to refilling gas storage, thereby mitigating the risk of blackouts and power shortages.

Energy efficiency

The revision of the Energy Efficiency Directive, agreed by co-legislators in September 2023, increased the ambition for EU countries to collectively ensure an additional 11.7% binding reduction in final energy consumption by 2030, compared to the projections of the EU reference scenario 2020.

Actions on energy use in buildings is particularly relevant, as direct or indirect use of natural gas in buildings in 2023 (both residential and tertiary ones) represented 52% of the overall EU natural gas consumption. In 2024, co-legislators also agreed on a recast Energy Performance of Buildings Directive to boost renovations and the energy performance of buildings by 2030.

In 2023, final energy consumption decreased to 894 million tonnes of oil equivalent (Mtoe), representing a -5.6% reduction compared with 2021. Although this significant reduction was achieved in a period of exceptionally high energy prices, it points to progress in the right direction towards the achievement of the EU’s energy efficiency targets.

To further support EU countries' efforts, in December 2023 the European Energy Efficiency Financing Coalition was launched, with the objective of mobilising more private investments in, and enhancing market uptake of, energy efficiency measures.

Despite the significant progress made, additional efforts will be needed to achieve the EU’s 2030 energy efficiency target, including a swift and full transposition of the updated legislative framework in EU countries. To this end, the Commission is working on recommendations to support EU countries’ incorporation of the recast Energy Efficiency Directive and the Energy Performance of Buildings Directive into national frameworks.

Examples of 'Save Energy' actions in EU countries

Almost all EU countries have included investments in energy efficiency in their Recovery and Resilience Plans.

Reforms on energy efficiency can also play an important role in increasing the energy savings. Czechia, Portugal and Romania are introducing one-stop shops to help, support and accompany in the task of improving the energy efficiency of buildings.

Energy security

Following the halt of injection in European gas storages by Russian companies and the historical low gas storage level in November 2021, the EU set storage targets to ensure 90% full storages ahead of each winter.

This target was reached months in advance in 2023 and 2024. Notably, in 2024, the EU reached its 90% gas storage target, as set by the Gas Storage Regulation, on 19 August, more than 2 months ahead of the deadline. During the winter 2024-2025, in the context of more expensive imports, storage withdrawals have returned to pre-crisis levels, substantially higher than in the previous 2 years. As a result, EU storage levels stood at 34% on 1 April 2025, marking the end of the gas winter season and gas year.

Importantly, current storage levels remain consistent with the average recorded between 2016 and 2021, positioning the EU to achieve adequate storage levels ahead of the next winter.

Demand reduction and storage measures contributed to stabilising energy prices, benefitting the competitiveness of the EU economy.

Diversify energy supplies

Since the adoption of the REPowerEU Plan, the EU has drastically phased down Russian fossil fuel imports and successfully diversified its energy supplies.

Fossil fuel imports

EU sanctions have banned seaborne imports of Russian crude oil and refined petroleum products as well as Russian coal.

As a result of EU sanctions, Russian crude oil now only accounts for 3% of EU crude oil imports versus 27% of EU imports in 2022.

Imports of Russian gas (pipeline & LNG) dropped from a 45% share of overall EU imports in 2021, to 19% in 2024. Although LNG imports from Russia increased by 2 bcm between 2023 and 2024, the end of the transit of Russian gas via Ukraine decreased the imports of pipeline gas from Russia by 15 bcm per year. Projections point to a further fall to 13% in 2025. The good preparation of the EU and EU countries allowed for the transit to end, and further phase out Russian gas imports, without significant impact on the security of energy and gas prices. These are significant achievements, setting the EU on track to phase out imports of Russian fossil fuels as soon as possible.

EU Energy Platform and AggregateEU 

The Commission established the EU Energy Platform in December 2022 with the objectives of 

• facilitating demand aggregation and joint purchasing of gas
• ensuring the most efficient use of existing infrastructure
• supporting international outreach efforts

In April 2023, the Commission launched the demand aggregation and joint purchasing mechanism 'AggregateEU'. Over 7 matching rounds organised to date, the platform aggregated more than 119 bcm of gas demand from European companies and 191 bcm were offered by international suppliers. After seeking the most competitive offers, AggregateEU has matched close to 100 bcm to cover European demand.

Energy infrastructure development

EU countries have taken significant actions to enhance energy infrastructure, by finalising, or upgrading, cross-border interconnections and liquified natural gas (LNG) terminals allowing gas to flow to where it is needed.

To accompany the increase of LNG supply to Europe, EU countries made major infrastructure investments: a record number of new floating storage and regasification units (FSRU) terminal projects have been commissioned over the past 3 years. They have increased the EU’s LNG import capacity to 50 bcm per year as of May 2024. This capacity is expected to reach 70 bcm by the end of 2024.

