Implementationof the EPBD in

1. Introduction

After the first decree setting the basis forthe national legislative EPBD frameworkenacted in 2005, a number of legal acts(legislative, ministerial and presidentialdecrees) have been issued to progressivelydefine and specify all aspects of thenational EPBD transposition.

In 2013, three new decrees were issued:

> Presidential Decrees 74/2013 and 75/2013have completed the implementation of theEPBD in the sections related to inspectionsof the heating, ventilation and air‐conditioning (HVAC) and domestic hotwater (DHW) systems and qualification ofenergy assessors.

> Law 63/2013 (enacted by Law 90/2013)has implemented Directive 2010/31/EU,introducing significant modifications inLegislative Decree 192/2005 (the Directive2002/91/EC transposition act).

In 2014, Law 9/2014 partially modified thequalifications of the energy assessorsincluded in Presidential Decree 75/2013.

Energy‐related topics are a shared taskbetween the state and the 21 regions andautonomous provinces. Consequently,regional authorities may implementautonomous transpositions of the EPBD, aslong as they do not contradict the generalprinciples and requirements provided bynational and EU regulations. The nationalregulation stays in force for the regionsthat have not issued their own legislation.

At the end of 2014, 6 regions (Liguria,Emilia Romagna, Toscana, Val d’Aosta,Piemonte and Lombardia) and the 2autonomous provinces (Trento andBolzano) have fully transposed the EPBD.All other regions follow the nationallegislation, which, by itself, is a fulltransposition of the EPBD.

2. Current status ofImplementation of the EPBD

I. ENERGY PERFORMANCEREQUIREMENTS

While transposing the EPBD (Directive2010/31/EU), Law 63/2013 announcedfuture acts, expected in the first part of2015, that will provide:

> an updated energy performancecalculation methodology according toDirective 2010/31/EU, Annex I;

> minimum energy performancerequirements for new buildings andexisting buildings subject to majorrenovations, on the basis of a cost‐benefit analysis while taking intoaccount the entire estimated lifespan ofthe building.

In case of new buildings and majorrenovations, calculations shall be basedon a comparative methodology frameworkwith reference buildings representative oftheir construction typology and outdoorclimate conditions.

New minimum performance requirementswill also include thermal performance andtransmittance indexes, as well as overallenergy performance indexes, expressedboth in terms of total primary energy andnon‐renewable primary energy use.

Until new minimum requirements andcalculation methodologies are introduced,existing requirements set by LegislativeDecree 192/2005 will stay into force.Current calculation methodologies arebased on national standards derived fromCEN. The new methodologies shall bebased on an updated set of technicalstandards (see Box 1).

AUTHORSRoberto Moneta,MISE ‐ Ministry ofEconomicDevelopment

Gian Mario Varalda,Marcello Antinucci,Fabrizio Ragazzi,Gianluca Avella,RENAEL – NationalNetwork of LocalEnergy Agencies

STATUS IN DECEMBER 2014Italy

NATIONAL WEBSITE www.sviluppoeconomico.gov.it

I.i. Progress and current status

Legislative Decree 192/2005 draws thegeneral framework for the transposition ofthe EPBD, setting the minimumrequirements for energy performance andthe U‐values for windows, walls, floorsand roofs, in case of new buildings andmajor renovations. In 2009, PresidentialDecree 59 extended the calculationmethodologies and minimum requirementsto the summer energy performance ofcooling and lighting systems; it alsoupdated the minimum requirements forthe energy performance of buildings andof heating systems. A new ministerialdecree setting the new requirements fornew buildings (including NZEBs) and majorrenovations is near completion at the endof 2014 and will substitute DPR 59/2009.

With the Legislative Decree 28/2011transposing the Renewable Energy Services(RES) Directive, the requirements regardingthe share of renewable energy for newbuildings and major renovations wereincreased, establishing a calendar with aprogressively larger share of renewablequota for DHW and heating and coolingenergy demand for all building permits:

a.20% renewable quota for permitsrequested between 31 May 2012 and31 December 2013;

b.35% renewable quota for permitsrequested between 1 January 2014 and31 December 2016;

c.50% renewable quota for permitsrequested from 1 January 2017 onwards.

A draft regulation is under development inorder to introduce newly defined cost‐optimal building performance requirementsand the Nearly Zero‐Energy Building (NZEB)concept, as well as the new standard valuesfor cooling, ventilation and lighting, the lastone only for non‐residential buildings. Thenew rules are expected to come into forceby the end of June 2015.

I.ii. Format of nationaltransposition and implementationof existing regulations

Requirements for new buildings

Since January 2010, all new residential andnon‐residential buildings must comply withthe minimum requirements for winterperformance, set by Legislative Decree192/2005. Energy performance values varyaccording to building type (energyperformance for residential buildings isexpressed in terms of kWh/m2.year ofprimary energy, while energy performancefor non‐residential buildings is expressed interms of kWh/m3.year of primary energy),climatic zone, local degree days, andsurface‐area‐to‐volume ratio of the building,as depicted in Tables 1 and 2. Figure 1 showsa map of the distribution of climatic zonesover the territory. The energy performancerequirements for summer cooling as set byPresidential Decree 59/2009 are shown inTables 3 and 4. Furthermore, in case of newbuildings and major renovations, thedesigner is expected to:

> adopt compulsorily window shading andcalculate their contribution to thewinter and summer performance;

> either check that (i) the mass of theexternal walls is larger than 230 kg/m2

(except northeast to northwest), or that(ii) their value for periodic thermaltransmittance (a dynamic parameterintroduced with the Standard UNI EN ISO13786:2008) is lower than 0.12 W/m2.K;

> check that the periodic thermaltransmittance of roofs, floors andnortheast to northwest external wallsonly is lower than 0.20 W/m2.K.

