EUROPEAN

COMMISSION

Brussels, 23.7.2014
COM(2014) 520 final

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN

PARLIAMENT AND THE COUNCIL
Energy Efficiency and its contribution to energy security and the 2030 Framework for
climate and energy policy
{SWD(2014) 255 final}
{SWD(2014) 256 final}

EN

EN

1. INTRODUCTION
The Commission recently presented a framework for climate and energy policies in the period
2020 to 20301. This framework proposes ambitious targets for greenhouse gas emissions
reduction and renewable energy as part of the Union's transition to a competitive low carbon
economy. It also promotes reduced energy dependency and more affordable energy for
business and consumers via a well-functioning internal market. The 2030 framework has
since been complemented by a more detailed analysis of the Union's energy security, taking
into account recent geopolitical events at the eastern border of the EU, together with a
strategy that proposes concrete actions to reduce energy dependency in the immediate future
and over the longer term2.
In line with the request of the European Council3, this Communication explains and quantifies
the contribution that energy efficiency could make to reducing greenhouse gas emissions and
to improving the Union's energy security which are both facets of an integrated framework for
climate and energy policy. In line with the Energy Efficiency Directive, the Communication
also reports on the outlook for attainment of the 20% target for energy efficiency in 2020.
Energy efficiency has a fundamental role to play in the transition towards a more competitive,
secure and sustainable energy system with an internal energy market at its core. While energy
powers our societies and economies, future growth must be driven with less energy and lower
costs. The EU can deliver this new paradigm. As the figure shows, well before the crisis hit in
2008, the EU had started to decouple economic growth from energy consumption through
increased energy efficiency. An increasing decoupling of economic growth and energy
consumption has continued since then, driven by price signals and by a comprehensive set of
energy efficiency policies (see figure).
Figure 1. Evolution of energy consumption and GDP in the EU 1995-2013

Source: Commission services based on EUROSTAT data

1
2
3

COM(2014) 15
COM(2014) 330
Conclusions of the meeting of the European Council 26-27 June 201, EUCO 79/14

2. PROSPECTS FOR MEETING THE 2020 TARGET

The current energy efficiency framework
An indicative target of 20% energy savings by 2020 has been established as the headline
target for energy efficiency4. Member States have set non-binding national energy efficiency
targets. These targets are supported by:

The Energy Efficiency Directive (EED)5;

The Energy Performance of Buildings Directive (EPBD)6;

Product regulations laying down minimum energy performance standards and putting
energy performance information on labels7;

CO2 performance standards for cars and vans8;

Increased financing through EU Structural and Investments (ESI) Funds, Horizon

2020, and dedicated facilities such as ELENA9 and the European Energy Efficiency
Fund;

The roll-out of smart meters following the Internal Electricity Market Directive10;

The EU Emissions Trading System (ETS)11.

A description of the implementation of the current legislation is given in Box 1.

Box 1: Implementation of key energy efficiency legislation state of play

4
5
6
7

8
9

10

11

The deadline for transposition into national law of the Energy Efficiency Directive has only recently
passed. Member States' 2014 Energy Efficiency Action Plans indicate strengthening of national energy
efficiency policies (see overview in Annex I).

The EED is incentivising changes in the business model of energy service companies. It requires
Member States to promote financing facilities for energy efficiency. In Germany, the publicly-owned
bank KfW provides preferential loans for energy efficiency retrofits of existing buildings and the
construction of new ones. Between 2006 and 2013, 2.8 million homes were retrofitted and 540,000
highly-efficient new homes were built.

In France, the new draft national law provides for numerous concrete actions, in particular for
buildings. Among the measures is a fiscal reduction of up to 30% of the cost of energy efficiency
renovations, from September 2014 onwards.

Financing mechanisms under the European Structural and Investment Funds are being diversified, with
greater use of financial instruments.

This equates to 1483 million tonnes of oil equivalent (Mtoe) in primary energy consumption in 2020
And its predecessors the CHP Directive (2004/8) and the Energy Services Directive (2006/32)
The Energy Performance of Buildings Directive 2010/31/EU
Notably the Ecodesign Directive 2009/125/EC and its implementing measures; the Energy Labelling
Directive 2010/30/EU and its implementing measures.
Regulation (EU) No 333/2014 and Regulation (EC) No 443/2009
European Local Energy Assistance programme managed by the European Investment Bank;
http://www.eib.org/products/elena/index
Directive 2009/72/EC concerning common rules for the internal market in electricity and repealing
Directive 2003/54/EC
Directive 2003/87/EC as amended by Directive 2009/29/EC and Decision No 1359/2013/EU

The number of Member States applying energy efficiency obligation schemes for utilities is expected to
rise from five to sixteen. In Poland, the relevant provisions of the EED will be entirely implemented
through such a system.

The EED promotes programmes to raise awareness among households about the benefits of energy
audits through appropriate advice services. In the UK a specialised department helps in designing
policies on the basis of research on how consumer decisions about energy efficiency can be stimulated
("behavioural economics").

Despite this good progress, only five Member States have so far notified full transposition of the EED.
The Commission has sent letters of formal notice to the others.

Implementation of the Energy Performance of Buildings Directive is also lagging behind despite the
transposition deadline of July 2012. At the moment, there are nine Member States that still have not
completed the transposition process. In four cases the Commission has initiated court proceedings.

