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)
Lucia Bezáková (Eufores), Nils Borg (eceee), Dominique Bourges (Fedarene),
Peter Schilken (Energy Cities)
*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.

© O.Ö. Energiesparverband, Landstrasse 45, A-4020 Linz/Austria, ZVR 171568947

Survey Report: Progress in energy efficiency policies 2

Contents

Summary and main conclusions 5

Introduction and objectives 11

- The policy framework 11
- The Energy Efficiency Watch Project 2 (EEW2) 11
- The EEW2 survey 12

Approach and methodology of the survey 14

- Quantitative survey 15
- Qualitative survey 15

Survey Results 19
- Survey Results by Member State 19
- Austria 19
- Belgium 22
- Bulgaria 24
- Cyprus 26
- Czech Republic 28
- Denmark 31
- Estonia 33
- Finland 36
- France 38
- Germany 40
- Greece 43
- Hungary 45
- Ireland 47
- Italy 49
- Latvia 51
- Lithuania 53
- Luxembourg 55
- Malta 58
- The Netherlands 60
- Poland 63
- Portugal 65
- Romania 67
- Slovak Republic 69
- Slovenia 72
- Spain 74
- Sweden 76
- United Kingdom 78

Survey Report: Progress in energy efficiency policies 3

- Survey Results across Member States 81
- Quantitative survey 81
- Progress indicator 81
- Overall ambition 82
- Progress in the last 3 years 83
- National energy savings targets 84
- Improvements in ESD focus areas 85
- Gaps in energy efficiency policies 86
- Barriers to energy efficiency 87
- Specific energy efficiency policy instruments 88
- Need to act on European level 91
- Qualitative survey: good practice examples 93
- Results from the network discussions 94

Annex (separate document)

- Quantitative survey: Questionnaire and all tables
- Qualitative survey: Country summaries
- Network report summaries

Survey Report: Progress in energy efficiency policies 4

Summary and main conclusions

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 Sates to submit three National Energy Efficiency Action Plans
(NEEAPs), scheduled for 2007, 2011and 2014.

The Energy Efficiency Watch Project 2 (EEW2) aims to facilitate the implementation of the
ESD and in general energy efficiency policies in the EU. It is co-funded by the Intelligent
Energy Europe programme and coordinated by Eufores. It runs from autumn 2010 to
summer 2013 and builds upon the EEW1 project (2007 - 2010).

One key activity of the EEW2 project was an extensive survey on the implementation
results of the first NEEAPs in the 27 Member States. The aim of the survey was to
learn from stakeholders, experts and relevant networks how they see the progress of
energy efficiency policies and their implementation in different sectors since the first
NEEAP in their respective country.

The survey consisted of a quantitative survey, using a questionnaire (655 questionnaires

were completed between March and November 2011) and a qualitative survey, using a
interview guideline (3 experts in each Member States were interviewed between April and
September 2012). Additionally, the partner networks Fedarene, Energy Cities and ECEEE
consulted their members and EUFORES collected views from European energy efficiency
networks and associations.

In total, more than 700 experts from all 27 EU Member States were consulted about
the progress on energy efficiency policy in their own country.

The main findings and conclusions

Political will: understanding of the benefits of energy efficiency

The survey showed on an enormous disparity among Member States in the levels of
ambition of their energy efficiency policies. In some Member States, the recognition of the
economic, social, political and environmental benefits of energy efficiency drive ambitious
legislation and funding programmes whereas others just do the bare minimum required by
the European Directives (and sometimes not even that).

Survey Report: Progress in energy efficiency policies 5

Comprehensive and stable support for energy efficiency is based on political will,
motivated by an understanding of benefits of energy efficiency for the society. Experts are
concerned by the fact that energy efficiency has not sufficiently managed to attract the
attention of the highest political levels. Especially in times of financial crisis - which in
many countries resulted in a reduction of programmes for energy efficiency - it remains a
key challenge to provide proof that energy efficiency is not a burden on public finances but
the opposite: a way to save money in public buildings and a significant factor for job
creation and tax income.

The renewable energy sector has led the way in presenting itself as a powerful sector in
creating jobs and innovation, provided that a stable legal and financial framework exists.
An increased effort from energy efficiency stakeholders and the European institutions in
communicating the benefits of energy efficiency as concretely as possible are required.

EU 27: overall ambition of the energy efficiency policies

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

EU27
Austria
Belgium
Bulgaria
Cyprus
Czech Rep.
Denmark
Estonia
Finland
France
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Lux
Malta
NL
Poland
Portugal
Romania
Slovak…
Slovenia
Spain
Sweden
UK

generally, rather low ambitious in a few sectors, less so in most others

ambitious in a range of sectors, less so in a few others generally, rather high

Survey Report: Progress in energy efficiency policies 6

A new and ambitious framework of energy efficiency policies needed

A large number of experts - especially from countries where energy efficiency is currently
not a political priority - stressed the crucial role of EU legislation in driving national energy
efficiency policies. They mentioned that without EU directives no or nearly no activities
would have been carried out in their countries. Especially the (first) EBPD (Directive
2002/91/EC on the energy performance of buildings) was seen by many experts as a
milestone, catalysing a new legal framework for buildings.

However, in overall terms, progress in energy efficiency in the last years across Member
States was rather modest. Especially in sectors specifically mentioned by the ESD, e.g.
energy efficiency in public procurement, the conditions for energy efficiency services,
financial instruments for energy savings, market development was very limited according
to the experts. Also, the public sector has not taken the exemplary role required by the
ESD to a large extent.

EU 27: progress of energy efficiency policies in the last 3 years

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%
EU27
Austria
Belgium
Bulgaria
Cyprus
Czech Rep.
Denmark
Estonia
Finland
France
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Lux
Malta
NL
Poland
Portugal
Romania
Slovak Rep.
Slovenia
Spain
Sweden
UK

no or very little progress a few additional policies

a range of additional policies many additional policies

Survey Report: Progress in energy efficiency policies 7

 EU 27: average degree of improvement
0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

EE in public procurement

conditions for EE services

financial instruments

availability of EE information

no progress some progress significant progress very high progress

Many experts noted that policies are often fragemented, they lack focus and stability over
time and they are not built upon a clear strategy and vision.

Therefore, a new policy framework which strongly accelerates progress in energy

efficiency policies is needed according to the energy efficiency experts. Many stressed the
importance of straightforward requirements and strict follow-up up on the implementation.
They welcomed the new Energy Efficiency Directive (EED) and expressed their hope that
the ensuing policy measures will bring the European Union on track in achieving the 20 %
energy efficiency target. In times of tight public budgets, smart combinations of legislative,
financial and information measures need to be found.

Improved governance: multi-level, with clearer responsibilities and more staff

According to the experts, successful energy efficiency policies have to be built upon multi-
level governance which integrates the local, the regional, the national and the European
levels and uses the strengths of each level.

In a number of countries, experts see the regional and local level as a main driver of
energy efficiency - also because the benefits of energy efficiency are easier to
communicate to political decision makers locally and regionally. Across Europe, there is an
increasing number of regions and local authorities which are willing to make energy
efficiency a priority. This is also confirmed by the rising number of signatories of the
Covenant of Mayors.

The important role of energy agencies on national, regional and local levels was
emphasised by many experts. In many countries, experts regretted the insufficient
numbers of regional and local energy agencies.

Another institutional challenge mentioned by a number of experts is that in many Member

States, regions and cities, but also on the European level, there is a shortage of staff
dealing with energy efficiency. This lack of staff often has an impact on the quality of

Survey Report: Progress in energy efficiency policies 8

transposition of European Directives but even more so on monitoring compliance and
enforcement of the legislation.

On Member States level, but also regionally or locally, this is exacerbated by the fact that
the energy efficiency dossier is spread among several departments or ministries. Experts
mention that often it has been especially hard to interest finance departments in the
energy efficiency agenda.

Progress in energy efficiency in transport is the weakest

A main message from the survey is the complete lack of comprehensive policies on
energy efficiency in transport, including the European level. Even though there are some
positive examples in specific sectors and countries, including changes in car taxation in a
few Member States, experts criticise the absence of political will to act in this sector in
most Member States. They see a lack of a clear strategy for the mobility sector across
Europe. Of all end-use sectors, experts see the highest gaps in energy efficiency policies
in the transport field.

Building renovation and how to finance it

Another key issue raised by the experts was the urgent need for extensive building
renovation across the European Union and the related issue of how to finance it. Most EU
countries have programmes in this field. However, it is becoming more and more evident
that these will not suffice to achieve significantly increased renovation rates.

Many experts believe that the positive economic impact of large-scale building
refurbishment is underestimated by political decision makers and they call for a clear long-
term strategy (as now foreseen in Article 4 of the EED). Such strategies will hopefully
ensure a better continuity of funding programmes and will help to overcome the
user/investor problem. Also, up-scaling of building refurbishment will require a strong
mobilisation of local actors (authorities, building owners, banks, construction companies
etc.).

Many other barriers than money

While recognising the importance of improved financing and funding, experts stressed that
many other barriers to energy efficiency remain to be addressed - legal, institutional, in the
fields of information, awareness raising and training etc.

A simplistic approach - thinking that if an energy efficiency investment is economic and

access to capital is available, the investment will be made - will in many cases fail due to
other market barriers.

Survey Report: Progress in energy efficiency policies 9

One example for the existence of such non-economic barriers is the failure of most
European countries to develop a market for energy performance contracting (EPC).
Administrative and legal barriers as well as the lack of information and quality assurance
measures prevent its use in the public and the private sectors. However, experts warn that
EPC is not the "silver bullet" for all energy efficiency investments but mostly for "low-
hanging fruit" (energy efficiency potentials with short pay-back periods).

One instrument to address information barriers are energy advice/energy audit

programmes. They were mentioned by many experts as having a crucial role in
transforming markets and in overcoming information barriers, especially when
implemented in a package with other policy incentives. There are a number of countries
which have a long tradition of public-funded, product-independent energy advice through
dedicated advice centres, serving housefolds and in some cases SMEs. Among specific
energy efficiency policy instruments, it was seen as the most effective in the survey (74 %
of the experts agree that it is very or partly effective).

EU 27: degree of effectiveness of different policy instruments

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

White Certificates

Voluntary Agreements

Obligations for energy companies

Energy Audits

Qualification, accreditation & certification schemes

EE Funds

Smart Metering

not effective at all partly effective very effective unknown/ not implemented

Survey Report: Progress in energy efficiency policies 10

Introduction and objectives

The policy framework

Energy efficiency can make a significant contribution to three key policy priorities of the
European Union: climate protection, energy security and the technology leadership of EU
industry.

In 2006, the European Union took an new legislative iniative and adopted the Directive on
energy end-use efficiency and energy services (Directive 2006/32/EC, in the following
called "ESD") as one policy measure to harness the benefits of energy efficiency for the
European society. The purpose of this directive is to make the end use of energy more
economic and efficient.

According to the ESD, Member State have to adopt and achieve an indicative energy
saving target of 9 % by 2016. It sets obligations on national authorities as regards energy
savings and energy efficient procurement, and measures to promote energy efficiency and
energy services.

The ESD requires Member States to submit three National Energy Efficiency Action Plans
(NEEAPs), scheduled for 2007, 2011and 2014. In their NEEAPs, Member States must
show how they intend to reach the 9 % indicative energy savings target by 2016 and
describe the planned energy efficiency measures. Furthermore, NEEAPs must show how
Member States comply with the requirements of the ESD on the "exemplary role of the
public sector" and the provision of information and advice to final consumers.

Additionally, in the first NEEAPs (2007), Member States had to set intermediate targets,
and the second (2011) and third NEEAP (2014) must show results of the energy efficiency
improvements and savings made.

During the finalisation of the survey, the Energy Efficiency Directive was in its adoption
phase, setting new requirements for energy efficiency and a new reporting framework.
This report offers analysis and guidance on specific areas of weaknesses and strengths in
energy efficiency policies in specific Member States and across countries. These results
can also be very useful for developing specific actions for the implementation of the
Energy Efficiency Directive.

The Energy Efficiency Watch Project 2 (EEW2)

The Energy Efficiency Watch Project 2 (EEW2) aims to facilitate the implementation of the
ESD. It is co-funded by the Intelligent Energy Europe programme and coordinated by
Eufores. It runs from autumn 2010 to summer 2013 and builds upon the EEW1 project
(Sept. 2007 - February 2010, further information about this project at www.energy-
efficiency-watch.org).

Survey Report: Progress in energy efficiency policies 11

The EEW2 project activities are grouped around the three main areas:

• activating and consulting networks of relevant actor groups (e.g. regional and local
actors, energy efficiency experts, members of parliaments, energy efficiency industries)
• building up knowledge via surveys, questionnaires and policy screening and
• disseminating results (e.g. briefings, conferences, brochures).

The NEEAPs lie in the very heart of the EEW2 project. EEW2 project activities include
developing recommendations and advice for the second NEEAPs (based on the results of
the EEW1 project) as well as a screening of the second NEEAPs when delivered. Up to 20
events are carried out with the purpose of exchanging good practices, raise awareness
and encourage discussion among stakeholders from industry, punlic administrations,
energy agencies, policy makers and other experts. The EEW2 project aims to create an
even stronger network with the regions and cities that are of utmost importance for the
implementation of energy efficiency policies laid out in the NEEAPs. Therefore, the
networks Fedarene, Energy Cities and ECEEE are partners of the project consortium.

Timetable
Adoption of the ESD Deadline First NEEAPs Deadline Second NEEAPs
April 2006 June 2007 June 2011

ESD

EEW projects EEW1 EEW2

Survey Quantitative Qualitative

Survey Survey

2006 2007 2008 2009 2010 2011 2012 2013

The EEW2 survey: the experts perspective on the progress in energy efficiency
policies since the first NEEAP

One key activity of the EEW2 project was an extensive survey on the implementation
results of the first NEEAPs in the 27 Member States. The aim of the survey was to learn
from stakeholders, experts and relevant networks how they see the "real-life" progress in
energy efficiency policies and their implementation in their respective country in the past
years. It aimed to give voice to their views and profit from their experiences in assessing
policy development progress.

Survey Report: Progress in energy efficiency policies 12

In order to get a broad picture, it gathered opinions and experience from a wide range of
key actors. Networks and stakeholders were consulted in order to learn about the progress
in energy efficiency policy on Member State level since the first NEEAPs in 2007. The aim
was to learn how far the implementation of energy efficiency policies has progressed in the
opinion of persons with day-to-day work in the energy efficiency field.

The survey consisted of two different elements:

• a quantitative suvey, using a questionnaire (655 questionnaires were completed and

used to draw conclusions) and
• a qualitative survey, using a interview guideline (3 experts in each Member States were
interviewed, in total, 81 experts).

The focus of the questions both in the quantitative and in the qualitative survey was on the
progress of energy efficiency policies and their implementation in different sectors since
the first NEEAP. More information on the approach and the results of these two surveys
can be found in the following chapters and in the annex.

