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ELENA-PRIMAVERA
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The ELENA-PRIMAVERA project, led by Nasuvinsa's Refurbishment Promotion Area aims to mobilize energy refurbishment of private residential stock in Navarra. Project focuses on providing free, comprehensive support to those who may face challenges in the energy transition process.The management teams offer advice on technical, legal, and financial aspects, ensuring an accesible assitance in 8 One-Stop-Shop offices across the whole territory.
Spain
Regional
Autonomous community of Navarra
It addresses urban-rural linkages
It refers to a physical transformation of the built environment (hard investment)
Yes
2025-01-01
No
No
No
As a representative of an organisation

The main objetive of ELENA-PRIMAVERA project is to boost the energy refurbishment of the residential building stock, mainly private, with the aim of mobilising €40M in investment in the Region of Navarre.
Actions range from complete thermal envelopes to refurbishment of thermal installations and the incorporation of renewable energies. These actions have the potential to not only decarbonise the residential sector but also to improve the households health and wellbeing of the inhabitants. Therefore, this project contributes to the objectives of reducing greenhouse gas emissions and fighting climate change, while reducing the energy bill at community and individual level, removing citizenship from the risk of suffering from energy poverty.
Through a management methodology based on the One Stop Shop model, refurbishment management agents, distributed throughout the territory, help homeowners in their energy refurbishment processes, with a particular focus on households affected by energy poverty, on worst-performing buildings and in demographic challenge municipalities. These agents adopt a holistic and multi-disciplinary approach (technical, financial and social) with the aim of providing advice and support in a comprehensive and accessible way.
The ultimate goal of all this work is to lead the “Renovation Wave”, hand in hand with citizens and with a clear focus on low-income households and vulnerable groups, to ensure that energy transition leaves no one behind.
Residential building stock
Regeneration
Green transition
Accompaniment
Participation
Navarre faces a serious challenge due to the ageing of its residential stock. More than the half of Navarra housing stock was built before 1980 without any insulation which generates excessive energy consumption, one of the main causes of energy poverty that affects between 5.6% and 18.7% of the population, depending on the area.
Energy consumption in Navarre's homes is mainly based on fossil fuels such as oil and natural gas. The residential sector accounts for 18.3% of total energy consumption and 25% of electricity demand. This high consumption, together with problems of accessibility, functionality and habitability in many homes, contributes to processes of social degradation in certain neighbourhoods.
Faced with this panorama, it is urgent to promote renovation and energy regeneration of residential environments to guarantee decent housing and improve social cohesion. The lack of a culture of renewal has left older neighbourhoods in a poor state of repair, with many citizens choosing to leave their neighbourhoods and move to new areas. Renovating these buildings keeps people in their neighbourhoods and reduces the development of slums.
To this end, the Navarre government has for several years now provided grants for renovation work carried out by individuals and homeowner assotiations. However, the mere existence of grants does not in itself encourage renovation. Nasuvinsa has been developing urban regeneration projects for years. This double boost to renovation has the clear motivation of transforming our environments and making them more sustainable with the goal of achieving a decarbonized housing stock by 2050.
The in-depth rehabilitation of the building stock is a complex task, which requires the active collaboration of the administrations and the public. The creation of management teams located in the territory, in collaboration with the existing Rehabilitation Offices (ORVE) and local development agencies, is essential for the success of the project.
The joint work between public administrations and citizens allows citizens to become key actors in the energy transition. The project has a clear vocation to encourage citizens to be the drivers of change. The pre-project competitions promoted by Nasuvinsa are an example of this. Several architectural firms present their proposals for the energetic renovation of buildings, the solution of accessibility problems and the regeneration of the urban environment. These competitions allow the citizens to have at their disposal several solutions of architectural quality and aesthetic proposals that adapt to the reality.
Another instrument created in Navarre to encourage participation and stimulate regeneration is the Global Intervention Project (Proyecto de Intervención Global, PIG in spanish).
