sou · GWB3110 · 2008-11-18 00:00:00 — Krav på energihushållning vid ombyggnad Teknikupphandling och marknadsintroduktion i sektorn bostäder och service Individuell mätning av varmvatten IMD av el i lägenheter Den offentliga sektorn som förebild Rådgivning och analys för mindre och medelstora Förstärkt CO2B -B komponent i fordonsbeskattningen Sammantaget bedömer utredningen att de åtgärder vars effekter kan kvantifieras innebär en effektivare primär energianvändning på . I slutlig energianvändning motsvaras detta av . Signifikanta effekter kan också antas uppnås med de förslag vars effekter utredningen inte haft möjlighet att kvantifiera. Vid en summering av de bedömda effekterna av nu föreslagna och kvantifierade styrmedel, effekterna av tidiga åtgärder samt utredningens bedömning av befintliga styrmedel nås en effekti- visering av primär energi på . I slutlig energi motsvarar det . I förhållande till energianvänd- ningen motsvarar detta cirka 17 effektivare primär energianvändning respektive cirka 12 effektivare slutlig energianvändning. Om den i slutbetänkandet diskuterade, men ej föreslagna, alternativa åtgärden med en skattereduktion för energieffektivi- serande åtgärder i bostäder genomförs, skulle effekten för övrigt öka med ytterligare cirka en procentenhet. Tabell 3 Samlad bedömning av effekten av tidiga åtgärder, redan beslutade styrmedel och föreslagna styrmedel, TWh/år [TWh/år] energi[TWh] Tidiga åtgärder och redan beslutade styrmedel Utredningens förslag, åtgärder som varit möjliga att Slutanvändarnas årliga minskade kostnader till följd av de före- slagna åtgärderna beräknas, när samtliga förslag nått fullt genom- slag, uppgå till . Ackumulerat över åtgärdernas livslängd bedöms slutanvändarnas energikostnader minska med . Från denna summa ska dras energianvändarnas samlade kostnader för investeringar i de energieffektiviserande åtgärderna. Denna samlade investeringskost- nad har dock inte gått att kvantifiera, varför heller inte storleken på nettovinsten har kunnat beräknas. Här ska dock noteras att samtliga åtgärder är lönsamma för slutanvändarna, möjligen med undantag för vissa av de strategiska investeringar i byggnader, som föreslås få statliga stöd.TPF9FPT Ett nytt nationellt energieffektiviseringsmål gäller ett av antaget, vägledande nationellt mål, som innebär att ska uppnå en energibesparing om i förhållande till den genomsnittliga årliga energianvändningen 2001 2005. Utöver detta har regeringen i budgetpropositionen föreslagit ett mellanliggande mål, beräknat på samma sätt som det föregående, om energieffektivise- ring till år 2010.TP F10FPT En slutsats av utredningens analyser är att det finns skäl att höja ambitionsnivån i effektiviseringsarbetet i förhållande till det nämnda, av beslutade målet. Det innebär att de statliga insatserna för att stimulera energieffektivisering behöver förstärkas 9TP PT Se kapitel 5, avsnitt 5.5.1 10TP PT Budgetpropositionen (2007/08:01), utgiftsområde 21, s. 43 f. i förhållande till nuvarande nivå. Utredningen har, vid bedömning av vad som är en realistisk målsättning, utgått dels från de energieffektiviseringspotentialer som kunnat identifieras, dels från hur stor andel av dessa som kan realiseras med styrmedel som är rimliga i ett bredare samhällsperspektiv. Det innebär att utred- ningen, istället för att först formulera ett mål och sedan utforma styrmedel som är ägnade att nå målet, först analyserat hur stor energieffektiviseringspotential som kan realiseras med en väl av- vägd kombination av rimliga styrmedel och först därefter formu- lerat ett nationellt mål. Utredningens samlade analys visar att de föreslagna styrmedlen, i de delar som kunnat kvantifieras, leder till en energieffektivisering om 12 i slutlig energianvändning och 16 räknat i primär energianvändning. Härtill kommer betydelsen av de styrmedel, vars effekter bedöms vara signifikanta, men som inte gått att kvantifiera. Av den anledningen har utredningen stannat vid att föreslå ett nytt nationell mål som ligger i den övre delen av respektive intervall. Utredningen föreslår därför att antar ett nationellt energieffektivseringsmål, som innebär att slutlig energi respektive primär energi ska sparas genom effektiviseringsåtgärder . Det motsvarar slut- använd energi respektive primär energi. Ett mellanliggande mål ska dessutom fastställas, som ska uppnås under direktivets tredje tillämpningsår, dvs. Detta mellan- liggande mål bör, enligt utredningens bedömning, bestämmas till slutlig energi respektive primär energi. Det mot- svarar primär energi respektive slutlig. Båda dessa mål ska ses i förhållande till den genomsnittliga energianvänd- ningen 2005. The Swedish Energy Efficiency Inquiry's main task is to propose how European Parliament and Council Directive (2006/32/EC) of on energy end-use efficiency and energy services is to be implemented in Sweden.TPF1FPT The directive is referred to here as the EC directive, the directive or the energy-efficiency directive depending on the context. The investigator shall propose a national indicative energy savings target and present a proposal for the first National Energy Efficiency Action Plan (NEEAP), as required under Article 14 of the EC directive. This part of the task is presented in the Inquiry's interim report (SOU 2008:25) A more energy-efficient . The investigator shall draw up proposals for a suitable orga- nisation and any necessary new statutes or statutory amendments. The investigator shall also highlight a number of specific issues relating to the EC directive's rules, e.g. the role of the public sector, the markets for energy efficiency improvement products and services, the need for accreditation and certification schemes, individual metering of heat and hot water, the wording of trans- mission tariffs, informative energy and how information to the general public on energy efficiency can be strengthened. The investigator shall analyse the effects of any proposals on people's private finances and the social