1. The European Union’s programme for India
This project is funded by
The European Union
Project implemented by EXERGIA S.A. member of SACO Consortium, in collaboration with PwC India
The European Union’s programme for India
Clean Energy Cooperation with India (CECI): Legal and policy support to the development and implementation of energy efficiency legislation for the building sector in India
Regional Workshop
Pune, 18 May 2018
EU experiences in implementing the
Energy Performance of Buildings Directive (EPBD)
Kevin O’Rourke

2. Structure of presentation on EU experiences1
Explain EU EPBD: key requirements, challenges 2
EPBD ACTION PLANS: tasks, responsibilities, timescales 3
ADOPTION: steps, actions, experiences 4
COMPLIANCE: steps, actions, experiences 5
ENFORCEMENT: steps, actions, experiences 6
LEVERAGE: steps, actions, experiences 7
IMPACT and SUCCESS FACTORS summarised 8
Possible application to implementing ECBC in India?

3. 28 EU Member States: Context, diversity, status
500 M population in 28 Member States:
Not a federal Union
Diverse sizes – from 0.4 M population to 80 M population
Diverse levels of economic development
Diverse climates and architectural idioms
Diverse political/ administrative/ regulatory traditions
Diverse educational systems
Diverse approaches to setting building codes
Diverse systems and cultures of compliance enforcement
BUT ALSO:
Many common and shared principles

4. Key EPBD requirements on Energy Performance
The Directive obliges all Member States, by specified dates*, to:
Adopt an Energy Performance (EP) calculation methodology that complies with EU guidelines
Set Minimum Energy Performance Standards for new buildings and ‘major renovations’
On the basis of a ‘cost-optimal’ methodology
Standards to be reviewed at least every 5 years
To achieve a ‘Nearly Zero Energy Buildings’ (NZEB) standard by 2020
Establish Energy Performance Certification (energy label) mandatory for all new buildings &/or all buildings offered for sale or rental
* Up to 3-year extension was originally allowed on full implementation of some requirements
Cf. ECBC

5. GOVERNANCE & CO-ORDINATION EU & NATIONAL LEVELS

6. Typical core national EPBD Steering/ Co-ordination group
National energy agency (Sec)
Ministry of Energy
Ministry of Construction (Chair)
Office of Public Works
Other?
Ministry of Local Government
Other?
Plus consultative forum for market stakeholders & facilitators

7. EU EPBD Implementation: Governance & Support System
EU Council of Ministers
EU Parliament
CEN
EU Commission
EU Legal Services
Management Committee of Member States
Liaison Committee
CEN Committees
Member State authorities IMPLEMENT
National Standards Authorities
Member States’ EPBD Action Plans
Member States’ authorities
EU Joint Research Centre
‘Concerted Action’ – Collaborative Forum
IEE RD&D projects

8. Energy Performance of Buildings Directive (EPBD) in Ireland
Example: Implementation in Ireland - Action Plan
Institutional
Published by Steering Group
Transposition
Technical systems
Admin systems
Gantt chart showing:
Tasks
Responsibilities
Timelines/ Deadlines
Communications

9. EPBD implementation steps Approaches/ experiences from EU and its Member States
ADOPTION
COMPLIANCE
ENFORCEMENT
LEVERAGE
Governance
Action Plan/ Roadmap
Stakeholder consultation
Cost optimal studies
Regulatory Impact Assessment
Assigning functions, powers, resources
Admin & data systems
Legal transposition
Technical standards
Calculation methods
Software
RD&D projects
EP targets
Training & exams
Codes of Conduct
Registration systems
EP certification
Industry readiness
>>>>> NZEB
Legal authority
Responsibility
Registers
Databases
Quality assurance
Auditing
Enforcing action
Industry action
EP certification visibility
Skills enhancement
Promotion campaigns
Financial instruments
Renovation strategies
Institutional & Legal
Technical
Capacity
‘Systems’
Enforcement
Impact

10. ADOPTION steps:
Governance
Action Plan/ Roadmap
Stakeholder consultation
Cost optimal studies
Regulatory Impact Assessment
Assigning functions, powers, resources
Admin & data systems
Legal transposition
Leadership, co-ordination, master planning, task actioning, legal enactment

11. Stakeholders in buildings sector – a complex arena
The ‘supply chain’ = the ‘skills chain’ = the ‘quality chain’
Plan
Design
Specify
Construct
Install
Commission
Sell/ let
Operate
Maintain
Improve/
Demolish
Clients
Architects
Builders
Users
Service
Agents
Consultation
Co-ordination
Engineers
Installers
Quantity Surveyors
Financial institutions
Product
suppliers
Air leakage
testing
EPC
Etc.
Planners
EIS
Design tools
Specialist
services
Inspectors &
Certifiers
Utilities
Regulators
Registration/ certification
bodies
Trainers
An industry arena of diverse, fragmented, sometimes disconnected sets of skills Multiple market players & influencers