These are generic studies in which, with the participation of the neighbourhood and together with a technical team of architects, the architectural solution is defined for a group of buildings that respond to a homogeneous unit. This study defines the thermal envelope of the building, the possible solutions for accessibility and a proposal for the regeneration of the urban space. This will be defined by means of a technical-economic model. The main objective of the PIG is to involve the neighbours, to look for quality technical solutions and to make it easier for the communities of owners to agree on the solution that best suits them. The agreement of the neighbours is mandatory for the final approval of this instrument. The technicians are usually selected through an architectural competition to ensure quality solutions.
The ELENA-PRIMAVERA project management teams, co-financed by the EIB and municipalities, are available to provide the citizens of Navarre with a comprehensive support service. This service is free for citicens. Advice is provided on the technical, legal and financial aspects of energy refurbishment processes. These teams, distributed in 8 proximity offices make possible a close and accessible attention in the complex process towards the energy transition. They work with homeowner assotiations and individuals throughout the whole process, both in making decisions and in verifying that everything is done correctly in an easie way.
An important issue is social vulnerability. Some of the local councils, advised by Nasuvinsa, have made an additional effort by approving ordinances on aid for vulnerability and the promotion of PIG (explained in the Tools section), which, although not mentioned above, makes it possible to obtain a greater amount of grant aid. Vulnerability ordinances make it possible to support the most vulnerable who, due to democratic decisions of the majority of the HOA, have to face costs they cannot afford. These incentives usually include requirements to ensure that these dwellings are not subject to speculation and generate the renoviction effect.
Citizens benefit directly from the support services provided by the project. The support work also focuses on architects, property managers, etc. .... but the main target group is the citizens as a whole.
One of the first steps of the project was to hold general meetings to inform the citizens of each municipality or neighbourhood with which there is a collaboration agreement. In these meetings, the citizens are informed about the service and the details of the energy renovation processes, but it is also the first meeting point for them to express their needs and doubts to the support teams. As a result of the needs expressed by the citizens, the technical team concentrates its work more on the actions required for each neighbourhood or specific case. The support is very close, the ELENA-PRIMAVERA technicians themselves call and attend the respective neighbourhood meetings, and in the case of single-family homes, face-to-face meetings are arranged.
Finally, the citizens receive advice that is not tied to economic purposes. Nasuvinsa, as a public company of the Government of Navarre, offers this service without passing on the costs to the residents, and takes care to ensure that the whole process is transparent and carried out with all guarantees.
At the European level, it is important to note that ELENA is a joint initiative of the European Investment Bank and the European Commission under InvestEU. This initiative provides technical assistance for energy efficiency and renewable energy investments in buildings and innovative urban transport. Within this framework, the EIB supports and finances 90% of the project costs.
At a more local level, the municipalities are key players in the implementation of this project. At the start of the project, collaboration agreements were drawn up with local councils wishing to promote the regeneration of their communities. These agreements defined the obligations and responsibilities of both parties. Financially, they agreed to pay the remaining 10% of the project. Together, they mapped the areas with the greatest need for renovation and drew up a list of the communities with the greatest need, according to the vulnerability of their buildings, using the "Navarre Building Vulnerability Viewer".
Vulnerability is also one of the most important issues in which it is important to involve local councils. Some town councils, with the advice of Nasuvinsa, have made an extra effort by approving vulnerability aid ordinances, which make it possible to support the most vulnerable, who, through a democratic decision by the majority of the HOA, are faced with expenses that they are unable to assume.
The project has been implemented in a total of 50 municipalities in Navarre that have signed a collaboration agreement with Nasuvinsa, representing 67% of the population of Navarre.
At the regional level, it is worth mentioning the Grant Framework and the Rehabilitation Offices (ORVE) of the Government of Navarre, which have undoubtedly boosted the implementation of the project.
For several years now, the Government of Navarre has been granting subsidies for renovation work carried out by private individuals and communities of owner
There are several disciplines covered by the project. The most representative could be economics, sociology, architecture and design (with a clear focus on sustainability).
