Energy!Efficiency!in!Europe! · !!!SPAIN! Country!Report! SURVEY REPORT Progress in energy...

SPAIN

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

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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). Based on the NEEAP assessment and survey results, Spanish energy efficiency (EE) policy can be considered average, with both good and unsatisfactory elements. On the one hand, the NEEAP aims at improving EE in Spain until 2020 but lacks a long-‐term vision until 2050. Both the existence of energy agencies at different governance levels and the monitoring, reporting and verification scheme are positive elements of the Spanish policy. The assessments of 34 domestic experts interviewed regarding the Spanish EE policy is mixed as well. Two thirds of them see ambitious policies in at least a few sectors, while one third considers the overall ambition to be rather low. Only 17 % of interviewees find no or very little progress since the last NEEAP was filled. Still, 70 % of experts believe that the Spanish ESD target will not or only be attained due to its low ambition.

At sectoral levels, the assessment is as follows:

• The NEEAP does not include a tailored strategy to improve EE in the public sector. Only a few measures are mentioned in the NEEAP, which in case of public buildings mainly target public lightning, water supply and water desalination. The NEEAP names, but does not further illustrate existing guidelines for public procurement. Accordingly, almost 90 % of experts find no or only some progress with respect to EE in public procurement.

• Regarding residential housing, the NEEAP assessment points to the application of minimum energy performance standards and economic incentives, but criticizes the missing definition of sanctions in case of non-‐compliance. Energy performance certification is mandatory for residential and public buildings with a floor area of more than 1000 m2, but no provisions for non-‐compliance are named. About 25 % of the surveyed experts consider the residential sector to be the one with the most important policy gaps.

• Regarding the appliance sector, the Ecodesign and Labelling Directives have been transposed into Spanish law. Yet, there are hardly any economic incentives in place to support the substitution of inefficient appliances by efficient ones. In contrast, in the first NEEAP Spain has been promoting the substitution of old appliances by new efficient ones with about 55 M€ per year. Overall, the policy package for the appliance sector is not well balanced.

• Based on the NEEAP assessment, the Spanish EE policy for the industrial and service sector can be considered balanced in the sense that both supply (e.g. co-‐generation) and demand (e.g. energy audits) are addressed. Economic incentives for investments in more energy efficiency technologies have been established. Legislation, that would oblige certain companies to use energy management systems, is planned. About 15 % of experts think of the industrial and service sector as the one with the most important policy gaps.

• Regarding EE in the transport sector, the NEEAP assessment is inconclusive. While a lot of instruments and measures targeting all modes of transportation are mentioned, their description within the NEEAP is not specific. It is therefore difficult to thoroughly assess their quality. Among the planning instruments in the Spanish policy package are the compilation of sustainable urban mobility plans and the promotion of cycling. About 30 percent of the experts find the most important policy gaps in the transport sector.

Based on the results of the survey and the NEEAP assessment, the ambition and quality of Spanish EE policy can be considered average compared to other member states. Following issues can be addressed to further strengthen the policy package: • Public sector should describe binding guidelines for public procurement • Buildings sector should ease access to energy advice and audits for homeowners • Appliances sector should provide economic incentives to purchase EE appliances • Industry sector should define energy saving targets

• Transport sector could use more economic incentives.

Introd

uctio

n Sectoral Assessm

ent

Conclusion

s Summary Assessment

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Public Sector

Comprehensiveness of policy package

Long-‐term EE target(s) and strategy • Action plan untill 2020 established.

Involvement of non-‐governmental and market actors, and sub-‐national authorities

• The Autonomous Communities are involved.

Energy agencies and climate protection agencies

• A national agency (IDAE) exist. Regional agencies contribute to the ESD target.

EE mechanisms for overall coordination and financing • IDAE Strategic Grants Programme.

Favourable framework conditions for energy services

• The Energy Services Companies provide funds.

• Excellent documentation of investments.

Horizontal measures • A national research and development plan as planning instrument.

Monitoring, reporting and verification • Bottom-‐up and top-‐down schemes are used.

Overarching Energy Efficiency Governance Framework


Public sector strategy

• The NEEAP mentions potentials, targets and timeframes for individual measures, but there is no overall strategy or mission statement for the public sector at all.

