Energy Efficiency in Europe Assessment of Energy Efficiency Action Plans and Policies in EU Member States 2013
Country Report Belgium
SURVEY REPORT Progress in energy efficiency policies in the EU Member States the experts perspective
Findings from the Energy Efficiency Watch Project 2012
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Christiane Egger (O.Ö. Energiesparverband)
Summary Assessment
Introduction
This report is one of 27 country reports published within the Energy-‐Efficiency-‐Watch project and assesses both ambition and quality of EU Member States´ energy efficiency action plans and p olicy implementation (see more at www.energy-‐efficiency-‐watch.org). The survey respondents consider that relatively little progress had been made or that only a few additional policies had been set up in the last three years. The NEEAP analysis yields a slightly more positive picture even though the overall ambition could clearly be raised in several sectors. It should, however, be noted that the Belgian NEEAP is composed of the measures outlined in the three distinct energy efficiency action plans of the three Belgian regions. As one specific measure typically applies only to one region, it is difficult to assess the Belgian NEEAP as a whole. The survey points to the transport and residential sector as the fields with the greatest gaps. With regard to the residential sector, the NEEAP analysis comes to a more positive conclusion and thus partly differs from the survey. With regard to target achievement, the Flemish region is (based on the NEAAP) the region with the highest savings. It is expecting to achieve energy savings of 13,9 % by 2016 (compared to the reference scenario) while Wallonia is expecting to save 7,9 % and thus not to reach the target of the Energy Services Directive and Brussels is likely to reach the target with 10% energy savings in 2016. The Belgian NEEAP lacks clear sectoral targets and an overall target for the mid and long term. This weakens the governance framework.
Sectoral Assessment
The sectoral assessment is as follows: • The efforts undertaken by the Belgian regions and the federal level have led to a great number of different measures. The public sector may therefore be seen as a role model in some fields. For instance, the public sector has designed a comprehensive mobility management system and aims for sustainable public procurement. • The policy package for buildings is rather balanced and comprises regulatory instruments, economic and financial incentives as well as information tools and advice. For instance, financing instruments exist at federal and regional level. Energy advice is available in all regions and several information tools have been implemented in Belgium. However, it is not clear from the NEEAP how ambitious energy performance standards are and whether they apply to different building types. A roadmap for revision and tightening of the minimum energy performance standards is not included in the NEEAP. • With regard to appliances, the implementation of the Ecodesign Directive has been accompanied by the implementation of market surveillance measures and information tools for consumers. For the EU energy label, a control system has been set up. Information tools inform consumers about energy efficient appliances and means to reduce the power consumption at home. The policy package could be improved if education and training was offered to retail staff and other supply chain actors or energy efficiency networks. • The policy package for the industry considers several important aspects but none of them fully and thus offers still room for manoeuvre and improvement. On regional level, some initiatives have been taken in the Wallon and Flemish region. Information on the level of ambition of these measures is not included in the NEEAP. • In the transport sector Belgium aims to promote a modal shift to public transport, soft modes and energy efficient vehicles. However, the descriptions of the different measures are rather general (in the English version) which renders a detailed analysis difficult. Improvements could be the following:
Conclusions
• The overall ambition of the policies is medium. However, several good practices could be identified. • Good practice: Programme for reducing the energy use in public schools and sensitizing pupils for the need to save energy (Flanders) • Good practice: To improve the energy efficiency of the public sector, a specific public ESCO has been created. The ESCO is particularly active in the buildings sector. • Good practice: Benchmarks and audit requirements for energy intensive companies that are not covered by the ETS (Flanders) • It is recommended to introduce horizontal measures to complement the overall target and support the sectoral policies (e.g. the increase of the excise duty on electricity and gas or the establishment of an overarching coordination mechanism (e.g. white certificates or an energy efficiency fund))