Additionally, the partner networks of the EEW 2 project, Fedarene, Energy Cities and
ECEEE, consulted their members and discussed progress (or the lack thereof) from the
perspectives of their network members. To complement this stakeholder process,
EUFORES collected views on the progress from a number of other relevant European
energy efficiency networks and NGOs. The main findings of this process are summarised
in the following chapters, the network report summaries are found in the Annex.

In total, more than 700 experts from all EU Member States were consulted.

Another element of the Energy Efficiency Watch project is a screening of the texts of the
NEEAps, carried out by the project partners Wuppertal Institute and Ecofys, giving another
perspective on the ESD implementation process: whereas the survey focus on the
perception of the actual progress in the development and implementation of energy
efficiency policies, the screening analyses the texts of NEEAPs itself.

Survey Report: Progress in energy efficiency policies 13

Approach and methodology of the survey

The approaches chosen for the stakeholder survey aimed at reflecting the variety of
experiences of a broad range of actors spanning 27 countries with vast differences both in
energy efficiency policy traditions as well as in specific progress in the past years.

Stakeholders consulted came from the national, regional and local levels (administrations
and energy agencies), from the research and consultancy community as well as from
NGOs, professional associations and businesses.

The following methods were chosen to collect inputs:

• the quantitative survey, using a relatively short questionnaire, aimed at reaching a large
number of stakeholder and providing an insight into overall trends, mostly in which
sectors was progress made and which sectors not

• the qualitative survey (interviewing carefully selected energy efficiency experts in each
Member State using an interview guideline) had the objective of getting a deeper
understanding of specific reasons for the lack of progress as well as collecting good
practice examples of energy efficiency policy implementation

• the inputs from the members of the 3 partner networks were collected during dedicated
discussions among network members, held at the occasion of other network meetings.
This format allowed for comparing the perspectives from different countries and drawing
conclusions from the interactions.

• interviews were made with representatives of other major European energy efficiency
networks and NGOs to collect sector-specific inputs based on an interview guideline.

Elements of the EEW survey

• Quantitative Survey
- quantitative information on energy efficiency progress, "snapshot picture"
- questionnaires (655 completed online or during main European conferences)

• Qualitative Survey
- qualitative information on energy efficiency progress
- oral interviews with 3 experts per Member State based on an interview guideline

• Network Reports by Fedarene, Energy Cities, ECEEE and EUFORES (external

network partners)
- network opinions on progress of energy efficiency progress and ESD implementation
- network meetings
- gathering inputs from major European energy efficiency networks and NGOs

Survey Report: Progress in energy efficiency policies 14

A meeting among the project partners was held in summer 2012 to discuss the main
results from these different approaches and to agree on conclusions.

Quantitative survey

In co-operation with the project partners and the University of Linz (Institute for
Environmental Management in Companies and Regions) a relatively short questionnaire
was developed and tested. It aimed at collecting quantitative data on the progress in
energy efficiency policies and their implementation in each Member State since the
adoption of the first NEEAP. This method allowed to reach a large number of stakeholders.

The questionnaire was grouped around the following main topics (a copy of the
questionnaire can be found in the annex):

• overall ambition of the energy policy of the addressed Member State, the progress in
the last years, the national energy savings targets
• policy fields and instruments especially addressed by the ESD (procurement, energy
efficiency services, financial instruments, the availability of energy efficiency
information, white certificates, energy audits, metering etc.)
• most important gaps in national energy efficiency policies as well as barriers
• energy efficiency policy measures to be introduced at European level as well as the
overall impacts of energy efficiency policies

In order to be able to reach out to a large number of stakeholders, a two-fold approach

was taken:

• conferences: experts were invited to answer the questionnaires at the occasion of major
energy efficiency events, e.g. the World Sustainable Energy Days 2011 (held in
Wels/Austria in March 2011), the EUSEW (European Union Sustainable Energy Week,
held in Brussels in April 2011), the ECEEE summer study (held in Presqu'île de
Giens/France in June 2011)
• online completion: the questionnaire was made available through the website of
Eufores. The EEW partners informed and motivated experts from their networks and
through partner energy effciency networks in all Member States to participate in the
survey.

Between March and November 2011, in total 655 completed questionnaires were
collected.

Survey Report: Progress in energy efficiency policies 15

 Completed questionnaires by countries

Austria 51 Latvia 17
Belgium 50 Lithuania 13
Bulgaria 9 Luxembourg 7
Cyprus 8 Malta 7
Czech Rep. 11 NL 19
Denmark 15 Poland 22
Estonia 11 Portugal 21
Finland 16 Romania 21
France 42 Slovak Rep. 14
Germany 63 Slovenia 12
Greece 39 Spain 31
Hungary 13 Sweden 34
Ireland 13 UK 35
Italy 61 Total 655

The varying number of participants across Member States had to do with the presence of
experts in the international events and the partner networks, language issues (the
questionnaire was in English) as well as the size of the country (the lowest participation
came from the 3 smallest EU countries).

Participants in the survey came from the business sector (25 %), from universities and
research organisations (23 %), from the public sector (22 %), from energy agencies (12 %)
and from other sectors (18 %).

Completed questionnaires by sectors

business sector
18%
25%
universities/
research organisations
12% public sector

23% energy agencies

22%
others

Survey Report: Progress in energy efficiency policies 16

Qualitative survey

Complementing the quantitative data, a qualitative survey was carried out. It aimed at
developing a deeper understanding of specific reasons for the lack of progress as well as
collecting good practice examples of energy efficiency policy implementation.

In order to achieve best possible results, the approach to this survey was developed jointly
by the partners.

As a first step, an interview guideline was developed and tested. It focused on critical
issues as well as positive developments in different energy efficiency sectors (public,
residential, service, industry and transport sectors).

A special emphasis was put on carefully selecting the interviewees aiming for a balance of
different perspectives in each Member State. Firest, a list was collected by the project
partners which included about 200 experts across all 27 Member states. The names came
from the professional networks of the project partners, with an emphasis on experts from
the participating networks. Also, experts involved in the Odysee-Mure project were
included. All experts included in the list were deemed to have a good overview of the
energy efficiency policies in their respective countries as well as having worked in energy
efficiency for a number of years and having gained a good insight into policy development
and implementation.

As a next step, the experts were grouped in different categories (experts working on local,
regional and national level, in research and consulting, in professional associations and
NGOs).

In a partner meeting, the experts to be interviewed were jointly selected, with the aim to
ensure a high-level of knowledge and a balanced representation of different actors in each
Member State. Also a reserve list was drawn up in case the experts selected were not
available for an interview.

Each of the three involved networks (Fedarene, Energy Cities and ECEEE) took over 9
countries. An introductory eMail was sent out by Eufores informing the potential
interviewees of the importance of participating. This was followed by eMails and phone
calls from the respective network partner to set up a date for a phone interview.

In overall terms - keeping in mind how many surveys are carried out - the response was
rather positive and many of the experts included in the first list were interviewed (without
needed to resort to the reserve list). However, in many cases, it took a number of contacts
to establish a suitable date. In some cases, where experts turned out to be unavailable or
not willing to participate, experts from the reserve list were selected.

After the phone interviews were carried out (which generally took between 45 and 90
minutes), a transcript was sent to the interviewee allowing him/her to clear up possible

Survey Report: Progress in energy efficiency policies 17

misunderstandings as well as offering the option to provide additional information. The
interviews were carried out between April and September 2012.

The interviewers summarised the results from the 3 interviews in each Member State in a
short "country summary", these are included in the annex.

In order to collect real insights and opinions, the answers of the interviewees are treated
confidentially which is a standard approach in surveys. Their names are not disclosed -
due to the small number of interviewees per country, reading through the country
summaries might allow making a direct connection between certain statements and the
persons involved.

In summer, a partner meeting was held in which the results from the quantitative and the
qualitative survey were brought together, discussed and double-checked. Common
conclusions for each country were agreed by the partners (which can be found in the
following chapter). At this meeting, these results were also compared to the initial results
of the NEEAP screenings carried out as another activities of the Energy Efficiency Watch
project.

The project team agreed that the know-how available "on the ground" was very valuable
and many experts - also due the projects' diligent approach - were willing to share their
knowledge and insights. The members of the project team were impressed by the
commitment and also very good work carried out in some countries despite very
challenging policy and financial framework conditions

Survey Report: Progress in energy efficiency policies 18

Survey Results
The following chapter summarises the main results of the survey, first on a country by
country basis and then across the Member States.

As with any survey, the results in this report present the perceptions of the interviewees
and their opinions on energy efficiency policies in their own countries. This report is not an
analysis of the absolute levels of energy efficiency in each Member State, using common
measurement indicators, but the views on the progress in energy efficiency policies in
each Member State of the experts in that specific country. Therefore, these results are not
views of the authors of this study.

The focus of the survey was to get an impression on the progress of energy efficiency
policies since the first NEEAPs and not to establish a ranking of absolute levels of energy
policy developments.

Surveys are always "snapshot pictures" which are influenced by current events. The
quantitative survey was carried between March and November 2011 and the qualitative
survey between April and September 2012. The impact of the economic crisis on reported
policy developments is to be seen in this timing context.

This timeframe also explains why several questions of the quantitative survey look back 3
years - this was the timeframe between the start of the survey and the presentation of the
first NEEAPs.

Survey Results by Member State

The following country specific analysis combines the results of the quantitative and the
qualitative survey (countries in alphabetical order). It highlights issues that stood out either
positively and negatively from the comparison across countries (quantitative survey). From
the qualitative survey, those issues are presented here that were mentioned by more than
one of the experts in the oral interviews. The annex includes country summaries with more
comprehensive results per country.

Survey Report: Progress in energy efficiency policies 19

Austria

Austria is among the Member States that has made medium progress in energy efficiency
policies since the first NEEAPs (country progress indicator: 13 out of 27 - see page 81).
Opinions are divided on the ambition of energy efficiency policies in Austria: half of the
experts see policies as ambitious whereas the other half believes that policy ambitions are
rather low. Two thirds think that in the last 3 years, only a few additional policies were
introduced or there was no or little progress. Nearly 50 % believe that the energy efficiency
target will not be achieved.

Most critical issues mentioned by the experts include the lack of a transport policy which
takes energy efficiency into account and the lack of binding savings targets. In general,
more policies are needed to reduce consumption.

On the positive side, the experts mention that the regions have been quite active in recent
years, especially in setting ambitious energy efficiency standards for new residential
buildings and also in their housing programmes.

In the institutional framework, regional actors are seen as rather active, cooperation
among regional and national actors could be improved.

Austria: overall ambition of the Austria: progress of energy

energy efficiency policies efficiency policies in the last 3 years

6% 2%
14%
18%

33%

43%
37%

47%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Survey Report: Progress in energy efficiency policies 20

 Austria: achievement of national energy savings target

target will not be achieved

18%
target will be achieved but will not lead to a lot of
2% additional savings
49% target will probably be achieved
10%

target will certainly be achieved

21% not aware of energy savings target

According to the experts, in the public sector, even though some progress has been made
in building refurbishment, there is a lack of funding and also of an obligation to renovate
buildings.

In the residential sector, the increasing electricity consumption is seen as a main

challenge.

In the service and the industry sector, experts observe a lack of obligations for companies
to become active in reducing their energy consumption.

The transport sector is seen as the area with the most important policy gap in energy
efficiency policies (second highest gap across sectors and countries). Among others, the
lower fuel taxes compared to neighbouring countries and the lack of good public transport
(outside the cities and main transport connection lines) were mentioned.

Austria: the most important gap in energy efficiency policies

others/ comment 0%

energy sector 2%

transport sector 70%

industry & service sector 8%

public sector 10%

residential sector 10%

0% 10% 20% 30% 40% 50% 60% 70% 80%

Survey Report: Progress in energy efficiency policies 21

Among specific energy efficiency policy instruments, energy audits are rather popular
among the Austrian energy experts: 92 % consider them as at least partly effective, among
these nearly 40 % as very effective (second most positive indicator of all countries). On the
other side, 53 % consider voluntary agreements as not effective (most negative indicator
of all countries).

Austria: degree of effectiveness of different policy instruments

White Certificates 20 35 45

Voluntary Agreements 53 23 6 18

Obligations for energy companies 18 39 12 31

not effective at all

Energy Audits 8 53 39 partly effective

very effective
Qualification, accreditation &
13 60 15 12
certification schemes unknown/ not implemented

EE Funds 10 49 10 31

Smart Metering 17 32 11 40

0% 20% 40% 60% 80% 100%

Belgium

According to the Belgian experts, Belgium is among the countries that has made medium-
to-low progress in energy efficiency policies since the first NEEAP (country progress
indicator: 18 out of 27 - see page 81). 70 % of the experts think that energy policies are
only ambitious in a few sectors and less so in most others or generally rather low. Also
around 70 % believe that only a few additional policies were introduced (or even no
progress was made) in the last years. More than 40 % think that the national energy
savings target will not be achieved.

A main challenge oberserved by the experts is the financing of the energy efficiency
programmes. They are concerned that these programmes see increasing budgetary
constraints and uncertainties from year to year.

Positive issues mentioned include a tax reduction programme on national level and
incentives provided by the regions as well as some voluntary agreement programmes in
industry.

Survey Report: Progress in energy efficiency policies 22

 Belgium: overall ambition of the Belgium: progress of energy
energy efficiency policies efficiency policies in the last 3 years

8% 8% 10%

33%
22% 21%

61%
37%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Belgium: achievement of national energy savings target

target will not be achieved

13%
2% target will be achieved but will not lead to a lot of
additional savings
44%
17% target will probably be achieved

target will certainly be achieved

24% not aware of energy savings target

In the public sector, the level of activities differs between the three Belgian regions
according to the experts, financing is a generally seen as a challenge.

In the residential sector, experts report that all three regions offer a range of financial
incentives for energy efficiency investments.

In the service and industry sector, there are voluntary branch agreements for industry as
well as some incentives given by regions for energy efficiency and renewable energy.

In the transport sector, experts call for more tax incentives to promote energy efficiency.

Regarding specific energy efficiency policies, the Belgian experts see qualification,
accredidation and certification schemes realtively as the most effective (55 % see them as
very or as partly effective).

Survey Report: Progress in energy efficiency policies 23

 Belgium: degree of effectiveness of different policy instruments

White Certificates 7 20 4 69

Voluntary Agreements 21 48 2 29

Obligations for energy companies 31 42 9 18

not effective at all

Energy Audits 31 42 9 18 partly effective

very effective
Qualification, accreditation &
19 50 5 26
certification schemes unknown/ not implemented

EE Funds 21 33 10 36

Smart Metering 14 16 5 66

0% 20% 40% 60% 80% 100%

Bulgaria

Bulgaria is among the Member States that has made medium progress in energy
efficiency policies since the first NEEAPs (country progress indicator: 16 out of 27 - see
page 81). The majority of experts considers the overall ambition of the energy efficiency as
rather low (one of the lowest indicators across Europe). A few additional policies were
introduced in the last 3 years.