Role model, transparency, and demonstration

• Activities in the public sector are visible through demonstration projects. However, there are no activities to make energy consumption and energy savings of public bodies transparent.

Public procurement

• Requirements for public tenders and labelling of vehicles are established. However, there are no clear guidelines or further information about efficiency criteria mentioned in the NEEAP.

Public buildings

• Measures focus on improving the efficiency of lighting and water supply. Furthermore, grants for energy audits and the training of energy managers are provided.

Adequacy of policy package

• The policy package is rather well balanced. It contains requirements, grants and information activities. Furthermore, the supply and demand side of energy efficiency markets are addressed and significant potentials in the sector are considered.

long-‐term strategy

other actors involved

energy-‐agencies

coordinaaon/financing

energy services

horizontal measures

MRV

public sector strategy

role model

public procurement

public buildings

adequacy of package

Screening of NEEAP

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Minimum Energy Performance Standards (MEPS)

• The Ecodesign Directive was implemented and compliance is guaranteed.

Economic incentives

• Free distribution of low-‐consumption lamps and 2-‐for-‐1 programme.

• Aid mechanisms based on direct capital grants are planned.

Energy labels • The EU labelling Directive is in place due to EU regulation.

Information tools • To promote information between recipients, databases will be made available on a website.

Education and training for retail staff and other supply chain actors

• Education and training activities will be designed and carried out. They aim at both sellers of electrical appliances and citizens.

Adequacy of policy package • The policy package leaves space for improvements.

Residential Sector -‐ Appliances

Residential Sector -‐ Buildings

MEPS

other regulaaons

financing instruments

EPCs

informaaon

demonstraaon

adequacy of package

eEconomic incenaves

advice and audits

educaaon and training

MEPS

economic incenaves

energy labels

informaaon tools

educaaon and training

adequacy of package


Minimum Energy Performance Standards (MEPS)

• MEPS exist since the late 1970s. They are adjusted and implemented in new laws after probation.

• Not always clear how compliance is ensured.

Other regulations • Regulations on new electronical devices.

• Building inspections are planned to be part of future law.

Economic incentives • Economic incentives available for new and old buildings.

Financing instruments • Financing aid available for different targets. Incentives through capital grants or bonus interest rates (loans).

Energy performance certificates (EPCs)

• EPCs are established but sanctions or benefits are not clearly mentioned in the NEEAP.

Energy advice and audits • Advice and audits are only slightly included as measures.

Information tools • Media campaigns in radio and TV to inform about energy efficiency for housholds and end consumers.

Demonstration projects • Not mentioned.

Education and training for stakeholders

• A training, information and consciousness-‐raising plan exist.

Adequacy of policy package • The actual policy package is a first step but needs to be improved to really implement a change in the buildings energy saving policies.

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Standards for equipment, production process, products • The Ecodesign Directive has been implemented.

Energy savings and action targets for individual companies • Not mentioned in the NEEAP.

Obligations / commitments • It is planned to introduce an obligation for energy management systems. However, it is not clear how it will work and who will be addressed.

Economic incentives

• A grant scheme for energy saving measures and improvements in equipment and processes for industrial companies has been set up.

• Subsidies for energy audits are available.

• A grant scheme for cogeneration has been established.

Tradable permits • The EU Emission Trading System is implemented with all its subsidies functioning.

Energy or CO2 taxation

• The excise duty for gas is below the minimum EU-‐rate.

• The excise duty rate for electricity is above the minimum EU-‐rate.

Energy labelling • The energy labelling Directive has been implemented.

Other measures • Not mentioned in the NEEAP.

Adequacy of policy package • The policy mix is balanced. Both, supply and demand side of EE markets are addressed.

Industry and Tertiary Sector


Planning instruments • Relevant measures for urban planning and other fields are in place but partly unspecific.

Regulatory instruments • Many legislative measures are mentioned but there is only a vague description.

Economic incentives • Mostly concepts for incentives, funding, and pricing are given but not further specified.

Information and advice • There is a broad range of information and education measures in all sub-‐sectors.

R&D support • There are applied research/feasilbility studies in all proposed fields of action.

Adequacy of policy package

• There is an in-‐depth potential assessment and an specification of a variety of relevant actors. The policy mix is generally balanced with a consideration of both supply and demand-‐side measures. The status of concrete planning remains often unclear.