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Screening of the NEEAP Overarching Energy Efficiency Governance Framework Comprehensiveness of policy package long-‐term strategy
Long-‐term EE target(s) and strategy
• No targets other than the ESD target are mentioned
other actors involved
Involvement of non-‐ governmental and market actors, and sub-‐national authorities
• Energy companies, ESCOs, local authorities and some sectoral organsiations are involved
Energy agencies and climate protection agencies
• There are several regional energy agencies (Manage Energy)
energy-‐agencies
EE mechanisms for overall coordination and financing
coordina\on/financing
energy services
horizontal measures
MRV
• Energy efficiency obligations exist in Flanders; Wallonia has established an energy fund; Brussels refers to public service obligations • Not clear how scheme in Brussels works and how comprehensive it is; not clear how comprehensive support of Walloon fund is
Favourable framework conditions for energy services
• An ESCO for the public sector has been established
Horizontal measures
• Industry benchmarks in Flanders and sectoral agreements in Wallonia
Monitoring, reporting and verification
• Advanced MRV in Flanders and Wallonia
Public Sector Comprehensiveness of policy package Public sector strategy
public sector strategy Role model, transparency, and demonstration
role model
• The public sector strategy lacks targets and a timescale for reaching them • Demonstration projects, dissemination of information and energy saving measures • Lack of a clear strategy and vision • Element included at Federal and regional level
Public procurement
public procurement
• All regions have implemented at least three of the measures of annex VI of the ESD; it is not clear to how many products the criteria are applied • The public sector is active in managing the energy consumption of its buildings in all regions
public buildings Public buildings
adequacy of package
Adequacy of policy package
• Not clear as of when passive standards apply and whether a target has been set for the renovation of the buildings stock • Supply and demand side of energy efficiency markets are addressed, different actors are considered and the policy package is rather balanced
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Residential Sector -‐ Buildings Comprehensiveness of policy package MEPS
Minimum Energy Performance Standards (MEPS)
• MEPS are mentioned for all regions • Only Brussels refers to different building types and their progressive upgrade.
other regula\ons
Other regulations
• No other regulations mentioned • All regions have set-‐up economic incentive programmes
Economic incentives
economic incen\ves
financing instruments
• Not clear whether level of support always increases with savings achieved and whether linked to other instruments
Financing instruments
• Financing instruments have been set up at the federal and regional level • Not clear how these are disseminated and whether application procedure is simple
Energy performance certificates (EPCs)
• Energy performance certifiates are included in the strategy of all regions • Flanders is more advanced than other regions; EPC seldom available at the moment when buildings are advertised; differences between regions (source: BPIE report)
EPCs
advice and audits
Energy advice and audits
informa\on
• Energy advice and audits is available in all regions • Not clear whether all criteria are fulfilled • Many information sources and tools exist
Information tools
demonstra\on
• Not clear whether cost-‐benefit estimates are provided or whether info is always linked to other instruments
Demonstration projects
educa\on and training
Education and training for stakeholders
adequacy of package
• Brussels tries to promote exemplary buildings • Other regions to not mention demonstration projects • Education and training is offered for buildings professionals • Not clear whether all professionals are concerned; seems to be rather trainings for interested professionals • The policy mix is rather balanced, supply and demand side as well as different actors are addressed
Adequacy of policy package
• Could be strengthened (MEPS, training etc.)