Requirements for existing buildings

Minimum requirements are differentiatedaccording to the degree of the plannedrenovation. The minimum energyperformance requirements for newbuildings apply fully in case of:

Box 1:Updated set of

technical standards.

UNI/TS 11300 2014 (parts 1 to 4) ‐ energy performance calculation methodologies:

‐ Parte 1: Determinazione del fabbisogno di energia termica dell’edificio per la climatizzazioneestiva ed invernale.

‐ Parte 2: Determinazione del fabbisogno di energia primaria e dei rendimenti per laclimatizzazione invernale e per la produzione di acqua calda sanitaria.

‐ Parte 3: Determinazione del fabbisogno di energia primaria e dei rendimenti per laclimatizzazione estiva.

‐ Parte 4: Utilizzo di energie rinnovabili e di altri metodi di generazione per la climatizzazioneinvernale e per la produzione di acqua calda sanitaria.

UNI EN 15193 2008 ‐ Calculations for artificial lighting ‐ Prestazione energetica degli edifici ‐Requisiti energetici per illuminazione.

Recommendation CTI 14, 2013 ‐ Primary energy factors ‐ Prestazioni energetiche degli edifici ‐Determinazione della prestazione energetica per la classificazione dell’edificio.

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 42

> demolition/reconstruction or renovationof all building elements (for buildingswith heated floor area >1,000 m2);

> building enlargements over 20% of theoriginal volume, only for the newly builtsection.

In case of any degree of refurbishment, aset of basic requirements applies to singlebuilding elements. Table 5 shows theminimum U‐values for different buildingelements such as walls, roofs, floors,windows and window glass.

Minimum requirements in specific regions

When designing their local EPBDimplementation, regional governmentsand autonomous provinces are allowed toset stricter minimum requirements. Table6 shows the state of EPBD implementationamong regions and autonomous provinces.

Requirements for public buildings

Buildings used and owned by publicauthorities are expected to set an exampleand play a leading role. Therefore, energyperformance and U‐values are set 10%lower than those required for privatebuildings (Decree 59/2009).

Calculation methodologies of theenergy performance of buildings

The national standards UNI TS 11300 2014(energy performance calculationmethodologies), UNI EN 15193 2008(calculations on artificial lighting) and CTIRecommendation 14 2013 (primary energyfactors) are all applications of Europeanstandards. Calculation procedures includethermal comfort requirements, indoor airquality requirements, infiltrations,thermal bridges and shading devices.Regional calculation methodologies referalmost entirely to the national standards,while only the Lombardia region and theautonomous province of Bolzano adoptedstandards derived directly from

EN ISO 13790 2008 (Prestazione termicadegli edifici ‐ Calcolo del fabbisogno dienergia per il riscaldamento).

CTI Recommendation n.14 released inFebruary 2013 set conversion factors for thebuilding energy performance calculation(for renewable and non‐renewable primaryenergy) as listed in Table 7.

Table 3: Minimum energy performance requirements for cooling(primary energy) in residential buildings (kWh/m2).

Table 1: Minimumenergy performancerequirements(primary energy) forheating in residentialbuildings (kWh/m2).See map for zones'distribution.

Table 2: Minimumenergy performancerequirements forheating (primaryenergy) in non­residential buildings(kWh/m2).

Table 4: Minimum energy performance requirements for cooling(primary energy) in non­residential buildings (kWh/m3).

Figure 1:Italian climatic zones

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 4 3

Compliance and Quality Assurance (QA)

Compliance checks of minimumrequirements are performedsystematically by municipal authorities.Local authorities may carry out on‐sitevisits during or after the constructionphase. A final report signed by anengineer confirming compliance with thetown planning rules, the constructionregulations and the energy performancerequirements is compulsory.

Monitoring activities

The Ministries of Economic Development andof the Environment, as well as the regionalgovernments, monitor the state ofimplementation of the EPBD and periodicallyprovide a report to the Parliament.

I.iii. Cost­optimal procedure forsetting energy performancerequirementsOn 2 August 2013, Italy issued itsnational study on cost‐optimalprocedures for setting energyperformance requirements according tothe guidelines provided by the EuropeanCommission. The report also outlinedsome reservations about the guidelinesand hence on the results of the study.

The planned interventions were definedwith a mix of 17 interventioncombinations, taking into accountoutdoor climatic conditions, buildingtypology (24 reference buildings overall,divided into single homes, small andlarge apartment buildings and officebuildings) and the intended use of thebuilding. A comparison of therequirements of the law with thosearising from the application of themethodology is shown in Table 8.

Notwithstanding the reservations and theneed for an in‐depth review still ongoingat the end of 2014, the results confirmthe prediction of the need for theadjustment of minimum performancelevels. Those requirements, as definedby national standards in 2006, albeit witha progression towards greater efficiencyin 2008 and 2010, could not take intoaccount technological developments andnew components and systems nowcurrently available on the market.

For some results which havecontradicting elements (e.g., a single‐family building in zone B), a specificreview will be enacted.

Law 63/2013 announced future acts torelease updated minimum requirementsfor U‐values of building components(current values are reported in Table 5).

Table 8:New residential buildings. Comparison of present law requirements and

optimal solutions performance indexes.

Table 7:Primary energy factors for different energy carriers.

Table 6:State of EPBD implementation among regions and autonomous provinces.

Table 5:Minimum required U­values for building elements (W/m2.K).

