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Bulgaria
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 policy for the promotion of energy efficiency in Bulgaria, such as described in the NEEAP, is based on a clearly described strategy. The governance framework as well as the policy packages for the public sector and industry are rather balanced. Actors at national (energy efficiency agency, Ministry) and regional level (regional energy efficiency councils, municipalities) contribute to implement measures in line with this strategy. Central and local government authorities have to prepare energy efficiency improvement plans as well as programmes for their implementation. The national savings target has been split between obligated parties (industry, energy traders and owners of public buildings). However, according to a survey with 9 domestic experts, the progress in the energy efficiency policy in Bulgaria was rather low since the first NEEAP. Only around 30% of the survey respondents consider the energy efficiency policy as ambitious.
The assessment of the single sectors and fields of policy are as follows:
• For the buildings sector minimum energy performances standards have been set while economic incentives and financing instruments have been established. A strong focus is on multi-‐family residential buildings.
• The policy package for appliances comprises the Ecodesign requirements, energy labelling and soft loans for the purchase of efficient appliances.
• Individual energy saving targets have been set for several industrial entities. Energy audits are mandatory for these entities. Economic incentives (credit lines, grants) are provided to facilitate target achievement.
• The policy package for transport considers different transport modes such as road transport, public transport, bicycling. However, the programmes are not described in detail, and concrete measures are missing. Economic incentives for purchasing energy efficient vehicles are at the core of the Bulgarian strategy.
The overall energy efficiency policy of Bulgaria is not overly ambitious. However, the policy packages designed for specific sectors (public sector, industry, governance) are promising. Further improvements could be the following:
• The NEEAP does not comprise any measure related to mobility management in the public sector. Further measures or clarifications on this regard are therefore recommended.
• The policy package for appliances lacks in particular information tools and education and training offers for retail staff and other actors of the supply chain.
• With regard to the residential sector it is advisable to pay more attention to the provision of impartial advice and audits, the mandatory display of energy performance certificates in transactions (including advertisements) and the development of information tools for the buildings sector. It is furthermore recommended to clarify whether and when minimum energy performance standards are to be tightened (roadmap).
• Excise duties on gas and electricity for business use are relatively low. Their increase could serve as a means to strengthen incentives for the efficient use of energy.
• In the field of transport it is recommended to strengthen regulatory instruments, information and advice as well as R&D
Introd
uctio
n Sectoral Assessm
ent
Conclusion
s Summary Assessment
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long-‐term strategy
other actors involved
energy-‐agencies
coordina[on/financing
energy services
horizontal measures
MRV
Public Sector
Comprehensiveness of policy package
Long-‐term EE target(s) and strategy
• Bulgaria has adopted the target of halving its primary energy intensity (compared to 2005) by 2020; A national energy efficiency strategy has been adopted; Regional energy councils assist in the preparation and implementation of regional/municipal programmes
Involvement of non-‐governmental and market actors, and sub-‐national authorities
• Municipalities participate in the national renovation programme; Energy traders and industry are obligated parties;Public private partnerships are planned to be promoted
Energy agencies and climate protection agencies
• Energy agencies exist at national and regional/local level
EE mechanisms for overall coordination and financing
• Energy efficiency funds are available;
• Overall coodination is provided by the state; Industry, owners of public buildings and energy traders are obligated to save energy
Favourable framework conditions for energy services
• Supportive framework conditions have been set up; Co-‐financing and a guarantee fund are available
Horizontal measures • Voluntary agreements may be concluded with industry
Monitoring, reporting and verification
• The savings are estimated based on both top-‐down and bottom-‐up methods
Overarching Energy Efficiency Governance Framework
Comprehensiveness of policy package
Public sector strategy
• Central and local governments are required to prepare energy efficiency improvement plans; Regional energy coucils provide assistance for the preparation of regional/municipal programmes and their implementation
Role model, transparency, and demonstration
• Regional councils for energy efficiency have been established by the public sector; Standards for electricity consumption per employee in the public sector are developed
Public procurement • Minimum energy efficiency criteria are to be included in public tenders; Guidelines have been developed
Public buildings
• Energy efficiency improvement plans have to be prepared by central and local government authorities; Grants are provided for the implementation of energy efficiency measures in public buildings; 508 public and 3454 municipal buildings to be renovated until 2020
Adequacy of policy package • The policy mix for the public sector is well balanced
Screening of the NEEAP
public sector strategy
role model
public procurement
public buildings
adequacy of package
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MEPS
other regula[ons
financing instruments
EPCs
informa[on
demonstra[on
adequacy of package
economic incen[ves
advice and audits
educa[on and training
MEPS
economic incen[ves
energy labels
Informa[on tools
educa[on and training
adequacy of package
Comprehensiveness of policy package
Minimum Energy Performance Standards (MEPS)
• Ecodesign Directive implemented
Economic incentives • Soft loans for the purchase of energy efficient appliances are available
Energy labels • The EU energy labelling regulation has been implemented
Information tools • Not mentioned
Education and training for retail staff and other supply chain actors
• Not mentioned
Adequacy of policy package • Supply and demand side are addressed; Many aspects of the package could be strengthened
Residential Sector -‐ Appliances
Residential Sector -‐ Buildings
Comprehensiveness of policy package
Minimum Energy Performance Standards (MEPS)
• Minimum energy performance standards are in place.