Opinions are divided on the achievement of the energy efficiency target: 40 % believe that
energy efficiency target will not be achieved, 40 % believe that energy efficiency target is
likely to be achieved.

Experts are concerned that energy efficiency does not have sufficient political priority on
national level. They see a high need for building refurbishment and insufficient funding for
this challenge.

They comment positively that building legislation has changed towards energy efficiency
due to European Directives and that some funding programmes are available (partly from
European funds).

Survey Report: Progress in energy efficiency policies 24

 Bulgaria: overall ambition of the Bulgaria: progress of energy
energy efficiency policies efficiency policies in the last 3 years

11% 11%
22%

22%
56%

11%
67%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others
a few additional policies
ambitious in a range of sectors, less so in a few others
generally, rather high a range of additional policies

Bulgaria: achievement of national energy savings target

target will not be achieved

20%

40% target will be achieved but will not lead to a lot of

additional savings

20% target will probably be achieved

target will certainly be achieved

20%

In the public sector, some municipalities are implementing energy efficiency projects, in
general, according to the experts, there is a lack of resources, skills and partly also
interest.

In the residential sector, experts are concerned about the lack of an overall strategy how to
tackle energy efficiency in this sector: they ask for a combination of legislation, funding
programmes and information measures - all were considered to currently be insufficient.

For the service and industry sector, a need for modernisation was seen.

The transport sector, the need of improved public transport was mentioned as well as for
better mobility management.

Survey Report: Progress in energy efficiency policies 25

In terms of specific energy efficiency instruments, energy audits (nearly 80 % think they
are at least partly effective) and energy efficiency funds (67 % partly or very effective) are
rated as the most effective policy instruments.

Bulgaria: degree of effectiveness of different policy instruments

White Certificates 11 89

Voluntary Agreements 11 33 56

Obligations for energy companies 25 37 13 25

not effective at all

Energy Audits 11 67 11 11 partly effective

very effective
Qualification, accreditation &
13 62 25
certification schemes unknown/ not implemented

EE Funds 11 56 11 22

Smart Metering 22 11 11 56

0% 20% 40% 60% 80% 100%

According to the Cypriot experts, in comparison to other EU Member States, Cyprus is

among the countries that has made relatively little progress in energy efficiency policies
since the first NEEAP (country progress indicator: 22 out of 27 - see page 81). Experts
consider the ambition of energy efficiency policies as generally rather low (62 % see as
"generally, rather low", the lowest value all countries). However, opinions are divided on
the actual progress in the last 3 years: nearly 40 % see a range or even many additional
policies and also nearly 40 % see no or very little progress.

Main challenges reported are energy efficiency in buildings and the effective
implementation of the (first) EPBD (Directive 2002/91/EC on the energy performance of
buildings). Also the development of public transport systems is seen as a key issue.

However, experts recognise that - compared to a few years ago - policies in buildings and
in transport are starting to develop, both in legislation and in funding.

Regarding the institutional framework, experts are concerned by the lack of ambition of the
relevant ministries. Positive comments were made about the activities of the Cyprus
Energy Agency in promoting energy efficiency.

Survey Report: Progress in energy efficiency policies 26

 Cyprus: overall ambition of the Cyprus: progress of energy
energy efficiency policies efficiency policies in the last 3 years

13% 13%

37%

25% 25%

62%

25%

generally, rather low no or very little progress

a few additional policies
ambitious in a few sectors, less so in most others
a range of additional policies
ambitious in a range of sectors, less so in a few others many additional policies

Cyprus: achievement of national energy savings target

target will not be achieved

13%
25%
target will be achieved but will not lead to a lot of
additional savings
target will probably be achieved

37% target will certainly be achieved

25%
not aware of energy savings target

In the public sector, experts were commenting on the lack of a comprehensive strategy to
promote energy efficiency. However, municipalities are getting more active in energy
efficiency.

Energy efficiency in the existing housing stock is considered to be rather low. Support
programmes exist, however, they have seen interruptions due to lack of sufficient funding.
Generally, experts call for a more reliable and long-term framework for investments in the
residential sector. They observe that support programmes in general put much higher
priorities on renewable energy sources than energy efficiency.

Increasing prices had a positive impact on energy efficiency in the service and industry
sector.

Survey Report: Progress in energy efficiency policies 27

Historically, the offer of public transport was extremely limited. Experts see that this is
slowly starting to change, however, there is a clear need for increasing performance and
consumer information.

Very differently from many other countries, 50 % consider energy audits as not effective
(most negative indicator of all countries - EU average 15 %) and similarly, 50% consider
qualification, accreditation & certification as not effective (again most negative indicator of
all countries - EU average 19 %).

Cyprus: degree of effectiveness of different policy instruments

White Certificates 20 80

Voluntary Agreements 38 62

Obligations for energy companies 38 25 37

not effective at all

Energy Audits 50 38 12 partly effective

very effective
Qualification, accreditation &
50 25 13 12 unknown/ not implemented
certification schemes

EE Funds 13 75 12

Smart Metering 13 12 75

0% 20% 40% 60% 80% 100%

Czech Republic

According to the Czech experts, the Czech Republic is among the countries that has made
relatively little progress in energy efficiency policies since the first NEEAP (country
progress indicator: 25 out of 27 - see page 81). Only a few additional policies were
introduced.

They consider the ambition of the energy efficiency policies to be rather low (the lowest
indicator of all countries). Critical issues include the lack of leadersip and targets and that
energy efficiency is perceived as a burden rather as an opportunity by many actors in the
public sector. There is no national energy agency and also only a small number of regional
and local energy agencies. There is significant concern regarding the continuation of
funding programmes.

Survey Report: Progress in energy efficiency policies 28

Progress was reported in energy contracting and in energy efficiency in buildings (also due
to funding programmes). Expers oberserved that the citizens awareness in energy and
climate issues is increasing.

Czech Rep.: overall ambition of the Czech Rep.: progress of energy

energy efficiency policies efficiency policies in the last 3 years

9%
18%

45%
55%

73%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others
a few additional policies

a range of additional policies

Czech Rep.: achievement of national energy savings target

target will not be achieved

20% 20%
target will be achieved but will not lead to a lot of
additional savings
target will probably be achieved
20%
target will certainly be achieved

40%
not aware of energy savings target

In the field of public buildings, an inter-ministerial committee for energy efficiency was
created to monitor energy consumption of selected public buildings and improve their
performance. Experts mention that the number of local authorities willing to take
leadership in sustainable energy issues is growing. However, only a few cities have
employed an energy manager and the number of comprehensive renovation projects of
public buildings is still very limited.

The "Green for Savings Programme" and the programme "Panel" triggered significant
investments in residential buildings, however, there is strong concern regarding future

Survey Report: Progress in energy efficiency policies 29

funding. In the industry sector, experts report on the availability of funds for energy
efficiency. Energy contracting is becoming popular and the number of good examples has
multiplied.

Nevertheless, financing of energy efficiency investment is perceived as the key problem -

80 % of all interviewees see it as the most important barrier (this is the highest value
across all countries and all barriers).

Czech Rep.: the greatest barrier to energy efficiency

others/ comment 0%

information & awareness levels of end-user groups 10%

lack of legislation or its implementation 10%

financing of EE investment 80%

0% 10% 20% 30% 40% 50% 60% 70% 80% 90%

Energy advice and audits are considered as an important instrument: The national
government provides funding support to energy advice centers across the country and
related training activities. The experts also see this instrument positively among different
specific energy policy instruments: 90 % consider energy audits at least as partly effective
(third most positive indicator of all countries).

Czech Rep.: degree of effectiveness of different policy instruments

White Certificates 9 27 64

Voluntary Agreements 25 12 13 50

Obligations for energy companies 50 10 40

not effective at all

Energy Audits 60 30 10 partly effective

very effective
Qualification, accreditation &
20 50 10 20 unknown/ not implemented
certification schemes

EE Funds 9 55 27 9

Smart Metering 25 25 50

0% 20% 40% 60% 80% 100%

Survey Report: Progress in energy efficiency policies 30

Denmark

According to the Danish experts, Denmark is the country where energy efficiency policies
have progressed very well since the first NEEAP (country progress indicator: 2 out of 27 -
see page 81).

More than 50 % believe that the overall ambition of the energy efficiency policy is generally
rather high (highest indicator of all countries).

Opinions on the progress in the last 3 years are more mixed: a third sees many additional
policies, another third only a few additional policies.

Nearly 80 % believe that the energy efficiency target is very likely to be achieved (second
highest indicator of all countries)

Experts agree that the biggest challenge for Danish policy lies in energy efficiency in the
transport sector.

On the other hand, a range of positive developments was mentioned, including building
codes, building labelling and energy efficiency in electric appliances.

Denmark: overall ambition of the Denmark: progress of energy

energy efficiency policies efficiency policies in the last 3 years

13% 14%

33%
13%

54%
33%

20%
20%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Survey Report: Progress in energy efficiency policies 31

 Denmark: achievement of national energy savings target

7% 7% target will not be achieved

7%
13% target will be achieved but will not lead to a lot of
additional savings
target will probably be achieved

target will certainly be achieved

66% not aware of energy savings target

In the public sector, according to the experts, a range of actions to promote energy
efficiency are implemented, especially on municipal level.

Also in the residential sector, several instruments are available to support energy
efficiency, including loans for building renovation. In the service and industry sector,
voluntary agreements are in place.

Experts see very significant gaps in energy efficiency policies in the transport sector (the
highest gap across sectors and countries). Programmes to promote electric cars were
mentioned.

Denmark: the most important gap in energy efficiency policies

others/ comment 0%

energy sector 0%

transport sector 73%

industry & service sector 7%

public sector 13%

residential sector 7%

0% 10% 20% 30% 40% 50% 60% 70% 80%

The Danish energy experts have a very positive attitude towards a range of specific
energy efficiency policies: 100 % consider obligations for energy efficiency companies at
least as partly effective (most positive indicator of all countries), 94 % consider energy
audits at least as partly effective (most positive indicator of all countries) and 73 %
consider qualification, accreditation & certification at least as partly effective (third most
positive indicator of all countries).

Survey Report: Progress in energy efficiency policies 32

 Denmark: degree of effectiveness of different policy instruments

White Certificates 7 36 57

Voluntary Agreements 7 53 20 20

Obligations for energy companies 53 47

not effective at all

Energy Audits 66 27 7 partly effective

very effective
Qualification, accreditation &
7 53 20 20
certification schemes unknown/ not implemented

EE Funds 7 53 13 27

Smart Metering 13 53 34

0% 20% 40% 60% 80% 100%

Estonia

In the opinion of the Estonian experts, Estonia is among the EU countries that has made
good progress in energy efficiency policies since the NEEAP 1 (country progress indicator:
3 out of 27 - see page 81). 82 % of the experts say that a range of or many additional
policies was introduced (highest progress in all EU member states). 55 % believe that the
national energy savings target is likely to be achieved (third highest indicator of all
countries).

Critical issues include the lack of a coherent framework for energy efficiency, binding
targets and financing and funding programmes. A lack of capacity in the public sectors is
perceived by the experts, also as there is no national energy agency to support policy
development, implementation and analysis. Also municipalities suffer from the lack of staff
and financial resources.

Positive developments reported include the increased availability of funds (especially from
emission trading), more businesses active in energy efficiency sector (especially building
renovation and energy services) and more use of CHP.

Survey Report: Progress in energy efficiency policies 33

 Estonia: overall ambition of the Estonia: progress of energy
energy efficiency policies efficiency policies in the last 3 years

9% 9%
18% 18%
9%
18%

55% 64%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Estonia: achievement of national energy savings target

9% target will not be achieved

19%

target will be achieved but will not lead to a lot of

additional savings
36%
target will probably be achieved

36%
target will certainly be achieved

Estonia suffers from a major financing problem. According to the experts, the general
economic conditions are not conducive, the government has little funding for energy
efficiency investments. However, there is funding available from the sale of emission
rights (AAUs) under the Kyoto Protocol which provided the means to develop a successful
grant schemes for the buildings sector (refurbishment of residential buildings but recently
also for the public sector). Programmes are managed by Kredex, a financing institution.

Due to the availability of funds, experts see significant progress in financial instruments.
Also, compared to previous eras, the availability of energy efficiency information has very
much improved.

In the service sector, a lack of programmes to promote energy efficiency was reported.
40 % of the experts see this sector as the one with the most important energy efficiency

Survey Report: Progress in energy efficiency policies 34

policy gap (Estonia has the highest value of all EU countries in this sector). Many office
buildings owners have, nevertheless, started to look into possibilities to act.

Estonia: the most important gap in energy efficiency policies

others/ comment 0%

energy sector 10%

transport sector 20%

industry & service sector 40%

public sector 0%

residential sector 30%

0% 5% 10% 15% 20% 25% 30% 35% 40% 45%

Across sectors (residential, industry & service), experts observed a still insufficient
understanding of cost-effective solutions for energy efficiency potential for improvements.

Present car taxation is considered an important problem by the experts as only fuel is
taxed (and not the purchase of vehicles) which induces consumers to purchase large,
inefficient vehicles.

Among specific policy instruments, the Estonian experts rate the effectiveness of energy
audits, energy efficiency funds and qualification, accreditation and certification schemes as
rather high.

Estonia: degree of effectiveness of different policy instruments

White Certificates 18 82

Voluntary Agreements 9 18 9 64

Obligations for energy companies 18 36 9 37

not effective at all

Energy Audits 9 73 9 9 partly effective

very effective
Qualification, accreditation &
82 18 unknown/ not implemented
certification schemes

EE Funds 9 55 9 27

Smart Metering 36 18 9 37

0% 20% 40% 60% 80% 100%

Survey Report: Progress in energy efficiency policies 35

Finland

According to the Finish experts, Finland is the country where energy efficiency policies
have progressed most since the first NEEAP (country progress indicator: 1 out of 27 - see
page 81). Nearly 70 % believe that energy policies are at least ambitious in a range of
sectors. More than 80 % state that a range or many new additional policies were
introduced in the last 3 years (second highest indicator of all countries). 66 % think that the
energy efficiency target is likely to be achieved (third highest indicator of all countries).

A main concern expressed by the Finish experts was the implementation of the Directive
on the energy performance of buildings. Also there is still a lack of awareness among
consumers. According to the experts, too many municipalities and SMEs lack commitment
and funding.

Among the positive developments mentioned are the expansion of the energy advice and
audits (for municipalities and businesses). Also the voluntary energy efficiency agreements
in commerce and industry expanded in terms of sectors and in terms of companies
participating. There are a number of programmes providing financial support to energy
efficiency.

As regards the institutional framework, the cooperation among ministries has improved
and also energy agencies - Motiva on national level as well as regional and local ones -
are important actors.

