Globally buildings are a significant energy consumer, accounting for about 40% of the world’s energy consumption and 33% of GHG emissions [(I.E.A., 2019); (Ali et al., 2019)]. With an estimated 15.7 MtCO2 emissions (83 kg CO2 per capita) in 2017, buildings operation in Pakistan accounts for about 30% of total emissions and is growing at annual growth rates of 4.7% and 2.5% in the domestic and commercial sectors, respectively (U.N.D.P., 2019). In developed countries, residential buildings consume the majority of energy, whereas in developing countries, residential, commercial, and institutional buildings all consume energy (Javed et al., 2016). Among the many factors, HVAC systems contribute significantly to the energy use of a building alongside degrading the environment [(A.S.H.R.A.E., 2001); (Zeng et al., 2011)]. This has raised concerns regarding energy efficiency among many all around the globe (Pylsy & Kalema, 2008). New concepts and approaches for example zero energy, positive energy districts, zero carbon, and carbon neutrality have, thus, emerged to address the issue of inefficient energy use of buildings [(Parker, 2009); (J.M, 2021); (Seto et al., 2021); (Derkenbaeva et al., 2022)]. Several other studies have also been done with respect to different regions for reducing energy consumption in buildings and making them energy efficient [(Brøgger & Wittchen, 2018); (Uihlein & Eder, 2010); (Attia et al., 2022)]. Transitioning to energy-efficient building stock is a crucial step in lowering total energy demand, and greenhouse gas emissions as well as combating climate change. A study by the International Energy Agency reveals that the transition to energy-efficient buildings based on sustainable heating and cooling systems could reduce CO2 emissions from buildings by 80% by 2050 as well as reduce energy consumption (I.E.A., 2019). In order to achieve this it is important to have a stable and well-structured institutional and regulatory framework that entails sound policies and plans toward sustainable building stock.

Rapid urbanization in developing countries has increased energy use and CO2 emissions in the building sector ((I.E.A., 2017)), and these emissions have caused Pakistan's average temperature to rise by 0.6 to 1 degree Celsius (Climate Change & Pakistan, 2017). In Pakistan, about 30% of the national electricity (A.D.B., 2017) is attributed to buildings. Between July 2017 and February 2018, the residential sector in Pakistan accounted for 51% of the country's total electricity consumption. Figure 1 presents a clear picture of this in this regard.

To address these concerns, a strengthened institutional backbone is essential for providing the necessary policy framework, capacity-building opportunities, financing mechanisms, coordination and collaboration, and monitoring and evaluation systems to ensure that energy efficiency goals are effectively pursued and attained (Afzal et al., 2021). Several organizations and government bodies in Pakistan develop and implement policies and programs regarding energy efficiency in buildings as part of the institutional framework for building energy efficiency in Pakistan. The diversity of building types, ranging from traditional constructions to modern high-rises, poses a unique challenge in devising strategies that cater to this wide spectrum. Despite notable efforts to promote energy efficiency in buildings, Pakistan faces several challenges that hinder the effective implementation of energy-saving measures and sustainable building practices [(Young, 2014); (Ali et al., 2018); (Ali & Khursheed, 2021)]. According to the existing literature, diverse views regarding the energy system of Pakistan are found [(Asif, 2009); (Sheikh, 2010); (Rauf et al., 2015)]. There is a whole series of papers examining the challenges which hinder the development of energy-efficient building stock in Pakistan [(Bhutto et al., 2011); (Bhutto et al., 2012); (Bhutto et al., 2012); (Bhutto et al., 2013); (Abbas et al., 2014)]. These studies also highlight the various constraints including financial, technical, energy planning, capacity building, and governance in way of energy efficient framework. Pakistan also faces significant policy mistakes which become a key barrier to sustainable development in Pakistan (Rafique & Rehman, 2017).