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 44

I.iv. Action plan for progressionto Nearly Zero­Energy Buildings

National application of the NZEB definition

The decree of transposition of the EPBDaccepted the definition of NZEB as abuilding with very high energy performance.The performance requirements are to bedeveloped in the subsequentimplementation decrees in this regard.

A national action plan to provide a properdefinition for NZEBs and to promote theirconstruction is foreseen to be completed bythe first half of 2015. The documentforesees that, starting 1 January 2019, allnew buildings that are property of orutilised by public administrations will haveto be classified as NZEBs. All the other newbuildings shall be NZEBs from January 2021.

Figures and statistics on existing NZEBs

No statistical data or estimates arepresently available on the number of NZEBsthat already exist in Italy. This is in partdue to the lack of an official definition.However, many ongoing pilot projects arein place and numerous solutions areavailable on the market. Figure 2 shows anexample of such types of buildings.

I.v. Implementation of the EnergyEfficiency Directive (EED) regardingbuilding renovation and theexemplary role of public buildings

Buildings renovation (Art. 4)

Legislative Decree 102/2014 transposingthe Energy Efficiency Directive indicatesthat the National Agency for Energy andEnvironment (ENEA) will be responsiblefor the elaboration of the long‐termstrategy for the renovation of the buildingstock provided for in Article 4 of the EED.An assessment of the consistency of thebuilding stock has been carried out in

order to estimate the actions necessaryfor the upgrading of the energyefficiency. Based on the results obtainedfrom the application of the comparativemethodology, the potential nationalenergy savings resulting from energyefficiency measures attributable toresidential and non‐residential sectorshave been evaluated, taking into accountboth the regulatory tools and incentivescurrently in place as well as thoseplanned, in view of achieving the nationalenergy savings targets (see Table 9).

Exemplary role of public buildings (Art. 5)

The decree transposing the EED providesthat from 2014 to 2020, interventions willbe made on the building stock of thecentral public administration, includingperipheral real estate, capable ofachieving energy requalification of atleast 3% per year of the heated usefulfloor area or, alternatively, resulting in acumulative final energy savings between2014 and 2020 of at least 0.04 Mtoe[1]

(465,200 MWh). As to the cumulativeyearly savings in public administrationbuildings overall, the 2014 National Planfor Energy Efficiency foresees a savingsof 0.57 Mtoe (6,629,100 MWh) of finalenergy consumption, equivalent to 0.8Mtoe (9,304,000 MWh) of primary energy.

Figure 2:Residential buildingscertified CasaClimaA+, Trino Vercellese,Piemonte.

Table 9:Consumptionreduction potential in2020 throughresidential buildingsrenovations enacted,starting in 2014.

[1] Mtoe – one million of tons of oil equivalent

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 4 5

Of the 0.57 Mtoe of final energy consumptionsavings, 0.1 Mtoe is based on EPBD standards,and 0.47 Mtoe on incentives schemes.

The Ministry of Economic Development, incollaboration with the relevant publicadministrations, shall prepare a program ofinterventions to be carried out annually.The criteria for the identification of thelatter will be based on:

> optimisation of investment recovery time;> buildings with the worst energy

performance index;> shorter time for the initiation and

completion of the intervention;> extent of any forms of co‐financing,

including third‐party financing.In order to monitor the performance, thecompanies supplying energy to consumersregistered to a central public administrationmust communicate to the ENEA by 31January of each year the annual consumptiondata per energy carrier for the previous year.

I.vi. Other relevant plansThe National Action Plan for EnergyEfficiency (Piano d'Azione per l'EfficienzaEnergetica ‐ PAEE) describes the energyefficiency targets set by Italy for 2020, thepolicy measures to enable their attainmentand the savings already achieved by 2012.The latest version of the plan was adoptedin July 2014.

In particular, the plan, in accordance withthe guidelines of the European Commissionand in agreement with the views expressedin the National Energy Strategy (StrategiaEnergetica Nazionale, SEN), containsnational targets for the reduction ofprimary and final energy consumption, andspecifies the savings in final energy useexpected by 2020 for each economic sectorand for the main instruments for promotingenergy efficiency (Tables 10a and 10b).

II. REQUIREMENTS FORTECHNICAL BUILDINGSYSTEMS (TBS)

II.i. Coverage of heating,domestic hot water, air­conditioning and large ventilationsystems

The Italian legislation envisages since 1993minimum requirements for air and waterheating systems, for the centralisedproduction of DHW and for large controlledmechanical ventilation systems. Morerecently, minimum requirements specificallyfor heat pumps were also introduced.

It is important to remember that therequirements described in this section arerelated to the national legislation;regional regulations may provide slightlydifferent requirements, which mustalways be more restrictive or compensateon other aspects of the building technicalsystems regarding a greater tolerance fora single requirement. In any case, theindex of the global energy performance ofthe building, new or renovated, musteither remain unchanged or be lower thanthe one set by national legislation.

II.ii. Regulation of systemperformance, distinct fromproduct or whole buildingperformance

Heating and central production of DHW:seasonal efficiency should be higher than(75 + 3 log Pn) (%), where Pn is thenominal power output of the boiler. Inaddition, the heat generators of DHWmust have a useful thermal efficiency (theratio between the thermal power of thefuel and the power transmitted to theboiler) no less than the values prescribedby the law, and the hot air ones must

Table 10a: Energysavings attained in

2005 – 2012 andexpected in 2016,according to PAEE

2011 (final energy,Mtoe/year).

Table 10b: Yearlyenergy savings

attained in 2011 –2012 and expected in

2020 according toSEN (final energy,

Mtoe/year).

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 46

comply with minimum combustionefficiency values prescribed by the law asshown in Table 11.