Energy efficiency policies are delivering tangible results

As a result of energy efficiency measures, buildings are consuming less energy, inefficient
equipment is being phased out from the market and labels applied to household appliances
such as televisions and boilers have enabled consumers to make informed purchasing choices.
Public authorities, industry, SMEs and households are becoming more aware of energy-saving
possibilities. In transport CO2 performance requirements will reduce fleet average emissions
of new passenger cars by 40% by 2021 compared to 2007.
Placing these elements within a common EU framework has benefited from the scale of the
internal market and allowed national policy-makers to learn from each other. This European
framework complements national measures such as voluntary agreements, energy efficiency
obligations, financing schemes and information campaigns. Member States' progress in
energy efficiency is reviewed annually as part of the European semester.
The picture, both nationally and at EU level, therefore shows a growing momentum behind
energy efficiency policies and measures.
Further efforts are needed to reach the EU's energy saving target by 2020
Based on an analysis of Member State actions and additional forecasts, the Commission now
estimates that the EU will achieve energy savings of around 18-19% in 2020.12 It should be
noted that about one third of the progress towards the 2020 target will be due to the lower
than expected growth during the financial crisis. It is therefore important to avoid
complacency about reaching the 20% target and avoid underestimating the efforts that will be
required in respect of any new target for the period after 2020.
Given the wide benefits of energy efficiency, and the accumulating evidence that energy
efficiency policy works, it is essential to make the extra effort needed to ensure that the target
is met in full. Implementation of the EU legislative framework is still lagging behind (see
Annexes II and III). If all Member States now work equally hard to implement fully the
agreed legislation then the 20% target can be achieved without the need for additional
measures.

12

This means falling short of the 20% savings target by 20-40 Mtoe.

Efforts should be concentrated on the following elements:

-

Reassuring consumers of the quality of their buildings by strengthening local and

regional verification of national building codes and accurately informing consumers of
the energy performance of buildings for sale or rent13;

Fully implicating utilities in working with their customers to obtain energy savings14;

Strengthening market surveillance of the energy efficiency of products that needs to be

resourced in all Member States and that will ensure a level playing field for industry
and provide consumers with the information they need to make informed choices15.

3. ENERGY EFFICIENCY: ASSESSING THE POTENTIAL FOR 2030

A key objective of future climate and energy policy is to keep energy affordable for business,
industry and consumers. It follows that the 2030 framework, and the targets it contains, is
underpinned by the need to meet climate and energy objectives in the most cost-effective
manner. Such an approach requires that the Member States have flexibility in how they meet
their commitments, taking their national circumstances into account. On this basis, the
Commission has proposed binding targets to reduce greenhouse gas emissions by 40% in
2030 (relative to emissions in 1990) and for energy consumed to comprise of at least 27%
from renewable sources in 2030. These represent staging posts on the cost-effective pathway
to a competitive low-carbon economy in 2050.
As regards energy efficiency, the 2030 framework also indicated that the cost-effective
delivery of the greenhouse gas emissions reduction target for 2030 would require increased
energy savings of the order of 25%16. This document rests upon this premise and further
analyses the cost-effective potential for energy efficiency improvements and other benefits
that energy efficiency creates.
3.1.

EU competitiveness: growth, jobs and industry

Energy efficiency has an important role to play in augmenting jobs17 and growth, especially
by stimulating construction, the sector that is most capable of reacting quickly to underpin the
re-launch of the economy and that is not exposed to delocalisation.

13

13
14

15
16

17

The Commission estimates that an additional 15 Mtoe of savings by 2020 can be secured by these
actions. "Study evaluating the National Policy Measures and Methodologies to implement Article 7 of
the Energy Efficiency Directive", CE Delft, draft study commissioned by Commission services.
http://ec.europa.eu/energy/efficiency/eed/guidance_notes_en.htm
The Commission estimates that an additional 20 Mtoe of savings by 2020 can be secured by these
actions; see also http://ec.europa.eu/energy/efficiency/eed/guidance_notes_en.htm.
This should avoid the loss of at least 4 Mtoe of savings.
Assuming the same method to measure progress as is used currently for the 20% energy efficiency
target for 2020.
Communication on Green Employment Initiative: Tapping into the job creation potential of the green
economy COM(2014) 446 final.