12. Legislative transposition
Typical development/ consultative process: 6-24 months
Typical content:
Explanatory memorandum
Reference to previous and source legislation
Obligations on compliance by building owners and their agents
Definitions
Roles of certifiers
Assignment of functions & powers of administrative authority
Assignment of functions & powers of enforcement authority
Documentation submission requirements to show compliance
Penalties
Accompanying technical requirements guidance documents
Accompanying detailed technical support documents

13. tools, skills & systems development
COMPLIANCE steps:
Technical standards
Calculation methods
Software
RD&D* projects
EP targets
Training & exams
Codes of Conduct
Registration systems
EP certification
Industry readiness
>>>>> NZEB
‘Capacity building’:
tools, skills & systems development
* Including demonstration projects

14. Integrated set of European Standards for energy performance
In partnership with ISO

15. Schematic of EN standard for energy performance calculation

16. National calculation methodologies and software
Aligned with EN standard

17. Defining ‘Nearly Zero Energy Buildings’ (NZEB)
Performance Criterion (‘Primary Energy’):
New buildings: less than 50 kWh/m2 for most buildings (possibly 150 kWh/m2 for intense activity buildings such as hospitals)
Renovations to existing buildings: less than 150 kWh/m2 for most buildings (possibly 250 kWh/m2 for intense activity buildings such as hospitals)
Potentially ‘energy positive’ (from export of renewable energy surplus…..)
Comfort criteria - Maintain acceptable levels of:
Internal environmental temperature
Humidity
Air quality and movement
Lighting levels and quality
Noise

18. Current ‘Financial Gaps’ = scope for financial/ market incentives
Cost optimal studies to review building energy codes en route to NZEB ( ‘nearly zero energy buildings’)
5-yearly review of building codes. Scope for energy, CO2 and technology costs to change…….
Cost optimal
‘Life cycle cost’
(LCC)
NZEB
LCC for NZEB up to 10% above ‘Cost Optimal’
Current ‘Financial Gaps’ = scope for financial/ market incentives
‘Optimum Zone’

19. RD&D projects: helping to build capacity & confidence
Low energy building demonstration projects in Europe:
30 examples from 19 Member States

20. EPBD: accelerating the progression in EP targets
Ireland
After 31 December 2020 all new buildings occupied are to be ‘nearly zero’ (NZEB) energy buildings (31 December 2018 for public buildings)

21. Simplified example of ‘roadmap process’ to ‘NZEB’
Code 2005
1.0
0.8
Code 2007
0.6
EPC
Code 2011
0.4
Code 2018
0.2
NZEB
LZC
0.2
0.4
0.6
0.8
1.0
CPC

22. Design formats for some EP certificates (labels) in Europe
Many variations ….
Public consultation on design, scales etc.
But, despite differences, we can all “read” similar message in any of the certificates…

23. Creating market success: Responsibilities for service volume (V), quality (Q) & quality assurance (QA): What people ?
TIME
“Market”
(Building
Owners/
Agents)
Documented
procedures
Training
& exam
delivery
materials
Tools/
software
EN/
National
Standards
Actions
SERVICE
delivery
Training
providers
developers
Software
Research
CEN &
Natl. Stds.
bodies
Responsibilities
Registered
Certifiers
Docs
Docs Q V
State & Regional Authorities
Accreditation
bodies
Professional
Authorised
agencies
Scheme
administrator
Validation
Accreditation
Post-
auditing QA
Outcomes

24. Behave in an independent manner
Registered Energy Performance Certifiers: Example of Code of Conduct elements
Competence
Data integrity
Obligation to act with due care in an independent manner
Indemnification of national authority and Insurance
Records, data and documentation
Confidentiality and data protection
Client service
Charges and levies
Advertising and sales promotion
Compliance monitoring
Appeals, complaints and disputes
Public registers managed by national energy agency
Register of certifiers
Register of certificates (and source input data)
CPD obligations
Behave in an independent manner
Professional ethics 24 24

25. Energy Performance of Buildings Directive (EPBD) in Ireland
Example: Path from Training to Registration
Energy Performance of Buildings Directive (EPBD) in Ireland
Training Provider
Accredited
Training Spec
Published
Calculation
Methodology
Published
Calculation
Software
developed
Training programme(s)
including assessment
criteria validated
Eligible learners
register with Training
Provider for programme
Complete
training
Training Provider
advertises validated
programme
Exam and
‘Assignment’
Register as EP
Assessor
Assessor details
accepted on to
National Register
Assessor completes
assignments, while meeting all
QA requirements
State authority
Training Provider with Accreditation Body
Training Provider
Assessor