Heat pumps: seasonal efficiency(combined heating and cooling) should behigher than (75 + 3 log Pn) (%), where Pn isthe nominal power output of the heatpump.

Large ventilation systems: the use of heatrecovery systems is required whenever thetotal flow of replacement air (G) and thenumber of annual hours of operation (M) ofthe ventilation systems are superior to thelimit values prescribed by the law.

For public buildings:

> seasonal efficiency for heating systemsshould be higher than (75 + 4 log Pn) (%);

> only centralised heating systems areallowed.

These requirements apply to newinstallations, as well as in case of heatingor cooling system renovations or boilerreplacement.

In case of boiler replacement alone, as analternative to compliance with therequirement of seasonal efficiency, it cancomply with all the following conditionssimultaneously:

> installation of a boiler with a combustionefficiency ≥ (90 + 2 log Pn) (%) or a heatpump that has a yield ≥ (90 + 3 log Pn) (%)(where the heat pump efficiency is theratio between the energy delivered andthe electric energy converted to primaryenergy, according to the nationalconversion rate; the efficiency will behigher than 1 whenever the Coefficient ofPerformance (COP) of the heat pumpexceeds the conversion rate);

> installation of thermostatic valves ormodulating devices in any room or areawhich can be favoured by solar freegains;

> installation of a programmablethermostat which allows the adjustmentof the indoor temperature on twosettings over 24 hours.

Any safety reasons (such as collective fluegas chimneys) preventing the installationof generators with the above foreseenyields, as well as any increases in powergenerators, will have to be justified by atechnical report. For centralised systems,a check of the balancing of the system isrequired.

The following additional requirementsalso apply to all new technical systemsand renovations:

Installation:

> If the total power exceeds 350 kW, atleast two generators should be installed.

> In case of centralised systems servingseveral building units, the production ofheat and DHW should be carried outwith different generators.

> Pipework and vessels must be insulated,according to the foreseen minimuminsulation requirements.

Dimensioning: the centralised systemsproducing DHW must be dimensionedaccording to UNI 9182.

In all existing buildings with more than 4residential units or otherwise equippedwith a centralised system of more than100 kW, any intervention aimed at thetransformation of the centralised heatgeneration in individual systems forsingle‐dwelling units must be justified bya technical report.

Regulation and control: heating systemsin the service of new buildings must beequipped with temperature controlsystems and metering of energyconsumption for each apartment.

The recent transposition of the EED alsoforesees that, by the end of 2016, inmultiple‐apartment buildings and multi‐purpose buildings supplied by centralisedheating and district heating/cooling, it willbe required to install individual meters foreach housing unit. The installation must becarried out by the companies providing theservice and is subject to a preliminarytechnical assessment.

Table 11:Minimum efficiencyvalues.

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 4 7

II.iii. Encouragement ofintelligent meteringThe replacement of existing electricitymeters with smart meters has been underimplementation in Italy since 2006. Theroll‐out of smart meters has been almostcompleted: at the end of 2011, more than95% (over 30 million) of the customers hadsmart meters installed on their premises.

In the natural gas sector, the regulatoryauthority AEEG in 2008 promoted the roll‐out of gas smart meters, which by 2016will be provided to 17.5 million users(Ruling ARG/gas 155/08). At present, thetarget of 60% replacement of smaller‐sizedmeters (G6 category and smallest) isforeseen to be reached by the end of 2018.

Subject to the measures already adopted,the AEEG should prepare within 24 monthsthe technical specifications for smartmetering systems with which thedistribution companies will be required tocomply. The smart metering devicesshould provide to end users informationon the real‐time use of energy and ofenergy efficiency targets. It is alsoforeseen that, once the criteria fortechnical and economic feasibility havebeen established, the replacement ofexisting meters will be extended to thefields of district heating, district coolingand DHW supply. At present, smartmetering has no link to the EPBD, as itdoes not affect the energy indicator orinspections.

II.iv. Encouragement of activeenergy­saving control (automation,control and monitoring)The transposition decree for Directive2010/31/EU provides that the design,installation and maintenance specifications ofactive control systems, such as automation,control and monitoring, aimed at energysavings, will be identified by the new decreesexpected within the first half of 2015.

Some regions, as part of their legislativeautonomy in the transposition of the EPBD,have already issued regulations to thisregard. The region of Emilia‐Romagna, forexample, has enacted minimum levels ofactive energy savings (the so‐calledBuilding Automation Control System –BACS) for new buildings since 2008. All thebuildings are actually divided into fourclasses on the basis of performance ofcontrol and automation systems (homeautomation for energy efficiency).

III. ENERGY PERFORMANCECERTIFICATES (EPCs)REQUIREMENTS

III.i. Progress and current statuson sale or rental of buildings

Overview and administration system

The Italian Energy PerformanceCertificate (EPC) administration system ispresently based on regional systems withdistinct registries and databases. Tenregional EPC databases were operating bythe end of 2013, while three more will beimplemented in the near future, as shownin Figure 3. The other regions will adopt aforeseen national database as soon as it isreleased before the end of 2015.

How flats are certified in apartmentbuildings

The EPC may refer to one or more housingunits that are part of the same building.The certification of the energyperformance related to multiple units canbe issued only if they have the sameintended use typology and the samecharacteristics influencing performance(orientation, geometry, etc.) and areserved by the same thermal systems forwinter and summer climatisation.

Format and content of the EPC

The format and content of the national EPCwill be updated through the new NationalGuidelines for Energy Certification ofBuildings, expected within the first half of2015. Pending the update of the format,the current multipage format of thenational EPC is shown in Figure 4.