In industry, energy efficiency policy aims at diminishing the amount of energy needed for the
same process or product it means doing the same or more with less without impeding
growth prospects. European businesses, in particular manufacturing industry, have already
contributed much to making Europe one of the most energy efficient regions in the world. In
this sector in particular, improving energy efficiency has often been an autonomous response
to price trends. For example, EU industry has historically used energy more efficiently than
its US counterpart and still improved its energy intensity by almost 19% between 2001 and
2011, compared with only 9% in the US18. Between 1990 and 2009 energy intensity in
industry in the EU27 improved by 30%19.
The regulatory framework to support these trends is in place, with the EU Emissions Trading
Scheme being the main tool to drive energy efficiency (and GHG reductions) in industry,
providing the necessary regulatory predictability. This will be increased by the ETS market
stability reserve which will make the system more robust against shocks.
The EU energy efficiency framework has proven to be a driver of innovation and economic
growth for European businesses. Energy efficiency has become a business opportunity
especially in construction (a sector dominated by SMEs). Energy efficiency spurs
competitiveness by creating markets for efficient, high value-added appliances and
decentralised energy management technologies. Increasing reliance on ICT across many of
the domains concerned is an opportunity for further efficiency gains providing that systems
and platforms are equipped with open standard interfaces allowing easy upgrading and further
innovation. As demand for energy efficient products increases globally, energy efficiency
policy also creates advantages in global growth markets for European products and
contributes to sustainable economic development.
New technologies in construction, manufacturing and transport have the potential to further
improve energy efficiency if successfully deployed at a large scale.
3.2. Buildings - lower energy bills for consumers
Energy efficiency improvements in buildings can save money for consumers. EU households
spend on average 6.4% of their disposable income on home-related energy use, about twothirds for heating and one-third for other purposes20. In 2012 almost 11% of the population of
the EU were unable to keep their homes adequately warm21. This is driven by rising energy
prices whose effect has however been mitigated by increased competition in the internal
energy market and by increased energy efficiency.
Following the introduction of efficiency requirements in building codes, new buildings today
consume only half as much as typical buildings from the 1980s. However, 64% of space
heaters, for example, are still inefficient, at best low-temperature models22, and 44% of

18

19

20
21
22

COM(2014) 21 Energy prices and costs in Europe, p. 12; SWD (2014) 19, Energy Economic
Developments in Europe, pp. 36 and 41.
European Environment Agency 2012, http://www.eea.europa.eu/data-and-maps/indicators/energyefficiency-and-energy-consumption.
"Energy prices and costs report", Commission staff working document, SWD(2014) 20 final/2.
Idem
European Heating Industry, data for 2012, EU28 excluding Cyprus, Luxembourg and Malta.

windows are still single glazed23. New efficiency and labelling standards for space and water
heaters will soon start to impact the market. For electricity, more efficient appliances are
expected to save consumers 100 billion annually by 2020 on their energy bills, equivalent to
465 per household.
Rights to more informative, transparent and frequent bills, and to take part in demand
response markets, give consumers the power to manage their energy consumption actively.
Creating a market for innovative energy services where investments in efficient appliances
and intelligent consumption and production pays off, should be the focus of Member States
when preparing for or facilitating the implementation of intelligent metering systems.
Building energy efficiency has been increasing at 1.4% per year24. This relatively limited rate
is due largely to low renovation rates. The Member States that had the most success in
reducing wasteful energy consumption combined stringent efficiency requirements for new
and renovated buildings with programmes aimed at renovating existing buildings25 .
To reap the benefits of energy efficiency in buildings, the biggest challenge is to accelerate
and finance upfront investments and speed up the renovation rate of the existing stock from
1.4% - todays average - to above 2% annually.
Part of the challenge is to implement this acceleration in a socially acceptable way. Side
effects which are harmful for the weaker parts of the society will need to be minimised and
ways of allowing all parts of society to benefit from investment in energy efficiency measures
will need to be explored. This requires putting in place the right financial instruments which
are accessible to all groups of consumers irrespective of their financial situation.
Reduced demand for fossil fuels will lead, in turn, to lower energy prices. According to one
estimate, every additional 1% in energy savings will lead to gas prices being about 0.4%
lower and oil prices about 0.1% lower in 203026.
3.3.

Energy efficient transport

Energy consumption in transport grew by 35% during 1990-2007, but has since witnessed a
decreasing trend. To date the most powerful tool to address it has been CO2 standards which
reduce greenhouse gas emissions and make cars and light vans more energy efficient27,
although other factors like high oil prices and slower growth in mobility have also contributed
to the 8% energy consumption drop between 2007 and 2012.
There are signs that the behaviour of transport users is changing. In some Member States, car
ownership is reaching saturation point; at an urban scale, there are a number of success stories
in encouraging a switch to more efficient forms of transport electric vehicles, public
transport, cycling and walking. The recently agreed Directive on the deployment of

23
24
25

26

27

Preparatory study under the Ecodesign Directive, VHK, draft results

"Energy Efficiency Trends in the EU", Odysee-Mure, 2011
For example, in Germany and Slovakia average energy consumption per dwelling fell by 50% since
1990.
POLES, "Quick analysis of the impact of energy efficiency policies on the international fuel prices",
Joint Research Centre, 2014
Emissions from new cars sold in 2013 fell to an average of 127 grams per kilometre, the target of
130g/km set for 2015 being met two years early.

alternative fuels infrastructure28 and the new "urban mobility package"29 will further support
this trend.
Other initiatives adopted by the Commission, following the 2011 White Paper on Transport30,
aim at encouraging the use of more energy efficient transport modes, through better quality
and more choice in railway services31, more investment in research and innovation in rail
transport32 and greater exploitation of inland waterways33.
To be fully effective, a gradual transformation of the entire transport system is required
towards greater integration between modes, innovation and deployment of alternative fuels,
and improved management of traffic flows through intelligent transport systems. These
should be accompanied by more efficient urban and land use policies at EU and Member
States level.
3.4.