In addition to the on-going completion of Projects of Common Interest (PCIs) and of Projects of Mutual Interest (PMIs) under the revised TEN-E Regulation, the first Union list of  PCIs and PMIs was adopted by the Commission in November 2023 to help build an infrastructure network across Europe that is fit for a decarbonised future. The list features among others

• 85 electricity projects, including 5 smart grids projects and 12 offshore infrastructure projects
• 65 hydrogen and electrolysers projects 
• 14 CO₂ network projects 
• 10 PMIs, including electricity interconnections with the United Kingdom, the Western Balkans and North African countries

3 calls for proposals for financing from the Connecting Europe Facility for Energy (CEF) were organised in 2022, 2023 and 2024. Through these calls, the Commission awarded €2.4 billion in co-funding to strategic cross-border projects in the electricity, hydrogen, carbon dioxide and natural gas sectors. These projects will better interconnect EU countries’ electricity networks, facilitate the integration of renewable electricity, improve natural gas storage capacity in South-Eastern Europe, and lay the groundwork for future Europe-wide H₂ and CO₂ value chains, thereby contributing to REPowerEU objectives.

Selected Projects of Common Interest that support REPowerEU objectives

3 EU countries also included in their RRPs targeted support to gas infrastructure and facilities to meet immediate security of supply needs and help diversify away from Russian fossil fuels. This refers to the following 3 projects, receiving €1.6 billion in total

• increasing the capacity of the Krk LNG terminal and developing related gas infrastructure towards Hungary and Slovenia (Croatia)

• the Adriatic Line infrastructure (Italy)

• the network between Gdańsk and Gustorzyn (Poland)

All projects will have a significant cross-border impact and provide security of supply and diversification benefits to several EU countries, particularly those, which have been dependent on Russian gas imports. These projects are expected to be operational before the end of 2026.

The nuclear sector

In contrast to dependencies in the gas sector, dependencies in the nuclear sector are multi-facetted. Russia supplies products and services to EU customers across the whole nuclear fuel cycle.

Progress has been made in replacing Russian nuclear fuel with fuel from other producers in the 5 EU countries with Russian-designed VVER (water-cooled water-moderated energy reactors) reactors. Utilities in 4 out of 5 countries concerned have since 2022 signed supply contracts for alternative fuel. Still, alternative fuel needs to be tested and licensed in each country before it can replace Russian fuel.

The global uranium market is relatively diversified, but a major challenge is the concentration of conversion and enrichment services in a few companies. Those in the EU or Western countries cannot meet overall demand due to limited capacity of conversion and enrichment plants in operation.

The first new European enrichment installations are not expected earlier than 2027, and new conversion facilities will not be operational until the 2030s. The EU's nuclear sector also relies on Russia for some spare parts and maintenance services. International cooperation, such as that in the G7 context, is crucial to meet future demands.

Enhanced international cooperation

The Commission has enhanced the regional cooperation under the Central and South-Eastern European Energy Connectivity (CESEC) High-Level Group, the region that historically was fully dependent on a single supplier. CESEC, that consists of 17 member countries from the EU and Energy Community Contracting Parties, provides strategic steer and policy guidance to the realisation of the REPowerEU goals by implementing regional priority initiatives within energy infrastructure development, energy market integration and renewable energy deployment.

The Commission has continued to strengthen international partnerships and approach non-Russian suppliers to secure more reliable imports of gas, such as Norway, the U.S., North Africa or Qatar, and increasingly hydrogen. Move up as part of this effort, the EU has signed a series of Memorandums of Understanding (MoU) with neighbouring countries (Morocco, Egypt, Norway, Ukraine) and others (Azerbaijan, Kazakhstan, Namibia, Japan, Argentina and Uruguay).

A Strategic Partnership with Ukraine on renewable gases was established and the Memorandum of Understanding on 'EU–Ukraine Strategic Partnership on Biomethane, Hydrogen and other Synthetic Gases' was signed in February 2023 at the 24th EU–Ukraine Summit in Kyiv. The first deliveries of biomethane from Ukraine to the EU were made in February 2025, showing the potential of renewable gases to enhance energy security and contribute to the energy transition.