This study aims to analyze and assess the existing institutional framework for building energy efficiency and transition in Pakistan. It will delve into the roles and responsibilities of various organizations and government bodies, examine the current building codes and standards, and evaluate the effectiveness of policies and programs that have been implemented. By addressing the outlined challenges and gaps, this research seeks to provide insights and recommendations that can guide the enhancement of Pakistan's institutional framework for energy efficiency and promote a more sustainable and energy-efficient building stock, contributing to both national energy security and global climate goals.

This paper is aimed at analyzing the existing institutional framework of building stock energy efficiency and transition in Pakistan to achieve the following study objectives:

This research relies primarily on the existing literature and past studies to analyze the institutional and regulatory framework of energy efficiency in building stock in Pakistan. It is based on an extensive assessment of Pakistan's existing institutional and regulatory framework for building energy efficiency and transition. Drawing on literature insights and stakeholder perspectives, an in-depth understanding of prevailing policies and institutions uncovers underlying reasons for non-compliance and limited implementation. Additionally, input is gathered from stakeholders through interviews, aiming to identify barriers obstructing the reinforcement of building energy efficiency measures in Pakistan. Hence, based on discourse and narrative analysis, the key factors contributing to deficient compliance and implementation of existing codes and policy guidelines have been identified.

Stakeholders’ perspective plays a significant role in identifying the roles, needs, and expectations of different organizational players for enhancing energy efficiency in buildings and for their better management. Interviews with stakeholders from MoE, NEECA, PEECA, PEC, and LDA held as part of this research, gave insight into the current situation regarding building stock energy efficiency, and helped identify the missing gaps and prospects for future planning. The officials from these authorities were asked to participate in a semi-structured interview, either physically in person, or virtual over the phone or online (Teams/Zoom/Skype), with a duration of about 20 - 30 minutes. The responses gathered from the stakeholders of different organizations have been briefly summarized in Table 1 below.

The discourse & narrative assessment based on the literature and stakeholder interviews identified several obstacles toward energy-efficient building stock in Pakistan.

The building stock in Pakistan is diverse, and while there have been efforts to promote energy efficiency in buildings, the transition also faces several challenges based on the literature findings and stakeholders' perspectives.

Pakistan offers enormous potential for energy savings and greenhouse gas reduction through energy-efficient building techniques and technologies, as its construction industry is a major energy user. Yet, institutional and regulatory barriers have impeded the development of energy-efficient construction practices and technologies in the country. To encourage the shift to energy-efficient building stock in Pakistan, a regulatory framework is necessary. There are inadequacies in the institutional legal and regulatory structure, which hinder the implementation of energy-efficient plans and regulations. The Energy Conservation Act of 2016 and the Building Energy Code of 2011 offer a stabilized framework for energy efficiency in buildings, however implementation and enforcement gaps exist. Ineffective enforcement measures, for instance, contribute to low compliance with energy efficiency regulations. Moreover, the institutional environment for energy efficiency is fragmented, with several agencies and departments responsible for various areas of energy efficiency. This fragmentation produces a lack of coordination and coherence, making it difficult to execute policies and programs that promote energy efficiency efficiently. In terms of building design and construction procedures, there are also problems on the technological front. Several buildings in Pakistan are constructed without regard for energy efficiency, and the design and construction sector lacks understanding and skills in this area. This ignorance frequently results in an emphasis on aesthetics rather than energy efficiency. On the technical front, there is a need for more education and training for designing and constructing energy-efficient buildings. This might entail providing training programs for construction experts and encouraging the use of energy- efficient technology through finance mechanisms and tax incentives. To construct a solid framework for energy- efficient building stock in Pakistan, all provinces, local authorities, and line departments must be on board, as the execution of policies is largely institution-dependent. Lack of technical competence and ineffective tools are further obstacles to the implementation of the code and rules. Training, workshops, and skill development can contribute to a deeper grasp of the topic. Only institutional capacity building and a transparent atmosphere will make this feasible.

The abstract of this paper was presented at the Urban Planning & Architectural Design for Sustainable Development (UPADSD) Conference – 8th Edition which was held on the 24th-26th of October 2023.