Finding the right balance between costs and benefits

The European Council works towards agreeing targets for 2030 in October so that the Union
can play an active part in the ongoing international climate negotiations. The appropriate
contribution of energy efficiency to the 2030 framework must be based upon a thorough
consideration of the additional costs and benefits of going beyond the 25% energy savings
previously indicated by the Commission. Some key aspects of different options are shown in
table 1.

28
29
30
31
32
33

COM(2013) 18 final
COM(2013) 913 final
COM(2011) 144 final
Forth Railways Package, available at: http://ec.europa.eu/transport/modes/rail/packages/2013_en.htm
Shift2Rail, available at: http://ec.europa.eu/transport/modes/rail/news/shift-to-rail_en.htm
NAIADES II package, available at:
http://ec.europa.eu/transport/modes/inland/promotion/naiades2_en.htm

Table 1. Costs and benefits of a range of different energy efficiency targets34

More ambitious objective for energy efficiency (%)

REF2013
Baseline

GHG40
(40% GHG, 27%
RES, 25% EE)

EE27

EE28

EE29

EE30

EE35

EE40

Energy Savings in 2030

(evaluated against the 2007
Baseline projections for
Primary
Energy
Consumption)

21.0%

25.1%

27.4%

28.3%

29.3%

30.7%

35.0%

39.8%

Primary
Energy
consumption
in
2030
(Mtoe)
[Gross
Inland
Energy
Consumption
excluding non-energy use]

1490

1413

1369

1352

1333

1307

1227

1135

Energy systems costs

without effect of energy
efficiency on non-financial
costs35
(average annual 2011-2030
in bn '10)

2067

2069

2069

2074

2082

2089

2124

2181

Investment Expenditures
(average annual 2011-2030
in bn '10)36

816

854

851

868

886

905

992

1147

320

276

267

256

248

237

204

184

Net gas imports in 2030 (in

34

Table 1 is based on the latest analysis available.

The concept of energy system costs includes broadly two elements: capital costs and energy purchases. The capital costs can be split into three main elements: (i) the cash cost of investing in energy efficiency; (ii)
the cost of obtaining finance for that purpose; and (iii) the non-financial costs attributed to the barriers that consumers face, such as the effort needed to obtain information about efficient buildings or products. Energy
efficiency policies target these barriers and so bring down their cost.
36
Although GHG40 is less costly than EE27 over 2011-2030 in terms of total energy system costs by 0.5 bn (2068.5 vs 2069 bn ), it does present slightly higher investments expenditures. This is mainly due to the
lower ambition of EE27 in terms of GHGs reductions (-40.6% vs -40.1%) and the introduction of some low-cost EE policies for dismantling non-market barriers (that do exist in GHG40) and reaping the relevant EE
potential available in EU.
35

bcm)37
Fossil fuel imports costs
(average annual 2011-2030
in bn '10)
Employment
in
(million Persons)
Average Price of
Electricity in 2030
(/MWh)

37
38

2030

461

231.74

176

452

n.a.

38

179

447

446

444

441

436

434

n.a.

232.39

n.a.

232.53

233.16

235.21

180

179

178

178

177

182

As PRIMES output is in Mtoe, a conversion factor of 0.90567 was used (ref: IEA).
For employment fewer scenarios were modelled since preliminary analysis showed that the results for instance for EE27 and EE 28 were very similar. Only EE28, EE30, EE35 and EE40 were therefore modelled.

10

A 25% energy savings target is estimated to increase the annual average cost of the energy
system from 2067 billion to 2069 billion per annum (2011-2030), i.e. by approximately 2
billion per annum, or 0.09%. The substantial energy system costs that Member States will
incur are part of the ongoing renewal of an aging energy system39. With 25% energy savings,
the 2030 framework would already deliver substantial improvements in the Union's energy
dependency, representing a 9 billion saving per annum in fossil fuel imports (2% less) and a
13% reduction in gas imports (ca. 44 billion cubic metres) compared to current trends and
policies.
A target of 40% energy savings called for by the European Parliament would have a valuable
impact on energy dependency, reducing, in particular, gas imports. These benefits in terms of
energy security would, however, come with a hefty increase in overall energy system costs
increasing from 2069 to 2181bn per annum, i.e. by approximately 112 bn annually in the
period 2011 to 2030.
The Commission has assessed a range of ambition levels between 25% and 40% energy
savings. This analysis showed that benefits increase with increased energy efficiency
ambition and that gas imports would be reduced by 2.6% for every additional 1% in energy
savings. This has a direct impact on increasing the security of supply of the EU - although
above 35% energy savings, the rate of reduction of gas imports from additional energy
savings falls off sharply.
More generally, it is clear from Table 1 and Figure 2 below that a more ambitious target for
energy efficiency delivers greater benefits particularly in terms of fossil fuel imports.
Additional benefits include those from reduced GHG emissions, reduced air, noise, water and
soil pollution, reduced resource use for energy extraction, transformation, transportation and
use, together with co-benefits on human health and the state of the ecosystems. This is
complemented by benefits in terms of potentially higher employment levels. However, there
are also additional costs beyond what is needed to deliver the 40% greenhouse gas target. For
example, a 28% target for energy efficiency would raise the total energy system costs from
2069 billion per annum with 25% savings to the order of magnitude of 2074 billion, i.e. an
increase of about 5 billion per annum, or 0.24% per annum, in the period 2011 to 2030.
Figure 2 also shows that energy efficiency costs increase faster than fossil fuel import savings.
.