The EU continues its unwavering support to Ukraine and Moldova. The EU contributes to Ukraine’s energy security in the face of Russia’s unprovoked attacks on energy infrastructure by making sure Ukraine can make use of electricity imports from the EU. The Ukraine Energy Support Fund and the Union Civil Protection Mechanism (UCPM) are the backbone of the EU’s effort to sustain Ukraine’s energy resilience. Approximately 45% of offers under the UCPM address energy-related needs. The Ukraine Energy Support Fund helped restore 50% of the capacity Ukraine outlined as a priority in June 2024 and raised €1.2 billion. Similarly, the EU stands by Moldova as it diversifies away from Russian energy sources and builds its own energy resilience. In 2025, the European Commission and Moldova agreed on a 2-year Comprehensive Strategy for Energy Independence and Resilience and immediate support with the energy bills.

Produce clean energy

REPowerEU puts the accelerated production of clean energy at the centre of efforts to enhance the EU’s energy security and ensure the decarbonisation of our economy.

The EU has increased its production of energy from renewable sources beyond expectations. Since 2022, the EU generated more electricity from wind and solar than from gas and in 2023, wind alone produced more electricity than gas. In 2024, for the first time solar energy accounted for a larger share of electricity generation in the EU than coal.

In October 2023, the EU agreed on stronger legislation to increase its renewables share in the context of the revised Renewable Energy Directive, raising the EU’s binding target for 2030 to at least 42.5%, with the ambition to reach 45%. 

Industry estimates indicate that installed wind and solar capacity has increased by 58% cumulatively between 2021 and 2024, saving approximately 38 bcm of gas over 3 years.

In 2025, estimates indicate that installed capacity could further increase by 16%, displacing approximately 16 additional bcm of gas (source: Eurostat, WindEurope, Solar Power Europe). 

Solar energy

With almost 66 GW of new solar energy capacity installed in 2024 (according to SolarPower Europe), the EU has set yet another record from the additional 63 GW installed in 2023.

While these are impressive figures, further acceleration is still needed to meet the REPowerEU targets under the EU Solar Energy Strategy and reach at least 700 GW by 2030, up from the estimated 338 GW installed as of the end of 2024.

Key facts on EU solar capacity

Source: SolarPower Europe

The EU Solar Energy Strategy includes 3 flagship initiatives

• European Solar Rooftop Initiative, to tap into the potential of rooftops to produce clean energy
• EU Large-Scale Renewable Energy Skills Partnership, launched in March 2023 to create new green jobs and support the development of a skilled work force
• EU Solar PV Industry Alliance, launched in December 2022 to diversify imports of solar components and expand solar PV manufacturing in the EU

The European Solar Charter, signed by the Commission, 23 EU countries and solar industry representatives in April 2024, sets out a series of voluntary actions to further support the EU’s photovoltaic industry.

Wind power

As for wind power, 13 GW of new capacity was installed in the EU in 2024, amounting to a total 231 GW, up from 188 GW in 2021 (according to Wind Europe estimates). While this shows good progress, the wind sector needs to be boosted further to meet the EU's ambitious renewable energy targets. To this end, the Commission adopted a Wind Power Package in October 2023.

EU wind generation capacity (Eurostat)

Comprising an Action Plan and a Communication on delivering the EU offshore renewable energy ambition, the package was the Commission’s response to the unique set of challenges facing the European wind sector, including insufficient and uncertain demand, slow and complex permitting, increasing global competition and unsupportive design of national auctions. Several concrete measures were implemented as part of the Action Plan, including the launch of the ‘Accele-RES initiative’ focusing on the digitalisation of permitting processes and technical assistance to EU countries.

In addition, as a follow up to the Action Plan, in December 2023, 26 EU countries together with leading industry representatives signed the European Wind Charter, setting out voluntary commitments to support the development of Europe’s wind sector. At the same occasion, 21 EU countries submitted their concrete pledges on wind energy deployment volumes for at least the period 2024-2026.

Heat pumps

The heat pump market saw an exceptional growth in 2022, with sales of all heat pumps for space heating (hydronic and air-to-air) reaching 2.75 million. In 2023, the market slightly decreased to about 2.5 million units sold and in 2024 there was a further decline to 2.2 million units.

Market slowdown reflects a combination of a high electricity-to-gas price ratio, a very long and complex customer journey (due to a lack of installers, long waiting periods and high cost of installation), limited and unstable financing and business models and a slowdown in the construction sector. It may jeopardise the delivery on the 2030 climate target.

To meet the number of heat pumps required to achieve the 2030 climate target, the EU needs to more than double the annual rate of deployment, rolling out close to 6 million new heat pumps (hydronic and air-to-air) each year from 2025 onwards.

The Heat Pump Accelerator Platform, an initiative supported by the European Commission, was launched in January 2025. It is part of a broader Heat Pump Support Action to monitor the policy framework at national level, collect additional data, monitor training programmes and contribute to research, innovation and demonstration priorities.