Energy renovations are costly and not all residents can afford the sums required. On the other hand, grants are only paid if the work has been carried out properly. For this reason, communities of neighbours and individuals have to ask for loans. In this sense, banks are particularly important. Before and during the project, we worked with them to offer collective loans so that all those in need could benefit, regardless of their particular situation. This has been an important step, as a few years ago very few entities were willing to finance these actions, and the existence of these support teams gives the entities some additional security.
On the other hand, there is constant interaction with actors from the architecture and construction sector. Part of the project funding has been used to launch participatory design processes and architectural competitions to encourage communities to reach agreements. At a more advanced stage, coordination is also carried out with the construction companies so that all the works can be carried out with guarantees of transparency and within the deadlines set by the various grants. The accompaniment teams coordinate which communities have a shorter time window to carry out the actions and coordinate with the construction companies so that they can give priority to them.
On the social side, there are two lines of work. On the one hand, the drafting of vulnerability ordinances with the town councils and, on the other hand, the coordination with the social services for the most needy cases. So that they can be taken care of in the best possible way, without leaving anyone behind.
In general, the role of these accompaniment teams is to interact with all the actors and promote coordinated action in all areas.
The innovation lies in the model of support offered to citizens: close, comprehensive and continuous.
It is a model that has been defined over several years and with the support of several European projects. Until 2021, this model was applied at the level of neighbourhoods, and in 2021 it was extended to the whole region of Navarre within the framework of the European project ELENA-PRIMAVERA. In order to make this service available, not only in the cities but also in the rural areas, different one-stop-shop offices have been created throughout the territory.
On the one hand, it is a very localised and proactive model, with technicians not only providing advice but also attending neighbourhood meetings to provide information, clear up doubts and help people adopt correct and legal decision making.
On the other hand, the support is comprehensive and multidisciplinary. The technicians provide technical, social and financial advice. This advice is aimed not only at the citizens, but also at the local actors involved in energy renovation (property managers, architects, engineers, construction companies, etc.).
Finally, the support is continuous throughout the whole process. Ranging from initial information and decision making, technical design, obtention of permits, selection of qualified professionals, contracting of works, structuring and/or provision of finance (e.g. loans, grants), to the supervision of contractors to carry out the renovation works and quality assurance. These processes can take from 3 to 5 years.
The difference with other actions lies in the approach to stimulating these actions. The usual approach in other cases is to try to stimulate these actions through economic incentives, but in Navarre, at least, reality has shown that economic incentives are not the only way to stimulate renovation. The advice, monitoring and dynamisation provided by the ELENA teams are essential to activate citizens.
The innovation lies in the model of support offered to citizens: close, comprehensive and continuous.
It is a model that has been defined over several years and with the support of several European projects. Until 2021, this model was applied at the level of neighbourhoods, and in 2021 it was extended to the whole region of Navarre within the framework of the European project ELENA-PRIMAVERA. In order to make this service available, not only in the cities but also in the rural areas, different one-stop-shop offices have been created throughout the territory.
On the one hand, it is a very localised and proactive model, with technicians not only providing advice but also attending neighbourhood meetings to provide information, clear up doubts and help people adopt correct and legal decision making.
On the other hand, the support is comprehensive and multidisciplinary. The technicians provide technical, social and financial advice. This advice is aimed not only at the citizens, but also at the local actors involved in energy renovation (property managers, architects, engineers, construction companies, etc.).
Finally, the support is continuous throughout the whole process. Ranging from initial information and decision making, technical design, obtention of permits, selection of qualified professionals, contracting of works, structuring and/or provision of finance (e.g. loans, grants), to the supervision of contractors to carry out the renovation works and quality assurance. These processes can take from 3 to 5 years.
The accompanying model mentioned in other sections could be replicable in many regions and countries. The figure of the renovation agents, a proactive figure that dynamises the energy transition, and the figures of the OSS (One Stop Shops) are already contemplated in the European Union's EPBD directive. In Navarre this is already a reality.
