Energy Efficiency in Europe Assessment of Energy Efficiency Action Plans and Policies in EU Member States 2013
Country Report ROMANIA
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)
Introduction
Summary Assessment 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). Both the EEW-‐expert survey as well as the NEEAP screening concur in their conclusion that the Romanian energy efficiency policy has great potential for improvements and could be strengthened in many respects. The last three years witnessed only little progress in energy efficiency policy and the NEEAP screening identifies the greatest policy gaps in the field of appliances and the transport sector. The Romanian governance framework for energy efficiency has largely been driven by EU accession. M ost of the strategic documents were adopted d uring the accession phase and have set targets for 2015. The national energy strategy covers the timeframe 2007-‐2020 and contains some targets for energy efficiency. A clear overall target for the mid and the long term is, however, missing.
Sectoral Assessment
The sectoral assessment of policies is as follows: • In a sectoral perspective, Romania has identified the great savings potential in the buildings sector and h as set up a range of economic incentives for improving energy efficiency. Amongst others, support is provided for thermal insulation; structural funds are used for improving efficiency in buildings. In addition, aid for heating, an incentive for using more energy, has been eliminated. Demonstration projects, information and communication are barely d escribed in the NEEAP. • The policy package for industry covers many aspects. Amongst others, long term agreements with industry are planned, following the example of the Netherlands. The policy package for industry furthermore comprises standards (Ecodesign), economic incentives and training activities. The economic incentives are to a large extent based on EU or EBRD funding. • In most sectors, EU legislation seems to have been the main driving force. This is particularly evident in the field of appliances where the Ecodesign and the energy labelling Directive are the main measures. The policy package such as described in the NEEAP lacks in particular economic instruments and information tools. • It should b e noted that the economic recession of 2008 and 2009 has considerably impacted Romanian energy efficiency policy. The p ublic b udget and also spending on energy efficiency had b een significantly reduced. The energy efficiency policy can be considered to be rather weak based on both the NEEAP assessment and the expert survey. Improvements could be the following:
Conclusions
• The Romanian energy efficiency policy is not overly ambitious yet. All policy packages can be strengthened • In the residential sector, it is recommended to improve advice, information and communication. In this context, it is also advisable to implement demonstration projects and define a roadmap for the tightening of minimum energy performance standards • It is advised to complement the policy package for appliances with economic instruments and information tools • In the field of industry it is recommended to put particular emphasis on obligations or commitments for energy auditing, energy management or technology phase-‐out • Good practice: Commercial companies, as well as the local and central public administrative units owning more than 25 vehicles, have the obligation to develop monitoring and management programs for the fuel consumption of the own car fleet. As well the elimination of an aid for heating which sets incentives for using more energy is a goo improvement. 2
Screening of the NEEAP Overarching Energy Efficiency Governance Framework
Comprehensiveness of policy package • The national energy strategy sets targets for 2020 but not a general energy efficiency target for the whole country
long-‐term strategy
Long-‐term EE target(s) and strategy
other actors involved
Involvement of non-‐governmental and market actors, and sub-‐ national authorities
• Local authorities are involved in energy efficiency policy;
energy-‐agencies
Energy agencies and climate protection agencies
• Energy agencies have been established at local, regional and national level.
coordinaZon/financing
EE mechanisms for overall coordination and financing
energy services
Favourable framework conditions for energy services
horizontal measures
• ESCOs are promoted
• Romania makes use of EU funds to finance energy efficiency; • It is unclear how all financing activities are coordinated • It is planned to define the legal frame for energy services, promote ESCOs and draft standard documents • Long term agreements with industry are planned;
Horizontal measures
• The taxation of gas is slightly above the minimum rate
MRV Monitoring, reporting and verification
• A MRV scheme based on top-‐down measures is used
Public Sector Comprehensiveness of policy package Public sector strategy
• The strategy of the public sector is not clearly described • Promotion of energy service contracts are planned
public sector strategy
• Reducing public lighting consumption in place Role model, transparency, and demonstration
role model
• Bigger public administrations must develop energy efficiency improvement plans • Associations for energy efficiency were instated in many counties • Obligation for administrations to develop monitoring and management programs for vehicle fuel consumption
public procurement
public buildings
Public procurement
adequacy of package
Public buildings Adequacy of policy package
• Public procurement is mentioned but not clearly described • Use of EU funds for retrofitting of public buildings • Promotion of energy service contracts • Supply and demand side as well as potentials are partly considered
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Residential Sector -‐ Buildings MEPS
Comprehensiveness of policy package
other regulaZons
Minimum Energy Performance Standards (MEPS)
economic incenZves
Other regulations
• Major renvoations must take performance improvement into account • MEPS are not clearly described. • Construction permits for buildings require the elaboration of a study regading the possibility of using efficient alternative systems • Support for thermal insulation
financing instruments
Economic incentives
• Elimination of aid for heating • Use of structural funds
EPCs
Financing instruments
• Bank credits with governmental warranty
advice and audits
Energy performance certificates (EPCs)
• An energy performance certificate scheme has been implemented (MURE)
Energy advice and audits
• Certification of specialists as energy auditors for buildings
Information tools
• Information and education programmes for building owners will be organised
Demonstration projects
• Not included
Education and training for stakeholders
• Information and eductaion programmes for building owners will be organised
informaZon
demonstraZon
educaZon and training
Adequacy of policy package
adequacy of package
• Energy saving potential of the buildings sector considered • Demand and supply side of energy efficiency markets considered
Residential Sector -‐ Appliances MEPS
Comprehensiveness of policy package
economic incenZves
Minimum Energy Performance Standards (MEPS)
• The Ecodesign Directive has been implemented
Economic incentives
• Not included • EU energy label implemented
energy labels
Energy labels
• The voluntary Energy Star label for office equipment is promoted
informaZon tools
Information tools
• Not included
educaZon and training
Education and training for retail staff and other supply chain actors
• Seminars on the use of appliances were organised within a project
adequacy of package
Adequacy of policy package
• The policy package is almost exclusively based on EU measures • Economic incentives and information tools are lacking
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Industry and Tertiary Sector Comprehensiveness of policy package
Standards
Standards for equipment, production process, products
ES&A targets
ObligaZons
• The Ecodesign Directive has been implemented
Energy savings and action targets for individual companies
• Long term agreements with industry are planned
Obligations / commitments
• Not included
economic incenZves
• Funding is available through the Romanian Fund for Energy Efficiency;
Economic incentives
• EU funds are available for financing investment projects.