39

It is estimated that around 1 trillion is needed over the next 10 years for investment in generation and
transportation and 600 billion for transmission and distribution.

11

Figure 2. Additional annual average energy system costs and fossil fuel savings compared to the
central scenario of 40% greenhouse gas target, 27% renewable energy target and 25% energy savings
target.
120

Annualised costs and monetised fossil fuel

savings of different energy efficiency
targets compared to the central scenario of
40% GHG reduction; 27% Renewables and
25% Energy savings in 2030. (Bn Euro 2011-

110

100

90

80

70

Annualised Total System Costs in Bn Euros

2011-2013 (Table 7 of IA page 44)

60

Annualised net monetised fossil fuel savings

in Bn euro 2011-2030 (Table 5 of IA page 40)

Central Scenario
January 2014. N.B.
Cost of central
scenario is 2 Bn per
annum in the period
2011-2030 on top of
the baseline

50

40

30

20

10

% Energy Efficiency Target in 2030

0
20

25

30

35

40

45

Note. Table 1 above summarises key costs and benefits of different levels of energy saving in 2030

The distribution of impacts is also an important consideration. Additional measures to

improve energy efficiency would need to tackle mainly the energy efficiency of buildings and
products and hence fall to a significant extent on the non-ETS sectors. As for the construction
sector, which represents about 10% of the EU GDP, energy efficiency improvements in
buildings are the most promising driver for regaining growth after the recession.
4. FINANCING ENERGY EFFICIENCY AND MAKING THE BRIDGE TO 2030
The energy efficiency opportunities identified in this review can be financed provided that an
effective financing framework is put in place to meet the significant up-front costs.
Union funds should leverage private financing
Substantial Union funds would be available to implement energy efficiency measures in the
period before 2020 within the current multiannual financial framework. The use of these is
already a key discussion point with the Member States in relation to the overall agreement on
the 2030 Framework and the achievement of fair and equitable distribution of efforts.
If spent wisely, investments made in the period before 2020 continue to deliver the energy
savings needed after 2020 as well. The majority of the energy-saving potential is in the
building sector with 40% of the EU's energy consumption coming from buildings, and almost
90% of EU building floorspace being privately owned and more than 40% of residential
buildings dating from before 1960. This points to the need for significant private financing. It
12

is essential, therefore, that a market for energy efficiency improvements emerges and public
funds act to leverage private capital.
For illustration, institutional investors in the EU (adherents of the Principles of Responsible
Investments initiative) currently manage over 12 trillion of funds, and the amount they have
invested in private real estate is estimated at over 1.5 trillion in 2012. These are available
resources that need to be unlocked by smart use of public funds accompanied by a long-term,
transparent and stable regulatory framework. The Impact Assessment identified that an extra
38 billion/year of investment would be needed to deliver the 2030 framework. Against this
background, the Commission considers that Member States should allocate significant shares
of Cohesion Policy funding and/or national funds to support the shift towards a low-carbon
economy with view to using these resources to leverage private capital. In the EU budget for
2014-2020, the commitment to energy efficiency has significantly increased. A minimum of
38 billion will be available for low carbon economy investments under the European
Structural and Investment Funds 2014-2020 and this sum will be multiplied by national and
regional co-funding and by attracting private capital.
In addition, further support of Horizon 2020 and the ESI Funds will be invested in innovation
for energy efficiency. In the period 2014-2020 some 2000 million Euro is foreseen,
particularly through the Energy Efficiency focus of the H2020 Societal Challenge on Secure,
Clean and Efficient Energy as well as the public-private partnerships on "Energy Efficient
Buildings", on "Factories of the Future" and for a "Sustainable Process Industry through
Resource and Energy Efficiency (SPIRE)".
In recent years, the EU has been developing pilot schemes of innovative financing
instruments, such as the European Energy Efficiency Fund ("EEE F"), Global Energy
Efficiency and Renewable Energy Fund (GEEREF), and Private Finance for Energy
Efficiency ("PF4EE") under the Life Programme, which can be used directly or as examples
for replication at the Member State level. Moreover, building on first successful experiences
in the 2007-13 period such as with the JESSICA instrument40, the use of financial instruments
in the ESI Funds for 2014-2020 is strongly encouraged, for instance through the "Renovation
loan". They will provide enhanced opportunities for Member States to ensure high leverage of
ESI funds. There is growing evidence of important benefits of public funds used as a trigger
for private capital involvement: more cost-effective use of scarce public resources, important
leverage effects in terms of private sector investments, better aligning public support with the
business investment cycle, engaging the financial sector, more transparency and lower
administrative burden.
Factors affecting the supply and demand for investment finance need to be addressed
On the demand side, energy consumers need to be better informed of the full benefits of
energy efficiency that go beyond simple payback of investment or kilowatt-hours saved, such
as improved quality of life or enhanced competitiveness of their businesses. Additional
demand can be promoted by a more effective implementation of the existing regulatory

40

Joint European Support for Sustainable Investment in City Areas (JESSICA)

