EN    EN EN 
 
EN    EN  EUROPEAN COMMISSION 
Brussels, 8.3.2011 
SEC(2011) 275 final 
COMMISSION STAFF WORKING PAPER 
Progress report of the Energy  Efficiency Action Plan 2006  
 
 
Accompanying document to the 
  
COMMUNICATION FROM THE CO MMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMI TTEE OF THE REGIONS 
  
Energy Efficiency Plan 2011 
  
COM(2010) 109 final 
 
 
EN 2   EN PROGRESS REPORT OF THE ENERGY EFFICIENCY ACTION PLAN 2006 
TABLE OF CONTENTS  
 
1. EEAP 2006: Structure and objective ........................................................................... 3 2. Achievements in the ten priority actions...................................................................... 4 2.1. Priority action 1: Making produc ts more energy efficient........................................... 5 
2.2. Priority action 2: Making build ings more energy efficient........................................ 10 
2.3. Priority action 3: Making power genera tion and distribution more efficient ............ 14 
2.4. Priority action 4: Energy efficiency in tr ansport through higher fuel efficiency of  
cars ........................................................................................................................... .. 19 
2.5. Priority action 5: financing energy ef ficiency investments for SME and Energy 
Service Companies (ESCOs) ..................................................................................... 25 
2.6. Priority action 6: spurring energy e fficiency in the new Member States................... 29 
2.7. Priority action 7: a coherent use of taxation .............................................................. 33 2.8. Priority action 8: raising energy efficiency awareness .............................................. 35 2.9. Priority action 9: Energy E fficiency in built-up areas ............................................... 39 
2.10. Priority action 10: Fostering energy efficiency worldwide........................................ 40 
3. Achievements in energy services............................................................................... 43 3.1. Main objectives of the Energy Services Directive..................................................... 43 3.2. Level of implementation ............................................................................................ 44 3.3. Expected impact of the Energy Services Directive.................................................... 45 3.4. Overall assessment..................................................................................................... 46 4. Overall contribution of the en ergy efficiency action plan ......................................... 47 
4.1. General achievements and limitations ....................................................................... 47 4.2. Contribution of the EEAP to the energy saving objective in 2020............................ 48 
4.3. Way forward – A new Framework on Energy Efficiency Policies............................ 48  Annex 1: Status of EEAP implementati on by measure (as of October 2010) ......................... 50 
 
 
EN 3   EN  
In the light of Europe's 2020 energy and clim ate goals, political leaders committed in 2007 to 
reduce by 20%1 the EU's primary energy consumption compared to a projection.2 Ahead of 
Member States' political endorse ment, the Commission had alrea dy tabled in Oc tober 2006 an 
Action Plan for Energy Efficiency (EEAP 2006)3 as a first major step towards achieving the 
20% energy saving potentia l. A midterm review of this Action Plan was foreseen to assess the 
progress achieved. 
The aim of the following report is to present th e progress realized with  the implementation of 
the Action Plan until the end of the third quart er of 2010. It will focus on the ten priority 
actions put forward by the Commission. 
Emerging strengths and flaws of the Plan and of its measures will be identified and 
conclusions will be drawn, serving as valuable input for the new European energy efficiency 
plan. 
1. EEAP  2006:  STRUCTURE AND OBJECTIVE  
Building on the experience gained with a first Energy Efficiency Action Plan4 adopted in 
2000, the Commission tabled in 2006 a more de tailed and all encompassing second Energy 
Efficiency Action Plan for implementation between 2006 and 2012. 
The objective of the EEAP 2006 was to "mobilise th e general public and policy-makers at all 
levels of government, together with market actor s, and to transform the internal energy market 
in a way that provides EU citizens with the globally most energy-efficient infrastructure, 
buildings, appliances, processe s, transport means and energy systems". It also aimed at 
encouraging citizens to use ener gy in the most rational manner. 
The EEAP is structured into six priority ar eas covering the main energy-using sectors under 
which 85 (sub-) measures are grouped. Ten priori ty actions were selected to be initiated 
immediately and implemented as soon as possi ble for maximum effect (see table 1). The 
portfolio of measures proposed is compre hensive although heterogeneous in terms of 
• type (e.g. regulatory, market-based, fis cal, support and information as well as 
voluntary instruments), 
• sectors addressed (buildings, products , services, energy transformation and 
distribution, transport) 
• level of implementation (EU, national, regional, city) and 
• stakeholders involved (government s, private sector, citizens). 
                                                 
1 This cost-effective saving potential has been previously estimated by the Commission in its 2005 Green 
Paper on Energy Efficiency. See COM(2005) 265 final. 
2 7224/1/07 REV 1: Presidency Conclusions of the European Council of 8/9 March 2007 
3 COM(2006) 545 final 
4 COM(2000) 247 final 
 
EN 4   EN In addition to the sectoral approach, cross cutt ing issues such as energy related behaviour, 
financing and international coope ration are addressed. This all- encompassing approach of the 
Action Plan reflects the comp lexity of tackling energy e fficiency through policies and 
measures. 
Table 1 : Structure of the Energy Efficiency Action Plan 2006 
6 priority areas 10 priority actions 85 (sub-) measures SECTORS 
Energy-using products 
Energy services 
 
Residential, commercial & 
public buildings (1) Appliance & equipment & 
minimum energy performance 
standards 
(2) Building performance requirements 
and very low energy buildings 
Energy transformation (3) Making power generation and 
distribution more efficient 
Transport (4) Achieving fuel efficiency of cars 
HORIZONTAL ISSUES 
Financing 
 
 
Economic incentives  
Energy pricing (5) Facilitating financing of energy 
efficiency invest ments for SME and 
Energy Services Companies 
(6) Spurring energy efficiency in the 
new MS 
(7) Coherent use of taxation 
Energy behaviour (8) Raising energy efficiency awareness 
(9) Energy efficiency in cities • Regulatory instruments  
• Economic & market-
based instruments  
• Information & support 
programs  
• Voluntary actions  
International partnerships (10) Foster energy efficiency worldwide 
At the time of adoption, it was estimated that the full implementation of the measures 
proposed have the potential to reduce primary energy consump tion by approximately 14% in 
20205 compared to a projection. It is worth noting, that the Action Plan it self does not aim at 
reducing energy consumption by 20% in 2020. To th e contrary, it states that further action 
would subsequently be requi red to reach this goal by 2020. 
2. ACHIEVEMENTS IN THE TEN PRIORITY ACTIONS  
EEAP 2006 defined ten priority actions cove ring the main energy-using sectors and key 
horizontal issues. As mentioned in the introduc tion, this assessment of the EEAP will focus 
mainly on the achievements in these ten priority actions. 
The findings presented in this report are ma inly based on input pr ovided by COM services.6 
The objective is to provide an appraisal of th e progress achieved with the implementation of 
the priority actions. Quantification will be made  wherever possible and meaningful, based on 
expected impacts calculated in im pact assessment analysis. Quantifi cations will be adjusted as 
best as possible, based on the observed implemen tation reality. It is important to understand 
the quantifications provided as  rough estimates which cannot si mply be added to give an 
overall impact. It is proposed to look at the progress made in each priority action separately 
and to provide an overall assessment of the EEAP's impact based on the energy model 
PRIMES. 
                                                 
5 SEC(2006) 1174, SEC(2006) 1175 
6 Interservice Steering Group on En ergy Efficiency and Joint Res earch Center of the Commission  
 
EN 5   EN A question into which this assessment will no t look further is whether the absolute energy 
savings realised by energy efficiency gains in buildings, products, cars, etc. could be possibly 
offset by growing disposab le incomes translating inter alia  into more products and cars 
owned, and increases in thermal comfort, leisure activities and travelling distances. This is the 
so-called "rebound" effect. It ha s been assessed that for most consumer energy services in 
OECD countries, this effect is unlikely to exceed 30%.7 As this effect would be relevant for 
every energy efficiency improvement measure and its order of magnit ude depends strongly on 
the end-use sector, policy makers should in gene ral reflect on it when designing policies, but 
this aspect will not be taken into account in this evaluation exercise. 
2.1. Priority action 1: Making products more energy efficient 
Households consume approximately a quarter of total final energy and 30% of total 
electricity. Heating systems, cold appliances (refrigerators and freezers ), lighting and water 
heating systems are responsible for more than ha lf of the electricity consumed in households.8 
Energy consumption can be significantly lowere d in a cost-effective way through a set of 
policies transforming the market towards more  energy efficient products. The setting of 
minimum efficiency and labelling requirements is widely recognized as one of the most 
effective policy tools in the area of energy efficiency. 
Against this background, the Action Plan defi ned as its first priority action for the 
Commission to update the labelling and energy performance standards for appliances and 
other energy-using products on the basis of the Labelling and Ecodesign Directives. To this 
end, the Commission committed to: 
• Adopt ecodesign requirements for 14 priority product groups9 with a view to having all of 
them approved by the end of 2008 (2.1.1); 
• Revise the Framework Directive 92/75/EC on La belling to reinforce its effectiveness and 
to upgrade the existing Labell ing classifications (2.1.2). 
The labelling and the setting of minimum en ergy performance standards for products are 
complementary policies, i.e. products covere d by implementing measures adopted under the 
Ecodesign Directive are generally mirrored in the implementing measures adopted under the 
Energy Labelling Directive. This leads to rein forced impacts of the two legal instruments 
since minimum standards driv e out poorly performing energy products from the markets, 
while labels provide transparency and inform ation to consumers, indirectly encouraging 
innovation and development of best performers. 
2.1.1.  Selected eco-design requirem ents for 14 product groups 
The Ecodesign Directive (2009/125/EC) provid es the framework for setting minimum 
performance requirements for environmental aspects of energy-usi ng and energy-related 
products that are placed onto the market. Alth ough products are assessed with a lifecycle 
perspective, energy consumption during use is ge nerally the main environmental impact of the 
product. The requirements for each product ar e set by means of implementing measures 
                                                 
7 UK ERC (2008): The Rebound Effect: an assessment of the evidence for econo my-wide energy savings 
from improved energy efficiency. 
8 Bertoldi, P. and Atanasiu, B. (2009): Electricity consumption and efficiency trends in the European 
Union - Status Report 2009. European Commission, JRC Ispra. 
9 Product groups: Boilers, water heaters, computers, imaging, televisions, standby, chargers, office 
lighting, street lighting, room air, motors, cold commercial, cold domestic and washing. 
 
EN 6   EN adopted by the Commission assisted by a re gulatory committee (pre-Lisbon legislation). 
Implementing measures are Commission regulations  which are directly applicable and do not 
require transposition into national law. Natio nal authorities are responsible for market 
surveillance. These auth orities verify that all products (including imports) placed on the 
market and/or put into service meet the spec ific ecodesign requirements for that product. 
The implementing measures seek to target bo th manufacturers and consumers, by promoting 
better product design that will result in improved environmen tal performance, lower energy 
consumption, and ultimately lower costs. Thus, the individual measures either directly or 
indirectly affect all EU  citizens as well as virt ually all EU industry or  retail sectors through 
the design, manufacture, sale and use of  products covered by the requirements. 
The original Ecodesign Directive (2005/32/EC) has been transposed by all Member States and 
the transposition of its 2009 recast will necessitat e a mere adaptation of national law. As it 
stands today, the implementation of the Ecodesi gn Directive is progressi ng well. In line with 
the requirements defined in priority action 1 of the EEA P, implementing regulations have 
been adopted in 9 of the selected 14 priority groups,  covering domestic, industrial and 
commercial appliances. 
The expected savings achieved by the implem entation of the Ecodesign Directive and its 
implementing measures in 2010 are negligible. Th is is due to the fact that the ecodesign 
measures are largely starting to enter into e ffect from 2010 onwards a nd will then take some 
years for their effect to be felt fully (as ex isting products are replaced  during their normal life-
cycles). Nonetheless, some products meeti ng ecodesign requirements will already be on the 
market in advance of mandatory implementation dates, delivering environmental benefits. It 
should be noted that energy saving gains from the purchasing of energy-efficient appliances 
will have a cumulative effect and are not simply 'one-off' savings – thus, earlier implementation of standards by  industry is of added value.  Certain measures such as 
requirements for the standby consumption of elec tric appliances will also have an effect 
beyond the EU as manufacturers of goods trad ed worldwide will implement the same 
technology on all their models irresp ective where they will be shipped. 
The implementation of the nine measures adopted thus far has been estimated to deliver up to 
341 terawatt hours (TWh)  of energy savings by 2020 (equating to 70 million tonnes of oil 
equivalent (Mtoe) primary energy savings
10), which is equivalent to circa 12% of the 
current EU's total electricity consumption. Th e estimated savings are detailed in table 2. 11 
These saving figures include the combined ef fect of Ecodesign and labelling as well as 
installation requirements under the Recast En ergy Performance of Buildings Directive12, 
where applicable. These energy savings will  be supplemented as further implementing 
measures are adopted. For 2010 and 2011, priority  implementing measures covering boilers, 
water heaters and air conditioners will be adopted, estimated to generate savings of a further 102 Mtoe in 2020, if all are adopted in full. 
                                                
 
10 The conversion from final electricity consumption expressed in TWh into primary energy consumption 
expressed in Mtoe is based on the generally accepted as sumption that there is a 40% efficiency rate for 
the generation and transmission of electricity. 1 TWh electricity consumption = 2,5 TWh primary energy consumption = 0,215 Mtoe. 
11 See results of studies carried out at: http://ec.europa.eu/energy/efficiency/studies/ecodesign_en.htm 
12 2010/31/EU 
 
EN 7   EN Table 2 : Adopted implementing measures ranked by expected savings in 2020 
Implementing measure Regulation Date of 
application13 Estimated 
savings by 
2020, TWh 
1. Electric motors 640/2009 16.06.2011 140 
2. Televisions 624/2009 20.08.2010 43 
3. Street & office lighting 245/2009 13.04.2010 38 
4. Domestic lighting 244/2009 01.09.2009 37 
5. Standby & off mode electrical power consumption 1275/2008 08.01.2010 35 
6. Glandless circulators 641/2009 01.01.2013 27 
7. External power supplies 278/2009 27.04.2010 9 
8. Domestic fudges & freezer s 643/2009 01.07.2010 6 
9. Simple set-top boxes 107/2009 25.02.2010 6 
TOTAL 341 
Source: http://ec.europa.eu/enterprise/policies/sustainable-business/ecodesign/product-groups/index_en.htm 
2.1.2.  Implementation and revision of the Labelling Directive 
The Labelling Directive 92/75/EEC requires manuf acturers to declare the energy efficiency 
class of their product and to have it displayed by  means of a label at th e point of sale (e.g. 
shops). With the Labelling Direc tive, the energy label became a key instrument for fostering 
energy efficient products . 
The labelling classes for each type of applia nce are set by means of implementing measures 
adopted by the Commission. The measures seek to target consumers by providing potential 
purchasers of household appliances with comparab le and credible standardised information on 
the actual efficiency performance of the products when in use. This helps consumers to make 
an informed purchasing decision. It thus indirectly targets manufacturers who will be influenced by the effects that the labelling has on sales of designs. 
The framework Directive has applied from July 1993. Implementation of the Labelling 
Directive has proven to be so successful in stimulating manufacturers to build class A 
appliances that higher classes ar e needed for most appliances. Thus, it can be shown that, as a 
direct result of this legislation, manufacturer s have brought onto the market energy-efficient 
products.
14 The model of labelling has been copied  by other countries worldwide, suggesting 
that the measure is effective. 
In addition to the implementation of the La belling Directive, the Commission proposed its 
recast as a priority for immedi ate action, with the aim of: 
• Extending its scope beyond household appliances  to include industr ial and commercial 
equipment; 
• Extending its scope to energy-related produc ts (those which do not consume energy but 
contribute to energy conservation when  in use (e.g. insulated windows); 
                                                 
13 The dates are related to the time of application of the first stage requirement. The multiple dates of 
application, ranging between end 2009 and beginning 2013, allow performance requirements to be 
raised on an incremental basis and industry to adapt product design. 
14 For the successful market transformation towards higher penetration rates of energy efficient cold 
appliances, washing machines and dishwashers see Be rtoldi, P. and Atanasiu, B. (2009): Electricity 
consumption and efficiency trends in the European Union - Status Report 2009. European Commission, 
JRC Ispra. 
 