26. Energy Performance of Buildings Directive (EPBD) in Ireland
Example: Administration System for EP certifiers
Maintain National EP
Certificate Database
Set & operate rules for EP compliance
Maintain Register
of EP certifiers
Administration
Body
Quality Assurance
of Scheme
Report to Administration
Committee
Provide software
technical support
Help Desk

27. Ensuring effectiveness
ENFORCEMENT steps:
Legal authority
Compliance chain of responsibility
Registers/ Databases
Quality assurance
Auditing
Enforcing action
Ensuring effectiveness

28. Possibly assisted by energy agency
Building control: Chains of responsibility and integrating energy performance requirements
Possibly assisted by energy agency
Lead certifier
Ancillary certifiers (ventilation)
Ancillary certifiers (structural)
Ancillary certifiers (fire)
Ancillary certifiers (noise)
ENFORCER
Building Control Authority
Ancillary certifiers (energy)
Building owner
‘Building Control Management System’ Database

29. EP compliance checkpoints in EU countries

30. Example of an approach to QA and sample auditing:
Aim - know, maintain and improve quality
Control (inspection/ audit) system elements

31. Enforcement and sanctions profiling for EU Member States
When did your country/ region start to enforce the requirements for new buildings?
Most powerful sanction: denial of permit
Obliges corrective action to comply

32. Stimulating awareness, visibility, opportunity, impact
LEVERAGE: Steps
Industry action
EP certification visibility
Skills enhancement
Promotion campaigns
Financial instruments
Renovation strategies
Stimulating awareness, visibility, opportunity, impact

33. Main policies & measures in support of NZEBs in EU States
For new-build
No. of Member States
For major renovations
No. of Member States

34. Visibility of EP Certificates
Influencing buyer choice & valuation: Emerging research from a number of EU countries indicates that a better energy rating on the EP certificate translates into a higher building price or rental rate
Linking to rules on ‘Green Public Procurement’ (another EU Directive)

35. Roles of key-players in a well-functioning market of EE buildings
The industry:
Role, readiness, opportunity
Quality
EP (ECBC) targets are a ‘LEVEL PLAYING FIELD’ for developers/ builders
Construction is a sector where REGULATION drives INNOVATION

36. Examples of technologies driven by building energy codes
Higher performance insulation materials
Vapour barriers, draught sealing
High performance glazing
Solar shading and control products
Passive ventilation products, mechanical ventilation heat recovery, hybrid ventilation systems
Smarter heating controls
DHW insulated storage, heat exchangers
Condensing boilers
More efficient chillers
More efficient motors, variable speed drives
Solar water heating
Biomass boilers
Heat pumps
Group heating for apartments, heat metering, heat exchangers
Energy efficient lighting: LED lamps, luminaires, controls
Comprehensive building systems/ offsite construction

37. EPBD implementation: IMPACTS
Energy, cost and emissions savings, plus more energy security
Widespread market visibility and awareness of EP of buildings (EPC)
More stimulus of demand for EE buildings by consumers, developers (private, public or social) and specifiers for EE products and services
EP established as an integral requirement in building design, specification, procurement and marketing processes
Evidence of impact on property values
Growing interest in going beyond the EP standards
Helping to mobilise investment in deep energy renovation of existing buildings – intense focus on new financing instruments
Impetus to innovation (better quality & cost) by designers, developers
Upskilling of other service providers within the building industry
Demand for enhanced foundational and CPD/ supplementary education & training
A clear policy commitment and path to ‘nearly zero’ energy buildings

38. EPBD implementation: SUCCESS FACTORS
Leadership, commitment and coordination in governance
Clear action plan/ roadmap
Consultation and consensus on both legislative and operational details
Coordinated structures, clear responsibilities (compliance chain)
Clear and realistic (but sufficiently ambitious) targets, timetables
Allied policy activities (e.g. demonstration projects) – capacity, confidence
Technical criteria based on robust evidence –research, market trials, international
Coordinated training programme ensuring sufficient numbers upskilled
Tools – good quality support documentation and software tools which are validated and compatible with the official administrative systems software
Investment in on-line databases and ICT smart administrative systems - enable monitoring, verification, enforcement and future initiatives and strategies
Well designed monitoring, validation, QA and enforcement systems
Sustained communication campaigns through multiple channels – with the industry and the general public (including political representatives)
Active collaboration and sharing of best practice experiences

39. EPBD ‘Concerted Action’ website
REFERENCES
ACE: E2 Position Paper #2
EU ‘BUILD UP’ website
EPBD ‘Concerted Action’ website

40. Thank you for your attention
EXERGIA Energy and Environment Consultants
Omirou Str. & Vissarionos 1, Athens
Tel: , Fax:
In collaboration with
Price Waterhouse Coopers India
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