energy!efficiency!in!europe! ·...

FRANCE

Country Report

SURVEY REPORT

Progress in energy efficiency policies in the EU Member States -

the experts perspective

Findings from the Energy Efficiency Watch Project 2012

Christiane Egger (O.Ö. Energiesparverband) with contributions by Reinhold Priewasser, Michaela Kloiber (University of Linz) Nils Borg (eceee), Dominique Bourges (Fedarene), Peter Schilken (Energy Cities)

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Energy Efficiency in Europe Assessment of Energy Efficiency Action Plans and

Policies in EU Member States 2013

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This report is one of 27 country reports published within the Energy-‐Efficiency-‐Watch project and assesses both ambition and quality of EU Member States´ energy efficiency action plans and policy implementation (see more at www.energy-‐efficiency-‐watch.org).

The French NEEAP puts a special focus on the design of the general governance framework for energy efficiency (EE) policies. For example, government authorities have implemented an EE Certificate scheme on energy supplier. Investment schemes are in place e.g. to establishing world-‐ranking technology innovation campuses for renewable energies and new energy technologies as well as a Sustainable Development Tax Credit. Furthermore, a large spectrum of stakeholders was involved in working and planning future policies on EE.

In institutional terms a national energy agency has been established (ADEME). As regards the success of French EE policy, interviewed domestic experts are concerned that the ambitious targets for building renovation will not be reached. Also the assessment of the level of ambition of EE policy in France is ambiguous: One half assesses policies as ambitious whereas the other half believes that policy ambitions are rather low.

France established very comprehensive and well balanced policy packages in most of the relevant sectors. However, there further improvement of some weaker elements is necessary: • Public sector energy saving impact of energy audits remain unclear for buildings

• Appliances sector provides only little information on economic incentives. Effects for appliances of the research demonstrator fund are not clear. As well only few information about education & training is given which must be improved

• Industry sector must specify voluntary agreements and energy saving obligations targets. Reduced tax rates or exceptions for different forms of natural gas and electricity use should be newly assessed

• Transport sector supports R&D only in aviation and could broaden its scope.

At sectoral level, the assessment is as follows:

• There is a clear strategy and a mandatory targets set for the public sector. Energy savings and related measures are quite visible through the “Exemplary State” flagship and other demonstration projects. For public procurement, guidelines and requirements are in place which also include efficient vehicles. Energy audits are mandatory for public buildings but energy saving impacts remain rather unclear.

• France has set ambitious targets for reducing the energy consumption of both new and existing buildings. In order to achieve these targets, France has established a well-‐designed, very comprehensive package focussing on interaction of different policies and measures (regulations, incentives, information and training). Measures are well interlinked and try to address certain barriers.

• The two main policy measures in the appliance sector are the Ecodesign Directive and the Labelling Directive. Several product groups are addressed. Information campaigns and information tools help inform the general public. There are some efforts to increase EE in appliances but France could do better. It appears that policies in the appliance sector do not have high priority.

• The policy package for the industry and tertiary sector is comprehensive and balanced between financial incentives, regulations and support for information and audits. On the negative side, reduced rates or exceptions for different forms of natural gas and electricity use are given. Voluntary agreements and energy saving obligations are mentioned but the targets are not specified.

• The policy package for the transport sector is well-‐balanced and contains a broad range of measures in most fields, especially regarding planning instruments for railway and intermodal infrastructure, but also for pricing, regulation, and information measures. However, only few measures are mentioned in the fields of research and development.

Introd

uctio

n Sectoral Assessm

ent

Conclusion

s Summary Assessment

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Public Sector

Comprehensiveness of policy package

Long-‐term EE target(s) and strategy

• A long-‐term strategy exist and was reaffirmed by the Grenelle Round Table.

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

• The Environment Round Table involves relevant stakeholders.

Energy agencies and climate protection agencies

• A national energy agency had been established (ADEME)

EE mechanisms for overall coordination and financing • Promotion through the White Certificate Scheme

Favourable framework conditions for energy services

• The Energy Performance Contract sets a good framework.

Horizontal measures • Investments into research and technology.

Monitoring, reporting and verification

• Top-‐down methods and other tools to measure, monitor and report results are in use.

Overarching Energy Efficiency Governance Framework


Public sector strategy • Clear strategy with roadmaps and mandatory targets, clearly defined responsibilities and regular review of progress.

Role model, transparency, and demonstration

• The ‘Exemplary State’ flagship initiative seems to be quite visible. The Ecological Neighbourhoods (EcoQuartiers) project as well as the EcoCities initiative are important demonstration activities at the district/city level.