Other regulations
• Energy efficiency requirements are to be taken into account during construction works/spatial planning;
• Individual metering of heat consumption in centrally heated multi-‐familiy buildings
Economic incentives
• A direct subsidy of up to 20% of total costs is provided for the renovation of prefabricated panel buildings;
• Financial support for energy audtis of residential buildings in communal ownership;
• Grants for energy audits and efficiency measures in multi-‐family residential buildings
Financing instruments • A loan followed by a grant funding of up to 20% of the amount of the loan is available for individual houlseholds
Energy performance certificates (EPCs)
• Energy performance certificates are mandatory for all new buildings no later than 6 years after commissioning and for all existing buildings with a useful floor area over 1000 m2
Energy advice and audits • Energy agencies and energy auditors provide advice
Information tools • No precise information on information tools available
Demonstration projects • A demonstration project for the renovation of multi-‐family residential bulidings was implemented
Education and training for stakeholders
• Albeit not mentioned in the NEEAP, education and training for energy assessors and auditors is offered by six University centres
Adequacy of policy package • Supply and demand are addressed; • The policy mix is rather balanced
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standards
ES&A targets
economic incen[ves
tradable permits
energy labelling
adequacy of package
obliga[ons
energy taxa[on
planning instruments
regulatory instruments
economic incen[ves
informa[on
R&D support
adequacy of package
Comprehensiveness of policy package
Standards for equipment, production process, products • Ecodesign Directive implemented
Energy savings and action targets for individual companies
• Individual energy saving targets have been set for 297 industrial systems with an annual consumption over 3.000 MWh
Obligations / commitments • Owners of industrial systems must conduct energy audits every three years
Economic incentives
• A credit line facility provides financing for energy efficiency projects and advisory services; Grants are available for the implementation of energy saving technologies
Tradable permits • Not mentioned
Energy or CO2 taxation
• The excise duties on natural gas for business use are below the minimum rate;
• The excise duties for electricity for business use are slightly above the minimum rate
Energy labelling • Partly included in all MS due to EU energy labelling regulation, which does not cover all appliances though
Other sectors • Several measures in the agricultural sector.
Adequacy of policy package • Different actors are considered; Supply and demand side addressed, Policy mix balanced
Industry and Tertiary Sector
Comprehensiveness of policy package
Planning instruments • Programms are not described in detail; Every mode is considered
Regulatory instruments • Measures are not clearly described
Economic incentives • Loans and grants are available
Information and advice • Training on fuel-‐efficient driving
R&D support • Not mentioned
Adequacy of policy package
• The adequacy of the policy package is difficult to assess since some measures are not detailed; Lack of regulatory instruments and information and R&D
Transport Sector
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In 2011 and 2012, Energy-‐Efficiency-‐Watch conducted a quantitative and qualitative survey with national experts on implementation of energy efficiency policies in EU Member States.
The overall ambition of the Bulgarian energy efficiency policy is rated medium-‐low. Only around 30% of respondents (9 questionnaires were completed for Bulgaria) consider the Bulgarian policy as generally ambitious or at least ambitious in a range of sectors. Around 75% or respondents think that progress over the last three years was rather low (no progress or only few additional policies). 60% of the respondents thus expect that the ESD target will not be reached or, if reached, will not lead to significant savings. The greatest gaps are reported for the transport an residential sector. Financing is considered to be the greatest barrier to energy efficiency.
A general concern of respondents is that energy efficiency is not given sufficient political priority at national level.
With regard to buildings respondents report a high need for building refurbishment and insufficient funding for this challenge. However, they also state that building legislation has a stronger focus on energy efficiency due to European Directives and that some funding programmes are available (partly from European structural funds). Experts are nonetheless concerned about the lack of an overall strategy for tackling energy efficiency in the residential sector. Respondents request a combination of legislation, funding programmes and information measures -‐ all these instruments were considered to be currently insufficient.
According to the experts the public sector lacks resources, skills and partly also interest regarding energy efficiency. It was positively noted that some municipalities had implemented energy efficiency projects. in general, according to the experts, there is a lack of resources, skills and partly also interest.
As to the service and industry sector, respondents pointed to the need for modernisation.
The transport sector, the need of improved public transport was mentioned as well as for better mobility management.
In line with the result that financing is reported to be the greatest barrier to energy efficiency in Bulgaria, a great majority of 67% of the respondents consider energy efficiency funds as partly or very effective. However, energy audits are referred to by even more interviewees as an effective or at least partly effective instrument (78%).