Finland: overall ambition of the Finland: progress of energy

energy efficiency policies efficiency policies in the last 3 years

19%
25% 25%
38%

6%

31% 56%

generally, rather low a few additional policies

ambitious in a few sectors, less so in most others
a range of additional policies
ambitious in a range of sectors, less so in a few others
generally, rather high many additional policies

Survey Report: Progress in energy efficiency policies 36

 Finland: achievement of national energy savings target

7% target will not be achieved

20%
13% target will be achieved but will not lead to a lot of
additional savings
7% target will probably be achieved

target will certainly be achieved

not aware of energy savings target

53%

In the public sector, understanding and motivation among municipalities is seen as a

critical issue. Also, a plan to decrease the number of municipalities took a lot of attention
recently away from issues such as energy efficiency.

In the residential sector, a lack of guidance and advice to home owners was stated as one
of the main challenges.

In the industrial sector, voluntary agreements are reported as having been very successful
(covering a very high percentage of the Finnish industrial energy use) and there are
complementary measures to help participating companies. However, getting SMEs
involved has been very challenging according to the experts.

The survey results on specific policy instruments differ from other countries: 80 % consider
smart metering at least as partly effective (most positive indicator of all countries - the EU
average being 35 %). 56 % see obligations for energy efficiency companies at least as
partly effective but also 31 % see them as "not effective at all". Very popular are also
energy audits (79 % partly or very effective).

Survey Report: Progress in energy efficiency policies 37

 Finland: degree of effectiveness of different policy instruments

White Certificates 20 13 7 60

Voluntary Agreements 20 13 53 14

Obligations for energy companies 31 37 19 13

not effective at all

Energy Audits 7 43 36 14 partly effective

very effective
Qualification, accreditation &
20 47 7 26
certification schemes unknown/ not implemented

EE Funds 13 40 13 34

Smart Metering 7 53 27 13

0% 20% 40% 60% 80% 100%

France

France is among the Member States that has made comparatively medium progress in
energy efficiency policies since the first NEEAPs (country progress indicator: 10 out of 27 -
see page 81).

Opinions are divided on the ambition of energy efficiency policies: half of the experts see
policies as ambitious whereas the other half believes that policy ambitions are rather low.
Progress in the last 3 years was seen relatively positively: 55 % think that a range or even
many additional policies were introduced.

Also the opinions on achieving the energy efficiency target differ: about a third think the
target will probably or certainly be achieved, another third believes that this will not be
case.

Experts are concerned that the ambitious targets for building renovation will not be
reached and they state that it is easier to find political support for renewable energies than
for energy efficiency (renewable energies are seen as more attractive from a job creation
and economic development perspective). The economic crises has also lead to a
reduction in incentive programmes.

On the positive side, the "Grenelle de l'Environnement" in 2007 (a multi-party debate

bringing together governmental and non-governmental actors) was seen as having an
important role in triggering new policies and developing a more structured approach. The

Survey Report: Progress in energy efficiency policies 38

experts mention, for example, significant allocation of public funding (compared to
previous periods) and new legislation in the building sector. Also a system of energy
efficiency certificates was created.

France: overall ambition of the France: progress of energy efficiency

energy efficiency policies policies in the last 3 years

15% 12% 5%
19%

40%

34% 39%
36%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

France: achievement of national energy savings target

target will not be achieved

12%

8% target will be achieved but will not lead to a lot of

35% additional savings
target will probably be achieved

27% target will certainly be achieved

18% not aware of energy savings target

In the public sector, a number of activities were mentioned, including energy audits and
public private partnerships for financing renovation of public buildings. Also the legislation
on energy contracting was modified.

In the residential sector, a tax credit instrument, enabled by the energy efficiency
certificates, was described as effective and very popular. However, experts expressed
concern that it was not sufficiently promoting deep renovation (for example, significantly
more efforts went into window replacement than insulating buildings). Also a soft loan
programme was established and energy advice programmes were set up to guide energy
efficiency investments.

Survey Report: Progress in energy efficiency policies 39

According to the experts, the energy efficiency certificates also played a role in the service
sector. In the industry sector, energy management and audit programmes were carried
out.

In the transport sector, experts mentioned actions to improve public transport, especially
on local and regional level.

In terms of specific energy policies instruments, energy audits are very well known and
popular among the French experts (81 % consider energy audits at least as partly effective
effective). 63 % consider White Certificates at least as partly effective (which is most
positive indicator of all countries).

France: degree of effectiveness of different policy instruments

White Certificates 53 10 37

Voluntary Agreements 29 52 19

Obligations for energy companies 17 50 21 12

not effective at all

Energy Audits 17 62 19 2 partly effective

very effective
Qualification, accreditation &
20 63 7 10 unknown/ not implemented
certification schemes

EE Funds 15 39 10 36

Smart Metering 30 28 10 32

0% 20% 40% 60% 80% 100%

Germany

According to the German experts, Germany is among the countries where energy
efficiency policies has seen good-to-medium progress since the first NEEAP (country
progress indicator: 8 out of 27 - see page 81). They see a relatively high overall ambition
of energy efficiency policies - 61 % consider it at least ambitious in a range of sectors.

The interviewees were divided regarding the introduction of new policies: more than 40 %
saw a range or many additional policies, 52 % only a few additional policies. Accordingly,
opinons also differ on the achievement of the energy savings target: about 40 % think that

Survey Report: Progress in energy efficiency policies 40

the target will certainly or probably be achieved, about 30 % believe that the target will not
be achieved.

Critical issues observed by the experts include the lack of progress in the efficiency of
electricity use, the transport sector, the lack of binding targets and that there is still a
dominance of "supply-side" policies. They also reported that in the institutional sector,
conflicts on energy efficiency issues among national ministries exist.

Positive developments reported include the funding programmes in the building sector
("KfW" programmes, about 500 million Euro per year), the energy efficiency programmes
for the industry sector and for municipalities. They also state that energy efficiency has
become a key pillar of Germany energy strategy.

Germany: overall ambition of the Germany: progress of energy

energy efficiency policies efficiency policies in the last 3 years

2% 8% 10%

29%
37%
30%

52%

32%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Germany: achievement of national energy savings target

6% target will not be achieved

8%
29% target will be achieved but will not lead to a lot of
additional savings
target will probably be achieved

35% target will certainly be achieved

22%
not aware of energy savings target

In the public sector, according to the experts, many municipalities have introduced
effective energy management, have adopted passive standards for new buildings and

Survey Report: Progress in energy efficiency policies 41

make use of green procurement. A roadmap to improve state owned buildings exists.
However, significantly more public bodies could make use of contracting.

In the residential sector, the funding programmes (KfW) are seen as very beneficial,
especially for deep renovation and the construction of passive buildings. A change in the
tenancy law is expected to have positive impacts on building renovation. However, the
interviewees reported that the (first) EPBD (Directive 2002/91/EC on the energy
performance of buildings) had not been well transposed as the energy certification does
show effects on the market (impacting real estate prices). Legislation regarding energy
efficiency in the residential sector is seen as positive, however, there are deficits in the
implementation. A critical issue is also that no funding programmes exist to address
electricity efficiency in households.

Also in the service sector, according to the experts, electricity efficiency remains an
important challenge and more use should be made of contracting. In the industry sector,
there seems to be a lack of coherent policies and not many benefits are seen from the
ETS. Positive developments include existing funding programmes for energy audits as well
as the creation of local specialised networks of companies for energy efficiency.

In the transport sector, the dominance of cars and a lack of political will to act in this field
was reported, including the fact that still no general speed limits exists for motorways.
Critical issues observed include the energy labelling for cars ("favouring" larger cars) and
the investment focus on large, controversial projects (such as "Stuttgart 21"). Positive is a
rather well developed public transport and that a road charge for trucks was introduced.

Among specific instruments, energy audits (82 % partly or very effective) and qualification,
accreditation and certification schemes (71 % partly or very effective) are seen as the most
effective policy instruments.

Germany: degree of effectiveness of different policy instruments

White Certificates 12 18 3 67

Voluntary Agreements 44 48 8

Obligations for energy companies 23 41 8 28

not effective at all

Energy Audits 10 50 32 8 partly effective

very effective
Qualification, accreditation &
19 59 12 10
certification schemes unknown/ not implemented

EE Funds 11 34 27 28

Smart Metering 36 33 8 23

0% 20% 40% 60% 80% 100%

Survey Report: Progress in energy efficiency policies 42

Greece

According to the Greek experts, Greece is among the countries that has made medium
progress in energy efficiency policies since the first NEEAP (country progress indicator:
16 out of 27 - see page 81). Opinions among the experts are divided: about half see good
progress (a range or even many additional policies), the other half sees little or no
progress. 45 % believe that the energy savings target will not be achieved.

The experts observe that the economic crisis - with the related reduction in services and
industries as well as a need for cost reduction - leads to a decrease in energy
consumption. However, finding investors in the current climate is very diffult. Also, more
use is made of public transport. There is still a significant dependency on fossil fuels which
needs to be addressed by energy efficiency and renewable energy measures.

In the institutional framework for energy efficiency, CRES, the national energy agency, has
seen important budget cuts.

Greece: overall ambition of the Greece: progress of energy

energy efficiency policies efficiency policies in the last 3 years

8%
18% 18%
24%

24%

31% 33%

44%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Survey Report: Progress in energy efficiency policies 43

 Greece: achievement of national energy savings target

target will not be achieved

16%

3% target will be achieved but will not lead to a lot of

additional savings
45%
target will probably be achieved
18%
target will certainly be achieved

18% not aware of energy savings target

In the public sector, funding for demonstration projects exists, including educational
buildings and energy contracting. However, the survey showed that the public sector is
perceived as the most important gap in energy efficiency policies (44 % see this sector as
the largest gaps, compared to 15 % in the EU average).

Greece: the most important gap in energy efficiency policies

others/ comment 5%

energy sector 10%

transport sector 15%

industry & service sector 15%

public sector 45%

residential sector 10%

0% 5% 10% 15% 20% 25% 30% 35% 40% 45% 50%

Experts report that in the residential sector, strict regulations are in place for new buildings
which seems to be well received. Also a funding programme for building refurbishment
was set up.

The public transport sector has seen some incentives as well as the construction of bike
lanes.

Among specific energy efficiency policy instruments energy audits and energy efficiency
funds are seen as the most effective.

Survey Report: Progress in energy efficiency policies 44

 Greece: degree of effectiveness of different policy instruments

White Certificates 15 10 75

Voluntary Agreements 38 15 3 44

Obligations for energy companies 35 35 3 27

not effective at all

Energy Audits 26 56 5 13 partly effective

very effective
Qualification, accreditation &
28 44 3 25
certification schemes unknown/ not implemented

EE Funds 15 33 18 34

Smart Metering 21 20 8 51

0% 20% 40% 60% 80% 100%

Hungary

According to the Hungarian experts, Hungary is among the countries that has made
relatively little progress in energy efficiency policies since the first NEEAP (country
progress indicator: 20 out of 27 - see page 81). 38 % think that there was no or very little
progress in the last 3 years (together with Cyprus, the highest percentage among Member
States).

Experts comment positively on the explicit formal recognition of the importance of energy
efficiency in policy documents. However, too few actual policies in terms of legislation or
funding programmes are introduced. A lack of longer-term stable policies was observed
which would be necessary to attract investement. Concern was expressed on the
investment needs in the building sector and the lack of adequate funding schemes.

42 % believe that the energy savings target will be achieved but it will not lead to a lot of
additional savings.

In the institutional framework, experts observe a lack of communication and cooperation

between the national ministries as energy efficiency competencies are split among three
ministries.

Survey Report: Progress in energy efficiency policies 45

 Hungary: overall ambition of the Hungary: progress of energy
energy efficiency policies efficiency policies in the last 3 years

8%
25% 25% 8%

38%

46%
50%

generally, rather low no or very little progress

a few additional policies
ambitious in a few sectors, less so in most others
a range of additional policies
ambitious in a range of sectors, less so in a few others many additional policies

Hungary: achievement of national energy savings target

8% target will not be achieved

17% 33% target will be achieved but will not lead to a lot of
additional savings

target will probably be achieved

target will certainly be achieved

42%

In the public sector, according to the experts there is a lack of dedicated programmes and
data availability as well as some uncertainity on the regulatory environment. In the
residential sector, funds for an investment programme were reported to have been
depleted within a very short period and and so far, no new calls were made. Experts are
concerned about the lack of a longer term policy and financing framework. Also, current
construction standards were considered to be inadequate.

In the industry sector, the increases in energy prices seem to drive energy efficiency
investements.

The transport sector is seen as one of the most problematic sectors - according to the
interviewees due to the lack of respective policies and the challenges in modernising the
infrastructure for public transport.

Survey Report: Progress in energy efficiency policies 46

Schemes for qualificiation, accreditation and certicifaction (69 % partly or very effective),
energy efficiency funds (69 % partly or very effective) as well as energy audits (69 %
partly or very effective) are seen as the most effective instruments.

Hungary: degree of effectiveness of different policy instruments

White Certificates 8 15 77

Voluntary Agreements 31 69

Obligations for energy companies 33 34 8 25

not effective at all

Energy Audits 15 69 16 partly effective

very effective
Qualification, accreditation &
23 61 8 8
certification schemes unknown/ not implemented

EE Funds 69 31

Smart Metering 8 23 8 61

0% 20% 40% 60% 80% 100%

Ireland

Ireland is among the Member States that has made medium progress in energy efficiency
policies since the NEEAPs (country progress indicator: 11 out of 27 - see page 81). A
range of new policies initiatives was introduced. However, more than 60 % of the
interviewees believe that the energy savings target will not be achieved (this is among the
highest values of all Member States).

Significant progress is reported in building legislation and car taxation. Critical issues
include the lack of binding targets, of financing and of sufficient analysis to guide policy
making. A need for improved dialogue between local and national government was stated.

Survey Report: Progress in energy efficiency policies 47

 Ireland: overall ambition of the Ireland: progress of energy
energy efficiency policies efficiency policies in the last 3 years

8%
23%
31%

31%

61%
8%
38%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others
a few additional policies
ambitious in a range of sectors, less so in a few others
generally, rather high a range of additional policies

Ireland: achievement of national energy savings target

38% target will not be achieved

target will probably be achieved

62%

Currently, the financial crises is affecting energy efficiency policy. The political focus on
energy efficiency seemed to be dwindling. Experts report budget cuts and that little
progress is made in developing and introducing financial instruments for energy savings
(50 % see no progress in this field which is among the lowest progress indicator of all EU
countries).

The budget reduction has also affected the capacity to support market development and to
implement and enforce laws.

However, the change in car taxation in 2008 is deemed to be a great success, also
compared to many other European countries. The new system has moved away from
assessing vehicles based on engine size to one that is based solely on the CO2 emissions
per kilometre. This provided a strong encouragement to people to buy smaller and more
efficient cars: between 2007 and 2011 the CO2 emission dropped from 164 g/km to
133 g/km.