economy in general. The investigator is to present a final report by at the latest. This report shall present the Inquiry's final considerations as regards how the EC directive should be introduced in . The proposals include draft measures and instruments that cumulatively 1TP PT Dir. 2006:89, 1. should lead to the minimum indicative target specified under Article 4 of the EC directive being easily achieved. The EC directive on energy end-use efficiency and energy services is an important instrument in the community's efforts to promote more efficient energy use throughout the EU. Under Article 4, the member states shall adopt a national indicative energy savings target of at least 9 percent of energy end use by 2016. The target shall be achieved using cost-effective, practicable and reasonable measures. There is also a more general savings target, which EU heads of state and government supported in the spring of 2007 and which involves savings of 20 percent of primary energyTPF2FPT estimated to be used in EU countries in 2020.TPF3FPT The target of 20 percent primary energy savings is still not legally binding for Member States, however. In addition to these targets at the EU level, there is also a national target, determined by the Swedish Riksdag, stating that total energy consumption per unit area heated in residential and commercial decrease by 20 percent by 2020 and by 50 percent by 2050 in relation to energy use in 1995.TPF4FPT Energy efficiency should be seen in a system perspective according to the Inquiry. This means that primary energy efficiency should be taken into account and evaluated rather than a one-sided focus on energy end use. It is the use of primary energy that determines the consumption of the earths resources, and thereby the amount of emissions affecting the environment. Furthermore, the Inquiry considers that policy measures should be designed, as far as possible, to support a system perspective. 2TP PT Primary energy refers to all the energy used from fuel source to end-user. Primary energy therefore includes not only the energy end use but also the losses that occur in energy production during extraction, transport, conversion and transmission. PT Presidency conclusions at the council meeting on 8-9 2007 (7224/1/07 Rev 1). PT Environmental objective 15 (A good built environment, interim target 6 (Energy use, etc., A lack of system perspective would risk ineffective solutions being prioritized over efficient ones. The Inquiry estimates that early actions and policy measures already implemented can lead to a reduction of approximately energy end use, corresponding to approximately primary energy consumption. This means that without further measures can achieve a reduced energy end use of 7.5 percent or in primary energy terms. Thereby it can be stated, in a broader interpretation of the directive, that will only just achieve the given minimum goal. Achieving energy efficiency improvements that exceed the minimum target and that take us more towards the 20-percent primary energy savings target requires new and more powerful instruments than those employed up until now. A general starting- point for the inquiry has been to present a package of reasonable measures designed to help us progress towards the target of 20 percent primary energy savings. A fundamental starting-point for the inquiry has been to ensure that energy efficiency improvements are profitable both for society and for individual actors such as households, enterprises, etc. Certain guiding principles have been applied for quite some time in when choosing and designing instruments and when formulating energy efficiency targets. These mean that in principle no quantified energy consumption targets should be specified, since such targets require a holistic approach, which can never be achieved in practice. The risk for suboptimisation then becomes considerable. Instruments should be general, such as energy taxes, and not tied to specific technologies. Support to efficient markets, or to measures that are already profitable in themselves, shall be avoided. Prices shall provide correct (or desired) information and search costs should be reduced by removing barriers.TPF5FPT The inquiry believes that these fundamental principles are to a large extent still relevant. It can be ascertained, however, that a great deal has happened recently that affects the wording of targets and design of policy instruments for a more energy- efficient . As has been mentioned earlier, several different quantitative energy efficiency targets have now emerged with fixed time frames. It can also be established that the energy efficiency gap, i.e. the difference between the sum of energy efficiency improve- 5TP PT See e.g. the memorandum efficient energy use (Ds 2001:60). ment measures, in e.g. , that are profitable to implement and the profitable measures that are actually implemented is considerable. On average only 15 percent of the measures that are profitable for property owners are implemented. This situation is similar in industrial and transport sectors. This is new knowledge. Not until now has the energy efficiency gap been possible to verify and quantify empirically. This finding is supported e.g. by a quantitative analysis of measures proposed in conjunction with energy certificates for . In light of this, and considering the potential for profitable energy efficiency improvements, the following indicative principles should mainly apply to the inquiry's considerations and proposals: Future and higher energy efficiency targets than those that apply under the EC directive should be considered. The effect of instruments and measures should be seen and evaluated in a primary energy perspective. Even efficiency measures that are pressing and profitable for private households may need economic stimulation if they are to be implemented. Energy efficiency measures shall be socioeconomically profitable. The inquiry's proposals – The road to a more energy- efficient The housing and service sector Strategic support to energy efficiency measures in The system is proposed to be applied to both residential and tertiary . The Inquiry proposes that the existing subsidies to, inter alia conversion from direct electrical heating are retained and that several new subsidies are introduced for other strategic energy efficiency measures in , e.g. energy efficient mechanical ventilation systems and automation systems. In addition a subsidy is proposed for design and purchasing of efficiency measures recommended after energy performance certi- fication in accordance with statute (2006:985) on energy declara- tion of . All subsidies regarding energy efficiency in should be handled in a common policy model. Subsidies will be allocated in the period 2010 2014. As an alternative to the subsidy model a new, time-limited system with tax reductions for energy-efficiency investments in could be considered. Such a system could be developed with the so called reductionTPF6FPT as a model and could include for example conversion from direct electrical heating, installation of geo-thermal heat pumps and biofuel boilers, extra insulation of roofs and outer walls, energy-efficient windows and tap water fittings and energy-efficiency measures in ventilation systems. The inquiry proposes that energy-saving requirements in connection with refurbishments be introduced and that , and Planning be given the task of evaluating the current requirements for new construction and, where necessary, propose changes. An independent evaluation of the energy certificate system shall be performed no later than . This evaluation shall highlight the experience property owners and users have had of the system and how energy certificates work as an instrument. The evaluation shall include an overview of the types of profitable measures proposed in the certificates and examine whether the system of energy certificates shall be revised so that household and business electricity is also included in them. , and Planning is to be given the task in 2009 of evaluating whether the routines introduced work as intended from a consumer perspective and an administrative point of view. , and Planning shall also be given the task of consulting the to continuously improve and further develop routines and bases for 6TP PT The subsidy (avdrag) was a tax subsidy granted to private individuals who hired workers to carry out renovations or repairs to the homes. revisions made should be in line with the standards that have been devised for energy certificates. Continued promotion of energy services is to be given the task of working with skills improvement, procurement support and information dissemination regarding energy services. Technology procurement and market introduction is to given the task of increasing its efforts regarding the procurement of technology in the housing and service sector. Within the framework of the programme, the shall strive to ensure the emergence of more customer groups. shall also be given the task of increased dissemination of information about the products developed as a result of technology procurements. The central joint () is proposed to systematically help to improve energy efficiency in the district heating sector. On the local level, energy efficiency committees should be established, composed of relevant stakeholders, including . District heating companies in locations where industrial or other waste heat is lost to the surroundings shall test the possibility of utilising this waste heat before decisions to implement other measures are taken. An investigation into utilising waste heat should, where relevant, be a compulsory part of the environmental impact assessment that must be drawn up prior to the construction of new energy production plants. Individual energy metering in multi-unit dwellings The inquiry proposes that requirements for individual metering of domestic hot water shall be introduced for newly constructed or renovated that house dwellings, when not unreasonable. Furthermore, it is proposed that electricity for house- holds in multi-unit dwellings be based on individual metering of electricity consumption in each apartment. A minimum require- ment is for distribution metering with sub-metering to be used. The Energy Markets Inspectorate is to be given the task of performing a special survey, in consultation with the , into how the metering and of electricity is done in commercial premises. This survey shall also include looking into the scope for converting to individual metering. Prolonged and extended programmes for energy efficiency improvements in industry is to be given the task of carrying out a second five-year period for the Programme for efficient energy use in electricity-intensive industries (PFE). In the second PFE programme period, non-energy-intensive enterprises shall also be given the opportunity to participate. is to be given the task of extending the transfer of knowledge about energy efficient improvements to include enterprises that are currently outside the group permitted to participate in PFE. Energy advice to small and medium-sized enterprises energy advice to small and medium-sized enterprises. Regional energy offices, municipal climate and energy advisors, the county administrative boards and energy service companies shall be involved in this work. is to be given the task of administrating this increase in advisory services. These advisory services shall include information, network and, for enterprises with an annual energy end use of more than 0.5 GWh, subsidised energy audits and analysis for a maximum of two days per enterprise. The services shall also include follow-up contact with the enterprises after the energy audits and analyses have been performed. Technology procurement in the industrial sector is to be given the task of carrying out technology procurements for the industrial sector, of