Public procurement • Sustainable public procurement is fostered via a national action plan, a variety of purchasing guides and clear responsibilities.

Public buildings

• Energy audits are progressively required in public administration buildings, however energy saving impact remains unclear. EE measures in buildings are also done (or planned) at regional level.

Adequacy of policy package • The policy mix is rather balanced and actors at different governance levels are addressed.

long-‐term strategy

other actors involved

energy-‐agencies

coordinaaon/financing

energy services

horizontal measures

MRV

Screening of the NEEAP

public sector strategy

role model

public procurement

public buildings

adequacy of package

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Minimum Energy Performance Standards (MEPS)

• The Ecodesign Directive was implemented on national level (but with no additional measures) and a co-‐operation with the lighting trade union exists.

Economic incentives • Little information on this topic. France established a research demonstrator fund. The effect is not clear for appliances

Energy labels

• The EU Energy Label was implemented due to EU legislation.

• Furthermore a voluntary label was developed in France.

Information tools • There are some information tools like websites, campaigns and information centres.

Education and training for retail staff and other supply chain actors

• Only very little information on this topic.

Adequacy of policy package • Some issues are addressed.

• France addresses the supply and demand side with standards, labels and information campaigns.

Residential Sector -‐ Appliances

Residential Sector -‐ Buildings

MEPS

economic incenaves

energy labels

informaaon tools

educaaon and training

adequacy of package

MEPS

other regulaaons

financing instruments

EPCs

informaaon

demonstraaon

adequacy of package

economic incenaves

advice and audits

educaaon and training


Minimum Energy Performance Standards (MEPS)

• MEPS for new and existing buildings, recently strengthened to very low consumption levels.

• Enforcement mechanism exists and the standards are linked to a voluntary energy performance label and a financial support scheme.

Other regulations • A feasibility study regarding energy efficiency and renewables is required for larger buildings. Further regulations exists.

Economic incentives • There are numerous financial incentive schemes.

Financing instruments • Financing aid is available for different target groups for new low-‐energy buildings and existing buildings.

Energy performance certificates (EPCs)

• Mandatory EPCs at time of sale and rental since 2006/2007 and voluntary energy endorsement label.

Energy advice and audits • Good energy advice infrastructure but on-‐site advice/audits and assistance during measure implementation could be strengthened.

Information tools • Existance of a variety of policies and measures.

Demonstration projects • Support of RD&D activities since 2005, leading to a considerable number of demonstration buildings.

Education and training for stakeholders

• Several measures aimed at improving skills of building professionals.

Adequacy of policy package

• The policy mix is well-‐balanced. Various actors and barriers, on supply and demand side are addressed. The ambitious targets and numerous measures show the consideration of large saving potentials.

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Industry and Tertiary Sector


Planning instruments • Broad range of best-‐practice measures, with a focus on railway and freight transport infrastructures.

Regulatory instruments • Relevant measures in many fields of regulation.

Economic incentives • The plan comprises relevant measures, especially related to road vehicles taxation and a bonus/malus system.

Information and advice • A comprehensive set of measures in all fields of information, advice and education.

R&D support • R&D Support only in the field of aviation.


• Well balanced policy mix with a focus on planning measures. The measures are described in their specific impact on transport actors and potentials are considered.

Transport Sector

planning instruments

regulatory instruments

economic incenaves

informaaon

R&D support

adequacy of package

standards

ES&A targets

economic incenaves

tradable permits

energy labelling

other measures

adequacy of package

obligaaons

energy taxaaon


Standards for equipment, production process, products

• The Ecodesign Directive is supported by an agreement to remove the least-‐efficient light bulbs earlier than scheduled from the market.

Energy savings and action targets for individual companies

• Voluntary agreements and energy saving obligations are mentioned but the targets are not specified. However, with the Energy Efficiency Certificate scheme energy suppliers are obligated to reduce energy.

Obligations / commitments

• Agreements and commitments between government and different industrial branches etc. are mentioned. But the description remains vague.

Economic incentives • Different funds for research and innovation on energy saving technologies, implementation of energy saving measures etc. are in place.

Tradable permits

• There is a scheme with tradable Energy Efficiency Certificates and an obligation for energy suppliers to promote energy efficiency among their clients. Non-‐compliance causes penalties.

Energy or CO2 taxation • Minimum tax rates are applied. However, reduced rates or exceptions for different forms of natural gas and electricity use are implemented.

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

Other measures • Not mentioned in the NEEAP.


• The policy mix is well balanced and regulation, financial instruments and support for audits are in place. Both, supply and demand side are addressed. Different actors and their specific barriers are considered i.e. sector specific agreements, SMEs, industrial branches.

