Unlocking the First Fuel: Energy Efficiency in Public Buildings Across the Western Balkans

Energy efficiency presents significant potential, especially for Western Balkan (WB) countries, if effectively addressed through energy efficiency measures. The building sector, which includes residential, commercial, and public buildings, is the most energy-intensive sector globally. Public buildings in the Western Balkan countries are characterized by poor energy efficiency performance. The average energy consumption in public buildings is anticipated to exceed double the European Union (EU) requirement, given that more than 60-70% of these structures were built over 60 years ago with no regard for energy efficiency. This study assesses the Public Building–Energy Efficiency Readiness Index (PB-EERI) to evaluate how legislative specificity, institutional capacity, financing mechanisms, renovation guidelines, energy market conditions, and societal awareness collectively influence the readiness of Western Balkan economies to enhance energy efficiency in public buildings. The index serves as an operational diagnostic to identify the presence of enabling conditions, determine the most significant gaps, and prioritize policy efforts accordingly. This study presents a novel approach by integrating, within a single transparent index, (i) the existence of energy laws, (ii) market feasibility, (iii) renovation needs of public buildings, and (iv) societal awareness. The awareness pillar is both central and novel. By utilizing harmonized Regional Cooperation Council (RCC) data, this article quantifies societal awareness, thereby ensuring that the index accurately reflects the importance of stakeholder comprehension in the success of renovating initiatives for public buildings. The theoretical framework derives from the application of composite indicators in numerous studies and reports to illustrate the status of energy or energy efficiency. The methodology for developing this indicator is derived from the Organization for Economic Co-operation and Development (OECD) Handbook on Constructing Composite Indicators . For the aggregation method, the summation of weighted and normalized sub-indicators was used. The PB-EERI reveals considerable regional variations, with total scores ranging from around 39 to 72% and concentrating around the mid-0.5s. The findings reveal systematic differences in most indicators’ performance. The legal framework indicator significantly influences variation between countries, together with market conditions and societal awareness. Energy efficiency in public buildings, praised as the “first fuel”, should be prioritized beyond mere compliance with EU regulations. The PB-EERI emphasizes that success relies more on the capacity to transform formal strategies into concrete renovation programs, quantifiable objectives, and higher awareness of society to ensure uptake of the renovation measures.