Residential Sector -‐ Appliances Comprehensiveness of policy package
MEPS
Minimum Energy Performance Standards (MEPS)
• Ecodesign Directive implemented, market surveillance in place, consumer information
Economic incentives
• Brussels grants subsidies for efficient household appliances
Energy labels
• The energy label is implemented and a control sysem in place
Informa\on tools
Information tools
• Several information tools are in place at national level
Educa\on and training
Education and training for retail staff and other supply chain actors
• Not included
Adequacy of policy package
• Subsidies and education/training of supply chain actors are missing
Economic incen\ves
Energy labels
Adequacy of package
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Industry and Tertiary Sector Comprehensiveness of policy package
standards
ES&A targets
obliga\ons
economic incen\ves
Standards for equipment, production process, products
• Partly included (Ecodesign)
Energy savings and action targets for individual companies
• Benchmark agreements for utilities and processes in Flanders; sectoral agreements in Wallonia
Obligations / commitments
• Some form of commitment to energy management exists in all three regions
Economic incentives
• Tax deduction at Federal level, assistance and subsidies in Brussels and Wallonia • Whtie Certificates in Flanders;
Tradable permits
• EU ETS
tradable permits
energy taxa\on
energy labelling
adequacy of package
Energy or CO2 taxation
• Minimum rates are applied, exemptions for electricity for business use
Energy labelling
• Partly included
Other sectors
• Several measures are implemented at regional level
Adequacy of policy package
• The policy package partly considers different aspects of energy efficiency in the industry and could be strengthened
Transport Sector Comprehensiveness of policy package planning instruments Planning instruments
regulatory instruments
economic incen\ves
Regulatory instruments
informa\on
• The policy focusses on individual mobility decisions, improving public transport, modal shift to public transport and soft modes. Unfortunately measures are not explained. • The federal and the regional level is active in mobility management • Some regulations for public transport mentioned but not explained
Economic incentives
• Some economic incentives mentioned but not explained in the english version of the NEEAP.
Information and advice
• Information and training campaign in Wallonia
R&D support
• R&D is not mentionned
R&D support
adequacy of package Adequacy of policy package
• Measures address different actors (PT operators, private persons as car purchaser, user of PT) Unfortunately the measures are not described; they are only categorized. It is thus impossible to assess their effects
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Findings from the Expert Survey In 2011 and 2012, Energy-‐Efficiency-‐Watch conducted a quantitative and qualitative survey with national experts on implementation of energy efficiency policies in EU Member States. The vast majority of respondents (71% of replies, of a total of 50 completed questionnaires) think that only little progress was made or that only a few additional policies were set up in the last three years. Belgium has thus made only medium-‐to-‐low progress according to experts (progress indicator rank 18 of 27). In line with this assessment only around 30% of respondents state that the Belgian policy is ambitious or at least ambitious in a range of sectors. 68% estimate that the ESD target will not be reached or, if reached, will not lead to significant savings.
Belgium: overall ambiUon of the energy efficiency policies 8% 33%
22%
37% generally, rather low ambi\ous in a few sectors, less so in most others
The most important gaps are reported for the ambi\ous in a range of sectors, less so in a few others transport and the residential sector. Nearly 40% of generally, rather high respondents consider financing the greatest barrier to energy efficiency in Belgium. Respondents are concerned about increasing budgetary constraints and uncertainties about financing programmes. Experts positively noted a tax reduction programme on national level and incentives provided by the regions as well as some voluntary agreement programmes in industry. Activities differed between the three Belgian regions. This was particularly evident in the public sector. With regard to the residential sector experts reported that all three regions offer a range of financial incentives for energy efficiency investments. The activities in the service and industry sector, are characterized by voluntary branch agreements for industry as well as some incentives set by regions for energy efficiency and renewable energy. With regard to the transport sector, experts call for more tax incentives to promote energy efficiency. The experts refer to qualification, accreditation and certification schemes as the most effective instrument for the promotion of energy efficiency (55 % see them as very or as partly effective), followed by obligations for energy companies and energy audits (42% consider them as partly effective and 9% as very effective, same percentage for each).
