Energy Efficiency in Europe

Transcription

1 Energy Efficiency in Europe Assessment of Energy Efficiency Action Plans and Policies in EU Member States 2013 Country Report PORTUGAL 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)

2 Summary Assessment Introduction Sectoral Assessment Conclusions 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 efficiency- watch.org). The Portuguese NEEAP lacks of detailed and comprehensive information. Obviously, some ideas have the potential to noticeably contribute to energy savings. Additionally, only aggregated results have been presented, that makes it difficult to soundly assess the NEEAP. It is strongly advised to fill the information gaps and show detailed calculations. On the contrary to the NEEAP assessment, however, interviewed domestic experts state that Portugal is among the countries where energy efficiency (EE) policies have progressed rather well since the first NEEAP. They see a relatively high overall ambition of EE policies, as 62% consider it at least ambitious some sectors. About one third of interviewed experts think that the target will certainly or probably be achieved and report the successful implementation of the EPBD and an upcoming new legislative framework for ESCOs. The sectoral assessment is a follows: For the public sector, the NEEAP provides only limited information about policies and measures. An overall sector strategy is missing. Public buildings are addressed through energy certification, installation requirements, subsidies for CHP and behavioural campaigns. But implementation of some of these measures remain unclear. NEEAP I and MURE II database had to be consulted to find at least some information. According to the interviewed experts there is a lack of funding in the public sector that is challenging. The lack of information hinders also a proper assessment of the NEEAP in the residential sector. Some regulations and building standards are mentioned. A huge list of ideas and goals to improve EE in buildings shows efforts in the sector which are unfortunately not assessable. Interviewed experts regard the removal of financial incentives for EE as one important strategic challenge. The action plan in the appliances sector determines potential savings by changes of behaviour in the efficient use of energy. Information and incentives are provided. However, neither information about the design and the implementation of policies nor their impact is given. EU regulations like the Ecodesign Directive or the Labelling Directive are not explicitly included in the NEEAP. An energy saving target for the industrial sector is mentioned. Other measures are related to EU regulations. It is important to fill the information gap since many of the measures found in MURE are not mentioned in the NEEAP. Experts report that a programme for the energy- intensive industry exists committing companies to draw up EE plans. Portugal plans to restructure logistics in land and maritime transport as well as to improve the rail network. Additionally, environmental friendly driving is supported which is also described by the experts. The NEEAP provides only basic information about measures. Further information should be given. According to the experts, Portugal progressed rather well since the first NEEAP and more than 60% see that the targets at least as ambitious. More than thirty percent expect the targets to be accomplished. Concerning the NEEAP it is not possible to do a sound assessment due to huge information gaps. It is obvious that some ideas have the potential to noticeably contribute to energy savings. It is strongly advised to fill the information gaps and to show results and detailed calculations of the achieved energy savings. Additionally, the EU regulations should be listed in the NEEAP as well. As one example, the appliances sector should address the demand and the supply side to overcome actor- specific barriers. Information & education campaigns, a voluntary labelling scheme as well as financial incentives should be implemented. 2

3 Screening of the NEEAP Overarching Energy Efficiency Governance Framework long- term strategy other actors involved energy- agencies coordina]on/financing energy services horizontal measures MRV Long- term EE target(s) and strategy Involvement of non- governmental and market actors, and sub- national authorities Energy agencies and climate protection agencies EE mechanisms for overall coordination and financing Favourable framework conditions for energy services Horizontal measures Monitoring, reporting and verification New objectives have been set up replacing failed ones. No mentioning of other plans and concepts. Not mentioned in the NEEAP. There are energy agencies at national, regional, and local level. None of them is mentioned in the NEEAP. Not mentioned in the NEEAP. Not mentioned in the NEEAP. Not explicitly mentioned but also focus on behavioural measures. Not mentioned in the NEEAP. Public Sector public sector strategy Public sector strategy The NEEAP displays results and targets for the public sector. But no realistic or binding timescales for the different measures are given. An overall strategy or mission for the public sector is missing. role model public procurement public buildings Role model, transparency, and demonstration Public procurement Public buildings The role model is conducted through demsonstration projects, monitoring of energy savings and campaigns. A clear strategy to visualise energy consumption and energy savings of public bodies is missing. Green public procurement criteria were set out in NEEAP1, but no savings have been achieved so far. The implementation remains unclear. Public buildings are addressed through energy certification, installation requirements, subsidies for CHP and behavioural campaigns. The implementation of some of these measures remains unclear. The policy package seems to be well balanced. It contains information activities, requirements and subsidies. Different barriers and the supply and demand side of energy efficiency markets are addressed. However, the NEEAP provides only limited information. 3

4 Residential Sector - Buildings MEPS Minimum Energy Performance Standards (MEPS) MEPS for residential buildings only are in place. other regula]ons economic incen]ves financing instruments EPCs advice and audits informa]on demonstra]on educa]on and training Other regulations Economic incentives Financing instruments Energy performance certificates (EPCs) Energy advice and audits Information tools Demonstration projects Education and training for stakeholders Regulations on air- condition, heating and others exist. Not mentioned in NEEAP or MURE. There must be incentives to promote all given ideas of the government. Not mentioned in NEEAP or MURE. There must be incentives to promote all given ideas of the government. Certification of bulidings exists but no benefits are combined with good performance. Energy advice and audits are implied by the government. Not mentioned in NEEAP or MURE. Not mentioned in NEEAP or MURE. Not mentioned in NEEAP or MURE. The adequacy of the policy package is hardly to describe. There is more a lack of communication than of policy implementation but it is difficult to proof that on the on- hand information. Residential Sector - Appliances MEPS economic incen]ves energy labels informa]on tools educa]on and training Minimum Energy Performance Standards (MEPS) Economic incentives Energy labels Information tools Education and training for retail staff and other supply chain actors The country implemented the Ecodesign Directive 2009/125/EC without additional efforts. The Ecodesign Directive is not mentioned in the NEEAP. No mention of economic incentives. The country impemented the EU Labelling Directive 2010/30/EC. No voluntary label. Some information tools are in place at national level and a market study was published. Education and training are not mentioned in the NEEAP. The policy package considers the demand and supply side with some (EU- ) measures. The policy mix is not well balanced. 4