Examples of national actions to foster the deployment of heat pumps

• Reduced VAT rates on heat pumps: VAT on heat pumps lower than VAT on gas boilers (Belgium, France, Ireland, Portugal, Romania, Czech Republic)
• A reduced rate of taxation to electricity supplied to renewable heating solutions lowers the cost of heating by a heat pump (Finland)

Permitting procedures, auctions and acceleration areas

On top of these sector-specific actions, the revised Renewable Energy Directive addresses the permitting bottleneck in a comprehensive manner through spatial planning, simplification and shortening of procedures.

In May 2024, a new 'package'  was adopted, including 3 targeted measures to further accelerate the deployment of renewables in the EU

• a Commission Recommendation and guidance on the design of renewable energy auctions
• an updated Recommendation and guidance on speeding up permit-granting procedures for renewable energy projects
• a guidance on designating renewables acceleration areas

To enhance visibility and predictability for the whole value chain, an EU-wide renewables auctions platform was launched, as part of the package, consolidating information on planned renewable energy auctions in all EU countries.

As announced in the Affordable Energy Action Plan, the Commission will continue supporting EU countries in the implementation of permitting rules for renewables and seek stakeholder views, including through an implementation dialogue to identify the remaining bottlenecks to permitting and the possible way forward. In addition, the Commission will put forward legislative proposals to accelerate permitting for grids, storage and renewables as part of the European Grid Package, building on the  Action Plan for Grids to address the main challenges in expanding, digitalising and better using EU electricity transmission and distribution grids.

Examples of flagship reforms to accelerate the deployment of renewables

24 EU countries include investments in their RRPs in line with the REPowerEU objective to produce clean energy, below we provide 5 examples. 

Renewable gases

Tackling cross-sectoral issues that impact all renewables will also help foster the ramp-up of renewable gases.

Biomethane and biogas production is increasing at an impressive pace, contributing to achieving the REPowerEU target of producing 35 billion cubic meters (bcm) per year by 2030. Industry reports that biomethane production alone grew to 4.9 bcm in 2023 with an installed capacity of 6.4 bcm per year by the first quarter of 2024.

Some RRPs support the deployment of biomethane such as Estonia’s RRP, that aims to increase the production and uptake of sustainable biogas and biomethane, with a target to install at least 4 million cubic meters of new sustainable biomethane production capacity.

As for hydrogen, the EU put in place a comprehensive legislative framework to enable this emerging market. The first off-take agreements for renewable hydrogen have been signed, electrolyser manufacturing capacity has rapidly expanded, the first large-scale hydrogen production facilities (200 MW) are under construction, and the necessary infrastructure is already being  built by future hydrogen network operators.

Some RRPs also include investments to support the deployment of the hydrogen value chain with a focus on hydrogen derived from renewable energy sources, for example.

Smartly combine investments and reforms

The implementation of the REPowerEU Plan has required massive investments and reforms. Close to €300 billion has been mobilised at the service of the EU countries. The Recovery and Resilience Facility (RRF) has been at the heart of this effort, as the main vehicle channelling EU funding to the implementation of REPowerEU. The EU countries have allocated €184 billion to energy measures which represents almost 30% of the total RRF budget (in grants and loans) that include additional funding made available to REPowerEU chapters. All EU countries have submitted a REPowerEU chapter, and 26 of them have already been approved, being integrated in the revised RRPs.

The facility in figures

More than half of the total RRF allocation to energy measures is dedicated to energy efficiency investments (€106.5 billion which comprise €81 billion for buildings and €25.5 billion for industry). Moreover, the RRF allocates funds to renewable energy (€34.2 billion), to electricity networks, storage and smart meters (€25 billion) as well as to renewable and low carbon hydrogen (about €13.6 billion). There is also limited support to district heating and Carbon Capture and Storage (€1.3 billion) and to gas infrastructure projects in 3 EU countries to address immediate security of supply concerns (€1.6 billion), as well as support to green skills and jobs (over €2.3 billion).

By 2026, the RRPs are expected to bring significant deliverables in the field of energy. It already triggered 100 GW of additional renewable energy capacity (including more than 15 GW of offshore wind), and 34 million MWh of energy consumption being saved. In addition, it will help modernise 14 000 km of electricity transmission and distribution lines, install 13 million smart meters, replace 2 million heating system and support 2 million energy efficiency projects in dwellings and more than 7 000 public buildings.

In addition to the Recovery and Resilience Facility, REPowerEU priorities are eligible for funding through a number of EU programs including LIFE Clean Energy Transition, European Structural and Investment Funds, the Just Transition Fund, Horizon Europe, InvestEU and the Innovation Fund. Cross-border energy infrastructure is mostly supported by the Connecting Europe Facility (CEF) Energy.