forming purchaser groups for such procurements and of disseminating information about technology procurements carried out. Increased CO2B B component in vehicle tax and other tax issues The inquiry proposes an increased carbon dioxide component of vehicle taxation. Vehicles are currently taxed not only a basic amount but also a carbon dioxide component, calculated as per gram of carbon dioxide emitted by the vehicle per kilometre driven. This means that fuel-efficient vehicles are taxed just as highly. calculated per gram, as e.g. gas-guzzling vehicles. The inquiry proposes that a system similar to e.g. the one employed in be introduced in . Using this system, the tax per gram of carbon dioxide increases progressively as the vehicle's fuel consumption rises. A increase in the taxes on petrol and diesel-oil per litre is also proposed. This will lead to an increase for consumers of per litre including VAT. Planning for more efficient transport Infrastructure, traffic and development planning should be better coordinated. This will facilitate energy efficiency improvements through increased cooperation between different forms of transport. Planning on the regional and local level shall stimulate a societal structure that promotes resource-efficient transport. Regional planning coordination is required. A review of the regulatory framework for preferential taxation and allowances should be performed aimed at making it more vehicle-neutral. The inquiry proposes that works in the international arena to ensure the forthcoming average emission requirements in the EU are set at 130 grams of carbon dioxide per kilometre in 2012 and that they are subsequently tightened to a level of 70 grams of carbon dioxide per kilometre in 2025. Emission requirements should also be introduced for light and heavy , buses and non road mobile machinery. The public sector's specific responsibility The inquiry proposes that the public sector, made up of central government, municipalities and county councils, set an example in the area of energy-efficiency and show the way forward for other actors by implementing a central government and municipal energy efficiency programme. is to be given the task in its appropriation directions of integrating the central government energy efficiency programme into environmental management systems. is to be given the task of providing support to central agencies regarding energy efficiency tools such as energy management and lifecycle cost calculation. Municipalities and county councils are invited to enter into energy efficiency agreements with the Swedish state via the in accordance with the agreement model proposed by the inquiry in 6. is to be given the task in its appropriation directions to administrate and follow up the agree- ments with municipalities and to investigate how the Sustainable municipality programme can be extended in the long term and opened up to all municipalities and county councils. Furthermore the Agency shall investigate how compulsory energy efficiency targets, the magnitude of which is to be decided on the municipal level, can be integrated into the programme in a clearer way. Information on energy efficiency improvement The inquiry proposes that the information on energy efficiency improvement within different societal sectors and directed towards various target groups shall be strengthened and coordinated in a combined and mostly web-based Forum for energy efficiency improvement within the . is also to be given the task of broadening the scope of municipal climate and energy advisory services, in consultation with the Swedish Environmental Pro- tection Agency. This task should be performed in close coopera- tion with the relevant professional organisations and actors. A new mandatory obligation to report information on current prices and metered electricity consumption on energy bills is to be introduced for electricity trading and district heating enterprises. On or in conjunction with bills, or in some other appropriate way, these enterprises shall report information on how energy use has developed over a period of at least twelve months retroactively and provide contact information to independent organisations that can give advice on how to use electricity more efficiently. The Energy Markets Inspectorate is to be given the task of monitoring compliance with these rules. The Energy Markets Inspectorate and the are to be given the task of performing an evaluation of how energy enterprises design their bills to with a subscription of a maximum of 63 A. This task is to be carried out in consultation with consumer representatives. The Energy Markets Inspectorate and the will also be given the task of helping professional organisations to improve their energy bill information. Strategic plan and improvement of energy consumption statistics is to be given the task, in consultation with , Statistics and other relevant agencies, to draw up a strategic plan to ensure and improve the quality of energy consumption statistics and to reduce uncertainty in quantitative data. is also to be given the task, in consultation with other national agencies, of improving energy consumption statistics to enable better evaluation of the effects of both existing and future instruments. , , and Planning and other relevant agencies are to be given the task of simplifying data reporting for end-users by increasing data collection coordination. The Swedish Electricity Act and District Heating Act are to be complemented so that the relevant agencies can be authorised to collect the data needed to follow up energy efficiency improvement programmes and measures. Education and training for a more energy-efficient The relevant energy technology and energy supply industries are proposed to in joint efforts to market energy technology professions more forcefully among young people. Further development and in-service training of professionally staff should be expanded and improved.