LU 2013 01 18 · !!!!!LUXEMBOURG! Country!Report! SURVEY REPORT Progress in energy efficiency...

LUXEMBOURG

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).

According to Luxembourg experts, Luxembourg has made good progress in energy efficiency policies since the NEEAP 1 (country progress indicator: 3 out of 27). More than 40 % believe that the ambition of the energy policies is general rather high. The analysis of the NEEAP, however, comes to slightly different conclusions. The governance framework and the policy package for buildings are very promising. However, the remaining sectors have still great potential for improvement, hence the overall rating based on the NEEAP would be rather medium.

According to the NEEAP, Luxembourg expects to realize 14.1% savings by 2016 and thus to exceed the ESD target provided that all planned measures are implemented. Strength of the Luxembourg governance framework is the widespread availability of advice and information through energy agencies and information points at national, regional and municipal level.

The sectoral assessment of policies is as follows:

• In a sectoral perspective, the public sector mainly acts as a role model with regard to buildings. The policy package put in place for the buildings sector as a whole is comprehensive and exemplary. The strength of the policy package is the availability of training and education programmes for professionals of the buildings sector.

• The policy package for appliances is mainly based on the EU Ecodesign and EU Energy Labelling Directive and complemented by a financial incentive for the purchase of refrigerators and information tools.

• The policy package for industry comprises, amongst others, a voluntary agreement between the government and the Luxembourg industry, a plan to promote cross-‐cutting technologies and economic incentives. Obligations and commitments for energy audits or technology phase-‐out/in are not explicitly mentioned in the NEEAP. Luxembourg furthermore applies the EU minimum tax rates for gas and electricity for business use while other Member States go beyond these minimum rates.

• The transport sector is a very weak part of the NEEAP. Only road transport is taken into account and the measures mostly fulfil only minimum EU requirements. It is advised not to except the transit traffic from the NEEAP.

The energy efficiency policy can be considered to be of a comparatively high quality, especially based on the expert survey. Improvements could be the following:

• Luxembourg has made good progress over recent years, but considerable potential for further improvements of energy efficiency is still available

• The governance framework and the policy package for buildings may serve as good practice example.

• In the field of buildings, the comprehensive education & training offer can be highlighted as a best practice

• As to the overall governance framework it is advisable to define a target that goes beyond 2020

• With regard to the transport sector it is recommended to consider public transport and non-‐motorized transport besides individual road transport. In addition, planning instruments, information and advice and more elaborated regulatory instruments could complement economic incentives.

Introd

uctio

n Sectoral Assessm

ent

Conclusion

s Summary Assessment

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long-‐term strategy

other actors involved

energy-‐agencies

coordina[on/financing

energy services

horizontal measures

MRV

Public Sector

Comprehensiveness of policy package

Long-‐term EE target(s) and strategy

• Luxembourg refers to the EU target of a 20% increase in energy efficiency

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

• It is planned to introduce a quality energy management system for municipalities;

• An eco-‐innovation network supports the different players in the field of environmental technologies

Energy agencies and climate protection agencies

• Luxembourg has one national and one regional energy agency;

• In early 2011, energy information points had been created in half of the municipalities

EE mechanisms for overall coordination and financing

• Energy efficiency is mainly funded through the national budget

Favourable framework conditions for energy services

• A model contract is being prepared for energy service contracting of the public sector

• Nothing has already been implemented, only planning phase and only related to the public sector

Horizontal measures • Voluntary agreements on EE improvement have been concluded with industry

Monitoring, reporting and verification

• The MRV distinguishes clearly between early, new and planned measures;

• Bottom-‐up methods are used to quantify savings

Overarching Energy Efficiency Governance Framework


Public sector strategy

• Luxembourg has drafted a plan for the progressive introduction of sustainable consumption and production models

• A pact between the state and municipalities is planned

Role model, transparency, and demonstration

• The public sector aims for low-‐energy buildings and constructs plus energy buildings for demonstration purposes;

• Public awareness and acceptance campaigns have been unndertaken over the past five years;

• The public sector aims to introduce energy service contract

Public procurement • A working group of the Ministry for Sustainable Development is working on the implementation of sustainable public procurement

Public buildings

• The public sector aims for the highest achievable level of energy efficiency; Plus-‐energy buildings are to be built for demonstration purposes;

• Funding for upgrade of existing buildings are available

Adequacy of policy package • The policy mix is rather balanced; • Different actors are addressed; • Targets are not specified

Screening of the NEEAP

public sector strategy

role model

public procurement

public buildings

adequacy of package

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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

Economic incentives • A financial incentive for the purchase of A++ refrigerators is available

Energy labels • EU energy label; Promotion of efficiency labelling

Information tools

• A website offers information about energy efficient appliances;

• Further tools and information campaigns are mentioned but not further described

Education and training for retail staff and other supply chain actors

• Not mentioned

Adequacy of policy package

• The policy package is rather balanced; • Education and training for retail staff is missing

Residential Sector -‐ Appliances

Residential Sector -‐ Buildings Comprehensiveness of policy package

Minimum Energy Performance Standards (MEPS)

• Minimum energy performance standards are in place and are to be tightened until 2016.