Findings from the Expert Survey
56%
11%
22%
11%
Bulgaria: overall ambiVon of the energy efficiency policies
generally, rather low ambi[ous in a few sectors, less so in most others ambi[ous in a range of sectors, less so in a few others generally, rather high
40%
20%
20%
20%
Bulgaria: achievement of naVonal energy savings target
target will not be achieved
target will be achieved but will not lead to a lot of addi[onal savings
target will probably be achieved
target will certainly be achieved
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The governance framework for the promotion of energy efficiency in Bulgaria is promising. Bulgaria has adopted a strategy for the whole energy sector which is outlined in the “Energy Strategy of the Republic of Bulgaria up to 2020”. The Energy Strategy is complemented by the National Energy Efficiency Strategy. At sub-‐national level, regional energy efficiency councils assist regions and municipalities in preparing and implementing their energy efficiency programmes. In addition, energy agencies provide support at national and regional/local level. At sectoral level, the national savings target has been split between obligated parties, industry, energy traders and owners of public buildings. The governance framework thus addresses different actors and different governance layers. A national information system serves as registry for entities that issue buildings certificates or energy audits and serves as a contact point for complaints or inquiries regarding energy efficiency.
The industry sector shows balanced results. A good practice to be highlighted in this sector are individual energy saving targets. Targets have been set for 297 industrial systems with an annual consumption over 3.000 MWh. Further good practice measures can be found in Austria, Estonia and Finland, where educational measures play an important role. Some countries provide strong financial support in the industry sector. This includes subsidies and tax incentives, which are especially prominent in the NEEAPs of France, Germany and UK, where different funds for research and innovation on energy saving technologies, implementation of energy saving measures and support for audits are in place.
The policy package for the transport sector is rather weak in Bulgaria. Good practice examples can be found in the Finnish and Slovenian NEEAPs. Finland has implemented a policy package for the transport sector, which utilizes the complete set of instruments to achieve energy efficiency. One overarching goal of the policy package is the induction of a modal shift by making public transport, cycling and walking more attractive. Finland also makes use of regulatory measures. Among these is the introduction of a general speed limit and mandatory tyre-‐pressure checks twice a year. In Finland vehicle tax rates are dependent on the car’s emissions. The expansion of public transport systems is financially supported e.g. by funding the construction of right-‐of-‐way lanes for buses and subsidized tickets. Various measures aim to give guidance through information. Among these is the inclusion of energy-‐efficient driving in the curricula of driver’s education. A good practice example from Slovenia is to link the subsidy for public transport providers to the number of km travelled by passengers and no longer to the number of km travelled on the road.
Good Practice Examples
Disclaimer The sole responsibility for the content of this publication lies with the authors. It does not necessarily reflect the opinion of the European Union. Neither the EACI nor the European Commission are responsible for any use that may be made of the information contained therein. The analysis performed here is based almost exclusively on the information provided in the NEEAPs. Consequently, a low score for any of the criteria analysed could also be the result of a NEEAP lacking detailed information. The purpose of this assessment is not an absolute ranking among Member States but is focusing on each Member State’s individual conditions.
Photography Credits: PhotoDisc, iStock, www.openclipart.org
The Project In 2006, the European Union adopted the Directive on energy end-‐use efficiency and energy services ("ESD"). The Directive sets an indicative energy saving target of 9 % by 2016 as well as obligations on national authorities regarding energy savings, energy efficient procurement and the promotion of energy efficiency and energy services. It requires Member States to submit three National Energy Efficiency Action Plans (NEEAPs), scheduled for 2007, 2011 and 2014.
The Energy-‐Efficiency-‐Watch Project aims to facilitate the implementation of the Energy Service Directive and the Energy Efficiency Directive. This Intelligent Energy Europe project tried to portray the progress made in implementation of energy efficiency policies since the Energy Service Directive via NEEAPs screening and an extensive EU wide expert survey.
www.energy-‐efficiency-‐watch.org
The Authors Ralf Schüle, Thomas Madry, Vera Aydin, Jonas Fischer, Jan Kaselofsky, Thorsten Koska, Carolin Schäfer-‐ Sparenberg, Lena Tholen (Wuppertal Institute) Daniel Becker, Nikolas Bader (Ecofys) Christiane Egger (O.Ö. Energiesparverband)
with contributions by Reinhold Priewasser, Michaela Kloiber (University of Linz) Nils Borg (eceee), Dominique Bourges (Fedarene), Peter Schilken (Energy Cities)
List of Abbreviations EE – Energy Efficiency, EED – Energy Efficiency Directive, EPC – Energy Performance Certificates, EPDB – Energy Performance of Buildings Directive, ES&A Targets -‐ Energy Savings and Action Targets, ESCO – Energy Service Company, ESD – Energy Service Directive, EU – European Union, EEW – Energy-‐Efficiency-‐Watch, MEPS – Minimum Energy Performance Standards, MRV – Monitoring, Reporting and Verification, MURE – Mesures d’Utilisation Rationelle de l’Energie, NEEAP – National Energy Efficiency Action Plan, R&D – Research and Development