EN 8   EN • Upgrading existing labe lling classifications; 
• Linking the Directive to public procurement; 
• Strengthening provisions li nked to advertisement. 
With the recast Directive 2010/30/EU adopted by the European Parliament in May 2010, the 
scope of the Energy Labelling Directive has been aligned w ith the scope of the revised 
Ecodesign Directive, which was al ready extended to energy-rela ted products in 2009. In line 
with the priority action defined by the EEAP, the recast of the Labelling Directive extends the 
new labelling scheme to a wider range of produc ts in the commercial and industrial sector, 
including energy-using and energy-related products . It is also the legal basis to extend the 
scope to other consumer products such as te levisions, water heaters and boilers. With the 
adoption of the revision the existing labelling classification for each product will be upgraded 
through delegated acts. The revision  sets out that the label is to  be based on a A to G scale, a 
maximum of 3 more classes may be added on t op of class A and these new classes will be 
named A+, A++ and A+++. 
Figure 1 : New label layout for washing machines 
 
The following delegated acts for the household sector were adopted by the Commission in 
September 2010:  
• Televisions 
• Household electric refrigerators, freezers and their combinations 
• Household washing machines and dishwashers 
In the course of 2011 delegated acts on boile rs, air-conditioners, wa ter heaters and laundry 
dryers will follow. An updated label on lighting will be adopted in 2011. 
Future products to be legislated in the near future are e.g. commercial  refrigerators, vending 
machines and display cabinets  in the commercial sector. 
It is estimated that the full implementation of the Labelling Directive re sults in energy savings 
corresponding to 27 Mtoe annually by 2020. 
 
EN 9   EN The EU's energy labelling requirements can l ead to some increase in operating costs for 
manufacturers and retailers. Ho wever, at least in the case of  white goods manufacturing, 
operations have become more profitable, costs reduced and the efficiency improved with help 
of technological development and guidance towa rds more efficient and profitable appliances 
by the energy label, despite the fears of manufacturers when the policy action was initially introduced in the nineties.
15 
2.1.3.  Making products more energy efficient: overa ll assessment of th e priority action 
The first priority action has been initiated and implemented with success, though with some 
delays regarding the original timeline for the adoption of the ecodesign requirements. This 
delay was mainly due to an overly ambitious time  table given the available resources. It will 
have a substantial impact by 2020. The impact c ould be further enhanced with appropriate 
information on products running costs to consumers inter alia  with trained salespersons in 
retail shops. 
Two possible issues could reduce the expected  impact of European product policies: the 
rebound effect and the absence of proper enfo rcement (market surveillance) by Member 
States (MS) to ensure that products placed on their national markets meet the ecodesign and 
energy labelling requirements. For the second issue, an administrative cooperation group 
between MS market surveillanc e authorities has been set up by the Commission in order to 
ensure a proper enforcement of this policy. Th e rebound effect will be  difficult to overcome, 
as it is inherent to any polic y measures tackling efficient uses  of energy in products and not 
energy behaviours, i.e. limiting the quantity of products used. 
Further work will be carried out in the next years to prepare and adopt further ecodesign 
implementing measures for additi onal product groups, reflecting inter alia  the 2009 revision 
of the Ecodesign Directive to cover energy-rela ted products, i.e. products  which can directly 
or indirectly affect energy consumption. As a complementary policy, labelling requirements 
for the same product groups will be adopted in  parallel whenever possible and meaningful. 
2.1.4.  Other product related measures 
In addition to the measures explicitly menti oned as priority actions , other product related 
measures were put forward by the EEAP 2006 and implemented: 
• The implementation and amendment of the Energy Star Agreement on office equipment 
has been finalized. A new 5-year Energy Star  Agreement was concluded between the EU 
and the US in the end of 2006. The impact of  the Programme has been reinforced by the 
provisions of Regulation (EC) 106/2008 which ob liges central government authorities of 
Member States and EU institut ions to procure equipment not less efficient than Energy 
Star. Criteria for computers, displays and im aging equipment have been strengthened and 
are expected to trigger about 30 TWh annual savings by 2020. Criteria for additional 
product groups, including servers,  data storage, and small network equipment are being 
developed and should become applicable in 2011 and 2012. 
• The adoption of voluntary agreements with manufacturers on ecodesign requirements for 
the product groups of complex set-top boxes,  imaging equipment, machine tools and 
                                                 
15 SEC(2008) 2862 
 
EN 10   EN medical imaging equipment is on the way. A first agreement on complex set-top boxes is 
about to be finalized. 
2.2. Priority action 2: Making buildings more energy efficient 
Energy used in residential, commercial and pu blic buildings for space  and water heating, 
cooling, ventilation, lighting, et c. makes up 40% of the EU's final energy consumption. The 
major Community legislation addressing the en ergy performance of buildings is the Energy 
Performance of Buildings Directive (EPB D) of 2002. The Action Plan tackles energy 
efficiency in buildings by pushing for the fu ll implementation of the EPBD and by putting 
forward its revision - as the second prior ity action. To this end, the EEAP included the 
following measures to make buildings more energy efficient: 
• Expanding substantially the scope  of the Directive to include the majority of buildings; 
• Proposing EU minimum performance require ments for new and renovated buildings; 
• Developing in collaboration with  the buildings sector a stra tegy for very low energy or 
passive houses by the end of 2008; 
• Setting a good example by leading the way, as far as the Commission's own buildings are 
concerned. 
Before considering progress achieved in the rea lisation of this second priority action, it is 
necessary to provide an overview of the im plementation status of the 2002 EPBD, as one 
important measure of the Action Plan and as  a logical element leading to its recast. 
2.2.1.  Implementation status of 2002 Energy Performance of Buildings Directive 
The Energy Performance of Buildings Direct ive (2002/91/EC) was adopted in 2002. Its main 
objective is the promotion of cost-effective impr ovement in the overall energy performance of 
buildings, whilst taking into account local cond itions and requirements. It covers energy 
needs for space and water heating, cooling, vent ilation and lighting. It does not fix concrete 
EU-wide minimum energy performance requirements, but obliges MS to define comprehensive methodologies, requirements and inspection and certification regimes to rate 
the energy performance of buildings  at a national/regional level. 
MS had to transpose the Directive by January  2006. For certain provisions, an additional 
period of three years could be  applied, i.e. until January 2009
16, which most MS opted for. In 
practical terms MS thus had effectively up to 7 years to fully implement this legislation. 
Despite this long period of time, EPBD impl ementation has to be seen as in continuous 
progress since not all count ries have yet fulfilled all the requi rements to their full extent. As a 
result of a thorough conformity check anal ysis carried out by the Commission on the 
transposition of the Dir ective in national legisl ation, clarification need s have been identified 
in 15 MS. 
When considering impacts achieved, one of the ke y merits of the EPBD has been to bring the 
relevance of energy efficiency in buildings onto political agendas, integrate it into building codes and improve its visibility for citizen s. Implementing the EPBD has been a major 
challenge for many MS. Indeed, prior to its ad option in 2002, about ten Member States did 
                                                
 
16 Upon notification to the Commission, MS could, because of lack of qualified and/or accredited experts, 
have an additional period of three years to apply fully the provisions of Articles 7, 8 and 9 (i.e. until 
4.1.2009). 
 
EN 11   EN not have regulations in place addressing energy consumption in buildings. There are several 
countries with success stories showing a major ch ange in the energy performance of their new 
building stock as well as regarding market uptake of innovative systems and technologies, 
where the EPBD regulations have had a catalysing effect.17 It is very likely that in the absence 
of the EPBD, the situation would have rema ined in most MS as it was prior to 2002.18  
The following major achievements have been  triggered by the adoption of the EPBD: 
• Establishment of a common understanding among all 27 MS on how to set minimum 
energy performance requirements19 and on how to calculate the energy performance of 
buildings; 
• Average tightening of energy performance requirements by 15 % to 30%;20 
• Improved comfort level and indoor air quality in houses; 
• Development of 31 building related CEN standard s, which can be promoted internationally 
and facilitate market entrance for European co mpanies in e.g. China, India and the US. The 
EPBD is perceived as the most ambitious  and comprehensive building legislation 
worldwide; 
• Introduction of a Concerted Action21 to assist MS in their implementation process and 
facilitate the exchange of best practices  and lessons learned in this complex and 
fragmented area; 
• Enhanced data collection on the quality of the EU building stock through the certificate 
scheme.  
Alongside the positive developments witnessed in the buildings sector across Europe, it is 
also important to draw the attention to the main  shortcomings identified in the implementation 
process of the Directive as well as in the lega l provisions themselves, wh ich led to delays in 
transposition: 22 
• Ambiguous formulations of some legal provis ions in the Directive lead to different 
implementation practice in the MS; 
• Limited scope of the Directiv e: in relation to renovation23 it addresses only 28% of the 
existing buildings stock;24 
• Some MS were not well prepared to meet the le vel of complexity set out in the Directive; 
this led to limited or insufficient resources foreseen for implementation; 
• Low level of ambition in the implementation process;25 
                                                 
17 For a country specific assessment of EPBD implem entation see EC (2008): EPBD Buildings Platform - 
Country reports 2008. 
18 This assessment is confirmed by many stakeholder associations in their reports, e.g. the report of the 
Royal Institution of Chartered Surveyors (RICS) "T owards an Energy Efficient European Building 
Stock" of December 2009. 
19 U-values are now commonly used for building elements and kWh/m² values for full 
refurbishments/new built. 
20 INIVE (2010): Stimulating increased energy effi ciency and better buildings ventilation, p. 118. 
21 It has been initiated in 2005. This network/platform had a positive impact on effective, speedy and 
powerful implementation of the provisions of the 2002 EPBD.  
22 See SEC(2008) 2864; eceee (2009): eceee views on the Energy Pe rformance of Buildings Directive 
recast proposal. 
23 EPBD provisions call on MS to require that certain  minimum energy performa nce levels are met when 
existing buildings above 1000 m2 undergo a major renovation. However, in a number of Member 
States, this 1000 m2 threshold has been lowered or abolished so that all buildings that undergo major 
renovation have to fulfil certain energy performance requirements. 
24 Reference to the building stock of EU-15, as the EPBD was adopted in 2002. 
 
EN 12   EN • Weak mechanisms for feedback and for ensuring compliance. 
The first of two of these limitati ons of the EPBD were addresse d in the recast proposal tabled 
by the Commission at the end of 2008. 
2.2.2.  Recast of the Energy Perfor mance of Buildings Directive 
The Action Plan identified the recast of the 2002 EPBD as the key pr iority action in the 
building sector. The objectives were defined as substantially expanding the Directive's scope, 
proposing minimum EU performance requirem ents for new and existing buildings, and 
developing a deployment strategy for ve ry low energy or passive houses.  
The Commission tabled the EPBD recast proposal in November 2008.26 The European 
Parliament and the Council agreed on a recast Directive in May 2010 and the new legislation 
entered into force in July 2010.27 MS must transpose the new Directive from July 2012. The 
objectives for the recast set out in the EEAP were addressed as follows: 
• Scope: The scope has been extended to include ba sically all existing and new buildings, as 
the 1000 m² threshold was abolished in all relevant articles. However, MS have the 
possibility not to apply mini mum performance requirements  for certain categories of 
buildings such as industrial s ites and historical buildings.28 
• Setting harmonised minimum energy perfor mance requirements at EU level for new 
and renovated buildings: This proposal of the EEAP 2006 proved to be unfeasible given 
the important differences in prevailing calculation methods defining the energy 
performance of a building.29 In addition, local conditions (e .g. climate, culture, history) 
shaping the features of the building stock in each country seemed to be too disparate to 
allow for meaningful harmonized minimum ener gy performance requirements at EU level. 
This issue was solved in the recast by introduc ing an obligation on MS to perform a cost 
effectiveness assessment in order to set cost-optimal minimum requirements.30 This 
minimum performance level is to be cal culated based on a comparative methodology 
framework, which is to be defined in deta il under a Comitology process in 2010-2011. In 
the years up to 2020, a (comparative) benchmarking method will be applied to set standards for all buildings, existing and new ones. From  2020 on, ‘nearly zero energy
31 
standards’ will be applied for new build ings (from 2019 for new public buildings). 
                                                                                                                                                         
25 Experience with certificates show s that some are of very poor quality and do not provide sufficient nor 
correct information, raising questions about their overall usefulness. Similar limitations results from the inspections schemes for boilers and air-conditioning systems, as their role has not been properly defined 
in the Directive. Further, the energy performance requirements set by MS do not fully meet expectation 
with regard to their level of ambition. At present there are many MS that do not have cost-optimal requirements. 
26 COM(2008) 780. The original planning foresaw a proposal for 2009. 
27 Directive 2010/31/EU of the European Parliament and of the Council of 19 May 2010. 
28 Article 4(2) of Directive 2010/31/EU 
29 See INIVE (2010): Stimulating in creased energy efficiency and better building ventilation, p.72-75. 
30 This means the energy performance level which leads to the lowest cost during the estimated lifecycle. 
See definition 14 in Article 2 of Directive 2010/31/EU. 
31 A nearly zero-energy building has a very high energy performance and the nearly zero or very low 
amount of energy required should be covered to a very significant extent by energy from renewable 
sources, including energy from renewable sources pr oduced on-site nearby. See definition 2 in Article 2 
of Directive 2010/31/EU. 
 
EN 13   EN • Strategy for very low energy or passive houses : The EEAP proposed that the 
Commission takes "the necessary steps, in collaboration with the building sector, to 
develop a deployment strategy, with a view to  moving towards this type of house as a 
standard in new construction in the medium term, as the appropriate  technologies become 
commercially available". The recast chose a different approach by introducing a provision to ensure that as of January 2021 all new bu ildings will be nearly zero-energy buildings.
32 
In addition, MS will have to draw up nati onal plans on how to increase the number of 
nearly zero-energy buildings in their country  taking into account their relative starting 
positions and national circumstances. These nati onal plans are to set intermediate targets 
for 2015. Further information on the policies and financial or other measures adopted to promote nearly zero-energy buildings have to be included. As regards the existing building 
stock, MS need to develop policies and take me asures (e.g. targets) in order to stimulate 
the transformation of buildings that are refu rbished into nearly zero-energy buildings. The 
plans will be evaluated by the Commission, based on which a report will be published 
reflecting the progress made by MS in incr easing the number of nearly zero-energy 
buildings. On the basis of this report, the Co mmission will develop an  action plan and, if 
necessary, propose measures to increase the num ber of those buildings and encourage best 
practices as regards the cost-e ffective transformation of existing buildings into nearly zero-
energy buildings.
33 
2.2.3.  Exemplary role of the public sector to tackle Commission's own buildings 
The Commission committed itself as a public authority to set a good example by leading the 
way with its own buildings. The objective was to  certify all Commission buildings within the 
EMAS system and to extend EMAS certification to other EU instituti ons. As of September 
2010, almost 40% of Commission's buildings in  Brussels are EMAS registered and the 
remaining buildings will be  gradually certified until 2014.34 Further, energy efficiency and 
legal conformity is now integral part of th e procurement procedures for new buildings. The 
European Parliament is EMAS registered for their three sites in Brussels, Luxembourg and 
Strasburg. The Committee of Regions and the Economic and Social Committee are starting 
the implementation of an Environmental manage ment system in line with EMAS while the 
Council has not yet started registra tion activities of  its buildings. 
In this light, the exemplary role of public auth orities has also been explicitly tackled in the 
recast of the EPBD. Indeed, from 2019, public  authorities that occupy and own a new 
building shall ensure that the building is a n early zero-energy building. Public authorities 
should become early adopters of energy effi ciency improvements measures and should 
implement the recommendations included in the energy performance certificate as soon as 
feasible. 
2.2.4.  Making buildings more ener gy efficient: overall assessment 
The priority action defined for the building sector  has been successfully initiated in the course 
of 2008 and finalized in November 2008 with a recast proposal tabled by the Commission for 
the 2002 EPBD. The recast EPBD is expected to have a major impact on the future final energy consumption in buildings. Next to reducing energy consumption, the renovation 
                                                
 
32 For the public sector this provision needs to be implemented already 2 years earlier. 
33 See Article 9 of Directive 2010/31/EU. 
34 Nine additional buildings will be registered with EMAS in 2010. 
 
