Equity is not the same as equality. While equality means giving everyone the same resources or opportunities, equity recognises that different people face different challenges and barriers — and need different kinds of support to reach the same outcomes.
In the context of energy poverty, equity means prioritising those most at risk: low-income renters, young people, elderly adults, people with disabilities, migrants in overcrowded housing, women, single parents, and others in vulnerable conditions. It means removing structural barriers, ensuring access to funding, and designing services that reflect people’s realities.
After all, behind every energy poverty indicator lies a story — one shaped by structural inequalities that determine who is most at risk. A tenant unable to convince their landlord to insulate the house, an elderly person whose health declines each winter in a damp flat, a single mother deciding to skip several meals to afford her electricity bill, or a migrant family living in an overheated urban apartment (among others): these are not isolated cases, they are the result of social and economic structures that make some groups far more vulnerable than others.
Energy poverty is not simply a matter of high bills or inefficient homes. It is a complex issue that encompasses a range of factors. It is the outcome of persistent governance gaps, unequal representation in decision-making, and forms of structural disadvantages. Vulnerability does not always appear where we expect it: it can be visible in a cold, damp flat, but also hidden in stress, stigma, or silent trade-offs people make each day, reminding us that only by broadening our lens can we truly grasp the many faces of energy poverty. For example, women are more likely to face energy poverty because they have lower incomes, spend more time at home, and often carry unpaid care responsibilities. Other recognized vulnerable are racialised communities, migrants, and people with disabilities that encounter barriers in housing markets and public services. Elderly adults may remain in hard-to-renovate housing, while younger generations are locked into insecure rental markets. But the list of investigated groups is not exhaustive, as many other factors, from insecure employment to sudden health issues or geographic isolation, can place people in vulnerable situations. The digital divide adds another layer, making it difficult for those without internet access or digital skills to apply for support or exercise their rights. Roma communities, in particular, face entrenched discrimination that limits access to quality housing, secure employment, and basic infrastructure, making them among the groups most exposed to energy poverty in several Member States. These intersecting factors show that vulnerability is not accidental but systemic, and that energy poverty is a social challenge that touches housing markets, health systems, welfare support, and urban and spatial dynamics. When inequity and discrimination drive who is most exposed, then equity must drive how we respond.
Besides, some vulnerabilities may be more visible than others: a poorly insulated flat, arrears on utility bills, or the absence of a heating system. Others remain hidden: the health impacts of cold or damp homes, the stress of living in energy debt, or the silent struggles of people who do not apply for support because of stigma, language barriers, or lack of digital access. Recognising both visible and hidden vulnerabilities is essential to designing just and inclusive policies.
Across the European Union, examples illustrate how equity-centred approaches can break the inequity and invisibility cycle. In Ireland, the Warmth and Wellbeing scheme allows doctors to prescribe free home retrofits for patients with chronic respiratory illness. By treating cold homes as a health risk, this initiative bridges sectors, improves well-being, and lowers medical costs. In Spain, Barcelona’s Energy Advice Points operate as trusted local intermediaries, helping households with their bills, while also connecting them to social services, housing support, and advice on their rights. This approach helps overcome governance challenges by giving residents a stronger voice in systems that often overlook them. In Poland, large-scale retrofits of multi-apartment social housing blocks have improved insulation and heating systems in some of the country’s most energy-inefficient dwellings. Projects supported by EU cohesion funds demonstrate that when investment is carefully targeted, energy savings can be combined with lower bills for residents, showing how structural upgrades can directly address inequity. In Hungary, municipal authorities have introduced heat-health action plans that combine early-warning systems with outreach to vulnerable households during summer heatwaves. This approach demonstrates how local coordination between energy, housing, and health agencies, and social services can save lives, particularly among elderly adults and low-income families in overheated apartments.
The European Union acknowledges these challenges. The revised Energy Efficiency Directive (EED) (2023/EU/1791) now recognises energy poverty as the lack of access to essential services including heating, cooling, lighting, and appliances, and calls on Member States to target vulnerable households. The Energy Performance of Buildings Directive (2024/EU/1275) National Building Renovation Plans prioritise the least efficient buildings first, while the Social Climate Fund seeks to shield low-income, energy- and transport-poor citizens from the side effects of carbon pricing. These measures offer a strong framework. Their effectiveness, however, depends on implementation, focusing on equity, representativity, and intersectionality.
Effective governance is key to achieving lasting progress. When ministries, agencies, and local authorities collaborate closely, they can bring together complementary expertise and perspectives that no single institution holds alone. By fostering coordination between social services, housing offices, and energy regulators, policies become more coherent and impactful. Mechanisms such as cross-sectoral task forces or local working groups create opportunities for dialogue, shared problem-solving, and joint action, ensuring that vulnerable are not only taken into account but actively represented in decision-making. In this way, cooperation becomes the driver of solutions that are both inclusive and grounded in real needs.
By embedding equity into policy design, strengthening governance, and ensuring that vulnerable groups are well represented, the European Union can move beyond short-term fixes to build durable solutions. When fairness guides the just and green transition, progress is measured not only in lower carbon emissions but in healthier homes, more resilient communities, and a stronger sense of social inclusion.
In the upcoming months, through a series of articles, tools, and practical resources, EPAH and the European Commission will provide deeper insights on equity and vulnerability. The aim is to broaden perspectives and encourage a more holistic, systemic approach to the identification and understanding of energy poverty. Vulnerability is not only linked to traditionally recognised groups but each of us, even those close to us, may face circumstances that put us at risk at different moments in life. Developing sensitivity and empathy to recognise when people are in such situations is essential for designing better support and more inclusive policies.
This spotlight will illustrate why equity matters, highlight examples of vulnerable energy consumers, and showcase how policies and renovation schemes can become more inclusive. The insights provided are not exhaustive, but by connecting evidence, case studies, and voices from the ground, the thematic focus will guide reflection and deepen understanding of how equity-driven action can address structural challenges and contribute to a just transition that leaves no one behind. We hope that through these insights, readers will be encouraged to adopt similar logics and processes when approaching other forms of vulnerability, building the sensitivity and capacity to identify potential risks and consider how best to respond.
If we want to unlock opportunity and well-being while tackling inequality, equity must be embedded in every step: from diagnosis to design, from delivery to long-term support.
This thematic focus invites everyone working on energy poverty to:
• Identify and recognise vulnerability — both visible and hidden;
• Act with targeted support and cross-sectoral coordination to respond effectively;
• Think and design solutions with and for those most affected.
Cities, practitioners, researchers, and policymakers are invited to go beyond numbers, to see the human face behind the data, and to respond with empathy, urgency, and collaboration.
Stay connected through the EPAH website for updates and materials, and follow the events list to join dialogues where you can share your own insights on the topic. You are also welcome to send comments and reflections directly to our helpdesk.
Details
- Publication date
- 23 September 2025