13

framework, assistance in the development and demonstration of a robust and scalable pipeline
of investment projects, and the sharing of knowledge and experience.
The availability of finance can be increased using public funds to structure and replicate
existing tailored financing schemes, offering attractive, easy to access (close to market place)
and simple financing products such as low-interest loans for various types of consumers.
In addition, in order to motivate energy consumers to seek financing for energy efficiency
improvements, more finance-oriented socio-economic research is needed to understand better
the behaviour of consumers including tenants and low-income households when deciding
about energy efficiency measures. Particular attention should be given to the emerging market
for energy services (including Energy Performance Contracting and Energy Service
Agreements). The provision of new (e.g. energy saving) services stemming from demand
response-related business models will certainly influence the demand for investment and
finance.
In order to stimulate the supply of energy efficiency investments, work has to be done to
clearly demonstrate the business case for investors and financiers. Transparency, scalability
and standardisation are required to create a secondary market for energy efficiency financial
products and unlock the potential for the refinancing of energy efficiency investments via
capital market products and structures.
Mobilising supply and demand for investment finance therefore entails:

The identification, measurement, accounting for and valuation of the full benefits of
energy efficiency investments though robust data and evidence that can be used by
private and business investment decision makers as well as the financial sector notably
though the use of Energy Performance Certificates in the buildings sector;

The development of standards for each element in the energy efficiency investment
process, including legal contracts, underwriting processes, procurement procedures,
adjudication, measurement, verification, reporting, energy performance (contracts and
certificates) and insurance;

Providing the tools and services to consumers to control energy consumption that allow
them to compare the (capital) costs of investments in energy efficiency with the
(operational) costs for energy consumption;

A target-oriented use of EU Funds (in particular ESIF) through public-private financial

instruments to boost investment volumes and help accelerate the engagement of private
sector finance through scaled risk-sharing, also ETS revenues could be targeted towards
energy efficiency investments;

Member States to move away from traditional grant funding and look to identifying the
working models which best address the energy efficiency refurbishment investment
needs in their building stocks (as articulated in their National Building Refurbishment
Strategies) .

A stronger dialogue between the finance industry, public sector decision makers and
other related professionals, enabling them to structure and demonstrate the most
effective financial mechanisms and investment schemes - both adjusted to the local
level or specific market segments and replicable across the EU.
14

The role of the Commission

The Commission will strengthen cooperation with Member States, public sector decision
makers, investors and financial institutions, including the European Investment Bank ("EIB"),
to increase the level of knowledge about existing financing mechanisms for energy efficiency
beyond pure grant funding, their performance and impact, including issues related to riskassessment, valuation and standardisation. The Commission will also continue its cooperation with financial institutions and Member States on further development or roll-out of
appropriate Financial Instruments and Initiatives, reinforcing the availability of liquidity for
energy efficiency measures.
Specific attention will be given to cooperation with Member States as regards the use of the
European Structural and Investment Funds, to reflect the diverse needs, barriers and
opportunities across the EU. The Commission has already published comprehensive guidance
on how to finance renovation of buildings with funding from Cohesion Policy which aims to
help Managing Authorities plan and deploy investments in buildings within Operational
Programmes. It provides a list of good practice approaches and case studies. It also explores
the different financing mechanisms that authorities can use with the objective of launching
large scale investments in the energy renovation of buildings and attracting greater levels of
private sector investment.
In addition, the Commission will continue to work closely with Member States, providing
further guidance if necessary to complement existing guidance to support implementation of
the EED41) and supporting the exchange of good practice. In addition, the Commission will
continue to make sure that EU law is properly transposed and applied, ensuring a level
playing field among Member States and maximising energy savings.
5. THE WAY FORWARD
After a hesitant start, Europes energy efficiency policy is now delivering. Framed by the 20%
savings target for 2020, there is steady momentum at European and at national level. With full
implementation and monitoring of already-adopted legislation, the EU can put itself on track
to achieve this target, saving 170 Mtoe in energy consumption between 2010 and 2020.
Recent developments, most notably the Ukraine crisis, are a stark reminder of the vulnerable
situation of the EU in relation to energy security and gas imports in particular. The recent
European Energy Security Strategy points to the role of energy efficiency as means to
improve the Union's security of supply - every additional 1% in energy savings cuts gas
imports by 2.6%.
As such the Commission considers that it is appropriate to maintain the existing momentum
of energy savings and propose an ambitious energy efficiency target of 30%. This will deliver
substantial additional benefits and the additional cost represents a reasonable balance given
the increased prominence of energy security risks whilst preserving the affordability of the
Union's 2030 climate and energy strategy.

41

Communication "Implementing the Energy Efficiency Directive Commission Guidance"

[COM(2013) 762].