EN 14   EN process of the existing building st ock as well as the constructio n of nearly zero-energy houses 
will have significant quantitative and qualitative impacts on employment. The impact assessment accompanying the EBPD recast proposal estimated a positive direct job effect of up to 450,000 new employments in the construction sector. The key benefit of these job creations is that they are benefiting local bu sinesses, many of which are SMEs. In order to 
deliver the "deep" renovations in terms of impr oved energy performance and the roll out of 
new nearly zero-energy buildings  the qualifications of the i nvolved workforce need to be 
strongly improved through adequate  professional training measur es and adapted university 
curricula. The higher level of qualifications of the workforce as well as the acquired 
knowledge on state-of-the-art low energy buildi ngs will bring an additional competitive edge 
to the European building industry. 
The impacts of the recast EPBD will material ize only in a few years time. However, some 
factors could further enhance the implementation process in MS, such as the EPBD Concerted 
Action, dedicated financial incentives (e.g. tax-ex emptions, green mortgages) as well as the 
allocation of European Regional Development Funds
35 for energy-efficiency improvements 
and renewable energy measur es in housing (see 3.6). 
All in all, energy consumption in the building sect or will only be drasti cally reduced when the 
building stock of today, which also reflects to a great extend the future building stock in 2050 
(renovation rate averagi ng 1% to 2% across MS) is effectively transformed towards low 
energy buildings. Increasing the renovation rate of existing building is the key. The recast 
EPBD is an important step forward, as it sets  the legal framework. Be yond all, owners (public 
commercial and residential) need to be strongly  incentivized to invest in improving the energy 
performance of their buildings. Innovative fi nancing concepts and skilled construction 
workforce are needed to realise the needed transformation until 2050. In the coming 10 years, the course needs to be set. The public sector  could lead by example by starting the renovation 
process in its own buildings. 
2.3. Priority action 3: Making power gen eration and distribution more efficient 
The third priority area for acti on is power generation and distri bution. About 30% of the EU's 
primary energy consumption is consumed by the energy sector, mainly for transforming 
energy into electricity and heat , and for distributing it. The av erage transformation efficiency 
for electricity generation is of around 40%. Furt her, losses in the tran smission and distribution 
of electricity are referred to be often as high as 10 %. Consequently, the EEAP 2006 
concluded that this sector had a large potential for energy sa vings and defined as priority 
action for immediate initiation to make power ge neration and distribution more efficient. For 
this purpose, the Commission intended to: 
• Develop minimum binding efficien cy requirements for new elec tricity, heating and cooling 
capacity lower than 20 MW and consider, if  necessary, such requirements for larger 
production units (2.3.1); 
                                                 
35 Since May 2009, all MS have the opportunity to use up to 4% of their allocation from the European 
Regional Development Fund for en ergy-efficiency improvements an d renewable energy measures in 
existing housing so as to support social cohesion , i.e. the EU can co-finance national or regional 
schemes to promote the installation of double glazing, wall insulation or solar panels. Previous 
legislation gave only new MS limited possibilities to use support from the ERDF for housing. It 
however remains to be seen to what extent these new possibilities will be used. 
 
EN 15   EN • Develop with the energy supply industry guidelines on good operating practices for 
existing capacity to raise average genera tion efficiency for all plants (2.3.2); 
• Agree on guidelines on good regulatory practi ces to reduce transmission and distribution 
losses (2.3.3); 
• Propose a new regulatory framework to pr omote the connection of decentralised 
generation (2.3.4). 
In addition to Priority Action 3 other meas ures were listed in the Annex to the 
Communication on the EEAP 2006. These measures  could be summarised as actions to 
implement, amend and improve the Directive 2004/8/EC on the promotion of Cogeneration.  
2.3.1.  Minimum binding efficiency requiremen ts for new electricity, heating and 
cooling capacity lower than 20MW and larger production units 
The threshold of 20 MW was set to address generation which is no t covered by the EU 
emissions trading scheme (ETS). This specific measure requires addressing a large number of 
different, often custom-made equipments and pr oduction units, the efficiency of which to a 
great extent depends on the system they are part  of. Such efficiency measures are costly to 
develop and create a risk of being too stringent (command and control measure) and not well-
adapted to fast changing technical solutions. Since the cost of such measures risk to be larger 
than the benefits, efforts have been spent on other, more cost-effective energy efficiency 
measures that should be exploited first. For th at reason, the measure has not been concluded, 
but may become timely at a later stage, when other options have been exploited. 
Nevertheless, efforts have been made to addre ss energy efficiency in combustion installations. 
In the context of the Integrated Pollution Pr evention and Control Dire ctive 2008/1/EC (IPPC), 
all installations with a rated thermal input of above 50 MW have to be operated in such a way 
that energy is used efficiently, and one of the i ssues to be taken into account in determining 
Best Available Techniques (BAT) for a process is  its energy efficiency . In order to promote 
the energy efficiency provisions of the IP PC Directive a special horizontal Reference 
Document on Best Available Techniques addr essing generic energy efficiency issues was 
prepared and adopted in February 2009 (ENE BREF).36 It aims at improving energy 
efficiency in industrial insta llations, including also smaller production units for electricity, 
heating and cooling. According to the IPPC Dir ective the competent aut horities issuing IPPC 
permits in Member States are required to determine the permit conditions based on BAT, 
taking into account certain local considera tions. However, ENE BREF does not set minimum 
energy efficiency requirements and reference do cuments are not of compulsory nature, as the 
Member States have also here the discretion to use other references to apply BAT. In addition, for activities prescribed in the ETS Directive, MS may c hoose not to impose requirements 
relating to energy efficiency in respect of  combustion units emitting carbon dioxide on the 
site. However, in such cases, energy efficiency requirements still apply to all associated 
activities on the site (i.e. not directly emitting carbon dioxide w ithin the same installation). 
A similar BREF for Large Combustion Plants
37 was adopted in July 2006 and includes some 
useful elements regarding energy efficiency bot h for heating plants, power plants and CHP, 
although the main focus is on plants th at have a capacity above 50 MW.  
                                                 
36 EC (2009): Reference Document on Best Available Techniques on Energy Efficiency 
37 EC (2006): Reference Document on Best Available Techniques on Large Combustion Plants 
 
EN 16   EN The revised IPPC Directive38 will strengthen the role of BA T and BREF in setting specific 
conditions for new industrial installations. The scope will however remain above 50 MW 
installed capacity and MS will still be able to deviate from the standard for certain technical 
reasons or local circumstances if they can prov e that the costs of implementing the standards 
would be disproportionate compar ed to environmental benefits. 
2.3.2.  Development with supply industry guide lines on good operating practices for 
existing capacity to raise average ge neration efficiency for all plants 
Concerning the second action poi nt to raise generation effici ency in existing plants, no 
specific guidelines on good operating practices have  been developed in cooperation with the 
supply industry. Nevertheless,  both BREF on Larg e Combustion Plants and on Energy 
Efficiency can be considered as such guidelin es, since they were de veloped during extensive 
consultation process with the supply industr y and do provide guidelines on good operating 
practices. The BREF on energy efficiency pr ovides information on techniques to be 
considered to achieve energy efficiency at the installation level as well as in energy-using 
systems, processes or activities. These techniques focus on areas such as energy efficiency management systems, planning and establishi ng objectives and targets, energy efficient 
design, effective control of processes, maintena nce, as well as measurement and monitoring, 
energy audits and benchmarking.
39 
Further, in the context of the Internal Energy Market, the EU has adopted a Third Legislative 
Package40 where energy efficiency provisions have been introduced. However, these 
provisions are vague and do not create strict le gal requirements for Member States to make 
energy efficiency a mandatory condition for the generation (only electricity), transmission, 
distribution, supply and st orage (only gas) of energy (electricity/gas). 
2.3.3.  Guidelines on good regulatory practices to reduce transmission and distribution 
losses 
Concerning the third action point, the Com mission committed to work closely with the 
Council of European Regulators (CEER) and th e European Regulators Group for Electricity 
and Gas (ERGEG) to agree on good regulator y practices to reduc e transmission and 
distribution losses. Preliminary discussions have taken place, but as it stands today no agreement has been reached with CEER and ERGE G. This is however an issue that needs to 
be kept for future and further discussed with the new Agency for the Cooperation of Energy 
Regulators (ACER), ERGEG's successor organisation. 
2.3.4.  A new regulatory framework to promot e the connection of decentralized 
generation 
In Article 16 of Directive 2009/28/EC, access, tr ansmission and distribution as well as the 
dispatch of decentralised generating installa tions using renewable energy sources (RES) is 
                                                
 
38 The new Industrial Emission Directive 2010/75/EU combines seven existing air pollution directives, 
notably the Integrated Pollution Prevention and Control (IPPC) Directive, obliging around 52,000 
industrial and agricultural installations to obtain environmental permits. The measurement stick is the 
implementation of BATs, or the most effective technologies that can provide high levels of environmental protection while balancing cost and benefits. 
39 EC (2009): Reference Document on Best Availabl e Techniques on Energy Efficiency, chapter 2 and 3. 
40 See Directives 2009/7 2/EC and 2009/73/EC 
 
EN 17   EN promoted. Indeed, MS shall provide either pr iority access or guarant eed access to the grid-
system of electricity produced from RES and ensure that when dispatching electricity 
generating installations, transm ission system operators shall give priority to generating 
installations using renewable energy sources. However, the provision does not foresee that 
distribution system operators give priority to RES when dispatching generating installations.  
In the framework of the Third Legislative P ackage put forward in 2009, Directive 2009/72/EC 
concerning common rules for the internal market in  electricity promotes the priority dispatch 
of RES in accordance of Article 16 of Direc tive 2009/28/EC. In the case of the dispatch of 
generating installations produci ng combined heat and power, MS  only may require the system 
operator to give priority, i.e. the provision do es not impose on MS to make it mandatory to 
give priority to CHP installations. 41 Such priority dispatched however should be granted by 
transmission system operators to high effici ency CHP installations in accordance with the 
CHP directive that makes the grid access and di spatch rules applicable to CHP by reference. 
This obligation is however not spelled out in a clear unambiguous way as can be seen in the different interpretation by Member States. Ov erall, a strong framework for distributed 
generation is still missing, since access and dispat ch issues at distribution level are not yet 
sufficiently addressed in the exis ting renewable, CHP and internal  energy market legislation.  
As the new regulatory framework of the Third Legislative Package will only enter into force 
in March 2011, it is yet not possible to assess how MS will transpose the provision promoting the dispatch of decentralised generation into their national laws and how it will evolve in 
practice. Yet due to soft wording, generatin g installations producin g combined heat and 
power are in a weaker position compared to thos e using RES when it comes to prioritising 
connection and dispatch at  the transmission level. 
In the framework of the EEAP 2006, no other activi ties are in the pipeli ne to further promote 
the connection of decentralised generation, es pecially when producing combined heat and 
power. As this is still seen as  an important field for action, th is issue should be reassessed 
when elaborating new priority actions in a new Energy Efficiency Plan. 
2.3.5.  Promotion of cogeneration through th e Combined Heat & Power Directive 
In addition to the priority actions stated above (2.3.1 – 2.3.4) to make power generation and 
distribution more efficient, ot her measures related to the implementation of the Combined 
Heat and Power Directive (CHP  - 2004/8/EC) have been listed in the EEAP 2006 as having a 
scope for reducing losses in distribution networ ks. A short assessment of the measures related 
to the implementation of the CHP Directive is therefore provided in this report. 
The purpose of the CHP Directive is to increase energy efficiency and improve security of 
supply within the EU by creating a framework  for the promotion and development of high-
efficiency cogeneration.  
Regarding the CHP measures listed in the EEAP,  most of them have not been completed yet 
but are ongoing, although with de lay. For the time being, the ma in sources of information 
regarding the implementation progress with the CHP Directive are the re ports submitted with 
significant delays by most of the MS to the Co mmission pursuant Article 10 of the Directive. 
One key aspect of these reports is the analysis  of the national potential for the application of 
                                                
 
41 Articles 15 (3) and 25 (4) 
 
EN 18   EN high-efficiency cogeneration, in cluding micro-generation. In the context of this national 
analysis Member States were asked to identif y heat demand suitable for CHP as well as the 
potential for waste heat. The full assessment of th ese reports is expected to be finalized early 
2011. Based on these reports and in consultati on with stakeholders, the Commission will 
report on the implementation of the Directive including the examination of the various 
support mechanisms. 
Work has also been done in the field of mi nimum efficiency standards. A study has been 
launched to investigate how to best propose mi nimum efficiency requirements for district 
heating based on a new norm. Final results are expected for 2011. Further, minimum 
efficiency requirements for micro CHP equi pment will be addressed under the Ecodesign 
framework, with a new implementing measure on boilers, for adoption by the Commission in 
2011. 
Next to the ongoing work, the task of harmoni sing calculation methods for high efficiency 
CHP has been completed with the adoption of a Commission Decision42 in November 2008, 
establishing detailed guidelines for the calculation of  electricity from cogeneration. Already in 
December 2006, another Commission Decision es tablished harmonised efficiency reference 
values for separate producti on of electricity and heat.43 
In the lifespan of the EEAP 2006, it was alread y foreseen to inquire how to amend the CHP 
Directive to strengthen its impact on the prom otion of CHP. This action has already been 
initiated with the launch of a study which will be looking at different opti ons to strengthen the 
provisions of the CHP di rective and to ensure that the cost-effective economic potential is 
fully used in the EU. These include stronger su pport for distributed gene ration, i.e. specific 
network rules for connecting CHP to distribut ion networks, targets for realisi ng national 
potentials, better integration with heat de mand through the support of district heating & 
cooling, promotion of industrial clusters, better  harmonisation of guarantees of origin as the 
basis of support schemes, etc. In that context, it could also be possible to consider the option 
to have stricter requirements for market regulators to promote CHP.44 
One of the main achievements of the CHP Direc tive has been to codify at the EU level the 
definition of high efficiency cogeneration.45 The CHP Directive for the first time established a 
regulatory framework to promote cogeneration. Ho wever, the CHP directive proved to be less 
effective than desired in promoting cogenerati on in those MS not already having been active 
in this area beforehand. Wh en the EEAP was proposed, 10.9%46 of the electricity consumed 
in the EU was generated using this t echnology. Today, the pr oportion is around 11%47, 
although the potential has been assessed of being 20% in  2020. The share of electricity 
generated from CHP varies across Member States , ranging from 0.3% in Cyprus to more than 
                                                 