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In 2011 and 2012, Energy-‐Efficiency-‐Watch conducted a quantitative and qualitative survey with national experts on implementation of energy efficiency policies in EU Member States.

In France, 42 experts were interviewed to assess the level of ambition and quality of the NEEAP: According to them, France is among the Member States that has made comparatively medium progress in energy efficiency policies since the first NEEAPs. 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 experts opinions on achieving the ESD 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 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.

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.

Findings from the Expert Survey

12%

39% 34%

15%

France: overall ambiUon of the energy efficiency policies

generally, rather low

ambiaous in a few sectors, less so in most others

ambiaous in a range of sectors, less so in a few others

generally, rather high

35%

18%

27%

8%

12%

France: achievement of naUonal energy savings target

target will not be achieved

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

target will certainly be achieved

not aware of energy savings target

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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.

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

France established a strong buildings policy framework with excellent measures concerning information, education & capacity building, finance and governance . By removing the least-‐efficient light bulbs earlier than scheduled from the market, an operating white certificate scheme and audits France sets up good standards. Economic incentives and financing instruments are numerous and strong. Advice and information is given through a variety of policies and measures like good energy advice infrastructure which could slightly be strengthened by on-‐site advice/audits and assistance during measure implementation. Demonstration objects and programmes are supported by R&D activities since 2005 which was leading to a considerable number of demonstration buildings. As well several measures aim at improving skills of building professionals so that all issues are addressed very well.

A need for improvement is given in the industry and tertiary sector. Targets are only voluntary and not specified. Energy taxation is low, labelling is only included due to EU regulation and other measures are not mentioned in the NEEAP. For these issues other NEEAPs can be considered for good practice examples. For instance using energy saving measures and support for audits are prominent in the NEEAPs of France, Germany and UK. Slovenia has established a CO2 tax and plans to link exemptions from the CO2 tax to energy management at company level. Setting energy saving targets to companies is a further good practice used by Bulgaria setting e.g. individual energy saving targets for industrial systems with an annual consumption over 3.000 MWh. These entities must furthermore conduct energy audits every three years.

Good Practice Examples

Disclaimer The sole responsibility for the content of this publication lies with the authors. It does not necessarily reflect the opinion of the European Union. Neither the EACI nor the European Commission are responsible for any use that may be made of the information contained therein. The analysis performed here is based almost exclusively on the information provided in the NEEAPs. Consequently, a low score for any of the criteria analysed could also be the result of a NEEAP lacking detailed information. The purpose of this assessment is not an absolute ranking among Member States but is focusing on each Member State’s individual conditions.

Photography Credits: PhotoDisc, iStock, www.openclipart.org

The Project In 2006, the European Union adopted the Directive on energy end-‐use efficiency and energy services ("ESD"). The Directive sets an indicative energy saving target of 9 % by 2016 as well as obligations on national authorities regarding energy savings, energy efficient procurement and the promotion of energy efficiency and energy services. It requires Member States to submit three National Energy Efficiency Action Plans (NEEAPs), scheduled for 2007, 2011 and 2014.

The Energy-‐Efficiency-‐Watch Project aims to facilitate the implementation of the Energy Service Directive and the Energy Efficiency Directive. This Intelligent Energy Europe project tried to portray the progress made in implementation of energy efficiency policies since the Energy Service Directive via NEEAPs screening and an extensive EU wide expert survey.

www.energy-‐efficiency-‐watch.org

The Authors Ralf Schüle, Thomas Madry, Vera Aydin, Jonas Fischer, Jan Kaselofsky, Thorsten Koska, Carolin Schäfer-‐ Sparenberg, Lena Tholen (Wuppertal Institute) Daniel Becker, Nikolas Bader (Ecofys) Christiane Egger (O.Ö. Energiesparverband)

with contributions by Reinhold Priewasser, Michaela Kloiber (University of Linz) Nils Borg (eceee), Dominique Bourges (Fedarene), Peter Schilken (Energy Cities)

List of Abbreviations EE – Energy Efficiency, EED – Energy Efficiency Directive, EPC – Energy Performance Certificates, EPDB – Energy Performance of Buildings Directive, ES&A Targets -‐ Energy Savings and Action Targets, ESCO – Energy Service Company, ESD – Energy Service Directive, EU – European Union, EEW – Energy-‐Efficiency-‐Watch, MEPS – Minimum Energy Performance Standards, MRV – Monitoring, Reporting and Verification, MURE – Mesures d’Utilisation Rationelle de l’Energie, NEEAP – National Energy Efficiency Action Plan, R&D – Research and Development

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