Minister confirms Heat in Buildings Bill and PRS MEES commitment

The Minister for Climate Action confirmed in a statement to Parliament on 3 April 2025 that the Scottish Government will bring forward a Heat in Buildings (HiBs) Bill, and committed to introducing minimum energy efficiency standards (MEES) for domestic private rented sector (PRS) properties using existing powers under the Energy Act 2011¹. The Bill is intended to set a target to decarbonise heating systems in Scotland's buildings by 2045¹. Consumer Scotland reports that the Scottish Government set out revised plans for the Bill in April 2025, with introduction expected later in the year².

The Scottish Government is consulting on draft Energy Efficiency (Domestic Private Rented Property) (Scotland) Regulations, which would come into force on 1 April 2028³. Under the proposal, regulations would apply to new tenancies from 2028 and to all privately rented homes by the end of 2033¹. The standard is for all properties in the domestic PRS, as far as possible, to meet an EPC Heat Retention Rating (HRR) band C, unless exempt, by 2033¹. The draft regulations define "minimum level of energy efficiency" as an HRR of C³. During the period from 1 April 2028 to 31 March 2033, a landlord would not be prohibited from continuing to let a sub-standard property under an existing tenancy to an existing tenant³.

The consultation seeks views on a proposed cost cap of £10,000³. Proposed exemptions relate to consent; negative impacts on the fabric or structure of the property; the cost cap; and temporary exemptions¹. Local authorities are proposed to carry out enforcement and compliance duties, with penalties that can include financial penalties, a publication penalty or both, subject to an appeals process¹. The consultation closed on 29 August 2025³.

There are currently no MEES for PRS properties in Scotland, meaning landlords can rent properties that meet any EPC banding¹. Around 19% of Scotland's total emissions come from the heating systems used in its building stock¹. Of PRS homes in Scotland, 74% currently use gas boilers and 7% use oil boilers¹. In the PRS, 48% of properties are rated EPC band D or lower, and 44% of people in the sector live in fuel poverty³. The Scottish Government has legally committed to reach net zero by 2045¹.

"On 3 April 2025, the Minister for Climate Action confirmed in a statement to Parliament that the Scottish Government will bring forward a Heat in Buildings (HiBs) Bill"

Why it matters for households

For tenants in privately rented homes, the proposal sets a minimum standard that a property would have to meet before it can be let to a new tenant from 2028, with all tenancies covered by the end of 2033. The Scottish Government states that improving energy efficiency can reduce the energy required to heat a property, making a home easier and quicker to heat and keep warm, and that this can have a positive impact on reducing energy bills¹. It also notes that evidence on how individual household behaviour changes is limited, making cost savings for individual homes difficult to estimate³.

For a home's energy independence, the standard is based on the fabric of the building rather than the heating system. The reformed EPC's Heat Retention Rating focuses on how well a building retains heat, so it would not be affected by changes to the heating system¹. The Scottish Government states that fabric improvements can help prepare properties for clean heating systems that require good levels of energy efficiency to make a home feel comfortable³. Scotland's homes and workplaces account for about 19% of total emissions and must transform to be more comfortable, efficient and green³.

What happens next

The Scottish Government intends to lay new EPC regulations in September 2025, to come into force in autumn 2026, ahead of the PRS MEES regulations in 2028³. The consultation on the draft regulations closed on 29 August 2025³. Consumer Scotland reports that the Heat in Buildings Bill is expected to be introduced later in 2025².

Sources3 cited

1. Section 1: Background, aims and options - Energy Efficiency (Domestic Private Rented Property) (Scotland) Regulations 2026: partial BRIA - gov.scot, gov.scot
2. Converting Scotland's home heating - HTML | Consumer Scotland, consumer.scot
3. Consultation on draft energy efficiency (domestic privated rented property) (Scotland) regulations, gov.scot