42 Commission Decision (2008/952/EC) establishing detailed guidelines for the implementation and 
application of Annex II to Directive 2004/8/EC.  
43 Commission Decision (2007/74/EC) establishing harmonised efficiency reference values for separate 
production of electricity and heat in application of Directive 2004/8/EC. 
44 ERGEG/ CEER have included the promotion of CHP as one element to be reported on by the national 
regulatory authorities in their annual contribution to Commission's benchmarking report on the progress 
in creating the internal ga s and electricity market. 
45 A saving of a minimum of 10% primary energy compared to separate production of heat and electricity 
based on the same fuel is now guaranteed by  a plant of high efficiency cogeneration.  
46  Data for 2006. See Eurostat Data in focus 22/2008 
47  Data for 2008. See Eurostat Data in focus 7/2010 
 
EN 19   EN 40% in Latvia and in Denmark. This variation is  only partially due to di fferences in potentials 
and mostly due to the differences in how actively CHP is promoted. 
The main barriers preventing the uptake of cogeneration in MS are mainly:48 
• Current legislation does not defi ne any legal obligations for MS to realise their national 
CHP potential within a ce rtain period of time; 
• Implementation has been weak so far: for example many MS completed reporting only six 
years after the entry into force of the Dir ective and some are still lagging behind;  
• Efforts in the areas of grid connection, regulation and administ ration, and financ ing need to 
be further reinforced; 
• MS typically have identified CHP opportunities in either indust rial cogeneration or district 
heating according to their history. Cooling, mi cro CHP and bio-energy opportunities are in 
many cases unexplored. 
2.3.6.  More efficient power generation a nd distribution: overall assessment 
The priority action to make power  generation and distri bution more efficient is one of the ten 
priority actions of the EEAP 2006 which has not b een fully addressed. This is mainly due to 
the high cost, the complexity, and the strong st ringency of the required measures, that made 
this effort for the time being not proportionate to  the foreseeable results in this area, taken into 
account that it is alread y partially covered by ma rket instruments with si milar goals, e.g. to 
trigger energy efficiency improvements. Such market instruments are the internal energy 
market and the EU emission trading scheme. Ov erall, while there is potentially significant 
scope for energy efficiency improvements and en ergy savings in this sector, which cannot be 
fully exploited via the above mentioned market in struments due to the persistence of specific 
barriers, priority was given to efforts promo ting energy efficiency in areas with higher and 
more swiftly realisable saving and cost-effective potentials. As a result this priority action was so far only partially implemented under th e current EEAP period. A new regulatory 
framework was established with the Third Legislative Package, introducing voluntary 
elements for MS to promote connection of de centralised generation. De centralised generation 
received further support under the new Renewable Di rective, but this also  left considerable 
discretion for MS as regards implementation at distribution level.  In addition, although no 
specific guidelines were developed to raise the average generation efficiency of all plants, the 
BREF on energy efficiency adopt ed in 2009 can be seen as following the same objective. 
2.4. Priority action 4: Energy efficiency in transport through higher fuel efficiency 
of cars 
The transport sector plays a central role in the European economy and as such accounts for a 
third of final energy consumption. 98% of the en ergy consumed in this sector is fossil fuel, 
making it a major source of greenhouse gas emissions and of import dependency. 
Energy efficiency in transport is addressed in the Action Plan by measures on the fuel 
efficiency of cars, development of markets for cleaner vehicles, tyre pressure, efficiency of 
urban, rail, maritime and aviation transport systems, as well as changing transportation 
behaviour.  
                                                
 
48 See also the conclusions drawn by the Code project under http://www.code-project.eu 
 
EN 20   EN The focus of this report lays on the priority action defined in the EEAP 2006 for the transport 
sector, namely to achieve fuel efficiency of cars. To this e nd, the Commission, being 
determined to address energy efficiency and CO 2 emissions from cars, committed to propose: 
• A legislation to ensure that a 120 g CO 2/km target is achi eved by 2012 through a 
comprehensive and consistent approach, in  accordance with the agreed EU objective 
(2.4.1). 
• Propose to strengthen EU requireme nts of labelling of cars (2.4.2). 
2.4.1.  Emission performance standards for new passenger cars: 120 g CO2/km by 
2012 
Achieving higher fuel efficiency in passen ger cars addresses ov er 60% of the fuel 
consumption in the road transport sector, which accounts for over 80% of the overall energy 
consumption of the total sector.  
Despite the economic and financia l crisis, the number of new re gistered vehicl es in EU15 in 
2009 was 3% higher than in 2000 (also due to scrappage schemes implemented by MS as a 
response to the crisis). Overall CO 2 emission from road transpor t (passenger cars and trucks) 
between 1990 and 2007 increased in the EU27 by 29%. 
The objective of reducing CO 2 emissions from cars has been on the European political agenda 
since more than 15 years as shown in table 5. In 1995, the EC adopted its first Community 
Strategy for reducing CO 2 emissions from cars. At that time, the European average fuel 
efficiency for new passenger cars was about 186 g CO 2/km. 
The Community CO 2 reduction strategy was based on three pillars: voluntary commitments 
from the car industry to cut emissions, impr ovements in consumer information and the 
promotion of fuel-efficient cars by means of fiscal measures.  
The progress achieved by 2005 with the volunt ary commitments was as sessed to go towards 
the 140 g CO 2/km target by 2008/2009, but in the absence of additional measures, the EU 
objective of 120 g CO 2/km would not be met at a 2012 horizon.49 As an outcome, the 
Commission considered necessary to resort to a legislative approach. 
In line with the commitments made in the context of the EEAP 2006, the European 
Commission adopted in February 2 007 a revised strategy to reduce CO 2 emissions from 
passenger cars and light-commercial vehicles  (so called light-duty vehicles) through an 
integrated approach looking at fuel ec onomy improvements, other technological 
improvements and use of biofuels.50 As a next step a Commission proposal51 for a regulation 
to reduce CO 2 from passenger cars was put forward in December 2007. The adoption 
followed in April 2009 as Regulation (EC)  No 443/2009, setting emission performance 
                                                 
49 This assessment has proven to be correct, as in 20 08, the fuel efficiency average for new passenger cars 
registered by ACEA was 152,3 gCO 2/km. In 2009 the averages fo r JAMA and KAMA were 142.6 and 
141.8 respectively. 
50 See COM(2007) 19 final (07.02.2007): Communication on the results of the review of the Community 
Strategy to reduce CO 2 emissions from passenger cars and light-commercial vehicles. 
51 See COM(2007) 856 final: Proposal for a regulation on setting emission performance standards for new 
passenger cars as part of the Community 's integrated approach to reduce CO 2 emissions from light-duty 
vehicles 
 
EN 21   EN standards for new passenger cars as part of Community's integrated approach to reduce CO 2 
from light-duty vehicles. 
Table 3 : Overview of policy developments to reduce CO 2 emissions from cars 
Year Policy development 
1995 Adoption of Community Strategy for reducing CO 2 emissions from cars. 
1998 ACEA - European Automobile Manufacturer s’ Association adopts a commitment to 
reduce average emissions from new cars sold to 140 g CO 2 /km by 2008. 
1999 JAMA - Japanese Automobile Manufacturers’ Association and KAMA - Korean 
Automobile Manufacturers’ Associati on adopt commitment to reduce average 
emissions from new cars sold to 140 g CO 2 /km by 2009. 
February 1999 EC Recommendation 1999/125/EC on the reduction of CO
2 emissions from passenger 
cars takes into account ACEA's commitmen t and recommends the achievement of a 
CO 2 emission target of 140 g/km CO 2 by 2008. 
June 2000 EC establishes a scheme to monitor th e average specific emissions of CO 2 from new 
passenger cars in accordance with Deci sion No 1753/2000/EC of the European 
Parliament and of the Council of 22 June 2000. 
February 2007 Adoption of two parallel EC Communications:  
• Communication setting out the results of the review of the Community Strategy to 
reduce CO
2 emissions from passenger cars and light-commercial vehicles; 
• Communication on a Competitive Automotive Regulatory Framework for the 21st 
Century (CARS21).  
The Communications underlined that pr ogress had been made towards the 140 g 
CO 2/km target by 2008/2009, but that the Community objective of 120 g CO 2/km 
would not be met by 2012 in th e absence of additional measures. 
December 
2007 Adoption of Commission proposal (COM(2007) 856) for a Regulation on emission 
performance standards for new passenger car s to reach an average of 130 gCO 2/km by 
2012. 
April 2009 Regulation (EC) 443/2009  setting emission performance standards for new 
passenger cars  as part of the Community’s integrated approach to reduce CO 2 
emissions from light-duty vehicles. 
October 
2009 Adoption of EC legislative proposal  to reduce CO2 emissions from light commercial 
vehicles  (vans) 
Key elements of the adopted Regul ation for new passenger cars are: 
• Limited value curve : By means of improvement in vehicle motor technology the fleet 
average to be achieved by all new cars registered in the EU by 2015 is 130 gCO 2/km. A so-
called limit value curve implies that heavier ca rs are allowed higher em issions than lighter 
cars while preserving the overall fleet average. 
• Phasing-in of requirements : In 2012, 65% of each manufactur er's newly registered cars 
must comply on average with the limit value cu rve set by the legislation. This will rise to 
75% in 2013, 80% in 2014 and 100% from 2015 onwards. 
• Lower penalty payments for small excess emissions until 2018 : If the average CO 2 
emissions of a manufacturer's fleet exceed its limit value in any year from 2012, the 
manufacturer has to pay an excess emissi ons premium for each car registered. This 
premium amounts to €5 for the first g/km in excess, €15 for the second g/km, €25 for the third g/km and €95 for each subsequent g/km. From 2019, the first g/km will cost €95. 
 
EN 22   EN • Long-term target : A target of 95 gCO 2/km is specified for the year 2020. The modalities 
for reaching this target and the aspects of its implementation, including the excess 
emissions premium, will have to  be defined in a review to be completed no later than the 
beginning of 2013. 
• Eco-innovations : Due to the outdated test procedur e used for vehicle type approval, 
certain innovative technologies  cannot demonstrate their CO 2-reducing effects under the 
type approval test. As an interim procedur e until the test procedure is reviewed by 2014, 
manufacturers can be granted a maximum of 7g/ km of emission credits on average for their 
fleet if they equip vehicles with innovative technologies, based on independently verified 
data. 
It becomes evident that it is unlikely that the EEAP objective of an equivalent of 120 
gCO 2/km will be achieved in 2012 when the new regul ation delays to 2015 the full entry into 
force of this target and that many of the a dditional implementing measures (tyre pressure 
monitoring systems, tyre rolling resistance limits  for new passenger cars, gear shift indicators) 
have different dates for entry into force, usually later than 2012. This timeframe and the 
overall ambition have been amended compar ed to the 2007 proposal from the Commission. 
The co-legislators decided to delay to 2015 th e full entry into force of the regulation to 
encompass concerns of the industry as to the cost of achieving this target. However, during 
co-decision an additional 2020 ta rget of 95 g/km was introduced  which compensates for this 
delay of the short-term objective and adds pl anning certainty to the industry that now can 
work towards a longer-term perspective.  
Although an average reduction of 3,3 gCO 2/km per year over a period of 20 years (1995-
2015, see graph 1) was a rather sl ow progress, the new regulation will set a much firmer path 
downwards in terms of gCO 2/km reduction (starting from 158.7 in 2007 to planned 95 in 
2020). 
Graph 1 : Evolution of emission from new cars 1996 -2009 
 
 
EN 23   EN 2.4.2.  Strengthening EU requirements for labelling of cars 
In general, empirical studies show that cons umers value the fuel economy and environmental 
friendliness of cars as one of th e lowest priorities in their pur chasing decision. Moreover, it is 
often stated that consumers are relatively short- sighted regarding perceived future fuel savings 
from buying a fuel-efficient car. Similar to th e labelling of products, the availability of 
running costs information through a car label, re inforces the impact of the regulation on 
emission standards. 
The first Directive (1999/EC/EC) relating to the availability of  consumer information on fuel 
economy and CO 2 emissions in respect of the marke ting of new passenger cars dates from 
1999. Its objective was to ensure that info rmation relating to the fuel economy and CO 2 
emissions of new passenger cars offered for sale or lease in the Community is made available 
for consumers in order to enable consumers to make an informed choice. This choice is to be 
based on the following type of information th at must be provided to the consumers: 
• A fuel economy label for all new cars to  be displayed at the point of sale; 
• A poster (or a display) showing the official fuel consumption and CO 2 emissions data of all 
new passenger car models displayed or offered fo r sale or lease at or through the respective 
point of sale; 
• A guide to fuel economy and CO 2 emissions; 
• Promotional literature containing official fuel consumption and specific CO 2 emissions 
data for the passenger car model to which it refers. 
This fuel efficiency labelling Di rective was intended as a tool in raising awareness. However, 
a study based notably on reports provided by MS  has been carried out in 2005 coming to the 
conclusion that its impact has not been visible with labels varying st rongly in quality across 
MS.52 That is why the Commission decided to a dopt an amending proposal to improve the 
effectiveness of this Directive and to define it as  a priority action for the transport sector in the 
EEAP 2006. The review has been announced howev er, the timeline for this adoption is not 
yet available. Key aspects for consideration will be: 
• Extended scope of the labelling sche me to light-commercial vehicles; 
• Harmonised design of the label; 
• Energy efficiency classes for raising consumer  awareness at the time of car purchase;  
• Definition of light environmentally enhanced vehicles; 
• Indication on the label of the annual running costs;  
• Vehicle tax levels as a function of CO 2 emissions and fuel consumption. 
The review of the fuel efficiency labelling will be put forward again by the upcoming White 
Paper on transport foreseen  for adoption in early 2011. 
2.4.3.  Higher fuel efficiency of cars and st rengthened labelling: overall assessment 
The priority action of the EEAP for the transport sector has not been fully implemented as the 
CO 2 emissions standards will come into force wi th delay in 2015 and the work on the review 
of the fuel efficiency labelling Directive has b een initiated but not finalized yet. However, the 
Commission has already started targeting emissions from ro ad transport beyond passenger 
                                                 
52 ADAC (2005): Study on the effectiveness of Dir ective 1999/94/EC relating to the availability of 
consumer information on fuel economy and CO 2 missions in respect of the marketing of new passenger 
cars, final report. 
 
EN 24   EN cars, by proposing a regulation on setting em ission performance standards for light-
commercial vehicles.53 Further, CO 2 emissions standards for Heavy Duty vehicles will be 
proposed. 
To conclude, the progress made in this priority action is not satisfactory and need to be further 
addressed, inter alia  in the new Energy Efficiency Plan  as well as in the upcoming White 
Paper on transport. 
2.4.4.  Other key measures in the transport sector 
In addition to the priority action defined, ther e have been various pos itive developments as 
regards the other transport measures proposed in the EEAP 2006. As completed measures are 
to be mentioned (see also annex 1): 
• A Regulation on the labelling of tyres with respect to  fuel efficiency and other essential 
parameters (EC No. 1222/2009) was adopted in  November 2009 and will apply to the MS 
from November 2012. The Regulation requires the provision of information on tyre 
parameters relating to the rolling resistance  (influencing fuel consumption), wet grip 
(influencing safety) and external rolling noise . It seeks to target consumers by providing 
potential purchasers of tyres with labels that allows them to make informed choices. It thus indirectly targets manufacturers who will be infl uenced by the effects that the labelling has 
on sales of designs. The labelling of tyres will contribute positively to improving the 
fuel efficiency of cars and is expected to  contribute to some 15 Mtoe (cumulated 2012 
-2020) primary energy savings by 2020 . 
• A new Directive 2009/33/EC on the promotion of clean a nd energy-efficient road 
transport vehicles  entered into force in May 2009. This directive ai ms at accelerating the 
market introduction of clean and energy effici ent vehicles through public procurement. In 
the long term this should contribute to reduc e their costs through economies of scale, 
resulting in a progressive improvement of th e whole vehicle fleet. MS need to transpose 
this directive by 4 December 2010. By Decem ber 2012 a first assessment report on the 
application of the Directive, the actions take n by MS and the possible need of further EU 
actions will be elaborated. 
• Directive 2010/40/EU on the framework for th e deployment of intelligent transport 
systems in the field of road transport and for interfaces with other modes of transport 
entered into force on 26 August 2010. This Direc tive establishes a framework in support of 
the coordinated and coherent deployment and use of Intelligent Transport Systems (ITS) 
within the EU, in particular across the borders between the MS, and sets out  the general 
conditions necessary for that purpose. This legal instrument will  contribute to an 
acceleration of the deployment and use of ITS in Europe: according to several studies, ITS 
have a potential up to 10%-15% reduction of  greenhouse gas emissions, if they are 
deployed widely and across a ll possible applications.  
                                                
 
53 EC (2009) Proposal for a Regulation on Setting emission performance standards for new light 
commercial vehicles as part of the Comm unity's integrated ap proach to reduce CO 2 emissions from 
light-duty vehicles, COM(2009) 593, Brussels. 
 