To give more specific examples of useful and replicable tools, we would highlight two. These are very useful for implementing projects of this type:
1- Navarre Building Vulnerability Viewer: developed by Nasuvinsa, shows a map of Navarre detailing the different vulnerabilities on an almost building scale, according to climatic, construction and socio-economic criteria. This tool is essential to identify the state of the housing stock and to be able to focus the work according to the degree of vulnerability. In the ELENA-PRIMAVERA project, this tool was used to initially map and quantify the areas of greatest need in each municipality.
2- Global Intervention Project (Proyecto de Intervención Global, PIG in spanish). This tool is really usefull to encourage citicens participation and stimulate regeneration. These are generic studies in which, with the participation of the neighbourhood and together with a technical team of architects, the architectural solution is defined for a group of buildings that respond to a homogeneous unit. This study defines the thermal envelope of the building, the possible solutions for accessibility and a proposal for the regeneration of the urban space. This will be defined by means of a technical-economic model. The main objective of the PIG is to involve the neighbours, to look for quality technical solutions and to make it easier for the communities of owners to agree on the solution that best suits them. The agreement of the neighbours is mandatory for the final approval of this instrument. The technicians are usually selected through an architectural competition to ensure qualit
Clima Climate change and environmental degradation are an existential threat to Europe and the world. The ELENA-PRIMAVER Project has the final goal of boosting energy renovation of buildings and this is crucial to combat climate change for several reasons:
1. Reduction of CO2 Emissions: it improves energy efficiency, which reduces energy consumption and thus carbon dioxide and other greenhouse gas emissions, especially if the energy comes from fossil sources.
2. Energy Savings: By optimising insulation and heating and cooling systems, energy demand is reduced, which not only mitigates climate change, but also reduces costs for users.
3. Promotion of Renewable Energy: Retrofitting often includes the installation of renewable technologies, such as solar panels, which reduces dependence on fossil fuels and promotes a sustainable energy system.
4. Improving Air Quality: By reducing energy consumption and emissions, air quality in cities is improved, benefiting public health and the well-being of communities.
5. Adaptation to Climate Change: Includes measures to make buildings more resilient to the effects of climate change, protecting both infrastructure and occupants.
6. Economic Boost: Generates employment in the construction sector and in the energy industry, contributing to a more sustainable economy and the transition to a low-carbon model.
In summary, energy renovation not only reduces consumption and emissions, but also promotes a more sustainable and resilient future in the face of climate change.
The social, economic and environmental results and benefits are numerous, the most representative of which are listed below:
 Energy refurbishment actions: The results of this technical assistance and the positive economic framework have led to around 163 agreements for energy efficiency works, representing 1,804 homes rehabilitated and 46.5 million euros of investment in 4 years.
 Greater impact in rural and vulnerable areas: Nasuvinsa has promoted and accompanied 45% of the thermal envelope projects in Navarre during the ELENA period. This percentage rises to 60% in rural areas and 90% in the “MRR Barrios” grant, which was a specific call for applications for vulnerable and needy areas.
 Job creation: The project has led to the direct creation of a total of 14 jobs among the 21 members of the Rehabilitation Promotion Area from which the project is carried out.
Indirectly, the promotion of the actions has led to the creation of green jobs in the construction sector, which is dominated by local businesses: architecture studios, property management and construction companies.
- Improving the energy efficiency of households: Thermal envelope actions reduce heating demand by 50-80%. This directly combats energy poverty.
 Energy consumption and greenhouse gas emissions reduction: all actions achieve a minimum reduction of 30% in non-renewable primary energy consumption and in complete envelope actions this figure is around 60%.the actions promoted in ELENA-PRIMAVERA Project as a whole have led to savings in non-renewable primary energy of 14 GWh/year, which represents a reduction in annual CO2eq emissions of 5,400 tonnes.
By improving energy efficiency, reducing energy consumption and greenhouse gas emissions, as well as creating green jobs in the construction sector the Renovation Wave will improve overall living standards.