Survey Report: Progress in energy efficiency policies 48

The feedback on the building sector gives a mixed picture: building regulations are
perceived to be much improved as is the building certification and rating. There is good
capacity in terms of professionals for renovation and other energy efficiency activities.
However, in the current economic, there is a risk that specialised companies go out of
business. The national retrofit programme for residential buildings was recently extended
also to commercial and public buildings. The programme is now switching from grant
scheme to supplier obligations. Concern was expressed by the experts whether the new
mechanism will deliver. For public buildings, experts missed a specific strategy as well as
dedicated funding.

In terms of specific policy instruments, energy audits are rated to be the most effective
(77% see them as partly or very effective), followed by energy efficiency funds.

Ireland: degree of effectiveness of different policy instruments

White Certificates 23 23 54

Voluntary Agreements 15 39 15 31

Obligations for energy companies 23 31 8 38

not effective at all

Energy Audits 8 69 8 15 partly effective

Qualification, accreditation & very effective

23 46 8 23
certification schemes unknown/ not implemented

EE Funds 8 54 8 30

Smart Metering 23 23 54

0% 20% 40% 60% 80% 100%

Italy

According to the Italian experts, Italy is the country that has made the least progress
among Member States since first NEEAP (country progress indicator: 27 out of 27 - see
page 81). More than 50 % consider the ambition of energy efficiency policy generally
rather low. According to the majority of the experts, only a few additional policies were
introduced. Nearly 50 % believe that the energy savings target will not be achieved.

Critical issues mentioned include the lack of mid- and long-term energy efficiency
strategies, the lack of political commitment and the manner European Directives are

Survey Report: Progress in energy efficiency policies 49

implemented. Positive developments mentioned include White Certificates, tax deductions
for energy efficiency measures and the Kyoto fund which provides low interest loans.

Italy: overall ambition of the energy Italy: progress of energy efficiency

efficiency policies policies in the last 3 years

7% 2%
5% 16%
30%

32% 56%

52%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Italy: achievement of national energy savings target

11% target will not be achieved

2%
target will be achieved but will not lead to a lot of
14% additional savings
47% target will probably be achieved

target will certainly be achieved

26%
not aware of energy savings target

In the public sector, many municipalities joined the Covenant of Mayors. In the residential
sector, there are several support instruments in place. Experts consider more attention
should be given to energy efficiency in the service sector.

ESCOs play an important role in the market due to the system of White Certificates.

In the transport sector, experts observe a lack of strategic planning as well as concrete
measures on national level. A range of municipalities are active in promoting sustainable
transport initiatives.

Survey Report: Progress in energy efficiency policies 50

Among specific energy policy instruments, qualification, accreditation and certification
schemes are seen as most effective. 57 % consider White Certificates at least as partly
effective (second most positive indicator of all countries).

Italy: degree of effectiveness of different policy instruments

White Certificates 22 48 9 21

Voluntary Agreements 34 34 2 30

Obligations for energy companies 25 42 5 28

not effective at all

Energy Audits 25 35 4 36 partly effective

very effective
Qualification, accreditation &
23 65 4 8 unknown/ not implemented
certification schemes

EE Funds 32 35 11 22

Smart Metering 30 13 4 53

0% 20% 40% 60% 80% 100%

Latvia

Latvia is among the Member States that has made medium progress in energy efficiency
policies since the NEEAPs (country progress indicator: 12 out of 27 - see page 81).
Opinions on the progress in energy efficiency are divided: more than 40 % consider the
progress as relatively good where nearly 60 % see only a bit or no progress.

And also more than 40 % of the interviewees believe that the energy savings target will not
be achieved.

The building sector is seen as the most critical sector in terms of energy efficiency policies,
especially funding of energy efficiency in the residential buildings and the quality of
building efficiency measures. Also, the implementation of the EPBD, the European
Buildings Directive, is reported to be very slow.

On the positive side, experts report that municipalities have become much more active in
energy efficiency and taken concrete actions. Awareness both among consumers and
stakeholders on energy efficiency issues has increased. Through various channels some
limited funds are available for energy efficiency measures.

Survey Report: Progress in energy efficiency policies 51

 Latvia: overall ambition of the Latvia: progress of energy efficiency
energy efficiency policies policies in the last 3 years

6%
18% 18%

35%
6%
35%

41%
41%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Latvia: achievement of national energy savings target

12% target will not be achieved

target will be achieved but will not lead to a lot of

19% 44% additional savings

target will probably be achieved

25% target will certainly be achieved

Experts report that in the residential sector, Latvia is faced with a high percentage of multi-
apartment buildings in need of refurbishment. As most apartments are owned by the
occupants, solid majorities among the owners are needed for positive decision to
implement energy efficiency measures, these are usually hard to come by.

Latvia has a highly centralised heating sector with high costs for district heating. Many
residential blocks have large unpaid bills. In Riga, for example, the district heating system
is owned by the city where the lack of the cash flow from the unpaid heating bills makes it
harder for the city to invest in efficiency.

In the service and industry sector, a lack of awareness on energy efficiency and the saving
potentials was reported. Energy management schemes are to be established, but the
process is seen as very slow.

Survey Report: Progress in energy efficiency policies 52

In the transport sector, modernising and optimising the systems is the main challenge.

Among specific policy measures, energy audits (88 % partly or very effective) are seen the
most effective policy instrument, followed by qualification, accreditation and certification
schemes (56 % partly or very effective).

Latvia: degree of effectiveness of different policy instruments

White Certificates 13 7 80

Voluntary Agreements 25 19 56

Obligations for energy companies 31 12 13 44

not effective at all

Energy Audits 6 75 13 6 partly effective

very effective
Qualification, accreditation &
25 50 6 19 unknown/ not implemented
certification schemes

EE Funds 25 31 13 31

Smart Metering 31 6 13 50

0% 20% 40% 60% 80% 100%

Lithuania

According to the Lithuanian experts, Lithuania is among the countries that has made
medium-to-low progress in energy efficiency policies since the first NEEAP (country
progress indicator: 18 out of 27 - see page 81). More than half of the experts think that
energy policies are only ambitious in a few sectors and less so in most others. 85 %
believe that no or only a few additional policies were introduced (third lowest indicator
among EU countries).

A main challenge to be overcome is the refurbishment of the wide-spread multi-family

buildings. The current renovation rate is seen as too low despite an existing programme.

Experts note that the national ministry - and in general public sector bodies - dealing with
energy efficiency suffer from a lack of staff capacities and that the role of the national
energy agency should be strengthened.

Survey Report: Progress in energy efficiency policies 53

 Lithuania: overall ambition of the Lithuania: progress of energy
energy efficiency policies efficiency policies in the last 3 years

15% 15% 15%

31%

16%

54% 54%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others
a few additional policies
ambitious in a range of sectors, less so in a few others
generally, rather high a range of additional policies

Lithuania: achievement of national energy savings target

target will not be achieved

15%
23%
target will be achieved but will not lead to a lot of
additional savings
target will probably be achieved
8%
target will certainly be achieved
8%
46%
not aware of energy savings target

In the public sector, structural funds are now used for renovation of public buildings.

The residential sector is considered as the field with the highest need to act. As in some of
the neighbouring countries, the majority of the population live in multi-family buildings
where the flats are owned by the occupants. Renovation measures require majorities
among owners which are hard to come by. Generally, experts see still an important lack of
awareness among households in energy efficiency.

So far, there are very few activities in relation to energy contracting and there are nearly
no ESCOs active in the industry and service sector.

Survey Report: Progress in energy efficiency policies 54

Experts report that in the transport sector, more bike lanes were constructed and also
public transport infrastructure was improved but that there is still not enough action to
support energy efficiency in transport.

Among specific policy instruments, energy audits (46 % partly or very effective), energy
efficiency funds (38 % partly or very effective) and smart metering (38 % partly effective)
are the policy instruments seen as the most effective.

Lithuania: degree of effectiveness of different policy instruments

White Certificates 23 8 69

Voluntary Agreements 23 23 54

Obligations for energy companies 38 23 39

not effective at all

Energy Audits 31 38 8 23 partly effective

very effective
Qualification, accreditation &
31 23 46 unknown/ not implemented
certification schemes

EE Funds 8 30 8 54

Smart Metering 23 38 39

0% 20% 40% 60% 80% 100%

Luxembourg

In the opinion of the Luxembourgish experts, Luxembourg is among the EU countries that
has made good progress in energy efficiency policies since the NEEAP 1 (country
progress indicator: 3 out of 27 - see page 81). More than 40 % believe that the ambition of
the energy policies is general rather high (second highest of all EU countries).

57 % of the experts say that a range or many of additional policies were introduced. Nearly
60 % think that national energy savings target will be achieved but that this will not lead to
a lot of additional savings.

Experts mentioned energy efficiency in existing buildings and transport as the most critical
issues. Positive developments included new building legislation based on the EPBD, the
European Directive on the energy performance of buildings.

Survey Report: Progress in energy efficiency policies 55

Myenergy was mentioned as an important actor to disseminate energy efficiency
information.

Lux: overall ambition of the energy Lux: progress of energy efficiency

efficiency policies policies in the last 3 years

14% 14% 14%

43% 14%

29%

43%

29%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Lux: achievement of national energy savings target

14%
target will not be achieved
29%

target will be achieved but will not lead to a lot of

additional savings

target will probably be achieved

57%

In the public sector, experts welcome the upcoming requirements to renovate public
buildings.

In the residential sector, the growth of the building stock represents a challenge. Both in
the residential and the service sector, the new legislation will drive energy efficiency in new
buildings.

Experts see very significant gaps in energy efficiency policies in the transport sector (the
third highest gap across sectors and countries). Increasing numbers of cars and low fuel
prices were mentioned.

Survey Report: Progress in energy efficiency policies 56

 Lux: the most important gap in energy efficiency policies

others/ comment 0%

energy sector 14%

transport sector 58%

industry & service sector 14%

public sector 14%

residential sector 0%

0% 10% 20% 30% 40% 50% 60%

In terms of specific energy efficiency policy instruments, the experts see 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).

Lux: degree of effectiveness of different policy instruments

White Certificates 43 57

Voluntary Agreements 50 33 17

Obligations for energy companies 29 43 28

not effective at all

Energy Audits 14 72 14 partly effective

very effective
Qualification, accreditation &
57 14 29
certification schemes unknown/ not implemented

EE Funds 57 43

Smart Metering 14 57 29

0% 20% 40% 60% 80% 100%

Survey Report: Progress in energy efficiency policies 57

Malta

According to the Maltese experts, Malta is among the countries where energy efficiency
policies progressed - by comparison with other countries and with previous periods - very
well since the first NEEAP (country progress indicator: 3 out of 27 - see page 81).

Nearly 60 % believe that energy efficiency policies are at least ambitious in a range of
sectors or generally high.

Especially in comparison of previous policy frameworks, progress is seen as significant

since the first NEEAP: 71 % see a range or even many new policies (highest indicator of
all countries). Opinions are divided on achieving the energy efficiency target.

Critical issues mentioned were energy efficiency in the building sector, including financing
but also the lack of information and skills across the value chain (owners, construction
companies etc.). The transport sector lacks infrastructure and awareness raising
measures.

On the positive side, the adoption of energy efficiency legislation (based in European
Directives) and new grant programmes, addressing different sectors, were mentioned.
Also increased energy prices were reported as having a positive impact on energy
efficiency.

Malta: overall ambition of the Malta: progress of energy efficiency

energy efficiency policies policies in the last 3 years

14%
29% 29%

43%

29%

28% 28%

generally, rather low

a few additional policies
ambitious in a few sectors, less so in most others
a range of additional policies
ambitious in a range of sectors, less so in a few others
generally, rather high many additional policies

Survey Report: Progress in energy efficiency policies 58

 Malta: achievement of national energy savings target

target will not be achieved

14%
29% target will be achieved but will not lead to a lot of
additional savings
target will probably be achieved
29%
target will certainly be achieved

28% not aware of energy savings target

In the public sector, experts see a lack of human resources for energy efficiency as well as
the lack of obligations to act on energy efficiency in this sector. According to the experts,
more energy audits in public building need to be carried out. However, increased action on
local level was reported, and a number of municipalities are developing Sustainable
Energy Actions Plans, based on their signature of the Covenant of Mayors.

In the residential sector, there are some limited grants available for energy efficiency
measures (including double glazing and roof insulation). Also in the service and industry
sector (important sectors include hotels and the electronic industry), some grants are
available through ERDF funding.

In the transport sector, the old buses were replaced by new and more efficient ones. Also
there is a programme for promoting electric cars, however, according the experts, the
market is still very small.

In terms of specific energy efficiency policy instruments, the Maltese experts have - by
comparison to other countries - a rather positive attitude: 71 % consider energy efficiency
funds at least as partly effective, 66 % consider qualification, accreditation & certification at
least as partly effective and 57 % consider smart metering at least as partly effective.

Survey Report: Progress in energy efficiency policies 59

 Malta: degree of effectiveness of different policy instruments

White Certificates 100

Voluntary Agreements 14 14 72

Obligations for energy companies 14 43 43

not effective at all

Energy Audits 86 14 partly effective

very effective
Qualification, accreditation &
17 33 33 17 unknown/ not implemented
certification schemes

EE Funds 14 57 29

Smart Metering 14 29 29 28

0% 20% 40% 60% 80% 100%

The Netherlands

The Dutch experts rank the progress in energy efficiency policies as rather slow since the
first NEEAP (country progress indicator: 24 out of 27 - see page 81). 28 % of the
interviewees think that no or very little progress was made, 55 % say that only a few
additional policies were introduced. Nearly 60 % believe that the national energy savings
target will not be achieved.

The lack of ambition and enthusiasm of energy efficiency policies, of stable investment
climate due to frequent changes and of funding programmes for building renovation are
among the reported cirtical issues. Positive developments include an increase in fuel taxes
which creates better economies for energy savings as well as more private initiatives for
energy efficiency, also on regional level.

Concern was expressed over significant budget and staff reduction of the national energy
agency which lead to discontinuation of a range of services.

Survey Report: Progress in energy efficiency policies 60

 NL: overall ambition of the energy NL: progress of energy efficiency
efficiency policies policies in the last 3 years

18% 17%
28%

12% 47%

23% 55%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others
a few additional policies
ambitious in a range of sectors, less so in a few others
generally, rather high a range of additional policies

NL: achievement of national energy savings target

10%
target will not be achieved

target will be achieved but will not lead to a lot of

32% additional savings
58%
target will probably be achieved

In the public sector, the experts observe a lack of ambition in the policies. However, the
standards for new public building are considered to be ambitious and progress is reported
on ESCO initiatives as well as a funding programme for local climate protection
programmes (however, future funding for this programme seems unsure).

In the opinion of the experts, in the residential sector, the implementation measures of the
(first) EPBD (the Directive 2010/31/EU on the energy performance of buildings) are in
place but have yet to show an impact, implementation could also be more ambitious.
Positive expectations were expressed regarding a new legislation in the social housing
field which may help to overcome the "user/investor" challenge (investor does not profit
from energy savings after a renovation but the user).