tradable permits Tradable permits
energy taxaZon
• EU ETS
Energy or CO2 taxation
energy labelling
Energy labelling
adequacy of package
Adequacy of policy package
• The minimum rate is applied for electrictiy; • The taxation of gas is above the minimum rate • Partly included in all M S due to EU energy labelling regulation. • The policy mix is rather balanced; • The supply and demand side are addressed
Transport Sector Comprehensiveness of policy package Several action plans, investments in rail, action plan for sustainable urban mobility
planning instruments
Planning instruments
regulatory instruments
Regulatory instruments
EU directives and innovative approach with company obligations
Economic incentives
Only one incentive mentioned
Information and advice
No specific measures mentioned; labelling
R&D support
Participation of local authorities in EU programmes; no further information
economic incenZves
informaZon
R&D support
adequacy of package
Adequacy of policy package
Policy package is not sufficient; public authorities (also PT operator) have ambitious targets but only little regulatory and economic incentives are in place
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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. More than two thirds of the respondents (in total 21 questionnaires were completed for Romania) rate the overall ambition of the Romanian energy efficiency policies as generally low or perceive ambitious policies only in a few sectors. More than 70% consider that only a few additional policies were set up in the past three years or see no or very little progress. More than 60% of the experts expect that the national ESD target will not be reached or, if reached, that it will not lead to much additional savings. With regard to the most important gaps in energy efficiency policy respondents pointed to all sectors, hence no sector can be singled out as the one with the biggest gaps. The greatest barrier to energy efficiency is clearly financing according to more than 60% of the experts.
Romania: overall ambiUon of the energy efficiency policies 5% 30%
25%
40% generally, rather low ambiZous in a few sectors, less so in most others ambiZous in a range of sectors, less so in a few others generally, rather high
As positive developments the experts noted that the relevant EU legislation was transposed thus providing a stronger legislative framework and that some funding mechanisms are available. On the negative side it was stated that the public sector lacks staff in the field of energy efficiency and that the setting up of the right institutional framework is still a challenge. Furthermore funding for energy efficiency measures is generally considered insufficient. The public sector disposes of very limited financial resources for investing in energy efficiency; measures foreseen in the legislation and action plans can not be implmented due to lack of budgets. Some financial programmes are available in the residential sector; these include tax reductions as well as financial suport for the renovation of multi-‐family buildings. Regarding the industry sector, experts report that there is a legal requirement for carrying out regular energy audits. The respondents to the survey refer to some initiatives relating to energy efficiency in transport; a main challenge is public transport which according to the respondents has deteriorated. Questioned about their views on d ifferent policy instruments, experts pointed to energy audits (57 % partly or very effective) and qualification, accreditation and certification schemes (52 % partly or very effective) as the most effective instruments.
Romania: achievement of naUonal energy savings target target will not be achieved
10% 5% 19%
52%
target will be achieved but will not lead to a lot of addiZonal savings target will probably be achieved target will certainly be achieved
14%
not aware of energy savings target
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Good Practice Examples The public sector of the Romanian NEEAP shows balanced results but can be considered as good practice example in the case of role model. Here, reduction of public lighting consumption and the obligation for bigger public administrations to develop energy efficiency improvement plans are good measures. Associations for energy efficiency were instated in many counties which can strengthen energy efficient development. As well a promotion of energy service contracts is planned. Apart of obligation measures the industry and tertiary sector shows balanced results due to implemented EU requirements. Few measures go beyond EU regulation which should be considered to further strengthen this sector. Here, several NEEAPs can give orientation for improvement. For instance in France an agreement focus on the remove of the least-‐efficient light bulbs earlier than scheduled from the market. One strength is of course the use of “other measures”, e.g. education, capacity building and energy audits. Good practice examples are given by Austria, Estonia and Finland, where educational measures play an important role. Some countries provide strong financial support in the industry sector. This includes subsidies and tax incentives, which are especially prominent in the NEEAPs of France, Germany and UK, where different funds for research and innovation on energy saving technologies, implementation of energy saving measures and support for audits are in place. The transport sector shows one good measure (planning instruments) but as well weaknesses (i.e. economic incentives, information, and R&D support) which should be improved. Good practice examples can be found in Finnish and Slovenian NEEAPs. Finland has implemented a policy package for the transport sector, which utilizes the complete set of instruments to achieve energy efficiency. One overarching goal of the 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 subsidized 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 n o 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