Figure 3: RegionalEPC and heating

system databases.

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 48

The building energy performance isexpressed in terms of primary energy inkWh/m2.year for residential buildings andin kWh/m3.year for non‐residentialbuildings. EPC classes range from A+ to G.The building performance is expressed forthe whole energy used in the building andfor the single‐end uses: heating, DHW,and cooling. The global energyperformance (EPgl) is the sum of partialenergy performance indicators.

Figure 5 shows the standard graphiclayout of a dashboard. The energyperformance for heating is calculated interms of primary energy. In case ofsummer cooling, the energy performancerefers to the load only because the systemperformance is not considered. Thesummer energy performance is calculatedas prescribed by Standard UNI/TS 11300and expressed in terms of primary energyin kWh/m2.year for dwellings and inkWh/m3.year for all other uses. In theforeseen update, lighting will be includedfor non‐residential buildings only.

The regions of Emilia‐Romagna, Liguria,Lombardia, Piemonte, Toscana, Valled’Aosta and the autonomous provinces ofTrento and Bolzano have developed differentregional EPC formats, as shown in Figure 6.

The cost of an EPC is not subject topredefined tariffs. The average EPC cost fora flat ranges from less than 100 up to 300 €according to the location and the taxes/costsimposed by the respective regional scheme.

Assessor corps

The national legislation currently in force(Presidential Decree 75/2013) enablessome professionals (mainly engineers andarchitects registered with their respectiveprofessional bodies) to issue EPCs, and itrequires the completion of trainingcourses for other professionals, which lasta minimum of 80 hours and vary accordingto the degree possessed.

Figure 4:National EPC format.

Figure 5:Enlarged view of theDashboard displayportion of thenational EPC.

Figure 6:EPC formats in use inthe different regionsand autonomousprovinces.

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 4 9

If a technician is not qualified to properlyevaluate the building design and all itstechnical systems, he should work incollaboration with other qualifiedtechnicians so that the constituted groupcovers all required areas of professionalexpertise.

Those who, on the basis of educationalqualifications, do require a training coursemust undergo a final examination which, ifsuccessful, will give them the right to issueEPCs (a flowchart is shown in Figure 7).

When issuing an EPC, the qualified expertsmust declare that they have no direct orindirect involvement in the design orconstruction process of the building to beassessed, nor with material and componentsuppliers, nor with any sort of benefitpossibly obtained by the owner. In case ofnew buildings, the person in charge of theenergy certification process must benominated before the building works begin.

In some of the regions which haveautonomously implemented the EPBD,different requirements are still presentlyin force, in particular regarding theobligation for all assessors to attend atraining course and register in the regionalregisters. Tables 12 and 13 illustrate thevarious situations of regional registers.

Compliance levels by sector

Statistical data about the overallcompliance levels recorded during thecontrol phase of the EPC is currently notavailable.

Enforcement with building owners andreal estate actors

In case of sale, lease or even propertytransfer without charge, the owner isrequired to provide the building/flat withan EPC. Failure to provide the documentcarries a penalty of between 3,000 and18,000 € in case of a sale, and between 300and 1,800 € in case of lease, enforced bythe Guardia di Finanza (Financial Police).

In case of lease, the requirement toattach the EPC to the contract onlyapplies to contracts for entire buildings.The payment of the administrativepenalty, however, does not exemptpersons from the obligation tosubsequently submit a copy of the EPC.

The possession of the EPC is also anecessary condition in order to obtainaccess to the tax deductions schemes inforce for energy improvements on existingbuildings.

No statistical data is available on thenumber and amounts of penalties issued.

Figure 7:Training scheme for assessors.

Table 12:Training courses for assessors.

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 410

Quality Assurance (QA) of EPCs

The decree for the transposition of theDirective 2010/31/EU entrusts the controlon the quality of issued EPCs to regionsand autonomous provinces. At themoment, only a few institutions havestarted the task of controls, often still onan experimental basis. The methods ofcontrol are determined by the institutionand may include formal checks and/oraudits with substantial testing in situ.

The data available on the EPCs issued andthe number of controls carried out in 2013are reported in Table 14, totalling 28,025controls.

Reliable data on controls results isavailable only for some regions. As anexample, Tables 15 and 16 list the resultsof controls performed in the Piemonteand Liguria regions in 2013 respectively.

In case of a negative outcome of thecontrol, the penalties range from 500 to2,000 € to be paid by the assessor whoissued the EPC.

III.ii. Progress and current statuson public and large buildingsvisited by the public

Overview

In Italy, public buildings (i.e., used bypublic administrations and open to thepublic) with a total useful floor areagreater than 500 m2 (250 m2 since7 September 2015) had to issue an EPCby 2 December 2013 and display it in aprominent place clearly visible to thepublic. There are no sanctions for non‐compliant administrations. The formatand content of the EPCs related to publicbuildings are the same as for privatebuildings.

All contracts, new or renewed, related tothe management of heating systems orair‐conditioning (AC) systems in publicbuildings, or in which the client is listedas a public entity, require the issuing ofan EPC of the building or building unitconcerned.

Where the EPC is available, it is requiredto post the certificate in a prominentplace clearly visible to the public. In someregions (Abruzzo, Lombardia, Puglia, Valled'Aosta) and in the autonomous provinceof Trento, it is mandatory that publicbuildings display a plaque with the energyefficiency rating outdoors.

In the framework of the collaborationbetween the Ministry of EconomicDevelopment and the State propertyOffice, starting in the early months of2013, Italy initiated the preparation of an

inventory of property ownership and useof the central state public administrationbuildings. The inventory, still in thevalidation phase, produced to‐date figuresshown in Table 17. No data about thenumber of EPCs in public buildingsactually produced and/or exposed ispresently available.