5 standards Industry and Tertiary Sector ES&A targets obliga]ons economic incen]ves tradable permits energy taxa]on energy labelling other measures Standards for equipment, production process, products Energy savings and action targets for individual companies Obligations / commitments Economic incentives Tradable permits Energy or CO 2 taxation Energy labelling Other measures The Ecodesign Directive is implemented. An ESD energy saving target for the industrial sector is mentioned. No obligations or commitments stated in the NEEAP. No economic incentives described. The EU Emission Traiding System is implemented with all its subsidies functioning. There is a slightly higher tax rate than the minimum EU- requirement for electricity. Partly included in all MS due to EU energy labelling regulation which does not cover all appliances though. No other measures. Due to lack of information an adequate assessment was not possible. Almost only obligatory EU- measures are mentioned or assessable, i.e ecodesign, minimum tax rates and funds. Transport Sector planning instruments Planning instruments A number of relevant measures is listed, but not further explained. regulatory instruments economic incen]ves informa]on R&D support Regulatory instruments Economic incentives Information and advice R&D support No regulatory instruments mentioned in the NEEAP, but MURE mentions rules for public procurement and energy management regulation in transport companies. Measures are not further described in the NEEAP. Financial incentives are metioned in the MURE. Only one measure, the environmentally friendly driving monitoring system, is mentioned. A vehicle labelling is mentioned in the MURE. MURE- database indicates the Programme for Electric Mobility in Portugal (ongoing), further information are missing. Fragmentary description of measures prevents a closer look into the strategy. 5

6 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. According to 21 Portuguese experts interviewed, Portugal is among the countries where energy efficiency policies progressed comparatively well since the first NEEAP. They see a relatively high overall ambition of energy efficiency policies as 62 % consider it at least ambitious in a range of sectors. The interviewees were divided regarding the introduction of new policies: 38 % saw a range or many additional policies, 52 % only a few additional policies. Accordingly, opinions also differ on the achievement of the ESD energy savings target: about a third thinks that the ESD target will certainly or probably be achieved, and another third believes that the target will not be achieved.!"#$%&'()*"+,#'((*'-./$/"0*"1*$2,*,0,#&3*,11/4/,043*5"(/4/,6 Most Critical issues mentioned include the lack of %&'&()**+,-()./&(-/4%/ funding, especially in the face of the financial crises. Also, an ESCO market has not yet developed. In the public sector, the lack of funding is particularly challenging. Also, the complexity of organisational structures is reported as a barrier. In the residential sector, experts observe the removal of the financial incentives for energy efficiency. Portugal has to decrease the energy dependence on other countries; the reduction of energy consumption in the transport and buildings sector could be a solution. The mobility/transport sector is not well linked to the economic development. Public transport is not well developed which causes increasing traffic. It is difficult to access data about energy consumption from the main stakeholders. As well monitoring of implementation of the planned measures is not easy. Due to all problems mentioned above, European legislation of the buildings sectors (public, residential and services) has to be adapted at the Portuguese reality. $$" %&'&()**+,-()./&(-*01 #!"!" #!" ) '-)-7&1-6&8.0(6,-*& ' /&(6 ) '-)-()'%&-07-6&8.0(6,-*& '-)-7&1-0./&(6 Portugal: achievement of navonal energy savings target 5% 5% target will not be achieved 26% 32% 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 32% not aware of energy savings target 6

7 On the positive side, experts report the implementation of the (first) EPBD (the Directive 2002/91/EC on the energy performance of buildings) and an upcoming new legislative framework for ESCOs. The active role of the national energy agency Adene in energy efficiency programmes was mentioned. In the industrial sector, a programme for the energy- intensive industry exists which obliges companies to draw up energy efficiency plans. In the transport sector, local initiatives to promote electric cars were described by the experts. Energy audits (83 % partly or very effective), qualification, accreditation and certification schemes (68 % partly or very effective) and smart metering (58 % partly or very effective) are considered to be the most effective among specific energy efficiency policy instruments. As well measures are seen as dynamic and contributing to the economy and the implementation of new and more efficient technologies. Good Practice Examples An proper assessment of the Portuguese NEEAP is difficult due to aggregated literature and results, and to information gaps. Still our results show that the policy package in the public sector is well balanced. It contains information activities, regulations of standards and subsidies. Different barriers and the supply and demand side of energy efficiency markets are addressed. Especially public buildings are addressed through energy certification, installation requirements, subsidies for CHP and behavioural campaigns. Implementation of some of these measures remains unclear caused by missing information. The transport sector shows a great deficit that is affirmed by the expert interviews as well. Experts suggest that Portugal decreases the energy dependence on other countries by reducing energy consumption in the transport and buildings sector. The transport sector is not well linked to the economic development which causes increasing traffic even if the economy decrease. Here, the Finnish NEEAP offers many good practice examples for this sector. 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. And 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 no longer to the number of km travelled on the road. 7

8 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 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. 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,