15

The current framework based on an indicative EU-level target and a mix of binding EU
measures and national action has proved to be effective in driving strong progress by the
Member States. This approach should continue, therefore, to apply until 2030 and energy
efficiency should become an integral part of the governance framework proposed in the
2030 communication which would streamline current monitoring and reporting
requirements. Energy efficiency would, therefore, be a key component of Member States'
national plans for competitive, secure, and sustainable energy that would bring greater
coherence to national and regional climate and energy policies and measures.
On the basis of the national plans it receives and using its own pan-EU energy and climate
analyses, the Commission will monitor the national plans and assess the prospects for
attainment of national/EU climate and energy targets (including that for energy efficiency),
the outlook for the EU's energy dependence and the effective functioning of the internal
energy market, on the basis of appropriate key energy indicators. In this context, the
Commission will explore the use of additional indicators, to express and monitor progress
towards the energy efficiency target, such as energy intensity, which better take account of
underlying changes in and projections for GDP and population growth. Furthermore, the
Commission will review progress on energy efficiency in 2017 taking these elements into
account. Ultimately, the governance process will provide the framework within which to
evaluate the effectiveness of national and EU policies linked to the 2030 climate and energy
objectives.
The Commission will also continue its efforts to further increase the sophistication of the
energy and economic modelling used to assess the costs and benefits of energy efficiency
measures.
The Commission will continue to support Member States in their national efforts through
policy measures at European level as a contribution to achieving the proposed savings. In this
context the following elements will be used:
-

The upcoming evaluation and review of the Energy Labelling and certain aspects of
the Ecodesign Directives, due for the end of 2014, will provide an opportunity to
update the product-related policy framework;

Further development of financial instruments and project development assistance to

leverage private sector investment in energy efficient equipment and technology.

Evaluation and reviews of the Energy Efficiency and Energy Performance of

Buildings directives, Article 7 of the EED, and the next NEEAPs in 2017, will provide
the opportunity to consider what policy elements would be necessary to drive
sustained investments in energy efficiency, especially in light of the currently planned
phasing out of some key elements of the EED in 2020.

The Commission's upcoming retail market Communication will focus on creating a

market where innovative services based on dynamic pricing ensure that the market
offers products that promote efficient use of energy, based on a dialogue with Member
States and regulators and within the framework of the EED and Internal Energy
Market legislation.

Implementation of the market stability reserve of the Emissions Trading system which
will drive energy efficiency improvements in the industrial sector and will ensure that
synergies between energy efficiency and climate policies are reaped.
16

Progressive implementation of the programme put forward in the 2011 White Paper on
Transport42;

Use of the H2020 Research and Innovation programme and close co-operation with
Member States to leverage the delivery of affordable, innovative energy efficient
products as well a new business models for such delivery.

6. CONCLUSIONS
Current forecasts imply that the current 2020 target for energy efficiency is on the way to
being achieved. The Commission does not intend to propose new measures but calls on the
Member States to step up their current efforts to ensure collective delivery of the 2020 target.
The Commission will complement these efforts with appropriate guidance and dissemination
of best practice to ensure full exploitation of the available Union funds.
The Commission's Communication on a 2030 policy framework for climate and energy
identified a level of energy savings of 25% as part of a strategy to deliver the 40% greenhouse
gas emission reduction target in the most cost-effective manner. However, given the increased
relevance of bolstering EU energy security and reducing the Unions import dependency, the
Commission considers it appropriate to propose a higher target of 30%. This would increase
the costs of the 2030 Framework by 20 billion per annum but would still deliver tangible
economic and energy security benefits.

42

COM(2011) 144 final

17

EUROPEAN
COMMISSION

Brussels, 23.7.2014
COM(2014) 520 final
ANNEXES 1 to 3

ANNEXES
to the
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN
PARLIAMENT AND THE COUNCIL
Energy Efficiency and its contribution to energy security and the 2030 Framework for
climate and energy policy

{SWD(2014) 255 final}

{SWD(2014) 256 final}

EN

EN

ANNEX I
Policy developments reported in 2014 National Energy Efficiency Action Plans
(NEEAPs)
Austria

Energy efficiency obligations for energy distributors, predominately addressing

the efficiency of existing buildings.

Renewed effort to increase the share of district heating.

Audits, pilots and demonstrations for industrial energy efficiency.

Energy taxes will continue to play a significant role.

Measures focused on the buildings sector.

Tax breaks for building refurbishments.

Improved metering and billing.

Sponsorships and allowances plans for energy conservation

Campaign aimed at the replacement of inefficient energy-using products.

Projects to promote energy efficiency in private cars and other energy efficient
measures in transport.

Belgium

Cyprus

Czech Republic
New financial scheme focused on:

energy saving measures in buildings across all sectors (building envelope and
technology)

energy savings in processes in industry and services

more efficient energy infrastructure (mainly district heating systems); reduction

of losses in electricity and heat distribution system

promotion of high-efficiency cogeneration

Denmark

Increased level of ambition of energy efficiency obligations from annual

savings of 2.6% to 3%.

Information for consumers (e.g. improved energy performance certificates for

buildings)

Information about energy efficiency for banks and mortgage companies.

New programmes to renovate buildings, support energy audits and energy

efficiency investment in industry, and replace street lighting.

Estonia

EN

EN

Grants, preferential loans and guarantees to support renovation of multiapartment buildings and a support scheme to improve efficiency of small
residential buildings.

Continuing role for taxes.

Reinforcement of existing measures, such as voluntary agreements with the

industry, rather than introduction of new ones. Voluntary agreements will
integrate such elements as energy audits, tax incentives and training.

Measures targeting buildings will also be strengthened. These combine

building codes, information campaign and various incentives, including tax
credits. Much of the focus will be to continue increasing the efficiency of
heating (annual sales of heat pumps already increased from less than 1000 in
1999 to 60 000 in 2012).

Doubling of the ambition level of the energy efficiency obligation scheme.

