AUTHORS: Irene Chiocchetti, Ange Manon Tang, Chiara Antonelli
This compendium presents measures adopted by European municipalities to make urban heating systems more sustainable and to improve air quality, including examples inspired by or resembling the Low Emissions Zones (LEZs) for vehicles already in force in many European cities. The inventory showcases good practices to support air quality actions and help meet the objectives of the Ambient Air Quality Directive (AAQD) and other EU legislation, such as the Ecodesign Regulation, the Energy Performance of Buildings Directive (EPBD), and broader climate targets. The compendium also aims to raise awareness and facilitate exchange among European cities on air quality measures implemented elsewhere, with the potential to inspire them to adopt similar approaches, while recognising that competencies and economic capacities vary significantly across municipalities in Europe.
In the EU, clean air and clean heating policies are increasingly embedded in broader social and just transition frameworks. The European Commission’s European Green Deal principle “leave no one behind”, the Renovation Wave strategy, and the Fit for 55 Package highlight the link between air pollution, energy poverty, housing and health.
The latest report by the European Environment Agency (EEA), tracking progress under the 8th Environmental Action Programme, shows the European Union is on track to meet the 2030 target of reducing premature deaths caused by exposure to fine particulate matter (PM), part of the Green Deal’s “Zero Pollution” ambition.
Between 2005 and 2023, premature deaths caused by exposure to PM2.5 above the World Health Organization guideline levels fell by 57% in the EU. Emissions of PM2.5 also decreased by 38% during the same period, with emission reductions in heating systems playing a significant role. Many regions reporting the largest reductions in mortality also recorded strong cuts in emissions from the residential, commercial, and institutional sectors. However, air pollution remains one of Europe’s deadliest environmental threats, highlighting the need for further action.
This compendium presents measures adopted by European municipalities to make urban heating systems more sustainable and improve air quality, including examples inspired by Low Emission Zones (LEZs) already implemented for vehicles in many European cities. The inventory showcases practices that support air quality actions and help meet the objectives of the Ambient Air Quality Directive, as well as other EU legislation such as the Energy Performance of Buildings Directive and the Ecodesign Regulation.
As the level of governance closest to citizens and businesses, municipalities play a crucial role in implementing air quality policies, incorporating EU and national requirements while responding to local needs. EU legislation also creates opportunities for cities to act on heating-related emissions. For example, the Energy Efficiency Directive requires municipalities with more than 45,000 inhabitants to prepare heating and cooling plans.
Local authorities are updating their Air Quality Plans, yet guidance on socially acceptable clean heating measures remains essential. Therefore, the compendium maps actions undertaken by municipalities across Europe to improve air quality, while highlighting potential societal challenges. It is intended for local authorities, policymakers and technical experts seeking examples to reduce emissions from residential heating while addressing social and economic considerations.
The compendium also aims to raise awareness and facilitate exchange among European cities on air quality measures implemented elsewhere, recognising that competencies and economic capacities vary significantly across municipalities.
Scope and types of measures
The compendium includes policies such as:
- bans on burning wood or certain fireplaces;
- bans on specific types of boilers fuelled by polluting fuels (such as wood, coal and oil);
- financial incentives encouraging behavioural change;
- investments in building retrofits;
- strategies promoting the transition to clean heating technologies.
Some policies apply only during specific periods, such as winter or particular atmospheric conditions. Others apply in specific areas of cities—often the most populated and polluted—mirroring the functioning of LEZs for vehicles.
When data were available, the analysis also considered socioeconomic factors that support social acceptability, such as subsidy schemes, public consultations and information campaigns. These aspects are important to ensure a just transition, particularly in light of EU initiatives such as the Social Climate Fund.
Selection of cities
The compendium covers cities across Europe, including capital cities and other large urban areas, as well as smaller municipalities identified during the research. The main criterion for inclusion was that policies were designed and implemented at the municipal level, although national legislation was considered when it provided cities with the authority to introduce local measures.
The compendium is the starting point for four case studies, beginning with Sofia, one of the first European cities to implement a Low Emission Zone for heating systems.
Cover photo by Martin Bennie on Unsplash