Transport Sector

planning instruments

regulatory instruments

economic incenaves

informaaon

R&D support

adequacy of package

standards

ES&A targets

economic incenaves

tradable permits

energy labelling

other measures

adequacy of package

obligaaons

energy taxaaon

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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. Regarding the state of Spanish energy efficiency policy, 31 experts have completed the quantitative survey and three experts have participated in qualitative interviews. Interviewees are divided both on the progress of the Spanish energy efficiency policy since the last NEEAP was filed and its overall ambition. While 40 percent think of the Spanish energy efficiency policy as ambitious in at least a range of sectors, 33 percent deem its ambition to be generally low. Nearly 60 percent of experts see only a few additional policies implemented in the last three years or no progress at all. Less than 20 percent of the experts believe that Spain will probably attain its ESD target. Both an insufficient funding and a lack of legislation and its implementation are seen as the greatest barrier to energy efficiency. Experts note that energy efficiency policy is overshadowed by the budgetary and economic crisis. At the same time, the economic crisis causes a steep decrease of energy demand. Spain therefore has already attained its ESD target for 2016 in 2011. The budgetary crisis is one of the main reasons for the lack of funding. This problem is especially relevant with respect to the public sector. Another problem with respect to the public sector are administrative barriers. Yet, many municipalities have started to retrofit their buildings, sometime in cooperation with energy service companies. Approximately one quarter of experts consider the residential sector to be the sector, in which there are the most important gaps in Spanish energy efficiency policy. Existing programs to improve the energy efficiency of residential buildings are scarcely used since homeowners are not obliged to. At the same time, experts are also able to name successful programs. To increase the use efficient appliances, retailers received financial support if they offered discounts for new appliances under the condition that the old appliance is returned. Another successful program subsidized the replacement of old with new windows. According to the interviewees, one important barrier for energy efficiency is the lack of awareness of its importance on the side of most citizens. With regards to the industrial and services sector, an existing financial support scheme is mentioned as a positive example. 120 million EUR per year are allocated to enterprises willing to invest in their energy efficiency.

44%

26%

19%

11%

Spain: achievement of naUonal energy savings target

target will not be achieved

target will be achieved but will not lead to a lot of addiaonal savings target will probably be achieved

target will certainly be achieved

not aware of energy savings target

Findings from the Expert Survey

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To further the goal of increasing the energy efficiency of the industrial and service sector, a training program should be established and a campaign could inform decision makers about the economic opportunities of energy efficiency. While experts name some positive elements of Spanish energy efficiency policy for the transport sector, like the funding of sustainable urban mobility plans and the quality of public transportation systems, they especially see a need for new and more efficient infrastructures and the consideration of maritime transportation. Sustainable urban mobility plans inter alia aim to promote bicycle use and improve the state of public transportation systems in Spanish cities. Interviewees mention the support of research and development of electric cars and of car-‐sharing initiatives as positive examples.

Good Practice Examples

The Spanish transport sector can be assessed as good practice example. Planning and regulatory instruments are in place but could slightly be strengthened. There is a broad range of information and education measures in all sub-‐sectors and studies for all proposed fields of action are carried out. In the appliances sector on the other hand, Spain could strongly improve its measures. Orientation for good practice examples can be found in different NEEAPs. For instance information is provided through labels that uses standards and therefore give orientation which can be found in the Netherlands. As well information centres, websites and web based tools e.g. for calculating energy savings provide help and orientation. Those can be found in the Netherlands and especially in France. Concerning the governance framework the implementation of the Ecodesign Directive on national level can be seen as first step. In France there is additionally a co-‐operation with the lighting trade union to remove the least efficient products from the market. Financial incentives that target businesses are available in the Netherlands. Incentives are for instance energy investment allowances and tax rebates for purchase of energy efficient equipement. A tax incentive is also provided by Ireland. The corresponding list of efficient equipment is also used used as a best practice list by public bodies for public procurement. This instrument thus links public and private sector purchases and creates a greater market for the eligible energy efficient products. R&D funding (Energy Research Subsidy) is available for energy saving technologies but it is not clear whether the subsidy will be available also in future.

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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