Survey Report: Progress in energy efficiency policies 61

In the industry and service sector, not many incentives for energy efficiency are in
existence according to the experts. However, a long-term agreement until 2020 between
the government and the industry sector exists.

Experts report that lower taxes for cleaner vehicles exist, a well-developed public transport
system, well-established bike lane systems and good interconnections between transport
modes. However, recently the speed limit for motorways was increased from 120 to 130
km/h.

Among specific energy policy instruments, the Dutch experts rate the progress in public
procurement relativly higher than in other countries: 94 % see at least some or significant
progress in EE in public procurement (second highest prorgress indicator among the EU
countries).

Among specific policy instruments, the Dutch experts see energy voluntary agreements
and energy audits as the most effective (respectively 79 % and 72 % see them as very or
partly effective), smart metering is either unknown or considered as not implemented.

NL: degree of effectiveness of different policy instruments

White Certificates 55 90

Voluntary Agreements 11 58 21 10

Obligations for energy companies 11 16 5 68

not effective at all

Energy Audits 11 61 11 17 partly effective

very effective
Qualification, accreditation &
11 39 50
certification schemes unknown/ not implemented

EE Funds 11 55 6 28

Smart Metering 39 61

0% 20% 40% 60% 80% 100%

Survey Report: Progress in energy efficiency policies 62

Poland

The Polish experts rank the progress in energy efficiency policies as relatively low since
the first NEEAP (country progress indicator: 21 out of 27 - see page 81).

85 % of the interviewees see that the overall ambition in energy efficiency policies as
either generally low or only ambitious in a few sectors. 76 % state that only a few
additional policies were introduced or that no progress was made.

A main concern expressed by the experts relates to the delay in legislation, especially the
adoption of the energy efficiency law which would introduce White Certificates. Also, the
lack of awareness and energy efficiency action among companies was critically
mentioned. Experts comment negatively on the lack of a national energy agency with a
mission to strategically support the national government in energy efficiency policies.

On the positive side, experts noted that energy efficiency is now recognised as an
important issue in policy documents, especially thanks to European Directives. Also the
adoption of the Energy Efficiency Act and the creation of related grant programmes were
seen positively.

Poland: overall ambition of the Poland: progress of energy efficiency

energy efficiency policies policies in the last 3 years

5% 5%
10% 14%
19%
40%

45%
62%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Survey Report: Progress in energy efficiency policies 63

 Poland: achievement of national energy savings target

5% target will not be achieved

28% target will be achieved but will not lead to a lot of

28% additional savings
target will probably be achieved

target will certainly be achieved

not aware of energy savings target

39%

In the public sector, 62 % see no progress in energy efficiency in public procurement (the
lowest value of all EU countries).

In the residential sector, a programme for funding renovation is available and expected to
continue. According to the experts, the impact of the energy performance certification is
lower than expected.

In the industry and service sector, funding programmes exist, however, the increasing
energy costs are seen as the main driver for energy efficiency. Energy efficiency in
transport is not receiving sufficient policy attention, according the experts the focus in the
road transport.

The experts state that at the moment, an energy efficiency contracting market does not
exist. However, a dialogue has been started to change regulations and facilitate the
market entry of ESCOs.

Tthe Polish experts regard the lack of legislation and its implementation as by the greatest
barrier to energy efficiency (and not financing).

Poland: the greatest barrier to energy efficiency

others/ comment 24%

information & awareness levels of end-user groups 14%

lack of legislation or its implementation 43%

financing of EE investment 19%

0% 5% 10% 15% 20% 25% 30% 35% 40% 45%

Survey Report: Progress in energy efficiency policies 64

Looking at a range of energy efficiency policy instruments, the Polish energy experts rate
energy audits and energy efficiency funds as the most effective (respectively 77 % and
64 % see them as very or partly effective). They seem to have less trust in voluntary
agreements.

Poland: degree of effectiveness of different policy instruments

White Certificates 14 14 72

Voluntary Agreements 35 15 50

Obligations for energy companies 14 48 5 33 not effective at all

Energy Audits 14 63 14 9 partly effective

Qualification, accreditation & very effective

29 33 14 24
certification schemes unknown/ not implemented
EE Funds 18 55 9 18

Smart Metering 23 5 72

0% 20% 40% 60% 80% 100%

Portugal

According to the Portuguese experts, Portugal is among the countries where energy
efficiency policies progressed comparatively well since the first NEEAP (country progress
indicator: 6 out of 27 - see page 81). They see a relatively high overall ambition of energy
efficiency policies as 62 % consider it at least ambitious in a range of sectors (third
highest indicator of all countries).

The interviewees were divided regarding the introduction of new policies: 52 % saw a
range or many additional policies, 48 % only a few or no additional policies. Accordingly,
opinons also differ on the achievement of the energy savings target: about a third thinks
that the target will certainly or probably be achieved, and another third believes that the
target will not be achieved.

Most critical issues mentioned include the lack of funding, especially in the face of the
financial crises. Also, an ESCO market has not yet developed.

On the postive side, experts report the implementation of the (first) EPBD (the Directive
2010/31/EU on the energy performance of buildings) and an upcoming new legislative
framework for ESCOs.

Survey Report: Progress in energy efficiency policies 65

The active role of the national energy agency Adene in energy efficiency programmes was
mentioned.

Portugal: overall ambition of the Portugal: progress of energy

energy efficiency policies efficiency policies in the last 3 years

9% 10%
19%
33%

29%
38%

33%

29%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Portugal: achievement of national energy savings target

5% target will not be achieved

5%

32% target will be achieved but will not lead to a lot of

additional savings
26% target will probably be achieved

target will certainly be achieved

not aware of energy savings target

32%

In the public sector, the lack of funding is particularely challenging. Also, the complexity of
organisational structures is reported as a barrier.

In the residential sector, experts observe the removal of the financial incentives for energy
efficiency.

In the industrial sector, a programme for the energy-intensive industry exists which obliges
companies to draw up energy efficiency plans.

In the transport sector, local initiatives to promote electric cars were described by the
experts.

Survey Report: Progress in energy efficiency policies 66

Energy audits (83 % partly or very effective), qualification, accreditation and certification
schemes (68 % partly or very effective) and smart metering (58 % partly or very effective)
are considered to be the most effective among specific energy efficiency policy
instruments.

Portugal: degree of effectiveness of different policy instruments

White Certificates 16 84

Voluntary Agreements 26 42 32

Obligations for energy companies 5 37 11 47

not effective at all

Energy Audits 11 72 11 6 partly effective

very effective
Qualification, accreditation &
21 63 5 11 unknown/ not implemented
certification schemes

EE Funds 37 26 5 32

Smart Metering 21 53 5 21

0% 20% 40% 60% 80% 100%

Romania

According to the Romanian experts, Romania is among the countries that has made
relatively little progress in energy efficiency policies since the first NEEAP (country
progress indicator: 23 out of 27 - see page 81).

They consider the ambition of the energy efficiency policies to be relatively low - 70 %
think it is only ambitious in a few sectors or generally rather low. More than half think that
only a few additional policies were introduced since the first NEEAP. And similarly, over
50 % believe that the energy savings target will not be achieved.

The most critical issue - according to the experts - is funding energy efficiency measures.
Also the lack of staff capacity in the public sector and the changes in the institutional
framework are considered as a challenge.

On the positive side, relevant EU legislation was transposed, providing a legislative

framework and also some funding mechanisms are available.

Survey Report: Progress in energy efficiency policies 67

 Romania: overall ambition of the Romania: progress of energy
energy efficiency policies efficiency policies in the last 3 years

5%
21%
30% 26%
25%

40% 53%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others
a few additional policies
ambitious in a range of sectors, less so in a few others
generally, rather high a range of additional policies

Romania: achievement of national energy savings target

10% target will not be achieved

5%
target will be achieved but will not lead to a lot of
additional savings
19% target will probably be achieved
52%
target will certainly be achieved

14% not aware of energy savings target

In the public sector, there are very limited financial resources for investing in energy
efficiency and measures foreseen the legislation and action plans can not be implmented
due to lack of budgets.

In the residential sector, some financial programmes are available which include tax
reductions as well as financial suport for the renovation of multi-family buildings. In the
industry sector, experts report that there is a legal requirement for carrying out regular
energy audits.

In the transport sector, experts list some initiatives relating to energy efficiency, a main
challenge is public transport which is reported to have deteriorated.

Survey Report: Progress in energy efficiency policies 68

Among specific energy efficiency policy instruments, energy audits (57 % partly or very
effective) and qualification, accreditation and certification schemes (52 % partly or very
effective) are seen as the most effective ones.

Romania: degree of effectiveness of different policy instruments

White Certificates 26 21 5 48

Voluntary Agreements 26 21 5 48

Obligations for energy companies 25 35 10 30

not effective at all

Energy Audits 24 52 5 19 partly effective

very effective
Qualification, accreditation &
10 47 5 38
certification schemes unknown/ not implemented

EE Funds 28 24 24 24

Smart Metering 25 15 25 35

0% 20% 40% 60% 80% 100%

Slovak Republic

According to the Slovak experts, the Slovak Republic is among the countries that has
made relatively little progress in energy efficiency policies since the first NEEAP (country
progress indicator: 26 out of 27 - see page 81). They consider the ambition of the energy
efficiency policies to be rather low (second lowest indicator of all countries). According to
the experts, only a few additional policies were introduced. More than 40 % believe that
the energy savings target will not be achieved.

Critical issues mentioned by the experts include financing und public funding of energy
efficiency, the lack of data on energy efficiency potentials and the resource challenges for
a small country to meet all its EU obligations.

Positive aspects include the adoption of key legislation, especially in relation to the
European Buildings Directive and a positive change in attitude towards energy efficiency
on policy level.

A lack of staff and financial resources within the institutions on energy efficiency issues
was observed.

Survey Report: Progress in energy efficiency policies 69

 Slovak Rep.: overall ambition of the Slovak Rep.: progress of energy
energy efficiency policies efficiency policies in the last 3 years

8% 8%
15%

38% 54%

77%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Slovak Rep. : achievement of national energy savings target

7% target will not be achieved

14% target will be achieved but will not lead to a lot of

additional savings
43%
target will probably be achieved

target will certainly be achieved

36%
not aware of energy savings target

In the public sector, procurement was mentioned by the experts as a key field with needs
for improvements. Also compared to other Member States, relatively little progress was
made in this field.

Survey Report: Progress in energy efficiency policies 70

 Slovak Rep.: degree of improvement in actual implementation

availability of EE information 14 57 22 7

financial instruments 23 69 8 no progress

some progress
significant progress
conditions for EE services 29 64 7
very high progress

EE in public procurement 57 36 7

0% 20% 40% 60% 80% 100%

In the residential sector, a fund is available for the renovation of apartment buildings, with
a focus on low cost solutions.

In the industry sector, energy audits are mandatory for companies above a certain
consumption threshold.

Energy audits (72 % partly or very effective) are perceived as the most effective among
specific energy policies instruments.

Slovak Rep. : degree of effectiveness of different policy instruments

White Certificates 8 31 61

Voluntary Agreements 15 31 8 46

Obligations for energy companies 23 46 31

not effective at all

Energy Audits 14 50 22 14 partly effective

very effective
Qualification, accreditation &
23 23 23 31 unknown/ not implemented
certification schemes

EE Funds 15 23 23 39

Smart Metering 8 25 67

0% 20% 40% 60% 80% 100%

Survey Report: Progress in energy efficiency policies 71

Slovenia

According to the Slovene experts, Slovenia is among the countries where energy
efficiency policies progressed comparatively well since the first NEEAP (country progress
indicator: 7 out of 27 - see see page 81).

They see a relatively high overall ambition of energy efficiency policies - 67 % consider it
at least ambitious in a range of sectors. The same percentage believes that a range or
many additional energy were introduced in the last years.

However, more than 40 % believe that the national energy savings target will not be
achieved.

According to the experts critical issues include the building certification and in general a
slow implementation of the (first) EPBD. Generally, the experts see a lack of strategic
approach to energy efficiency sectors on national level.

Experts mention the introduction of a new fund for energy efficiency as a positive
development and also that more business actors are getting involved in energy efficiency
issues.

Slovenia: overall ambition of the Slovenia: progress of energy

energy efficiency policies efficiency policies in the last 3 years

8% 8%
17%

33%
25%

59%
50%

generally, rather low a few additional policies

ambitious in a few sectors, less so in most others
a range of additional policies
ambitious in a range of sectors, less so in a few others
generally, rather high many additional policies

Survey Report: Progress in energy efficiency policies 72

 Slovenia: achievement of national energy savings target

8% target will not be achieved

target will be achieved but will not lead to a lot of

17%
42% additional savings
target will probably be achieved

target will certainly be achieved

33% not aware of energy savings target

In the public sector, experts mention that obligatory energy bookkeeping is now mandatory
but not yet widely implemented. Fragmentation of responsibilities among ministries are a
challenge. There are initiatives for green procurements but more could be done.

In the residential sector, the implementation of the (first) EPBD (the Directive 2010/31/EU
on the energy performance of buildings) has been very slow according to the experts.

In the industrial sector, some energy management systems were introduced.

According the experts, the public transport system is not in good shape and there is a lack
of policy in this field. Some initiatives to promote electric cars are implemented.

Among specific energy policy instruments, energy efficiency funds are seen as most
effective (most positive indicator of all countries with 100 % seeing them as partly or very
effective), followed by energy audits (84 % partly or very effective).

Slovenia: degree of effectiveness of different policy instruments

White Certificates 10 90

Voluntary Agreements 9 45 46

Obligations for energy companies 9 64 9 18

not effective at all

Energy Audits 8 67 17 8 partly effective

very effective
Qualification, accreditation &
27 36 9 28 unknown/ not implemented
certification schemes

EE Funds 50 50

Smart Metering 37 27 18 18

0% 20% 40% 60% 80% 100%

Survey Report: Progress in energy efficiency policies 73

Spain

Spain is among the Member States that - according to the experts - has made medium
progress in energy efficiency policies since the first NEEAPs (country progress indicator:
15 out of 27 - see page 81). Opinions on the level of overall ambition in energy efficiency
policies are divided: more than 40 % think it is ambitious in a range of sectors or even
generally rather high whereas more than 50 % believe only ambitious in a few sectors or
generally rather low.

Nearly 60 % see only a few additional policies in the last years or even no or very little
progress. 44 % believe that the energy savings target will not be achieved.

Main challenges mentioned by the experts include the lack of funding for energy efficiency
investments and for awareness raising and promotion. Positive developments mentioned
include the development of the ESCO market.