Table 14:EPCs issued and controls performed – year 2013.

Table 15:EPCs issued and controls performed in the region of Piemonte – year 2013.

Table 16:EPCs issued and controls performed in the region of Liguria – year 2013.

Table 13:Regional registers of energy assessors.

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 4 11

The maximum validity of the EPCs relatedto public buildings is 10 years (the sameas for other buildings). The EPCs must beupdated after any renovation or alterationmodifying the energy class of the buildingor building unit is carried out.

No data about the cost of EPCs in publicbuildings is presently available.

Public buildings or buildings open to thepublic can be certified by experts withthe same characteristics as for otherbuildings. If the technician is an employeeof a public body or a body governed bypublic law operating in the energy andconstruction sectors, and he is acting ontheir behalf, the QE is automaticallydeemed to have no conflict of interest.

The EPC related to public buildings issubject to the same control system asprovided for all other EPCs by the regionsand autonomous provinces. Presently,there is no specific data regarding the non‐compliance of EPCs of public buildings.

III.iii. Implementation ofmandatory advertisingrequirementThe legislation in force provides that, incase of an offer for sale or lease, thecorresponding announcements by all meansof communication report the energyperformance indexes of the overall building,or of the single unit and the correspondingenergy class since 29 March 2011. The lawspecifies that sanctions could be issuedafter 6 June 2013. The management ofsanctions is entrusted to the regions andthere is no information available regardingany sanctions ever having been issued.

A fine between 500 and 3,000 € issuableto the party responsible for theannouncement applies in the event ofnon‐compliance. The same law(Presidential Decree 75/2013) providedthat the update of national guidelines forthe energy certification scheme shallinclude a model of notice of sale or leasefor display in the real estate agencies, inorder to make information on thebuildings' energy quality supplied tocitizens uniform.

III.iv. Information campaignsThe legislative decree transposing the EPBDentrusts to the Ministry of EconomicDevelopment the task of creatingcommunication campaigns targeting thegeneral public and construction and realestate markets on the topics of energysavings. The decree also gives to the regionsand autonomous provinces the power tocarry out information campaigns for raisingawareness of the citizens concerning theissues of upgrading the energy efficiency ofexisting buildings. Communication campaignscan be in collaboration with the electricityand gas distribution companies involved inpursuing their own obligations (arising fromthe mechanism of white certificates).

Presently, the ministry, in collaboration withthe ENEA, is preparing two informationcampaigns on energy certification: one forcitizens tentatively titled 'Program of NationalCirculation EPC' and one addressed to theestate agencies tentatively titled 'CampaignDiffusion at EPC Network Estate Agents'.

Among the most recent regionalinformation campaigns on issues of energyand energy certification, Figure 8reproduces a poster of the region ofUmbria (www.umbriapiu.it).

Tax deductions schemes dedicated to theenergy renovation of existing buildingshave recently been the subject of acommunication campaign of the Italiangovernment that included televisioncommercials, radio and website infocampaigns (www.casa.governo.it).The TV spot is visible at the following link:www.casa.governo.it/tematiche/Spot.html

The main campaign on energy efficiencycurrently in progress was made by thestate broadcaster company, RAI, whichproduced the TV spot 'Energy Efficiency:An Italian success (thanks to Europe)'. Thespot underlines in particular the roleEurope played in supporting the countryin achieving relevant results over the pastdecade. The campaign started in April2014 and the spot is visible online.[2]

A national communication plan is underpreparation, in order to foster the best useof the funds foreseen by Decree 102/14 forenergy efficiency information campaigns.

Table 17:Buildings that are

property of thecentral state public

administration.

[2] www.rai.tv/dl/RaiTV/programmi/media/ContentItem­024e265f­a24a­49b4­b0d2­b5aaf5a02e05.html#p

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 412

III.v. Coverage of the nationalbuilding stockA preliminary estimate of the coveragecan be outlined on the basis of the officialdata of the last census ISTAT 2011; civilhousing units in Italy total more than 29million, while the certificates issued until31 October 2014, taking into account onlythe regions that provided data, totalled3,637,166, of which more than 90% werein northern Italy and 40% were in theLombardia region alone. The number ofissued EPCs is not presently available forall regions (see Table 6).

Assuming that the EPCs were produced inthe great majority of cases for individualhomes, and considering the low incidenceof issuance in absolute numbers for non‐residential buildings (less than 150,000units), it is thus possible to roughlyestimate that, by the end of 2013, onlyapproximately 13% of existing buildingshad been energy certified. The EPCsissued in 2013 totalled 419,650. Thesituation is summarised in Figure 9.

IV. INSPECTIONREQUIREMENTS – HEATINGAND AIR­CONDITIONING (AC)SYSTEMS

IV.i. Progress and current statuson heating systems

Overview, technical method andadministration system

Boiler inspections were launched in Italyback in 1993, as required by Law 10/1991.

Recently, Decree 74/2013 set the basis for anew framework introducing new operatingmethods and frequencies of mandatorymaintenance activities, standardised controlprocedures related to thermal systems andAC systems, a new common log booktemplate for thermal and AC systems, andindicating regions and autonomousprovinces as the competent authorities forcontrols (which was previously assigned toprovinces and cities).

The law requires all heating systems withthermal output equal or greater than10 kW[3] to undertake maintenance andinspection. Inspections include an energyefficiency assessment of the boiler, apower‐sizing check and advice on possiblemeasures to improve system efficiency.