Other regulations • Not mentioned

Economic incentives

• Subsidies are available for energy efficient retrofits; • Subsidies for the construction of passive or low-‐energy housing;

• Tax credits and investment aids are available

Financing instruments

• Interest-‐free loan to finance energy efficient retrofits for low-‐income households;

• Introduction of an accelerated tax depreciation for energy efficient retrofits

Energy performance certificates (EPCs)

• Energy Performance Certificates are mentioned with regard to public buildings for which the display is mandatory if the area is greater than 1000m2

Energy advice and audits • The energy agency provides some advice; • Grants for energy audits of buildings are available according to MURE

Information tools • The energy agency organized an event around the topic “energy-‐efficient retrofitting” which gathered many buildings professionals and attracted 2500 visitors

Demonstration projects • Plus energy buildings are built by the public sector

Education and training for stakeholders

• The Chamber of Handicraft covers topics related to energy efficient buildings in its professional development programme;

• The professional development institute of the buildings sector, the association of architects and engineers, the Ministry of Economy and Trade as well as the University of Luxembourg offer further education and training programmes

Adequacy of policy package

• The NEEAP considers the saving potentials in the buildings sector;

• Different actors are addressed; • The supply and demand side are addressed

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standards

ES&A targets

economic incen[ves

tradable permits

energy labelling

adequacy of package

obliga[ons

energy taxa[on

planning instruments

regulatory instruments

economic incen[ves

informa[on

R&D support

adequacy of package


Standards for equipment, production process, products • Implementation of the Ecodesign Directive

Energy savings and action targets for individual companies

• A voluntary agreement on improving energy efficiency in industry has been concluded between the government and the industry association

Obligations / commitments • Luxembourg plans to promote motor and process technologies

Economic incentives

• Albeit not mentioned in the NEEAP, energy savings grants are available for EE investments of industry according to the MURE database; An accelerated fiscal amortisation is granted for investments in EE according to the MURE database

Tradable permits • Only EU ETS

Energy or CO2 taxation • The minimum rate is applied

Energy labelling • Partly included in all MS due to EU energy labelling regulation which does not cover all appliances though

Other sectors • Several measures in the agricultural sector.

Adequacy of policy package • Potential for energy savings considered;

• Supply and demand side are considered

Industry and Tertiary Sector


Planning instruments • Not mentioned

Regulatory instruments • Speed limitations for certain vehicle categories and promotion of biofuels mentioned (MURE)

Economic incentives • Vehicle tax linked to CO2 emissions;

• Grants for low emitting vehicles

Information and advice • Passenger car labelling (MURE)

R&D support • Not mentioned

Adequacy of policy package • The policy package addresses only car users;

• Potentials considered

Transport Sector

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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.

More than 70% of the experts for Luxembourg (7 questionnaires were completed) state that Luxembourg’s energy efficiency policy is generally ambitious or at least ambitious in a range of sectors. However, the progress over the past three years is perceived as medium. 43% of the respondents see no progress at all or only a few additional policies while another 43% see a range of additional policies. As to target achievement, most of the respondents are skeptical; 86% expect that the national ESD target will not be achieved or, if achieved, will not lead to much additional savings. The greatest gaps in energy efficiency policy are, according to 58% of the respondents, to be found in the sector of transport. The greatest barrier to energy efficiency is lack of legislation and its implementation according to around 50% of the respondents.

In the residential sector some positive developments were noted, in particular new building legislation based on the EPBD, the European Directive on the energy performance of buildings. It is expected that new legislation will drive energy efficiency in new buildings in the residential and service sector. However, the growth of the building stock represents a challenge.

With regard to the public sector experts welcome the upcoming requirements to renovate public buildings.

The transport sector is reported to face significant gaps in energy efficiency (the third highest gap across sectors and countries). Amongst others, increasing numbers of cars and low fuel prices were mentioned as issues in the transport sector.

Asked about how they rate specific policy instruments, the experts referred to energy audits (86 % partly or very effective) and qualification, accreditation and certification schemes (71 % partly or very effective) as very effective. Half of the interviewees consider voluntary agreements as not effective at all (the second highest percentage of all Member States).

Findings from the Expert Survey

14%

14%

29%

43%

Lux: overall ambiWon 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

29%

57%

14%

Lux: achievement of naWonal 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

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Luxembourg has put a lot of effort into the buildings sector policy package which can be seen as a good practice example. Minimum energy performance standards are in place and are to be tightened until 2016. A good financial basis for retrofitting buildings exists through economic incentives and financing instruments (i.e. subsidies for energy efficient retrofits and for the construction of passive or low-‐energy housing, interest-‐free loan for low-‐income households etc.). Education & training is provided through the Chamber of Handicraft, the association of architects and engineers and others that cover topics related to energy efficient buildings in its professional development programme.

The appliances sector is marked by a balanced policy framework which is better than the average result in other countries in this sector. Still improvement can be made through strengthening of minimum energy performance standards, and energy labeling. As well it is possible to implement regulations and policies that go beyond EU regulations. Here NEEAPs of the Netherlands, Ireland and France can be seen as good practice examples.

The weakest sector in the Luxembourgish NEEAP is the transport sector. First of all planning instruments and R&D support measures are not mentioned in the NEEAP which must be done. Regulatory instruments, economic incentives, and information and advice measures are described weakly and show few effort for this sector. Orientation offer the NEEAPs of Finland and Slovenia which can be taken as good practice examples. Finland has implemented a policy package which utilizes the complete set of instruments to achieve energy efficiency. One overarching goal of the policy package is the induction of a modal shift by making public transport, cycling and walking more attractive. Finland also makes use of regulatory measures. Among these is the introduction of a general speed limit and mandatory tyre-‐pressure checks twice a year. In Finland vehicle tax rates are dependent on the car’s emissions. The expansion of public transport systems is financially supported e.g. by funding the construction of right-‐of-‐way lanes for buses and subsidized tickets. Various measures aim to give guidance through information. Among these is the inclusion of energy-‐efficient driving in the curricula of driver’s education. A good practice example from Slovenia is to link the subsidy for public transport providers to the number of km travelled by passengers and 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

LU 2013 01 18 · !!!!!LUXEMBOURG! Country!Report! SURVEY REPORT Progress in energy efficiency...

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