Belgium: achievement of naUonal energy savings target target will not be achieved
13% 2% 44%
17%
target will be achieved but will not lead to a lot of addi\onal savings target will probably be achieved target will certainly be achieved
24%
not aware of energy savings target
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Good Practice Examples Belgium can be referred to as a good practice example for energy efficiency policy in the public sector. The efforts undertaken by the Belgian regions and the federal level have led to a great number of different measures. For instance, the p ublic sector has designed a comprehensive mobility management system and aims for sustainable public procurement. In view of increasing the energy efficiency in the public sector, in particular public buildings, energy services are promoted. The public sector strategy considers not only civil servants but also other actors in the wider public domain. The Flemish region e.g. has designed a programme that aims at reducing the energy use in public schools and to sensitize pupils for the need to save energy. Likewise, Flanders cooperates with local authorities in the field of environmental policy. The financial support to local authorities is dependent upon the programme/measures implemented, i.e. the local level of ambition. The strategy of the public sector lacks, however, clarity. This is due to the fact that the p ublic sector has not adopted a medium or long term energy efficiency target. A first step towards the improvement of the public sector strategy could therefore be the setting of a target for the public sector at federal and regional level. This could allow to better assess the progress achieved in future and to see whether the policy is on track. The transport sector is, according to the NEEAP assessment and the experts survey, relatively weak. It is recommended that Belgium improves its information and advice as well as its R&D support measures, and fine tunes its planning, regulatory and economic instruments. Orientation offer the Finnish and Slovenian NEEAP where in the case of Finland a broad range of instruments is used to achieve energy efficiency. One overarching goal of the Finnish policy package is the induction of a modal shift by making public transport, cycling and walking more attractive. Finland also makes use of regulatory measures. Among these is the introduction of a general speed limit and mandatory tyre-‐pressure checks twice a year. In Finland vehicle tax rates are dependent on the car’s emissions. The expansion of public transport systems is financially supported e.g. by funding the construction of right-‐of-‐way lanes for buses and subsidizing tickets. Various measures aim to give guidance through information. Among these is the inclusion of energy-‐efficient driving in the curricula of driver’s education. A good practice example from Slovenia is to link the subsidy for public transport providers to the number of km travelled by passengers and no longer to the n umber of km travelled on the road.
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Disclaimer The sole responsibility for the content of this publication lies with the authors. It does not necessarily reflect the opinion of the European Union. Neither the EACI nor the European Commission are responsible for any use that may be made of the information contained therein. The analysis performed here is based almost exclusively on the information provided in the NEEAPs. Consequently, a low score for any of the criteria analysed could also be the result of a NEEAP lacking detailed information. The purpose of this assessment is not an absolute ranking among Member States but is focusing on each Member State’s individual conditions.
The Project In 2006, the European Union adopted the Directive on energy end-‐use efficiency and energy services ("ESD"). The Directive sets an indicative energy saving target of 9 % by 2016 as well as obligations on national authorities regarding energy savings, energy efficient procurement and the promotion of energy efficiency and energy services. It requires Member States to submit three National Energy Efficiency Action Plans (NEEAPs), scheduled for 2007, 2011 and 2014. The Energy-‐Efficiency-‐Watch Project aims to facilitate the implementation of the Energy Service Directive and the Energy Efficiency Directive. This Intelligent Energy Europe project tried to portray the progress made in implementation of energy efficiency policies since the Energy Service Directive via NEEAPs screening and an extensive EU wide expert survey. www.energy-‐efficiency-‐watch.org
The Authors Ralf Schüle, Thomas Madry, Vera Aydin, Jonas Fischer, Jan Kaselofsky, Thorsten Koska, Carolin Schäfer-‐ Sparenberg, Lena Tholen (Wuppertal Institute) Daniel Becker, Nikolas Bader (Ecofys) Christiane Egger (O.Ö. Energiesparverband) with contributions by Reinhold Priewasser, Michaela Kloiber (University of Linz) Nils Borg (eceee), Dominique Bourges (Fedarene), Peter Schilken (Energy Cities)
List of Abbreviations EE – Energy Efficiency, EED – Energy Efficiency Directive, EPC – Energy Performance Certificates, EPDB – Energy Performance of Buildings Directive, ES&A Targets -‐ Energy Savings and Action Targets, ESCO – Energy Service Company, ESD – Energy Service Directive, EU – European Union, EEW – Energy-‐Efficiency-‐Watch, MEPS – Minimum Energy Performance Standards, MRV – Monitoring, Reporting and Verification, MURE – Mesures d’Utilisation Rationelle de l’Energie, NEEAP – National Energy Efficiency Action Plan, R&D – Research and Development Photography Credits: PhotoDisc, iStock, www.openclipart.org