Maintenance staff produce an inspectionreport and deliver it to the owner andalso to the competent authority which is

in charge of setting a regional inventoryand of running periodic controls. Controlsconsist of documental checks on thereports and of on‐site verifications. Afteron‐site verification, a report is to bereleased and one copy attached to the logbook. The following control intervals areforeseen:

> systems with liquid‐ or solid‐fuelledgenerators with thermal output over100 kW: every two years;

> systems with liquid‐ or solid‐fuelledgenerators with thermal outputbetween 20 and 100 kW: every fouryears;

> systems with gas generators withthermal output over 100 kW: every fouryears;

> systems with gas generators with thermaloutput less than 100 kW: controlledthrough a check of inspection reports.

Competent authorities are in charge ofrunning compliance controls. Controlprocedures can be assigned to externalcontrollers or qualified bodies meetingthe independence, competence andtraining requirements set by Decree74/2013. Regions and autonomousprovinces have the task of setting aproper accreditation scheme and ensuringqualification and retraining. To do this,they can be assisted by the collaborationof the ENEA. On the other hand,maintenance operators are also trainedthrough professional associations.

Figure 8:Regional informationcampaign logo'Umbria+'.

Figure 9:EPCs issued (red) andcontrolled (blue) perregion.

[3] For boilers fed by solid or liquid fuels between 10 kW and 20 kW, the law does not specify a % of compulsory controlfrequency, leaving this decision to the regional authorities in charge.

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 4 13

Local administrations have generallyexperienced difficulties in providingregular on‐site controls. However, thereare positive examples, where up to 5% ofthe total systems were checked every fewyears as required by the formerlegislation. Studies performed by somelocal administrations (e.g., the city ofFlorence) estimate that the potentialenergy savings are as high as 6% of theoverall heating consumption.

There is however no data availableconcerning the cost‐benefit frominspections at a national level. Accordingto the consumer association'Altroconsumo', the maintenance andinspection cost for small autonomousheating plants (below35 kW) is on average above 100 €.Frequency and costs of maintenancedepend on the power and fuel of theheating system.

Promotional activities

Competent authorities have the duty topromote information and publicawareness campaigns. Figures 10 and 11show two ongoing campaigns carried outby the municipality of Roma and theprovince of Milano, respectively.

Enforcement and penalties

The person in charge of the installation(owner or tenant of the property, or theadministrator of the building) failing tofollow the maintenance schedule laiddown in the decree for the maintenance

and control of the thermal efficiency ofthe heating system can be levied apenalty of between 500 and 3,000 €.

Similarly, any company not performingthe assigned maintenance and inspectionservices will be levied a fine of between1,000 and 6,000 €. The regionalgovernment is due to report the violationto the chamber of commerce forappropriate disciplinary measures.

Failure to perform maintenance andtesting of energy efficiency of the heatingsystem with the minimum frequencyrequired by law voids the validity of theEPC of the building or housing unit.

Presently, there is no statistical oraggregate data available on a nationalscale about the penalties imposed.However, Decree 75/2013 foresees that by31 December 2014, competent authoritieswill transmit to the Ministry of EconomicDevelopment and to the Ministry of theEnvironment a report with particularreference to the results of inspectionscarried out in the last two years. Thereport will be updated every two years.

Quality control of inspection reports

It is up to the competent authorities tostart annual compliance check programsof the inspection reports. In case theinspection report bears indication ofsafety issues, the regional authority shallimmediately inform the competentmunicipality and relevant health andsafety body.

There is no aggregated quantitative dataavailable on a national scale.

Inspection activity figures

There is no aggregated quantitative dataavailable on a national scale forinspection activity. Only the province ofMilano has published updated informationon the last inspection campaigns. Thereport published by the province of Milanorelates to the former proceduralframework. Table 18 provides inspectionfigures, while Table 19 classifiesinspection reports according to the typeof action required.

IV.ii. Progress and current statuson AC systems

Overview, technical method andadministration system

Decree 74/2013 extended the mandatoryoperations of maintenance, inspectionand control set for heating systems to ACsystems. The inspection and controlframework follow the same patterns andprocedures provided for heating systems.

Figure 10: Local information campaign on control of heatingsystems for the municipality of Roma www.controlloimpiantitermici.com

Figure 11: Local information campaignon control of heating systems for the province of Milano

www.provincia.milano.it/ambiente/energia/impianti_termici/calorefficienza

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 414

The law requires all AC systems withthermal power equal or greater than12 kW to undertake compulsorymaintenance and inspection. Inspectionsinclude an energy efficiency assessmentof the generator, a check for properpower sizing and advice on possiblemeasures to improve the systemefficiency (based on a cost‐benefitanalysis).

Maintenance staff shall produce aninspection report and deliver it to thecompetent authority which is in chargeof setting an inventory and runningcompliance controls similar to those setfor heating systems. Inspections shouldcover 100% of the installed AC systemswith thermal power higher than 100 kWevery four years. Checks on inspectionreports may fully substitute on‐site visitsfor gas systems with power lower than100 kW.

The procedure requires that themaintenance professional in charge ofthe system, during its energy efficiencyinspections at mandatory minimumintervals (similar to those provided forheating systems), should intervenewhenever energy efficiency parametersare lower by more than 15% compared tonominal data. The machines will have tobe returned to the original parameterswith a tolerance of 5%.

Competent authorities in each region arein charge of running compliance controls.Similar to the inspections for heatingsystems, control procedures can beassigned to external controllers orqualified bodies meeting theindependence, competence and trainingrequirements set by Decree 74/2013. Anaccreditation scheme for controllers andcontrolling bodies is not yet operationalin most regions. It must be set in placeby each regional authority, withqualifications and retraining ensured.