Dedicated fund for building refurbishment, acting as a guarantee for leveraging

private investment.

Taxation in the transport sector could bring additional savings.

Finland

France

Germany

Updated calculation based on the recent statistics shows that Germany's

primary energy consumption will be almost 10% lower than the target notified
in 2013.

Existing policy measures will be strengthened, including building efficiency

requirements, taxation, advice/awareness-rising and support for investment,
notably through the KfW scheme.

An important element of the new policy efforts will be the development of the
ESCO (Energy services company) market.

The measures included in the plan are expected to result in savings marginally
above the national target.

Focus in the buildings sector on the development of measurement and

verification systems to accurately measure savings achieved.

This will be the basis to drive demand for more efficient housing and supply
(e.g. from the banking sector)

Strengthen the minimum standards for the construction of new buildings and
the renovation of existing buildings;

Consolidate tax deductions for the refurbishment of buildings and strengthen

incentives for buildings owned by public bodies

Strengthen the system of energy efficiency certificates ("white certificates")

Ireland

Italy

EN

EN

Encourage the renewal of the fleet of cars and trucks up to 3.5 tonnes

Energy efficiency obligations will be applied to energy distributors

These, in combination with a new revolving National Energy Efficiency Fund

will focus mainly on financing building renovations.

Latvia

Lithuania

Energy efficiency obligation scheme will be applied to major energy

distribution companies expected to support end-use energy efficiency
investments especially in the buildings construction sector and industry.

Support scheme for the improvement of efficiency of local district heating

networks.

The National Fund to improve the energy performance of buildings.

The ambition level of the nation indicative target is increased by 12%.

Energy efficiency obligation scheme

Free energy audit for households and SMEs on request.

Other areas of focus: roll out of smart meters, information campaigns,

renovation of buildings, transport measures, modernisation of generation
plants, improving the energy efficiency of water distribution.

Malta

Netherlands

Energy agreement for sustainable growth, including central, regional and local
government, employers organisations and workers organisations, other civil
society organisations and financial institutions, including in the field of energy
efficiency. The agreement targets buildings, energy efficiency in industry and
in the agricultural sector.

Portugal will rely on the continuation of existing schemes which are being
revised to focus on those that are the most cost-effective.

Schemes promoting the thermal insulation of housing are likely to have the
biggest impact.

The ambition of the nation indicative target has been marginally revised
upwards compared to 2013.

Energy efficiency obligation for energy companies.

Renovation of residential and commercial buildings via a National Energy

Efficiency Fund.

Incentives for energy efficient transport, fiscal measures, training, national

information campaign on energy efficiency.

Portugal

Spain

EN

EN

Sweden

Energy efficiency will continue to be driven primarily through taxation.

United Kingdom

EN

Largest savings from energy efficiency requirements for buildings.

Focus on improving the Green Deal scheme.

EN

ANNEX II
Energy Performance of Buildings Directive Status of transposition as of 22 July 2014

Member State

NonTransposition
as declared by communication
the
Member cases
State

Date due:

NZEB
consolidated
information
(Article 9)

21 March 4 March 2014

2013

Austria

No

On-going

Belgium

No

On-going

Bulgaria

Yes

Closed

Croatia

Yes

On-going1

Declared
partial

Cyprus

Yes

Closed

Czech
Republic

Yes

On-going

Denmark

Yes

Closed

Estonia

Yes

Closed

Finland

No

On-going

France

Yes

Closed

Germany

Yes

Closed

Greece

Yes

Closed

No

No

Hungary

Yes

Closed

Ireland

Yes

Closed

Italy

Yes

On-going

Latvia

Yes

Closed

Lithuania

Yes

Closed

Luxembourg

Yes

Closed

EN

9 July 2012

CostOptimal
report
(Article 5)

Infringement case at the stage of Letter of Formal Notice.

EN

EN

Malta

Yes

Closed

Netherlands

No

On-going

Poland

No

On-going

Portugal

Yes

Closed

Romania

Yes

Closed

No

No

Spain

Yes

Closed

No

Slovak
Republic

Yes

Closed

Slovenia

No

On-going

No

Sweden

Yes

Closed

United
Kingdom

Yes

Closed

EN

ANNEX III
Energy Efficiency Directive Status of transposition as of 16 July 2014

Member State

Energy
Efficiency
Targets

Building
Renovation
Strategy

(Article 3)

(Article 4)

Energy
Efficiency
Obligation
schemes
and/or
alternative
measures

National Energy Transposition as

Efficiency Action declared by the
Plans (NEEAPs) Member State
(Article 24(2))

(Article 7)

EN

Date due:

30
April 30
2013
2014

April 5 December 30 April 2014

2013

Austria

No

Belgium

No

Bulgaria

No

Croatia

Cyprus

Yes

Czech
Republic

No

Denmark

Yes

Estonia

No

Finland

No

France

No

Germany

No

Greece

No

Hungary

No

Ireland

No

Italy

Yes

Latvia

No

Lithuania

No

Luxembourg

5 June 2014

No

No

EN

EN

Malta

Yes

Netherlands

No

Poland

Portugal

Romania

Spain

No

Slovak
Republic

No

Slovenia

Sweden

Yes

United
Kingdom

No

No
9

No

No

No

EN