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Belgium

Country Report

SURVEY REPORT

Progress in energy efficiency policies in the EU Member States -

the experts perspective

Findings from the Energy Efficiency Watch Project 2012

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)

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Energy Efficiency in Europe Assessment of Energy Efficiency Action Plans and

Policies in EU Member States 2013

2

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 policy 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.

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: • 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))

Conclusion

s Introd

uctio

n Sectoral Assessm

ent

Summary Assessment

3

long-‐term strategy

other actors involved

energy-‐agencies

coordina\on/financing

energy services

horizontal measures

MRV

Comprehensiveness of policy package

Long-‐term EE target(s) and strategy

• No targets other than the ESD target are mentioned

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)

EE mechanisms for overall coordination and financing

• 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 strategy • The public sector strategy lacks targets and a timescale for reaching them

Role model, transparency, and demonstration

• Demonstration projects, dissemination of information and energy saving measures

• Lack of a clear strategy and vision

Public procurement

• Element included at Federal and regional level

• 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

Public buildings

• The public sector is active in managing the energy consumption of its buildings in all regions

• Not clear as of when passive standards apply and whether a target has been set for the renovation of the buildings stock

Adequacy of policy package

• Supply and demand side of energy efficiency markets are addressed, different actors are considered and the policy package is rather balanced

Screening of the NEEAP

Overarching Energy Efficiency Governance Framework

Public Sector

public sector strategy

role model

public procurement

public buildings

adequacy of package

4

MEPS

other regula\ons

financing instruments

EPCs

informa\on

demonstra\on

adequacy of package

economic incen\ves

advice and audits

educa\on and training

MEPS

Economic incen\ves

Energy labels

Informa\on tools

Educa\on and training

Adequacy of package


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

Information tools • Several information tools are in place at national level

Education and training for retail staff and other supply chain actors

• Not included


• Subsidies and education/training of supply chain actors are missing

Residential Sector -‐ Appliances

Residential Sector -‐ Buildings


Minimum Energy Performance Standards (MEPS)

• MEPS are mentioned for all regions • Only Brussels refers to different building types and their progressive upgrade.

Other regulations • No other regulations mentioned

Economic incentives • All regions have set-‐up economic incentive programmes • 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)

Energy advice and audits • Energy advice and audits is available in all regions • Not clear whether all criteria are fulfilled

Information tools • Many information sources and tools exist • Not clear whether cost-‐benefit estimates are provided or whether info is always linked to other instruments

Demonstration projects • Brussels tries to promote exemplary buildings • Other regions to not mention demonstration projects

Education and training for stakeholders

• 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

• Could be strengthened (MEPS, training etc.)

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standards

ES&A targets

economic incen\ves

tradable permits

energy labelling

adequacy of package

obliga\ons

energy taxa\on


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

Tradable permits • Whtie Certificates in Flanders;

• EU ETS

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


• The policy package partly considers different aspects of energy efficiency in the industry and could be strengthened

Industry and Tertiary Sector


Planning instruments

• 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

Regulatory instruments • 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


• 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

Transport Sector

planning instruments

regulatory instruments

economic incen\ves

informa\on

R&D support

adequacy of package

6

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.

The most important gaps are reported for the transport and the residential sector. Nearly 40% of 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).

Findings from the Expert Survey

33%

37%

22%

8%

Belgium: overall ambiUon of the energy efficiency policies

generally, rather low

ambi\ous in a few sectors, less so in most others

ambi\ous in a range of sectors, less so in a few others

generally, rather high

44%

24%

17%

2%

13%

Belgium: achievement of naUonal energy savings target

target will not be achieved

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

not aware of energy savings target

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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 public 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 public 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 number of km travelled on the road.

Good Practice Examples

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.

Photography Credits: PhotoDisc, iStock, www.openclipart.org

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

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