Spain: overall ambition of the Spain: progress of energy efficiency

energy efficiency policies policies in the last 3 years

10% 14% 17%

33%

33% 28%

41%
24%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Survey Report: Progress in energy efficiency policies 74

 Spain: achievement of national energy savings target

target will not be achieved

11%

target will be achieved but will not lead to a lot of

19% additional savings
44% target will probably be achieved

target will certainly be achieved

26% not aware of energy savings target

In the public sector, programmes to renovate public buildings and street lighting, also
involving ESCOs, in some regions and municipalities were positively mentioned. Clearly,
there are financial constraints in the public sectors and also the need for more specialised
staff was observed.

In the residential sector, there are some national funds to promote energy efficiency. In the
service and industry sector, there are energy audit programmes.

In the transport sector, experts still observe a rather high use of public transports by the
population but also the need for infrastructure investments.

In terms of specific energy efficiency policy instruments, energy audits and energy
efficiency funds are seen as the most effective policy instruments. 45 % consider voluntary
agreements as not effective (third most negative indicator of all countries)

Spain: degree of effectiveness of different policy instruments

White Certificates 10 28 62

Voluntary Agreements 45 35 3 17

Obligations for energy companies 18 32 25 25

not effective at all

Energy Audits 23 57 10 10 partly effective

very effective
Qualification, accreditation &
21 45 7 27
certification schemes unknown/ not implemented

EE Funds 23 47 13 17

Smart Metering 25 32 7 36

0% 20% 40% 60% 80% 100%

Survey Report: Progress in energy efficiency policies 75

Sweden

According to the Swedish experts, Sweden is among the countries where energy efficiency
policies has seen good-to-medium progress since the first NEEAP (country progress
indicator: 9 out of 27 - see page 81). They see a relatively high overall ambition of energy
efficiency policies as - 59 % consider it at least ambitious in a range of sectors or generally
as rather high.

In terms of progress in the last 3 years, nearly 60 % say that only a few additional policies
were introduced or no or very little progress was made. Opinions are also diveded on the
energy savings target: around 30 % think that the energy savings targets will certainly or
probably be achieved and 38 % state that the target will not be achieved.

Critical issues observed by the experts include the lack of political will for more ambitious
and proactive energy efficiency policies. Experts see a lack of understanding of the
economic benefits of energy efficiency and a too strong belief in market forces alone.
Concerns were also expressed on the lack of ambition in energy efficiency in buildings
(e.g. in the national definition of "Nearly Zero Energy Buildings").

Positive developments observed include an increased commitment and activities by local

and regional actors. Also a number of permanent "buyer groups" - professional networks
in the field of buildings and industry - have been very successful in paving the way for
deployment of new technologies and solutions.

Sweden: overall ambition of the Sweden: progress of energy

energy efficiency policies efficiency policies in the last 3 years

9% 6% 9%
27%

35%
32%

50%

32%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

Survey Report: Progress in energy efficiency policies 76

 Sweden: achievement of national energy savings target

3%3% target will not be achieved

target will be achieved but will not lead to a lot of

28% 38% additional savings
target will probably be achieved

target will certainly be achieved

not aware of energy savings target

28%

The public sector should be a trend setter for new solutions - from the point of view of the
experts, activities on the national sector could be significantly more ambitious.

In the residential sector, according to the experts, legal requirements are insufficient and -
again - the positive impacts of improved energy efficiency are not sufficiently understood
by the actors in this field and therefore not taken into account.

The industry and service sectors, the PFE programme (a programme for increasing energy
efficiency in energy intensive industry) was perceived to be a success by the experts but
they mentioned that its scope was too limited and that it is also expected to be terminated.
Especially in the service sector, energy consumption was reported to have increased
significantly.

In the transport sector, like in many other European countries, the experts observe a
tradition of large and heavy cars and not enough investments in public transport.

In terms of specific energy efficiency policy instruments, voluntary agreements (highest

indicator among member states - 85 % see them as partly or very effective) and energy
audits (84 % partly or very effective) are seen most positively.

Survey Report: Progress in energy efficiency policies 77

 Sweden: degree of effectiveness of different policy instruments

White Certificates 9 12 79

Voluntary Agreements 9 66 19 6

Obligations for energy companies 9 50 9 32

not effective at all

Energy Audits 9 78 6 7 partly effective

very effective
Qualification, accreditation &
18 58 3 21
certification schemes unknown/ not implemented

EE Funds 6 38 6 50

Smart Metering 18 47 12 23

0% 20% 40% 60% 80% 100%

United Kingdom

The UK is among the Member States that has made medium progress in energy efficiency
policies since the first NEEAPs (country progress indicator: 13 out of 27 - see page 81).
Opinions on the ambition of the energy efficiency policy are divided: about half see an
ambition in at least a range of sectors or that it is generally rather high, whereas the other
half believes that the ambition is limited to a few sectors, or in general rather low. Around
70 % think that only a few additional policies were introduced or no or very little progress
was made. And nearly 50 % believe that the energy efficiency target will not be achieved
(second lowest indicator of all countries).

Critical issues reported include an ageing housing stock with low renovation rates as well
as a lack of awareness raising activities, both for households and for SMEs. According to
the experts, effective programmes to advise end consumers and also businesses have
recently been reduced or abolished. Also they mention that the start of new programmes
and initiatives has been delayed in several instances, creating market uncertainties and
delays in investment decisions by end consumers and businesses.

There is significant concern among the experts about the planned "green deal" (the UK
government's energy efficiency initiative). They see a risk of failure, especially in terms of
making it practically work. However, there could be significant positive impacts, mainly by
bringing new players and financing to the market.

Survey Report: Progress in energy efficiency policies 78

 UK: overall ambition of the energy UK: progress of energy efficiency
efficiency policies policies in the last 3 years

12% 3% 9%
17%

28%

37%
34%
60%

generally, rather low no or very little progress

ambitious in a few sectors, less so in most others a few additional policies
ambitious in a range of sectors, less so in a few others a range of additional policies
generally, rather high many additional policies

UK: achievement of national energy savings target

target will not be achieved

15%

3% target will be achieved but will not lead to a lot of

additional savings
49% target will probably be achieved
21%
target will certainly be achieved

12% not aware of energy savings target

In the public sector, in previous years, local authorities were given performance targets.
Recently, these were redefined and are reported to be less ambitious than previously.

Experts see the largest energy efficiency potential in the residential sector. Financing
remains the major challenge, also because of the investor/user conflict. Fuel poverty is
also seen as a continued problem.

In the service and industry sector, a "carbon reduction commitment" programme for large
consumers was a driver in the past. The experts comment that the carbon related activities
are taking effect (ETS). However, no programmes exist for behavioural change in
companies and in general, there seems to be a lack of programmes for smaller SMEs.

Survey Report: Progress in energy efficiency policies 79

In the transport sector, a lack of a coherent policy was mentioned and that there was still
too much emphasis on cars and too less on improving public transport (e.g. rail transport is
seen as very expensive and there are no strategies to bring costs down). However, there
are some positive developments, such as the congestions charges, the reduction of car
parking spaces and well-working public transport systems in some cities. As in other
countries, experts mentioned the need to redesign the car label to better reflect
performance of the car in terms fuel consumption.

Among selected policy instruments, 86 % consider obligations for energy efficiency

companies at least as partly effective effective (second most positive indicator of all
countries). 45 % consider White Certificates at least as partly effective (third most positive
indicator of all countries).

UK: degree of effectiveness of different policy instruments

White Certificates 30 15 55

Voluntary Agreements 44 38 6 12

Obligations for energy companies 6 49 37 8

not effective at all

Energy Audits 12 76 3 9 partly effective

very effective
Qualification, accreditation &
15 56 9 20 unknown/ not implemented
certification schemes

EE Funds 17 54 6 23

Smart Metering 21 39 3 37

0% 20% 40% 60% 80% 100%

Survey Report: Progress in energy efficiency policies 80

Survey Results across Member States

Quantitative survey

Progress indicator

In order to compare the progress across countries and policy field, a "progress indicator"
was calculated from four relevant questions of the quantitative survey (see annex for the
questionnaire), namely question 1 (ambition of energy efficiency policies), question 2
(progress in the last 3 years), question 3 (national energy savings target) and question 5
(improvements in the "ESD focus areas" procurement, energy efficiency services, financial
instruments and energy efficiency information). The answers were weighted (the most
positive answer by 100, the least positive one by 0).

The ranking resulting from this calculation showed Finland, Denmark and Malta as the
three countries where energy efficiency policies progressed most since the first NEEAP
and Italy, the Slovak and the Czech Republic as those three where the least progress was
made.

Progress indicator

Austria 13 Latvia 12
Belgium 18 Lithuania 18
Bulgaria 16 Lux 3
Cyprus 22 Malta 3
Czech Rep. 25 NL 24
Denmark 2 Poland 21
Estonia 3 Portugal 6
Finland 1 Romania 23
France 10 Slovak Rep. 26
Germany 8 Slovenia 7
Greece 16 Spain 15
Hungary 20 Sweden 9
Ireland 11 UK 13
Italy 27

Survey Report: Progress in energy efficiency policies 81

Overall ambition

The first question of the survey intended to get an impression of the "energy efficiency
policy climate" in each country and a feeling of how the experts saw the general
aspirations of their country in energy efficiency policies.

A very varied picture presents itself: Combining those that see the ambition as either
"generally rather low" and those that see policies as "ambitious in a few sectors, less so in
most others", the following picture emerges: the Czech Republic, the Slovak Republic,
Italy, Cyprus and Poland are seen as the least ambitious by the experts from the
respective countries. On the other end, Denmark, Luxembourg and Finland are rated
highest by their country experts ("ambitious in a range of sectors" combined with
"generally, rather high ambition"). This mixed picture across Member States results in an
average across countries with 60 % with rather low levels of ambition and 40 % with higher
levels of ambition.

EU 27: overall ambition of the energy efficiency policies

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%
EU27
Austria
Belgium
Bulgaria
Cyprus
Czech…
Denmark
Estonia
Finland
France
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Lux
Malta
NL
Poland
Portugal
Romania
Slovak…
Slovenia
Spain
Sweden
UK

generally, rather low ambitious in a few sectors, less so in most others

ambitious in a range of sectors, less so in a few others generally, rather high

Survey Report: Progress in energy efficiency policies 82

Progress in the last 3 years

The second question focuses on the specific progress in the last 3 years (at the time when
the survey started, this was the timeframe since the first NEEAP period).

The highest values for "no or very little progress" combined with "a few additional policies"
are given by the experts from the Slovak Republic, the Czech Republic, Hungary and
Lithuania with values around 90 %. Experts from Italy and the Netherlands follow with
values of more than 80 %.

On the other hand, the experts from Estonia and Finland see the highest recent progress
(around 80 %), followed by Malta (71 %).

EU 27: progress of energy efficiency policies in the last 3 years

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%
EU27
Austria
Belgium
Bulgaria
Cyprus
Czech Rep.
Denmark
Estonia
Finland
France
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Lux
Malta
NL
Poland
Portugal
Romania
Slovak Rep.
Slovenia
Spain
Sweden
UK

no or very little progress a few additional policies

a range of additional policies many additional policies

Survey Report: Progress in energy efficiency policies 83

National energy savings targets

The next question relates to the national energy savings target foreseen in the ESD and
how the experts saw the performance of their respective country in achieving this target.

The most pessimistic were the experts from Ireland, the Netherlands and Romania (more
than 50 % think that their national target will not be achieved), followed by Austria, the UK
and Italy. The most optimistic were the Danish experts (80 % believe that their country will
probably or certainly achieve the energy savings target), followed by the Finish (67 %) and
the Estonian (55 %).

EU 27: achievement of national energy savings target

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

EU27
Austria
Belgium
Bulgaria
Cyprus
Czech Rep.
Denmark
Estonia
Finland
France
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Lux
Malta
NL
Poland
Portugal
Romania
Slovak Rep.
Slovenia
Spain
Sweden
UK

target will not be achieved

target will be achieved but will not lead to a lot of additional savings
target will probably be achieved
target will certainly be achieved
not aware of energy savings target

Survey Report: Progress in energy efficiency policies 84

Improvements in ESD focus areas

A group of questions focuses on the improvements in actual implementation in fields that

are treated with special attention in the ESD:

• energy efficiency in public procurement

• the conditions for energy efficiency services
• financial instruments for energy savings (e.g. energy performance contracting)
• the availability of energy efficiency information.

In the fields of public procurement, of conditions for energy efficiency services and of
financial instruments, the progress is seen as rather moderate. Also there are only very
limited differences between the three fields. The dominant answer is "some progress"
(average across EU Member States: 54 % for financial instruments, 60 % for conditions for
energy efficiency services and 61 % for procurement). Only a small number of experts - 12
% (procurement), 15 % (conditions for energy efficiency services) and 19 % (financial
instruments) - observed significant or high progress.

The availability of energy efficiency information clearly saw a better development: 43 %

observe significant or even very high progress.

EU 27: average degree of improvement

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

EE in public procurement

conditions for EE services

financial instruments

availability of EE information

no progress some progress significant progress very high progress

In public procurement, the countries with lowest level of progress reported are Poland
(62 % of the experts said that there was no progress in this field in their country in the last
3 year), the Slovak Republic (57 % "no progress") and the Czech Republic (45 % "no
progress). Interestingly, as a contrast, the Czech Republic is also among the countries
were comparatively the highest progress rates are reported in this field (27 % see
"significant progress"), only surpassed by the experts from Luxemburg (33 % "significant
or very high progress").

No progress in the conditions for energy efficiency services is seen by 48 % of the

Polish experts and by 46 % respectively of the Lithuanian and Hungarian expert. A positive

Survey Report: Progress in energy efficiency policies 85

development (significant or very high progress) is observed by 50 % in Luxembourg, by
33 % in Malta and by 30 % in Portugal.

50 % or more of the experts report that there was no progress in the implementation of
financial instruments for energy savings (e.g. energy performance contracting) in
Hungary, Lithuania and Ireland. On the other end of the spectrum, 57 % of the experts in
Malta see significant or very high progress, followed by Estonia (55 %) and France (37 %).

According to the experts, the availability of energy efficiency information was improved
most in Slovenia (67 % significant or very high progress), in Estonia (64 %), in Finland
(63 %) and in Portugal (62 %). No progress is stated by 33 % of the Bulgarian experts,
27 % of the Czech experts and 20 % of the Italian experts.

The detailed results per Member States are included in the annex.

Gaps in energy efficiency policies

Experts were also asked in which sector they saw the most important gap in the energy
efficiency policies in their respective countries. In the average across EU countries,
transport is in the lead (34 % see the largest gaps in this field), followed by the residential
sector with 24 %.

However, answers differ strongly across countries:

The largest gap is found in the transport sector in the Denmark and in Austria: 73 %
respectively 70 % see energy efficiency in transport as the most important policy gap. Also
high gaps in transports are reported from Luxembourg (57 %) and Portugal (52 %).
Comparatively high gaps in the residential sector are observed by the experts from
Lithuania (46 %) and Latvia (41 %). The Greek experts see the most important gap in the
public sector (44 %), the Estonian experts in the industry & service sector (40 %).