EN 25   EN • In September 2007 the communication of a Green Paper “Towards a new culture for 
urban mobility ” was followed by the adoption in September 2009 of the Action Plan on 
Urban Mobility  with 20 actions in six thematic areas. 
• For air transport , which is responsible for 14% of th e energy consumption in the sector, 
political agreement was reached to include it in the EU Emissions Trading Scheme as of 
2012. Further, the Sesar Joint Undertaking wa s established in spring 2007 to promote 
energy efficiency in this sector.  
• In the rail sector , the legal framework for rail transpor t has been established and MS need 
to implement it to increase interoperability. The EU railway legislat ion tackles the negative 
trend in a modal split in frei ght transport with the rail sector loosing its market share. 
Therefore its impact can be seen in terms of modal shift towards more sustainable and 
energy-efficient mode of transport (railways).  
Other or related transport measures are in  the process of implementation, such as: 
• Support of EU-wide deployment of real-time traffic and travel information (RTTI)  and 
traffic management  systems  and the establishment of guidelines inter alia  for the 
deployment of Intelligent Truck Parking  through the EasyWay project, which was 
supported with €100 million over the 2007-20 09 period. A follow-up proposal for the 
period 2010-2011 has been submitted and ne gotiations on EasyWay II are currently 
ongoing and should be concluded by the end of the year. Considering all actions together 
an impact of 5 to 10% reduction in the ro ad transport energy consumption by 2020 has 
been estimated, representing a total re duction of energy consumption between 1.2 and 
2.4% in EU total final energy demand by 2020 .  
2.5. Priority action 5: financing energy e fficiency investments for SME and Energy 
Service Companies (ESCOs) 
As described in the EEAP 2006, although many energy efficiency measures are fully cost 
effective with very short payback periods, they  are not always undertaken due to financial 
barriers. In this light, the Action Plan defi ned a priority action aiming at facilitating 
appropriate financing of energy efficiency in vestments for SME and Energy ESCOs. For this 
purpose the Commission committed to: 
• Call upon the banking sector to offer finance packages specifically aimed at SMEs and 
ESCOs to adopt energy efficiency savings  identified in ener gy audits (2.5.1) 
• Make access to Community financing, such as Green Investment Funds, available for 
promoting eco-innovations (2.5.2). 
2.5.1.  Financial packages for SMEs and ESCOs 
In cooperation with the European Bank for R econstruction and Development (EBRD), the 
European Investment Bank (EIB) Group, the Council of Europe Development Bank (CEB) 
and the Kreditanstalt für Wiederaufbau (KfW), several financial packages specifically aiming 
at SMEs or involving ESCO finan ce have been created, such as: 
• Energy Efficiency Finance Facility (EEFF)  
In April 2007, the EC establishe d the EEFF in cooperation with three international financial 
institutions (EBRD, EIB & CEB/KfW). The objective of this facility is to achieve savings in 
 
EN 26   EN energy consumption and reduction in CO 2 emissions, facilitated th rough the provision of 
financing to financial instituti ons in Beneficiary Countries to  increase their investment 
portfolios in energy efficiency projects. Under th e Facility, the financia l institutions provide 
loan financing through participating banks, togeth er with EC grant support. EC funds will be 
used to provide technical assist ance for implementation support an d financial incentives to i) 
sub-borrowers and ii) participating banks.  
The EBRD model used, in particular in Bulgaria54, has demonstrated its ability to create a 
market for energy efficiency and renewable energy financing with 8 commercial banks 
involved and with €225 million of financi ng leveraged by €55 million of concessional 
funding in the form of technical assistance gran ts and incentives. Based on the experience in 
Bulgaria, and reflecting local conditions, this model has now been rolled out in ten other 
EBRD countries of operations for a total E BRD financing of €1.1 billion. A project has 
recently been approved which will mobilize €1  million from EU resources under the EEFF 
2006 programme to launch a capacity building and transfer of skills technical cooperation 
assignment, designed to strengthen the administ rative capacity of the in stitutions that will be 
in charge with implementing the EUR 200 millio n grant scheme in Bulgaria (ERDF funded). 
• Sustainable energy finance throug h related Financing Facilities  
In 2010, the Commission reshaped a number of earlier instruments with  the intention of 
refocussing support to current European energy and climate objectives, in particular with 
respect to the 2020 objec tives for energy savings and reduction of CO 2 emissions. In June 
2010, a new SME Energy Efficiency sub-window  was developed for the purpose of 
facilitating SME investments fo r energy efficiency and renewable energy measures generally 
targetting CO 2 emissions reductions. Under this sub-wi ndow, of particular relevance is the 
Polish Sustainable Energy Financing Facility wh ich was established within a few weeks of a 
formal agreement on the reshaping of the EBRD  SME Finance facility. EBRD will provide up 
to €150 million senior debt to financial interm ediaries in Poland, for on-lending to finance 
investments in energy efficiency or renewable energy. The Facility is supported by approximately €30 million of EC grant incentives for end borrowers. Similar modifications are being created in facilities ta rgeting action in municipalities and involving all four of the 
abovementioned banks. 
• European Local Energy Assistance (ELENA)  
In order to facilitate the mobilisation of funds for investments in sustainable energy at local 
level, the Commission in cooperation with  the EIB has established in 2009 the ELENA 
technical assistance facility, financed through the Intelligent Energy Europe Programme. The 
facility, implemented by the EIB, provides co-f inancing for project development services in 
order to prepare and launch ba nkable sustainable energy invest ments. The financial support is 
provided to local and regional public authorities and bodies acting on their behalf. The 
investment programmes suppor ted should contribute to the 2020 energy and climate 
objectives and need to have a minimum levera ge factor of 25. Investments areas for which 
technical assistance can be provided are inter alia  the refurbishment of public and private 
buildings (including social hous ing), district heating and c ooling networks as well as 
                                                
 
54 For success stories see also the website of EBRD: http://www.bulgaria-
eueeff.com/pages/eueeffb g_success_stories_en.htm 
 
EN 27   EN decentralised cogeneration systems, urban trans port, and the local infrastructure including 
smart grids and information a nd communication technologies.  
While this facility is targeti ng local and regional public bodies , it also effectively promotes 
energy service companies as the public entities frequently look fo r their involvement to carry 
out the energy efficiency investments. In just  over one year of operation, ten ELENA projects 
have been approved which will provide a pproximately €18 million in grants to final 
beneficiaries with a view to mobilizing about  €1.5 billion in invest ments over three year 
project lifetimes. 
• Energy Efficiency financing facility established under the European Economic 
Recovery Programme (EERP) 
In 2009 a programme was established by regulation55 to aid economic reco very for Europe in 
the energy sector by granting €3.98 billion by the end of 2010. In the event of unspent funds, the EEPR Regulation states that Commission w ill propose an amendment of the EEPR with 
regard to funding energy efficiency and re newable energy projects. On 31 May 2010 the 
Commission presented in this respect its pr oposal, which provides for the creation of a 
dedicated financial instrument to support the de velopment of energy efficiency and renewable 
energy projects in particular in  urban settings. As result of a swift and constructive negotiation 
process during the 2nd half 2010, the Council of Ministers and the European Parliament 
agreed in December 2010 to the European Comm ission's proposal to allocate approximately 
EUR 146 million (i.e. 3.7% of the total EEPR enve lope) towards such a new financing facility 
dedicated to sustainable energy. This EU cont ribution comes from EEPR funds mobilised in 
2009 which could not immediately be allocated to projects in  the 1st phase of the EEPR. 
The new facility will take the form of a dedicated investment fund, complemented by 
technical assistance and awarene ss raising. The initial shareholde rs of the fund will be the EU 
and the European Investment Bank. In addition to the EU contributi on to the fund (about 125 
M€) the EIB will invest up to EUR 75 million into  the facility resulti ng in a total fund volume 
of about EUR 200 million. The Commission, in coope ration with the EIB, aims to launch this 
facility in the second qu arter of 2011. Other financial institu tions at Member State level have 
been invited and could join the fund afterwar ds. The final size of the fund will depend on 
additional investors (public bu t also private) and the even tual investment portfolio. 
The EU investment into the fund will be placed  as risk capital into  a "European Energy 
Efficiency Fund". This fund, which will be op erated by a professional fund manager, will 
provide finance for investment projects by addressing market n eeds, preferably at municipal 
and local level. The fund will cover a large range of financial products such as senior and 
junior loans, guarantees or equity participa tion. In addition, about EUR 20 million of the EU 
funding will be made available as grants for project development services (technical 
assistance) related to technical and financia l preparation of project s. Finally, awareness 
raising activities for national/regional authori ties managing Cohesion/Structural funds in the 
field of sustainable energy are also envisaged. 
Potential beneficiaries are public authorities (e.g. munici palities), at local and regional level, 
and public or private companies, which are actin g on behalf of those public authorities, such 
                                                
 
55 Regulation (EC) no 663/2009 of 13 July 2009. It allocates respectively €2,365 million to gas and 
electricity infrastructure projects, €565 million to offshore wind electricity projects (OWE) and €1,050 
million to carbon capture an d storage projects (CCS).  
 
EN 28   EN as local energy utilities, Energy Service Compan ies (ESCOs), district heating combined heat 
and power (CHP) companies or public transport providers.  
This fund will invest in energy saving, energy efficiency and renewable energy projects, 
particularly in urban settings, which have a measurable and substantial impact on economic 
recovery within the EU. As re gards energy saving/efficiency i nvestments, promoted by local, 
regional and (where justified) national public authorities, thes e could include measures in 
public and private buildings; investments in effi cient combined heat and power (CHP), incl. 
micro-cogeneration and district  heating/cooling networks; i nvestment in decentralised 
renewable energy sources, in cluding micro-generation; clean urban transport; the 
modernisation of infrastructure, such as street lighting and smart grids, as well as investment 
in renewable energies with a potential for innovation and growth.  
2.5.2.  Promotion of eco-innovations 
For the period 2007-2013, the Entrepreneurship a nd Innovation Programme (EIP), one of the 
three pillars of the Competitiveness and Innovation Framework Programme (CIP), has 
earmarked €433 million for eco-innovation. Out of  this budget, €200 million have been 
allocated to the High Growth and Innovative SM E Facility (GIF) in view of supporting eco-
innovation as well as other types of innovations  in SMEs. GIF allows for the EU budget to 
participate in venture and risk capital funds se t up to provide equity to small businesses in 
their early development and expansion stages. Wh en the focus of these funds is mainly on 
eco-innovative SMEs, the EU participation, th rough the European Inve stment Fund, can be 
higher than normal thresholds ( up to 50% compared to 25%).  
So far, the uptake from the market has been very satisfactory. Four agreements with Venture 
Capital funds (from 4 MS) investing in Eco-innovation have been signed with EU 
commitments of more than €50 million. Different  types of eco-innovations, e.g. related to 
renewable energy sources, energy efficiency or  waste and water treatment are financed by the 
funds. In an interim evaluation of the EIP, the e fficiency of the GIF in terms of leverage has 
been highlighted.56 The impact of this instrument on energy efficiency improvements or 
energy savings generated through eco-innovation in  SMEs is yet not foreseeable as GIF is 
operational only since 2008 and investment pe riods are usually 5 years and beyond. An 
overall assessment will be possible at the end of the programme in 2013. Moreover, the 
discussions related to the next multiannual fina ncial perspective of the Commission for 2014 -
2020, should also be used as an opportunity to propose possible refinements of the instrument. 
In the framework of the regulation on CO 2 emission standards for car s, eco-innovations are as 
well promoted (see 2.4.1). 
2.5.3.  Facilitating financing of energy effi ciency investments: overall assessment 
Financing energy efficiency is a complex task as the investments projects are often very small 
and dispersed. With the cooperati on engaged with International Financial Institutions on the 
financing of energy efficiency investments,  the Commission has already made a major 
contribution to facilitate appropriate financing for SMEs and ESCOs. Credit lines from IFIs and other public sector banks, notably KfW, ha ve provided an important source of finance to 
energy efficiency projects ofte n through intermediated finance through local banks. While not 
                                                
 
56 GHK 2009: Interim evaluation of the entrepreneurship and innovation programme DG Industry- 
European Commission 
 
EN 29   EN a pre-requisite, effective use is  often made of EU funding in order to provide technical 
assistance to either the participating bank for capacity building, or for supporting measures to 
final beneficiaries, such as energy audits and other project development services. However, it 
is evident that more innovative fi nancial tools are needed to m eet the investing challenge in 
energy efficiency. 
2.6. Priority action 6: spurring energy efficiency in the new Member States 
The EEAP 2006 acknowledges that the potential  for energy efficiency improvements is 
particularly large in the new MS and that ener gy efficiency is one of the priorities in the 
framework of cohesion policies.  Against this background, the Action Plan defined as a 
priority action to spur energy efficiency in the new MS by: 
• Encouraging European Regional Policy to depl oy its national and re gional programmes to 
promote more intensive investment to improve energy efficiency, in pa rticular in the new 
Member States, including in the multi-family and social housing sectors (2.6.1). 
• Promoting networking amongst Member States a nd regions to ensure financing of best 
practices in energy efficiency (2.6.2). 
2.6.1.  European regional policies (structural and cohesion funds) as instruments to 
promote energy efficiency 
The European Council agreed in Decembe r 2005 on the budget for the 2007-2013 period and 
allocated €347 billion on Structural and Cohe sion Funds, of which 81.5% are planned to be 
spent in the "Convergence" regions. Based on si mplified procedures, n early all of the 436 
programmes covering all EU regi ons and Member States were agreed before the end of 2007. 
The radical shift in their priorities means that  one quarter of resources is now earmarked for 
research and innovation and about one third on environmental infrastructure and measures 
combating climate change, including energy efficiency. 
Financial support equivalent to 1.2% of the total budget or €4.4 billion are allocated to energy 
efficiency, cogeneration and energy management in  the industrial, commercial, residential and 
public sectors. Until May 2009 support to reside ntial buildings under th e ERDF was possible 
but restricted to the EU12 and under limited conditions.  
Looking into the achievements so far, the following assessment can be made: First, major progress towards promoting more intensive investments in energy efficiency 
improvements through EU Regional Policy has b een achieved with the adoption of two key 
regulatory amendments, initiated in the context of th e European Economic Recovery Plan and 
adopted in May 2009
57 and June 201058, respectively, relating to the: 
• Extension of the scope of financ ial support for housing to all MS : From now on, all MS 
have the possibility to support the housing sector with up to  4% of their national ERDF 
allocations, also in view of supporting soci al cohesion. This amendment represents an 
additional potential of up to €8 billion at EU  level that could be reallocated from other 
                                                 
57 Regulation (EC) No 397/2009 on the European Regional Development Fund as regards the eligibility of 
energy efficiency an d renewable energy investments in housing 
58 Regulation (EU) No 539/2010 laying down general provisions on the European Regional Development 
Fund, the European Social Fund and the Cohesion Fund as regards simplification of certain 
requirements and as regards certain provisions relating to financial management, see Article 44. 
 