No data is yet available concerning cost‐benefit from inspections at any level.Local administrations have generallyexperienced difficulties in providingregular on‐site controls.

Promotional activities

The promotion is entrusted to the localauthorities. Figure 12 reports the localinformation campaign carried out by theprovince of Savona, Liguria.

Enforcement and penalties

The enforcement and penalties for ACsystems inspections are the same asthose set for heating systems.

Presently, there is no statistical oraggregate data on levied penaltiesavailable on a national scale.

It is up to the competent authorities to startannual compliance check programs of theinspection reports. At the end of 2014, onlyvery few regions have started test‐phaseinspection and control campaigns on ACsystems. There is no aggregated quantitativedata available on a national scale.

Table 18:Province of Milano,heating systeminspection campaigns.

Table 19:Province of Milano, control on heating system inspection reports.

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 4

Figure 12:Province of Savona, local information campaign on control of AC systemswww.tecnocivis.it

15

3. A success story in EPBDimplementation

In Italy, the, tax deductions available in2014 have been in effect since 1 January2007 without interruption, and they aredesigned solely for the energyrefurbishment of existing buildings. Thedeductions are available for homeownersand tenants, and for businesses(deductions limited to buildings used fortheir activities).

The encouraged interventions concern thereplacement of winter heating systems withcondensing boilers or efficient heat pumps,replacement of lighting fixtures, theinstallation of solar thermal systems andinsulation interventions of roofs, walls andfloors. The so‐called 'comprehensiverenovation' (also covered) is expected toapply to an entire building, with noconstraints on the technologies used, butwith the need to certify (at the end of theworks) that the overall energy performanceis within the limits set by the state.

To be eligible for tax deductions, anyintervention is bound to comply withcertain performance requirements, whichvary according to the type of operationand are set to be more demanding thanthe minimum requirements prescribed bylaw and pursuant to the decree of theadoption of the EPBD. In order to qualify,it is necessary to provide an EPC after theintervention.

The rate of the deduction, originally fixed at55% of the expenditure, was furtherincreased to 65%, in effect from 6 June 2013.Part of the cost incurred by the Italiangovernment for granting the deduction isrecovered from the generated stimulus to

economic growth and from the potential taxevasion avoided in work commissioned toengineering and construction companies.

To take advantage of the deduction, it isnecessary to communicate via the web anumber of technical and economic data tothe ENEA, which periodically issues areport on the costs and results of thededuction. The following data is from thereport published in 2014, containing theoverall data until the year 2012.

Main achievements for the year 2012:

> 265,400 total applications;> total investment of more than 2.8 M€;> total value of the deducted amounts

over 1.58 M€;> overall energy savings in primary energy

exceeding 1,260 GWh/year;> avoided CO2 emissions into the

atmosphere of about 270,000 tons/year.Main overall results (2007 – 2012):

> about 1.5 million applications;> energy savings produced more than

9,000 GWh/year;> environmental benefit in terms of

avoided CO2 emissions into the atmospheremore than 1,900,000 ton/year;

> approximately 6.2% of Italian estateproperty involved in a cycle of energyimprovement (partial or total), whichhas been able to take advantage of taxdeductions of 55% or 65%.

The highest number of interventions overthe years has been the replacement oflighting fixtures, while the greatestcontribution to energy savings achieved canbe attributed to the interventions carriedout on winter heating systems. The overallresults are summarised in Figures 13 to 17.

Figure 13:Number of

interventions per typeof renovation:

2007 – 2012 trend.

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 416

Figure 14:Energy savings pertype of renovation(MWh/year):2007 – 2012 trend.

Figure 15:Buildings renovatedin 2012 per year ofconstruction.

Figure 16:Buildings renovatedin 2012 per use.

Figure 17:Average cost of savedkWh per type ofrenovation (€/kWh).

€/kW

h

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 4 17

4. Conclusions, future plans

The new implementation decrees, whichshould be issued in 2015, will define thenew methodologies for the calculation ofthe energy performance in buildings, thecriteria to be met by NZEBs, and the newminimum requirements to be applied tonew buildings and renovations, accordingto cost‐optimal criteria.

The first estimates performed by theENEA have verified that the cost‐optimalrequirements should make minimumoverall performance significantly morestringent for new buildings. This result,combined with the increasing contributionof RES progressively required by thedecree transposing the RES directivealready in place (the next step of

1 January 2017 foresees that 50% of theneeds for heating, cooling and hot waterhas to be provided through RES), willcontribute to the gradual approachtowards a desired NZEB‐era, and to theestablishment of a credible action planfor further construction of thesebuildings.

All the latest decrees issued by thegovernment to transpose the EPBDforesee a gradual legislative convergenceof regions and autonomous provinces tothe national legislation. This work onlegislation, along with the creation ofnational databases for EPCs and heatingsystems inspections reports, will alsoreduce fragmentation of data andfacilitate the monitoring of theimplementation of the EPBD.

The sole responsibility for the content of this report lies with the authors. It does notnecessarily reflect the opinion of the European Union. Neither the EASME nor theEuropean Commission are responsible for any use that may be made of the informationcontained therein.

The content of this report is included in the book “2016 – Implementing the EnergyPerformance of Buildings Directive (EPBD) Featuring Country Reports”,ISBN 978‐972‐8646‐32‐5, © ADENE 2015

More details on the IEE Programme can be found atec.europa.eu/energy/intelligent

This individual report and the full 2016 book are available atwww.epbd‐ca.eu and www.buildup.eu

I M P L E M E N T A T I O N O F T H E E P B D I N I T A L Y ­ S T A T U S D E C E M B E R 2 0 1 418