Survey Report: Progress in energy efficiency policies 86

 EU 27: most important gaps in energy efficiency policies
0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

EU27
Austria
Belgium
Bulgaria
Cyprus
Czech Rep.
Denmark
Estonia
Finland
France
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Lux
Malta
NL
Poland
Portugal
Romania
Slovak Rep.
Slovenia
Spain
Sweden
UK

residential sector public sector industry & service sector

transport sector energy sector others/ comment

Barriers to energy efficiency

Another question aimed to find out where the experts saw the greatest barrier to energy
efficiency in their countries.

Not surprisingly, across EU countries, 47 % see it in financing of energy efficiency

investment, followed by the lack of legislation or its implementation (28 %).

Financing is perceived as the highest barrier by the experts in the Czech Republic (80 %),
Portugal (76 %) and Slovenia (67 %). 54 % of the experts in Lithuania and 50 % in
Luxembourg see lack of legislation or its implementation as the greatest barrier.

Survey Report: Progress in energy efficiency policies 87

 EU 27: greatest barrier to energy efficiency
0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

EU27
Austria
Belgium
Bulgaria
Cyprus
Czech Rep.
Denmark
Estonia
Finland
France
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Lux
Malta
NL
Poland
Portugal
Romania
Slovak Rep.
Slovenia
Spain
Sweden
UK

financing of EE investment lack of legislation or its implementation

information & awareness levels of end-user groups others/ comment

Specific energy efficiency policy instruments

A set of questions relates to a range of specific energy efficiency policy instruments

mentioned in the ESD. They look at the perceptions of their effectiveness in the Member
States.

In overall terms, energy audits are the instruments with the highest acceptance - 74 % of
the experts agree that they are at least partly effective. White Certificates are the least
known or implemented instrument. 25 % of the experts consider voluntary agreements as
not effective in their countries.

Survey Report: Progress in energy efficiency policies 88

Across instruments, the Danish, the British and French experts show the most positive
attitude, whereas the Cypriot, the Lithuanian and the Hungarian show the least positive
opinions.

EU 27: degree of effectiveness of different policy instruments

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

White Certificates

Voluntary Agreements

Obligations for energy companies

Energy Audits

Qualification, accreditation & certification schemes

EE Funds

Smart Metering

not effective at all partly effective very effective unknown/ not implemented

According to the experts, "White Certificates" are not known or implemented in Malta
(100 % of the experts chose this answer), in Slovenia (90 %), in the Netherlands (89 %)
and in Bulgaria (89 %). 63 % of the French experts see them as partly or very effective,
57 % of the Italian experts and 45 % of the British experts.

Voluntary agreements are unknown or not implemented according to 69 % of the

Hungarian experts, 64 % of the Estonian and 63 % of the Cypriot experts. Opinions are
divided about the effectiveness of this instrument: whereas Austrian (53 %),
Luxembourgish (50 %) and Spanish experts (45 %) see it as "not effective at all", a large
majority finds it partly or very effective in Sweden (84 %), the Netherlands (79 %) and
Denmark (73 %).

Obligations for energy efficiency companies are least known or least implemented in
the Netherlands (68 %), in Portugal (47 %) and in Latvia (44 %). They are considered to
be not effective mostly by experts from Cyprus (38 %), Lithuania (38 %) and Hungary
(34 %). 100 % of the Danish experts consider them at least as partly effective, 86 % of the
British and 73 % of the Slovene experts.

Energy audits are in general well-known and implemented in most EU countries. They
are most popular in Denmark (93 % consider them at least partly effective), Austria (92 %)
and the Czech Republic (90 %) - all three countries have a long tradition of energy advice
programmes. Only in Cyprus, 50 % consider it an instrument which is not effective at all,
followed by Lithuania (31 %) and Belgium (31 %).

Qualification, accreditation & certification schemes (e.g. for energy service providers)
are least known or implemented in the Netherlands (50 %), in Lithuania (46 %) and

Survey Report: Progress in energy efficiency policies 89

Romania (38 %). They are not considered effective by 50 % of the Cypriot experts.
Experts in Estonia (82 %), in Austria (75 %) and in Denmark (73 %) consider them at least
partly as effective.

Energy efficiency funds are most popular among the Slovene experts - 100 % consider
them at least as partly effective. Also a very positive view is expressed by the Cypriot
(88 %) and the Czech experts (82 %). They are seen as not effective by 37 % of the
Portuguese, 32 % of the Italian and 29 % of the Romanian experts.

Smart metering is least known or implemented Cyprus (75 %), Poland (73 %) and the
Slovak Republic (67 %). It is not considered as effective by 39 % of the Dutch experts and
by 36 % respectively of the Estonian, German and Slovene experts.

Survey Report: Progress in energy efficiency policies 90

 LIKE DISLIKE

White Certificates France 63%

Italy 57%
UK 45%

Voluntary Agreements Sweden 84% Austria 53%

NL 79% Lux 50%
Denmark 73% Spain 45%

Obligations for energy Denmark 100% Cyprus 38%

companies
UK 86% Lithuania 38%
Slovenia 73% Hungary 33%

Energy Audits Denmark 93% Cyprus 50%

Austria 92% Lithuania 31%
Czech R. 90% Belgium 31%

Qualification, accreditation Estonia 82% Cyprus 50%

& certification
Austria 75%
(e.g. E Service Providers)
Denmark 73%

EE Funds Slovenia 100% Italy 32%

Cyprus 88% Portugal 37%
Czech R. 82% Romania 29%

Smart Metering Finland 80% NL 39%

Estonia 36%
Germany 36%
Slovenia 36%

Need to act on European level

The final set of questions aimed at assessing where the experts see the highest need to
act on European level:

The vast majority of the 655 energy efficiency experts call for strong regulatory measures
from the EU level: 87 % want to see "stricter minimum standards for buildings and
appliances", 85 % are in favour of "mandatory energy efficiency standards in public
procurements". 83 % support a "significant expansion of energy labelling for appliances
and equipment" and 81 % "stricter binding energy efficiency targets for the public sector".

Survey Report: Progress in energy efficiency policies 91

"Road charges for all roads" are the least popular measure (60 % are against it), followed
by "free public transport funded by revenues from road charges" (40 % rejection).

EU 27: measures which should be introduced on EU level

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

binding OVERALL national energy savings target

binding SECTORAL national energy savings target

European CO2 tax

European energy efficiency fund

more voluntary agreements with appliance & equipment industry

significant expansion of energy labeling for appliances &
equipment
stricter minimum standards for buildings & appliances

rapidly banning all inefficient products from the market

mandatory renovation of bad buildings funded by EU taxes

stringent maximum fuel consumption for cars

road charges for all roads

free public transport funded by road charges

extended obligations for energy companies to FUND E savings

extended obligations for energy companies to DELIVER E savings

mandatory energy managers for companies & public bodies

mandatory energy audits for industry & mandatory
implementation of cost-eff measures
stricter binding energy efficiency targets for the public sector

mandatory energy efficiency standards in public procurement

yes no don't know

Survey Report: Progress in energy efficiency policies 92

Qualitative survey: good practice examples

In the course of the interviews carried out, several interesting policy practice examples
emerged.

In Ireland, a change in car taxation in 2008 is deemed to be a success. The new system
has moved away from assessing vehicles based on engine size to one that is based solely
on the CO2 emissions per kilometre. This provided a strong encouragement to buy smaller
and more efficient cars: between 2007 and 2011 the CO2 emission dropped from 164 g/km
to 133 g/km.

In the Czech Republic, energy performance contracting is becoming more popular: good
projects have multiplied and now more than 150 projects have bee realised. The growing
number of projects has increased confidence in this instrument. The ESCOs have also
taken a very active role in promoting the instrument and have recently formed an
association.

Estonia has "earmarked" revenues of the sales of "unspent" JI quotas (AAUs) for energy
efficiency. Amounts in the order of several 100 million Euro are invested in building
programmes, in the residential and in the public sector. This included significant amounts
also from the Austrian government.

The German "KfW programme" provides funding from the national government for deep
renovation and construction of low energy buildings. In most cases, the owners/investors
are given long term, low interest loans supported with professional, independent energy
advice. Through its size (about 0.5 billion per year are spent) and the fact that it is well-
known, it has succeed in setting new standards.

The Swedish industrial efficiency programme successfully introduced energy management

schemes, those undertaking a set of measures get a modest rebate on the energy tax.
The comparatively small financial signal has unleashed investments that would have been
profitable but were not taken so far.

Austria has a long tradition of energy advice programmes funded by the regional
governments and managed by regional energy agencies. The advice is provided by
trained energy advisers and quality assurance measures are in place. The success of the
programmes also depends on the fact that the advisers are independent of the sales of
any product.

Survey Report: Progress in energy efficiency policies 93

Results from the network discussions

As a part of the Energy Efficiency Watch project, the partner networks Fedarene, Energy
Cities and ECEEE consulted their members and discussed progress in energy efficiency
policies (or the lack thereof) from the perspectives of their network members. They held
several discussion meetings at the occasion of their regular network meetings.

To complement this stakeholder consultation process, EUFORES collected views on

energy efficiency policies progress from a number of other relevant European energy
efficiency networks and associations. Representatives of 11 relevant European networks
(including building materials and equipment, social housing, CHP, appliances) and NGOs
were interviewed.

The following text summarises main issues raised in the discussions and the interviews.
Summaries of the four reports can be found in the annex.

The political and institutional framework for energy efficiency

Network members reported on an enormous disparity among Member States in the level
of the ambition of their energy efficiency policies. In some Member States, the recognition
of the economic, social, political and environmental benefits of energy efficiency drive
ambitious legislation and funding programmes whereas others just do the bare minimum
required by the European Directives (and sometimes not even that). Experts are
concerned by the fact that energy efficiency has not sufficiently managed to attract the
attention of the highest political levels in the same manner as renewable energy has done.

Especially in times of financial crises - which in many countries resulted in a reduction of

programmes for energy efficiency - it remains a key challenge to provide proof that energy
efficiency is not a burden on public finances but the opposite: a way to save money in
public buildings and a significant factor for job creation and tax income. The European
Union spends several hundred billion Euros every year to import fossil fuels - increased
energy efficiency will directly benefit the EU businesses and citizens by moving some of
this expenditure into European economy.

In many countries, the regional and local level is reported as a main driver of energy
efficiency - also because the benefits of energy efficiency are easier to communicate to
political decision makers locally and regionally. Across Europe, there is an increasing
number of regions and local authorities which are - often despite challenging economic
circumstances - willing to make energy efficiency a priority. This is also confirmed by the
increasing number of signatories of the Covenant of Mayors.

According to the experts, any successful energy efficiency policy will need to be built upon
multi-level governance which integrates the local, the regional, the national and the
European level.

Survey Report: Progress in energy efficiency policies 94

The important role of energy agencies on national, regional and local levels was
emphasised by many experts and in a range of countries. Where they exist, they were
mentioned (by non-agency experts) as key players. In many countries, experts regret the
insufficient numbers of regional and local energy agencies.

Another institutional challenge mentioned by a number of experts is that in many Member

States, regions and cities, but also on the European level, there is a shortage of staff
dealing with energy efficiency. This lack of staff often has an impact on the quality of
transposition of European Directives but even more so on monitoring compliance and
enforcement of the legislation.

On Member States level, but also regionally or locally, this is exacerbated by the fact that
the energy efficiency dossier is spread among several departments or ministries. Experts
mention that often it has been especially hard to interest finance ministries or departments
in the energy efficiency agenda.

Building renovation and how to finance it

One key issue raised by experts was the urgent need for extensive building renovation
across the European Union and the related issue of how to finance it. Most EU countries
have programmes in this field and a number of positive examples for building
refurbishment programmes were mentioned, including those using structural funds or
income generated from selling excess carbon quotas. However, it is becoming more and
more evident that these will not suffice to achieve significantly increased renovation rates.

Many experts believe that the positive economic impact of large-scale building
refurbishment is underestimated by political decision makers and call for a clear long-term
strategy. Such strategies should ensure a better continuity of funding programmes and
help to overcome the user/investor problem. Also, up-scaling of building refurbishment will
require new approaches in multi-level governance as well as a strong mobilisation of local
actors (authorities, building owners, banks, construction companies etc.).

The European Directives on energy performance of buildings

According to the network discussion, the (first) EPBD (Directive 2002/91/EC on the energy
performance of buildings) was considered as transposed to a large extent. On the positive
side, experts see increasingly stricter building standards for new buildings coming into
place in many countries, however, practical impacts on the real estate market and
increased refurbishment rates are not yet visible to the experts. There is strong debate
among experts about definitions of nearly zero energy buildings, following the (recast)
EPBD (Directive 2010/31/EU on the energy performance of buildings).

Survey Report: Progress in energy efficiency policies 95

European funding and financing programmes

Many experts in the networks welcome the increased priority given to sustainable energy
in structural funds. However, they see a high need for streamlining and simplifying
administrative requirements and decreasing their complexity.

They emphasise the continued need for European programmes to support tackling non-
technological barriers, especially in the building sector (such as the Intelligent Energy
Europe Programme).

Energy Performance Contracting

Only a few countries in Europe managed to develop a market for energy performance
contracting (EPC). In most countries, administrative and legal barriers as well as the lack
of information and quality assurance measures prevent its use in the public sector. The
need to act in this field was stressed in all networks. However, experts warn that EPC is
not the "silver bullet" for all energy efficiency investments but mostly for "low-hanging fruit"
(energy efficiency potentials with short pay-back periods).

Many other barriers than money

While recognising the importance of improved financing and funding, experts stress that
many other barriers to energy efficiency remain to be addressed - legal, institutional, in the
fields of information, awareness raising and training etc.

Experts are concerned that a simplistic approach - if an energy efficiency investment is

economic and access to capital is available, the investment will be made – will in many
cases fail due to other market barriers.

Transport

A very strong message was given by all networks regarding the lack of comprehensive
policies to promote energy efficiency in transport. Even though there are some positive
examples, including changes in car taxation in a few Member States, experts criticise the
absence of political will to act in this sector in many Member States. They see a lack of a
clear vision and strategy for the mobility sector across Europe.

The local level is of particular importance in promoting sustainable transport. There are a
number of local authorities which successfully demonstrate how changes in transport
patterns can be achieved but again, however, their number is limited. Of all end-use
sectors, experts see the highest gaps in energy efficiency policies in the transport field.

Survey Report: Progress in energy efficiency policies 96

Is efficient sufficient?

Experts raised the question whether increased efficiency is sufficient as improved energy
efficiency does not necessarily lead to a reduction in consumption. With larger homes,
larger TVs and more powerful cars, the energy consumption keeps increasing despite
improved technical efficiency. This is a very difficult issue as it touches upon the way of
living and consuming. Future political action in this field will need to start tackling it.

Survey Report: Progress in energy efficiency policies 97