EN 30   EN allocations in the present programmes for en ergy efficiency in housing, depending on to 
what extent the MS will chose to use these new possibilities. 
• Combination of Structural funds with private sector financing : As part of an 
operational programme, Structural  Funds can now finance expe nditures in respect of an 
operation comprising cont ributions to support: 
– Financial engineering instru ments (e.g. JEREMIE) for enterprises, primarily small 
and medium-sized ones, such as venture capital funds, guaran tee funds and loan 
funds; 
– Urban development funds, that is, funds inve sting in public-private  partnerships and 
other projects included in an integrated plan for sustainable urban development (e.g. 
JESSICA); By the end of September 2010, seven JESSICA funds with an energy 
component are implemented in six MS, commit ted to invest a total of €784 million in 
energy efficiency measures and renewable energies infrastructure in cities. 
– Funds or other incentive schemes providi ng loans, guarantees for repayable 
investments, or equivalent instruments, for energy efficiency and use of renewable 
energy in buildings, including in existing hous ing. The first such fund established in 
Europe was set up in Greece in July 2010. 
Second, the picture concerning the effective use of the €4.4 billion allocated for energy 
efficiency in the MS shows a mixed result, but in general terms it is progressing at a slow pace. In autumn 2009, the overall EU average selec tion rate of projects in this area was 20% 
(to be compared with 27% for Cohesion Policy as a whole). Nevertheless, a number of MS offer some positive examples with  a good level of selected projec ts (see graph 2), such as 
Czech Republic (49%), Lithuania (48%), Malta  (44%), Austria (41%), Ireland (34%), 
Belgium (33%), Estonia (28%), the Ne therlands (26%) and Germany (22%). 
Graph 2 : Planned investments and rate of implem entation in energy efficiency projects 2007-
2013 
 
Source: Strategic report 2010 
 
EN 31   EN Other MS present insufficient progress. Overall, the implementation of the energy priorities is 
advancing faster in the Regional Competitivenes s and Employment (RCE) regions than in the 
Convergence ones.59 Further, it is important to mention that not all investments in energy 
efficiency, inter alia  in public buildings, are covered by the € 4.4 billion allo cation. Indeed, in 
a number of operational programmes of th e 12 new MS, support to for example the 
educational and health sectors include the refurbishment of sc hools or hospital buildings. In 
this context, energy efficiency investments are included but not accounted for under the particular allocation to en ergy efficiency measures. 
Third, fourteen MS
60 reported having action in support of energy efficiency and renewable 
energy investments in the housing sector, following the priorities of the Recovery Plan, with 
or without modification of the Operational Programmes, and Es tonia and Latvia were active 
in this area already from the outset of the period, which was possible in EU12. 
To conclude, it can be said that the financial resources available to MS from Structural and 
Cohesion Funds are not sufficiently channelled in to investments to promote energy efficiency 
improvements. To this end, the Commission Communication "Regional Policy contributing to sustainable growth in Europe 2020"
61 sets out how managing aut horities can realign current 
Regional Policy programmes to Europe 2020 sustainable growth objectives, among them the 
energy efficiency target. Regions and cities are encouraged to seize the new opportunities in 
energy investments in buildings and to acceler ate investments in renewable energies and 
energy efficiency, according to their local energy  potential. In this context, the importance of 
using Technical Assistance to facilitate the prep aration of a pipeline of projects is singled out. 
2.6.2.  Networking to ensure financing of best practices in energy efficiency 
Since the adoption of the EEAP at the end of  2006, different types of schemes have been 
implemented to exchange information about be st practices and ensure their financing. The 
main instrument in this context is the Inte lligent Energy Europe Programme (IEE) established 
in 2003 to promote renewable energy sources an d unlock the potential for energy efficiency in 
Europe. Although IEE is a relatively sma ll financing programme (€250 million over 2003-
2006 and €730 million over 2007-2013), it acts as a catalyst for further investments and 
contributes to the development of effective EU energy policy, as well as national/ regional 
policy making. The IEE programme also acts as  a mechanism for testing and relaying new 
ideas, piloting of initiatives which are later scaled-up or rolled out to other Member States.  
The first IEE programme (referred to as IEE-1)  started in 2003 and ended in December 2006. 
Projects financed under IEE-1 lasted between  two and three years and started delivering 
results from 2007 onwards. More than 300 project s were supported and about half of them 
aimed at overcoming the market barriers to energy efficiency. Seve nteen IEE-1 projects 
exclusively addressed networking and excha nging knowledge between countries and regions 
to ensure financing of best practices in en ergy efficiency. These projects covered best 
practices in financing, promoting energy se rvices and procurement routines to local 
authorities, energy performance c ontracting, white certificates as well as innovative schemes 
tailored to refurbishment of social housing.  
                                                 
59 See http://ec.europa.eu/regional_policy/policy/reporting/cs_reports_en.htm . 
60 BE, BG, DK, EL, ES, FR, IT, LT, LV, MT, NL, PL, PT, UK 
61 COM(2011) 17, 26.1.2011 
 
EN 32   EN The second IEE programme (IEE-2) started in  2007 and runs until 2013. The funding rate for 
beneficiaries increased from  50% to 75% to encourage inter alia  the participation of 
organisations from new MS. Among the IEE-2 proj ects supported so far,  four are especially 
worth mentioning as being directly in line with the priority action defined: 
• Concerted Action (CA) on the Energy Services Directive (ESD) (2008-2011): This 
strategic 3-year action involves all MS and aims to achieve  a certain degree of convergence 
across Europe in the implementation of the ESD Directive. One of the five core themes of the CA is on the use of financial instruments.  It looks in particular  on how to repeal and 
amend legislation that impedes or restricts the use of financial instruments for energy 
savings in the market for energy services; ho w to introduce funds for energy efficiency; 
how to design and implement tariff systems that promote energy efficiency; The Concerted Action is foreseen to be continued beyond 2011. 
• ChangeBest project
62 (2009-2012) aims to foster the development of energy service 
companies. 
• EESI project63 (2009-2012) aims to promote ener gy performance contracting, in 
particular in pilot projects within the public sector. 
• FRESH project64 (2009-2012) aims also at fostering energy performance contracting but 
targeting social hou sing refurbishment. 
The above-mentioned actions builds on so-called 's oft measures' – exchange of best practices, 
capacity building, promotion and dissemination – which impacts are by nature difficult to 
quantify in terms of energy saving s. For the listed networking pr ojects it is yet too early to 
assess their impacts as they have only started in 2009. However, wherever impacts of similar 
soft measures could be assessed, they proved to be very high compared to the level of 
Community support. As an example the IEE ClearSupport project ( 2007-2009) established 
Project Service Facilitie s in Latvia, Lithuania, Poland, C zech Republic and Greece to assist 
housing associations, municipalities and building project developers on pr oject identification, 
documentation and financing. At the end of  September 2009, 218 renovation projects had 
been triggered by the ClearSupport projec t, representing about 18,000 tons of CO 2 savings. 
Overall the expected investment triggered by  this project was more than 20 times the 
Community contribution.65 
2.6.3.  Spurring energy efficiency in ne w Member States: Overall assessment 
The Commission has taken decisive  steps to trigger energy efficiency investments in new 
Members States through the EU Regional Policy and through the exchange of Best Practices, 
in particular through the Intelligent Energy Europe programme.  
As shown in chapter 2.6.1, the challenge is that the financial resources available to MS from 
Structural and Cohesion Funds are not sufficien tly channelled into investments to promote 
energy efficiency improvements. Hence the Commission will have to provide additional orientation and good practices to regional polic y managing authorities and stakeholders in 
order to strengthen the instrume nt of regional policies to increase energy efficiency in new 
Member States. Moreover, to facilitate the take  up of the financial a llocations offered by EU 
Regional Policy to support energy efficienc y, particularly for the building sector, 
                                                
 
62 www.changebest.eu  
63 www.european-energy-service-initiative.net  
64 www.fresh-project.eu  
65 www.clearsupport.eu  
 
EN 33   EN opportunities for further synergies will be expl ored between energy policy instruments such 
as IEE (including its ELENA technical financi ng facility operated by the EIB) and the 
Covenant of Mayors. The IEE programme in pa rticular offers the possibility to support 
capacity building of managing authorities, like it has been done in certain projects.66 More 
generally the programme should continue to offer support to  organisations from new MS to 
team up with partners in EU15 and develop conc rete actions to trigger investment in energy 
efficiency, in particular in areas which offer a significant savings potential like the 
refurbishment of apartment blocks. 
2.7. Priority action 7: a coherent use of taxation 
The Action Plan stated that experience has sh own that taxation, as a means to internalise 
external costs, was a powerful tool in promo ting energy efficiency. Therefore the Commission 
defined as a priority action to achieve a coherent use of taxation by committing to the following measures in the EEAP 2006: 
• Prepare a Green Paper on market based instruments (2.7.1); 
• Revise the Energy Taxation Directive to facili tate a more targeted and coherent use of 
energy taxation by integrating notably energy e fficiency considerations and environmental 
aspects (2.7.2); 
• Consider the costs and benefits of using tax credits as incentives for enterprises, on one 
hand, to promote the increased production of certified energy-efficient appliances and 
equipment and for consumers, on the othe r hand, to promote the purchase of such 
appliances and equipment (2.7.3). 
2.7.1.  Green paper on market based instrume nts for environment and other policy 
purposes 
The Commission adopted in March 2007 a Green paper67 on market-based instruments 
(MBIs) for environment and relate d policy purposes. Market-based instruments, such as taxes, 
charges and tradable permit schemes provide a flexible and cost-efficient means for reaching 
given policy objectives. In the Green Paper, th e Commission explores a wide range of areas 
where the use of market-based instruments includ ing taxation could be promoted further, such 
as energy consumption, environmental impact of transport and other areas of environment 
policy. More in particular the Green paper ex plores possible ways forward with the Energy 
Taxation Directive 2003/96/EC to make it more supportive of the EU energy and 
environmental policies in line with the EEAP 2006. The Green paper also addresses broader 
issues such as environmental tax reforms and role  of taxation and fiscal instruments in general 
in the context of the integrated energy  and climate change agenda of the EU. 
Based on the Green paper, the Commission launc hed in July 2007 a broad public consultation 
on advancing the use of MBIs for environmen t and energy related policy purposes in the 
Community. One outcome of the consultation wa s the suggestion to expand their use as an 
environment policy tool. 68 
                                                 
66 See www.promoscene.eu  
67 COM(2007) 140 final 
68 The analysis of the replies to the Green Paper have been published, see SEC(2009) 53 final; 
http://ec.europa.eu/environment/enveco/pdf/analyse_doc.pdf  
 
EN 34   EN 2.7.2.  Revision of the Energy Taxation Directive 
The current version of the En ergy Taxation Directive (ETD ) was adopted in October 2003 
and entered into force on January 2004, but derogati ons applied in several areas. It creates an 
EU-wide system for the taxation of all ener gy products. The most im portant points of the 
current Community framework for energy taxation are: 
• Energy products are only be taxed when used as motor or heating fuel, not when used as 
raw materials, while electricity is taxed irrespective of its use; 
• Exemption of energy products or electricity used  to produce electricity and electricity used 
to maintain the ability to produce electricity; 
• The "levels of taxation" applie d by the Member States may not  be lower than the minimum 
rates set in the Directive.  
• MS are allowed to differentiate between comm ercial and non-commercial diesel used for 
transport, and specific provisions apply to the taxation of commercial diesel;  
• Business use of energy products can be taxed at a lower rate than non-business use;  
• Energy products used for inte rnational air transport and na vigation remain exempt from 
taxation (due to the existence of international commitments);  
• MS can choose to exempt, among other things, electricity from renewable energy sources 
and energy used for trains, metros, trams or trolley buses. 
The approach has been so far to provide fo r necessary minimum comm on rules to prevent a 
situation where differences in national energy  taxation policies create distortions on the 
internal market. However, the current legisla tive framework does not explicitly incorporate 
environmental policy considerations. Without a re vision, the current incons istent treatment of 
energy sources in the ETD will remain, therefore taxation will not steer energy efficiency in a coherent way. Member States may refrain from  actively using the taxation instrument for 
environmental policy purposes such as increas ing energy efficiency. Th erefore a revision of 
the ETD is necessary to provide a more robus t framework for MS committed to pursue with 
the ambitious energy and environmental objectives through taxation. 
2.7.3.  Tax credits as incentives for enterprises and consumers 
The Commission published in December 2008 a study on  "the costs and benefits associated 
with the use of tax incentives to promote the manufacturing of more and better energy-
efficient appliances and equipment and the consumer purchasing of these products."
69 
The study deals with the fiscal instruments that could potentially be used to promote energy 
efficiency in the EU. It focuses on direct fiscal  incentives (subsidies, tax credits to consumers 
and to manufacturers) and compares their cost s and benefits with those of conventional tax 
instruments (energy taxation) and a regulatory measure. The costs and benefits are assessed 
for four different appliances selected for th eir high energy saving potential: refrigerators, 
washing machines, boilers and compact fluorescent lamps. In each case the assessment is carried out for two different EU Member States in order to capture the impact of different 
using patterns, price levels and market penetration of products. The countries included in the 
analysis are France, Denmark, Italy and Poland. 
                                                
 
69 Biointelligence Services for European Commission/ DG TAXUD (2009): Study on the costs and 
benefits associated with the use of tax incentives to promote the manufacturing of more and better 
energy-efficient appliances and equipment and the consumer purchasing of these products, Final 
Report. http://ec.europa.eu/taxation_customs/common/publications/studies/index_en.htm . 
 
EN 35   EN The study draws the following conclusions: 
• Energy taxation appears as the most cost-effect ive policy to promote energy efficiency in 
the EU;  
• Subsidies and tax credits have, however, a considerable potentia l of generating energy 
savings. In some cases energy savings induced by subsidy schemes (direct subsidies or tax 
credits) exceed those generated by energy tax increases manifold (e.g. refrigerators in 
France and Denmark). The subsidy schemes te nd to have, however, higher welfare costs 
than the increases of energy taxation, which makes their benefit- cost balance in some cases negative (e.g. refrigerators in France); 
• The comparison of different incentive instrume nts reveals that direct subsidies and tax 
credits to consumers are much more cost effec tive than tax credits to manufacturers. In the 
latter case the welfare costs/ ton of CO
2 (€ 650 in Italy and € 234 in Poland) exceed by far 
all the reasonable estimates of the CO 2 externality, and hence su ch policies would cost 
much more to the society than the benefits they could generate; 
• The regulatory measure (removing class B refrige rators or lower from the market) also 
turns out to have a relatively low capacity to generate energy savings compared with other 
policy options and therefore a fairly  negative benefit- cost balance; 
The study was meant to inform the policy-makers about the costs and benefits of using direct 
tax incentives to promote the purchases of energy-efficient products. It remains in the 
competence of the Member States to use such instruments. 
2.7.4.  Coherent use of taxation: overall assessment of the priority action 
A coherent use of taxation is of paramount impo rtance to trigger energy efficient behaviour. 
The Commission has put forward a Green paper on market based instruments and a study on 
tax incentives in the context of the EEAP's priority action on taxation. However, the main priority was to table a proposal for a revised energy taxation directive, which has not been 
finalized yet. Only once a revised energy taxation directive would enter into force, will a decisive step be achieved towards a more cohe rent use of taxation. Moreover they are still 
many taxation schemes in place which are in consistent with our energy and climate 
objectives, such as the company car taxation benefits granted by legislation of various MS as 
it supports additional car use and also  bigger, more polluting vehicles.
70 Taxation is thus an 
area which needs further atten tion, keeping in mind its str ong subsidiarity character. 
2.8. Priority action 8: raising energy efficiency awareness 
The Action Plan acknowledges that the efficient use of energy requires f actors that motivate, 
facilitate and reinforce rational and responsib le behaviour. Important predisposing elements 
for rational market behaviour are institutional ca pacity, awareness, and clear, credible and 
accessible information in energy-using technolog ies and techniques. Moreover, education and 
training are required for all stake holders, and information technology is  vital. It is against this 
background that the EEAP 2006 defined as priority action to raise energy efficiency 
awareness by developing through Community programmes: 
• Education and training plans and programmes fo r energy managers in industry and utilities 
(2.8.1); 
• Teaching aids for primary, secondary and vocational educational curricula (2.8.2). 
                                                 
70 See European Commission (2010): Taxation Paper – Company Car Taxation, Working paper 22 
http://ec.europa.eu/taxation_customs/resources/documents/taxation/gen_info/economic_analysis/tax_pa
pers/taxation_paper_22_en.pdf  
 
EN 36   EN 2.8.1.  Education and training plans for energy managers in industry and utilities 
Education and training plans cove r a wide range of aspects. These are detailed out in the 
annex of the EEAP and include inter alia : 
1. Promotion of energy management schemes  
2. Energy efficient procurement guidelines 3. Guidelines on how to promote energy efficient products 4. Training toolkits for industry, SMEs and the public sector 
5. Reference document on Best Available Techniques on Energy Efficiency 6. Involvement of the Intellig ent Energy Europe Programme 
Promotion of energy management schemes 
With the Eco-Management and Audit Sc heme, EMAS, a volunt ary environmental 
management system (EMS) was establishe d, under which companies and other public 
organisations evaluate, manage and continuously  improve their environmental performance. 
EMAS has been operative since 1995
71 and was originally restricted to companies in 
industrial sectors. Since 2001 EM AS has been open to all econo mic sectors including public 
and private services.72 EMAS was strengthened by the in tegration of EN/ISO 14001 as the 
environmental management system required by EMAS, by adopting an a ttractive EMAS logo 
to signal EMAS registration to the outside wo rld, and by considering mo re strongly indirect 
effects such as those related to financial serv ices or administrative and planning decisions. 
Amending the EMAS regulation was explicitly listed as an EEAP measure and the latest 
revision (EMAS III) came into effect on 11 January 2010. Currently, more than 4,400 
organisations and approximately 7,600 sites are EMAS-registered.  
In 2009, the Commission73 analyzed the costs and benefits of EMAS registra tions and found 
convincing evidence for a number of benefits, including reduced costs for resources and waste 
management, risk minimisation, regulatory comp liance, regulatory relief, improved relations 
with internal and external stakeholders, and achieving competitive advantage. For SMEs, gaining access to public contracts was highlighted as a key bene fit. For SMEs in the supply 
chain EMAS registration of clie nt companies can have a direct  impact. A growing number of 
small companies will need to demonstrate (or have already demonstrated) a recognised track 
record of regular, positive envi ronmental management. In fact, often supplier companies are 
required to have EMAS registration in order to  gain market access. For instance, in industry 
sectors close to the customer, s uppliers note that their client s request EMAS registration. To 
help SMEs with establishing the EMAS, a specific toolkit has been developed.
74 
The Commission committed to lead by example a nd started the EMAS registration process of 
its own buildings. The registration of all bu ildings will be finalized by 2014. The European 
Parliament is EMAS registered for their thr ee sites Brussels, Luxembourg and Strasburg (see 
2.2.3). 
Energy efficiency procurement guidelines 
                                                 
71 Council Regulation (EEC) No 1836/93 
72 Regulation (EC) No 761/2001 
73 European Commission (2009): Study on the Costs and Benefits of EMAS to Registered Organisations 
74 http://ec.europa.eu/environment/emas/toolkit/index.htm  
 
EN 37   EN While no energy efficiency procurement guide lines have been put forward, the Commission 
adopted in 2008 a communication “Public procurement for a better environment"75 to promote 
Green Public Procurement (GPP) as voluntary instrument for public authorities. GPP is 
defined as "a process whereby public authorities seek to pr ocure goods, services and works 
with a reduced environmental impact throughout their life cycle when compared to goods, 
services and works with the same primary f unction that would otherwise be procured.”  
Green purchasing is also about influencing the market. By pr omoting and using GPP, public 
authorities can provide industry with real ince ntives for developing gr een technologies and 
products. In some sectors, public purchasers co mmand a large share of th e market (e.g. public 
transport and construction, hea lth services and education) and so their decisions have 
considerable impact. 
A dedicated toolkit76 was designed for use by public purc hasers and by GPP trainers or for 
integration in general public procurem ent training courses and workshops.  
The Commission is following the GPP guidelin es for its own procurement activities. 
Reference document on Best Available Techniques on Energy Efficiency  
In the context of the IPPC Directive, a Reference Document on Best Available Techniques on 
Energy Efficiency has been adopted in  2009 (see 2.3.1), which features exhaustive 
information on Energy Efficiency Manageme nt Systems (ENEMS) and the different 
techniques supporting its implem entation is provided, such as:77  
• Planning actions and investments in an inte grated way to continuously minimise the 
environmental impact of an installation; 
• Considering the installation and its systems as  a whole, using energy efficiency design and 
selecting energy efficient pr ocess technologies for new and upgraded installations; 
• Increasing energy efficiency by increasing pr ocess integration, and refreshing the energy 
ENEMS periodically; 
• Maintaining sufficient staff expertise; 
• Communication of energy efficiency issues; 
• Effective process control and maintenance; 
• Monitoring and measuring energy usage; 
• Energy auditing; 
• Monitoring and benchmarking energy efficiency  levels for installations and processes. 
Guidelines on how to promot e energy efficient products 
Guidelines78 have been prepared to facilitate th e implementation of the regulation on 
ecodesign requirements for sta ndby and off-mode power cons umption of electrical and 
electronic household and office equipment ((EC)  No 1275/2008), in particular for SMEs. 
Moreover, a brochure has been prepared on ho w ecodesign can help the environment by 
making products smarter, which was disseminate d via the Europe Enterprise Network.  
                                                 
75 COM (2008) 400 
76 http://ec.europa.eu/environment/gpp/toolkit_en.htm 
77 EC (2009): Reference Document on Best Availa ble Techniques on Energy Efficiency, chapter 2. 
78 http://ec.europa.eu/energy/efficiency/ecodesign/doc/legislation/guidelines_for_ 
smes_1275_2008_okt_09.pdf   
 
EN 38   EN Intelligent Energy Europe Programme 
In addition, many activities have  been initiated to raise energy efficiency awareness in 
industry and SMEs in particular, under the um brella of the Intel ligent Energy Europe 
Programme. Some key projects targeting SMEs to optimize their energy use are: 
• CHANGE (09/2008-08/2010):79 Supports SMEs in optimising their energy use by 
developing a European network of intelligen t energy advisors at Chambers of Commerce 
and Industry (CCIs) and by kick-starting or en hancing concrete assistance to SMEs. This 
project, co-ordinated by EUROCHAMBR ES involves 61 CCIs from 12 European 
countries. As a result of the project, more th an 60 specifically trained Chamber advisors 
operate as "first ports of call” for SMEs in energy matters. Facilitating their access to information, organising information events, and encouraging businesses to take energy pre-
checks, this advisors will br idge the gap between SMEs and existing services available on 
the market. Further, a reference manual for bus iness organisations on how to advise SMEs 
on energy topics has been prepared in June 2010.  
• ENGINE (10/2007-03/2010):
80 Addresses managing and technical staff in SMEs of the 
automotive, metal and wood processing sector s as well as food industries and energy 
efficiency advisors in professional associ ations, Chambers of Industry and Commerce, 
energy service companies or relevant stakehol ders in public authorities in the partner 
regions. The activities include specific energy efficiency checks for the SMEs and training 
for potential and existing energy advisors to  support capacity building on both sides. Aims 
at setting up regional networks and promo tional campaigns for energy efficiency in 
producing industries. 
2.8.2.  Teaching aids for primary, secondary and vocational educational curricula 
In the framework of the IEE Programme, about  20 energy education projects which involve 
over 200 beneficiaries from 26 MS have been launched. Around 5,000 schools across Europe 
have benefited directly from the actions with a huge replication potential to many millions of 
students, teacher and parents. 
In Summer 2006, the Commission already launched a raisi ng awareness campaign "You 
control climate change". The Campaign website81 has a dedicated section for schools, to 
enable teachers to use the provided teaching mate rial in the classroom on a voluntary basis.  
In this context, the EEAP 2006 put forward a proposal to launch a vocational educational 
initiative on energy efficiency, which has not be en initiated yet. However, a similar initiative 
'Build up skills: Sustainable Building Workfor ce' will be launched by the Commission in 
2011 in the framework of the IEE programme. 
2.8.3.  Achieving more energy efficiency  awareness: overall assessment 
Promoting energy efficiency awareness is a key to promote the use of energy efficient 
products (lighting, appliances, cars) as well as the implementation of energy efficiency 
improvements measures by households, priv ate companies and the public sector. 
                                                 
79 http://www.eurochambres.eu/C ontent/Default.asp?pageid=232 
80 http://www.engine-sme.eu/ 
81 http://ec.europa.eu/environment/climat/campaign/index_en.htm  
 
EN 39   EN In the context of the EEAP 2006, the measures defi ned for priority action have been almost all 
finalized. The issue remains neve rtheless relevant and should be  further tackled in future 
policies. The role of training, especially for the labour force, becomes even more imperative 
as a well trained staff (workers) is a prerequi site to implement some key energy efficiency 
policies such as the renovation of the existin g building stock with a view of improving its 
overall energy performance (see 2.2.3). 
2.9. Priority action 9: Energy Efficiency in built-up areas 
About three quarters of the popula tion in the EU live in built- up areas in or around cities and 
this urbanization trend will continue. Such urban areas consume 80% of the energy in the EU and emit about the same share of greenhouse ga ses. Shaping energy consumption patterns in 
built-up areas is in the hands of  the responsible regional and lo cal authorities. Consequently, 
triggering stronger commitment of cities an d regions to act is key to reduce energy 
consumption at local level. To this end, the Co mmission defined as the ni nth priority action to 
create a: 
“Covenant of Mayors” bringing together in a permanent ne twork the mayors of 20-30 of 
Europe's largest and most pioneering cities. The aim is to exchange an d apply best practices 
thereby improving energy efficiency significantly  in the urban environment, where local 
policy decisions and initiatives ar e important, including transport. 
The Commission implemented this priority wi th a much more ambitious approach, upon 
which cities and regions commit formally to go beyond the objectives of the EU in terms of 
CO 2 reduction (more than 20% by 2020), by draf ting and implementing Sustainable Energy 
Action Plans, subject to scrutiny by the Co mmission services. Covenant signatories accept 
termination of their involvement in the Cove nant in case of non respect of their own 
commitment. The commitment is unilateral and not conditional to any kind of support by the EU. Covenant cities also commit to provide re ports outlining the progress of their Action 
Plans. In order to allow smaller municipalities to be in a position to commit to the Covenant 
principles, the Commission signs agreements with the so called Supporting Structures, 
national and sub-national admin such agreements have been signed so far. 
The Covenant procedure was launched in January 2008. After a consultation period, 
representatives from cities and regions submitted to the Commission a final version of the Covenant text in October 2008. From that moment  on, cities and regions start to adhere. By 
February 2009, when the first Covenant Ceremony took place at the European Parliament, 370 cities had joined. For the second Ceremony in May 2009, the Covenant consisted of 1680 
signatories. The 2000
th signatory adhered in October 2009. More than 132 million people are 
living in a EU Covenant territo ry. The expected results in CO 2 tons avoided exceed 145 
million tonnes per year by 2020. More than €8 billion have been mobilised in just one year of 
full operation. 
Overall assessment 
So far the investment by the Commission to facilit ate the Covenant has been relatively small. 
The most important invest ment is linked to the European Local Energy Assistance facility 
(ELENA - see 2.5.1)  operated by the European Inve stment Bank. Only through ELENA, 
almost €900 million were mobilised in Covenant terr itories in just 10 months in 2010 with an 
EU support of less than €8 million. Besides, the Covenant of Mayors will be extended to the 
European Neighbourhood Policy countries with a €5 million Decision in 2010. Through the 
 
EN 40   EN Covenant, more than €300 million from the C ohesion Funds have been used in energy 
efficiency actions in local settings. 
In technical terms, several hundred Sustainabl e Energy Action Plans have been produced and 
submitted, with impressive results. UN agencies, other international organisations, multinational companies and foreign governments are requiring access to that information in 
order to develop new approaches. 
The Covenant attracted from the inception mome nt lots of media attention and high support 
by top decision-makers at EU and national level.
82 They have also taken the Covenant 
message to other fora, often outside the EU (for  instance, in China, USA or Latin America).  
The main advantage of the Covenant lays in it s bottom-up approach and full application of the 
subsidiarity principle. The role of the Comm ission is limited to provide a EU dimension and 
some supporting instruments and to guard the resp ect of the commitments. Because of that, it 
can be managed with very limited resources and high effectiveness. 
However, it will take some additional years to show whether the energy saving potential 
channelled through the Covenant of Mayors will  be fully tapped. The success of the Covenant 
cities and regions will also to  some large extend depend on pr ovided financial and technical 
support. To this end, the Co mmission would need to furt her reinforce the Covenant, inter alia  
with additional resources to effectively tackle  energy use in urban bui ldings and transport. 
2.10. Priority action 10: Fostering  energy efficiency worldwide 
The last priority action of the EEAP is to foster energy efficiency worldwide. To this end, the 
Commission stated it would take the initiative to reach a framework agreement with key external trading partne r countries and international organi sations. The agreement would focus 
on improving energy efficiency in end-use sector s and energy transformation and use a large 
number of policies and measures. 
2.10.1.  The international Partnership on En ergy Efficiency Cooperation (IPEEC) 
The priority action has ta ken the form of the International Partnership for Energy Efficiency 
Cooperation (IPEEC). This is a major Commission initiative in the G8 context which was officially launched in 2009. It  is a high level forum for e nhancing and coordinating joint 
efforts to accelerate the adoption of sound en ergy efficiency improvement practices. The 
Partnership provides a forum for discussion, co nsultation and exchange of information. The 
present 15 members are the G8, the EU and th e emerging economies Brazil, China, India as 
well as Australia, Mexico, and South Korea. IP EEC is open to all countries wishing to 
contribute to energy efficiency. A number of dedicated Task Groups work on issues such as 
sustainable buildings, energy management, and efficient equipment and appliance 
deployment. Meetings take place on a regular basis. 
2.10.2.  Other measures addressing energy efficiency worldwide 
In addition to the creation of  IPEEC, the EEAP 2006 put forwar d more measures fostering 
energy efficiency beyond the EU, such as: 
                                                
 
82 Presidents Barroso, Buzek, Van der Brande, Bre sso, Zapatero and others have attended Covenant 
ceremonies and expressed full support. 
 
EN 41   EN • Strengthening of energy efficiency in energy and trade treaties, agreements, dialogues and 
other cooperation frameworks; 
• Increasing international coope ration on measurement methods for minimum efficiency 
requirements and labelling; 
• Voluntary agreements with export industr ies on information, minimum efficiency 
requirements and labelling;  
• Creation of an international network for di ssemination of information and advice on 
efficient technologies. 
Stronger energy efficiency focus in cooperation frameworks 
The focus on energy efficiency in the EU's b ilateral relations has definitely increased. 
Cooperation on energy efficiency is systema tically covered in negotiations on legal 
framework agreement with third countries. Th ese agreements are often complemented by 
'energy dialogues' with individual third countries  or groups of countries and which take place 
on a regular basis including exchanges on energy efficiency (e.g. Brazil, India, Russia, the 
Gulf region). Energy efficiency is also include d in Action Plans designe d in the framework of 
the European Neighbourhood Policy.  
Moreover, improving energy efficiency measures  and energy savings is  covered in several 
Memoranda of Understanding on energy between the EU and third countries: China is a 
notable example. Regarding the ACP countries , EU-Africa Energy Part nership was launched 
in December 2007, featuring energy efficiency as  one of its key elements. This partnership 
will be supported by concrete projects deve loped under a Thematic Program on environment 
and sustainable management of natural resour ces including energy as well as the EU-Africa 
Infrastructure Partnership. Worth mentioning is also the Action Plan on  Sustainable Industrial 
Policy which has a strong focu s on internationa l cooperation. 
International cooperation on measurement me thods for minimum efficiency requirements 
and labelling 
Cooperation on measurement methods are a focu s in IPEEC which has a dedicated Task 
Group on the development of energy efficiency indicators, led by France. The issue is 
incidentally also being discusse d in bilateral relations with ma jor partners such as Russia. 
International network for dissemination of  information and advice on efficient 
technologies 
The collaboration by members of the G8 + G5 in the context of the so called 'Heiligendamm 
Process' focused on extensive ex change of information on energy efficiency in buildings. This 
process was formally ended in 2009 but is be ing extended and actively taken up in the 
framework of IPEEC which has a specifi c Task Group on sustainable buildings. 
Voluntary agreements with export industries  on information, minimum efficiency 
requirements and labelling  
The 'Energy Star' programme (see 2.1.4) contains  a voluntary agreement on a label for office 
equipment. It is being applie d in the EU, the US and also Japan. It has been renewed and 
reinforced in 2006 and is expected to be renewed again in 2011. 
 
EN 42   EN 2.10.3.  Fostering energy efficiency worldwide: overall assessment 
The EU has significantly intensified its efforts to include energy efficiency in its international 
relations. Intensified cooperation should continue to take place, inter alia  in the context of 
IPEEC. The objective is to facilitate actions  that yield high energy efficiency gains. 
Harmonisation of energy efficiency legislations  at global level remains complicated by the 
existence of diverging approaches  in the USA, Japan and Europe. 
 
EN 43   EN 3. ACHIEVEMENTS IN ENERGY SERVICES  
While not explicitly selected as priority for the Commission to take immediate action, 
promoting the uptake of a market for energy servic es is nevertheless a priority area of the 
EEAP 2006. Against this background, this report looks into the achievements realized so far 
with the implementation of the ke y legislation on energy services. 
3.1. Main objectives of the Energy Services Directive 
The Energy Services Directive (ESD) is a fram ework directive on end-use energy efficiency. 
The purpose of the ESD is to enhance the co st-effective improvement  of energy end-use 
efficiency by: 
• Creating the conditions for the development and promotion of a market for energy 
services; 
• Providing mechanisms, incentives and institutional, financial and legal frameworks to 
remove existing market barriers and imperfections; 
• Triggering energy efficiency action in various areas (i.a. public sector); 
• Coordinating and monitoring saving activitie s through regular national energy efficiency 
action plans. 
The realisation of the directive’ s principle objective, i.e. th e cost-effective improvement of 
energy end-use efficiency in the MS, will be achieved by setting energy savings targets of 9% for 2016, underpinned by interim targets for 2010. In other measures, the ESD sets out 
provisions which create the cond itions needed for the developm ent and promotion of a market 
for energy services and for the delivery of other energy efficien cy improvement measures for 
final consumers. 
Box 1: The ESD target and the overall Eu ropean energy saving objective 
It should be noted that the ESD target setti ng and the overall Europ ean 20% primary energy 
saving target are difficult to compare for several technical reasons: 
• The 9% ESD target is based on final energy consumption, excluding final use of the ETS 
installations or military use. In order to calculate the contribution to the 2020 primary 
energy saving target, the specific final energy ta rgets need to be converted into primary 
energy. The outcome will depend on the nati onal features of the saving measures, 
especially how many measures target electricity savings. Th e actual share of electricity 
savings versus heat savings under the ESD dete rmines how big the ESD impact will be in 
primary terms.83  
• The 20% target aims at saving 368 Mtoe prim ary energy in 2020 compared to a projection. 
In the ESD, the connection between achieved sa vings and the resulting energy use level is 
looser as only 9% energy end-use energy savings  have to be proven but not their impact on 
final or primary energy consumption. 
                                                 
83 This effect will be smaller for countries that alr eady applied a weighting fact or for electricity (default 
co-efficient is 2.5, see Annex II of the ESD). 
 
EN 44   EN • The ESD target is set for 2016. The question is  how much policy measures implemented as 
a result of the ESD will contribute towards the 2020 target in the 2016-2020 period. 
• Although the base year (5-yea r average) of the ESD shoul d not be normalised (ESD 
Annex I), the energy savings under the ES D should be normalized, e.g. for weather 
conditions (see ESD Annex IV). 
• A share of early action savings ( achieved before 2008 but after 1991/9584) can be counted 
towards the target on the condition that they  have a lasting effect . Early action savings 
achieved between 1991/95 and 200 5 are already part of th e PRIMES 2007 baseline (the 
fixed benchmark baseline for the 20% objecti ve) and therefore do not  contribute to the 
20% target. Only early action implemente d in 2006 and 2007 contributes to the 2020 
target.  
In addition to setting end-use energy saving targets, the Directive obliges the Member States 
to prepare three national energy efficiency ac tion plans (NEEAP) in which they report on 
their saving activities. The public sector is expected to fulfil an exemplary role in achieving 
the objectives of this Directiv e and must invest, maintain and ensure that related expenditure 
on energy-using equipment is spent bearing energy-efficiency in mind. Rules on improved 
consumer information and energy consumpti on are spelt out as ar e provisions on better 
metering and the billing of energy consumption. 
Depending on the chosen measures to achieve th e saving targets, the impacts of the ESD can 
overlap with national implementation impacts fro m other Directives such as EPBD, ecodesign 
or labelling (see chapters 2.1, 2.2). This underlin es the character of the ESD as framework 
Directive which was designed to back up a nd strengthen the implementation of other 
Directives that focus on end-use energy efficiency. 
3.2. Level of implementation 
Member States had to transpose the Directiv e by May 2008. In the beginning, transposition of 
the Directive was slow with 20 reasoned opi nions for non-communication issued by the 
Commission in February 2009. However, in  the end of 2009 and beginning of 2010, the 
process of adoption of releva nt national legislative and non- legislative measures in MS 
accelerated. In October 2010, 24 MS communicated  full transposition while three Member 
States had a status on incomplete transposition with indication that the transposition in the 
countries would be closed by the end of 2010.  
Under the ESD, MS were also specifically requi red to adopt and submit their first NEEAP to 
the Commission not later than 30 June 2007. The first NEEAP were supposed to stimulate the 
translation of energy saving objectiv es into concrete and coherent measures and actions at the 
level of each MS. For many Member States this  has been the first time they had to prepare 
such comprehensive national energy saving stra tegies and some delays with adoption of 
NEEAPs occurred. It was only in July 2008, i.e. a year after the deadline set in the Directive 
that the Commission was in receipt of all NEEAPs. 
The assessment in the first NEEAPs indicated that a number of MS ha d been successful in 
setting comprehensive frameworks for harnessi ng possibilities to reduce energy consumption 
                                                 
84 For details, see Annex I of the Energy Services Directive. 
 
EN 45   EN cost-effectively. Yet, there have been some Me mber States which had some more difficulties 
in setting such frameworks.85  
Following bilateral communica tions with the Commission some MS (e.g. Lithuania, 
Hungary) on their own initiative revised thei r first NEEAP and adopted new significantly 
upgraded sets of policy measures. Some othe r MS adopted targets going beyond strict ESD 
obligations and looking at primary energy sa vings objectives with a time horizon for 2020. 
In order to support MS in tr ansposing the Directive the Co mmission has set up a Concerted 
Action on the ESD (see chapter 2.6.2). The ex changes between MS ca rried out under the 
framework of the Concerted Ac tion clearly helped with qui cker implementation of new 
energy saving measures in many MS. These exch anges revealed also that even though the 
economic crisis created restrictions on public spending necessary for the proper 
implementation of many key measures set in the first NEEAP, a number of MS decided to 
introduce new policy measures in addition to  their NEEAP as they considered smart 
investments in energy savings as an important instrument to improve energy security, create 
new jobs and fight against fuel poverty.86  
3.3. Expected impact of the Energy Services Directive 
As explained in chapter 3.1 the impact of the ESD may be overlapping with other EEAP 
instruments, depending whether MS make use of these instruments to reach the ESD's saving 
target. The full overview of ESD measures account able for the end ener gy saving target will 
only be known as a result of th e reporting in the second and th ird NEEAPs. However, it is 
possible to draw some first conclusions in te rms of impacts out of the first NEEAPs and 
several research studie s which have been signed out to this effect: 
• The 2009 analysis from Fraunhofer ISI (as part  of the EU-27 Energy Savings Potential 
study). 
• The Commission's own assessment with help of PRIMES 2007 (benchmark baseline for 
the ESD) and PRIMES 2009 (including recessi on and additional policies effect). 
Based on the level of amb ition claimed by the MS in their first NEEAPs, the final  energy 
savings in Mtoe triggered by the ESD that coul d be achieved if MS manage to reach their 
national targets would have an accumulated effect of ca. 112-120 Mtoe.87 The number 
includes “early acti ons” taken by some MS befo re the adoption of ESD.88  
An assessment by Fraunhofer et al. (2009)89 concluded that about one third of the cost-
effective saving potential of the ESD sectors has been covered by the NEEAP targets. They 
estimated a cost-effective energy saving poten tial for activities covered by the ESD of at least 
180 Mtoe of final energy use in 2016. 
                                                 
85 Synthesis of the complete assessment of all 27 National Energy Efficiency Action Plans, Commission 
Staff Working Document, 23.6.2009 (SEC 2009/889 final) 
86 For example: a new revolving funds for energy efficiency in housing established in Estonia, Lithuania 
or a new support schemes for energy saving introduced in Ireland. 
87 In some MS, the savings expected by some MS from the implementation on ESD are sometimes higher 
than their official commitments fo r final energy saving targets. 
88 Some “early actions” include measures  implemented in MS back in 1991. 
89 See Ecofys and Fraunhofer  ISI. 2010. The feasibility of binding energy savings targets in the EU. Draft 
report. 
 
EN 46   EN In their first NEEAP, MS attri buted approximately one third of their savings to early actions 
before 2007 (which is allowed under the Directive). This would leave a net saving impact of 
120 Mtoe final energy for the ESD for the pe riod 2007-2016. With the assumption that 25% 
of the saving measures are targ eting electricity consumption a nd using the conversion factor 
of 2.5 this would tran slate into some 165 Mtoe primar y energy savings by 2016. This gross 
saving figure includes savings whic h can also be attributed to other measures. If we assume 
that some 60% of the measures taken up in th e NEEAPs rest on other EU legislation, the net 
additional saving effect trigge red by the ESD can be estimated at some 66 Mtoe primary 
energy savings for 2016. With the assumption that MS will continue their constant efforts on 
energy savings beyond 2016, net additional savings could reach some 95 Mtoe primary 
energy savings in 2020 . 
PRIMES 2007 can be considered the benchmark baseline for the ESD. PRIMES 2009 
includes the national implementation measures of  the ESD (as reported in the NEEAPs). With 
the help of both scenarios, the impact of ne w energy efficiency policies on end-users can be 
determined. As PRIMES 2009 does include th e impact of the recession, we need to 
distinguish between the clear policy impact and the impact of the recession. The analysis will 
be done for industry, residential, tertia ry and transport sector separately. 
However, by analysing PRIMES, a net impact of ESD on final energy savings in 2020 could 
be reduced down to 50 Mtoe. This more cauti ous figure can be attr ibuted to different 
assumptions about the share of other EU policy measures counted in the ESD target, different 
lifetimes attributed to the measures or di fferent assumptions about rebound effects.  
3.4. Overall assessment 
The analysis shows that the underlying idea of the Energy Se rvices Directiv e, that is 
triggering additional energy savings by setting a framework and backing up other savings Directives, has delivered positive results. As the Directive only tackles a special segment of 
the energy consumption side and is limited in sc ope and time, the benefits  in terms of savings 
however stay considerably below the tangible potential. Further savings  could be achieved by 
broadening the scope of the Dire ctive as well as the obligations set by the Directive. This 
could be done by: 
• Discussing revised options for target setting wh ich are closer linked to directly reducing 
energy consumption; 
• Stepping up provisions on cross-cutting m easures such as financing, consumer 
information; 
• Turning the national energy efficiency action plan from a reporting tool into overall 
strategic policy documents to capture all ener gy savings and better describe the national 
energy efficiency policies; 
• Stepping up the obligations for th e energy suppliers and integra ting supply side efficiency. 
These items will be looked at in detail once results of the mid-term evaluation of the Energy 
Services Directive are available, delivering further in-detail results. 
 
EN 47   EN 4. OVERALL CONTRIBUTION OF THE ENERGY EFFICIENCY ACTION PLAN  
The EEAP was proposed by the Commission with a vi ew to move the EU towards reaping the 
20% energy saving potential de scribed in its Green Paper on Energy Efficiency and to 
maintain Europe's position as one of the most  energy-efficient region s in the world. Although 
the EEAP is still in implementation until 2012, th e first comprehensive assessment presented 
with this progress report unveils important achievements in most priority areas and priority 
actions addressed. 
4.1. General achievements and limitations 
The very broad approach followed by the EEA P 2006 has the strong merit of addressing 
numerous ways for improving energy efficiency and provides for the first time an overarching 
European framework for energy efficiency measur es in different sector s, addressing different 
stakeholders through differe nt types of measures.  
The implementation of the EEAP has triggered significant positive developments by driving 
for new, better and implemented energy effici ency legislation: With over 20 legislative 
measures in its portfolio, the EEAP strongly pu shed for the implementation of existing key 
Community legislation targeting efficient uses of energy inter alia  in buildings (EPBD), 
products (Ecodesign, labelling), se rvices (ESD), in energy tran sformation (CHP) and in rail 
transport. It further strengthened selected ke y legislation by putting forward their revision 
(EPBD, ecodesign and labellin g Directives). Moreover it introduced new legislation 
addressing fuel efficiency of cars (minimum em ission standards, labelling of tyres) and the 
uptake of clean vehicles through public procurement. EEAP further supported the 
implementation process of legisl ative measures with targeted instruments such as financing 
(e.g. ERDF, ELENA), Reference Documents on Best  available techniques, guidelines, and 
promoted the exchange of best practices in energy efficiency, inter alia  through the creation 
of information platforms (e.g. Concerted Actions  in buildings and energy services, Bucharest 
Forum, etc.) within the EU but also internationally (e.g. IPEEC). It is undisputed that these 
achievements bring Europe closer to the EEA P's overarching objective to deliver the most 
energy-efficient infrastructure, buildings, applia nces, processes, transp ort means and energy 
systems. 
Looking at the detailed level of measures propo sed, it can be noted that the majority of the 
priority actions have been initiated and finalized (see chapter 2) and that the majority of the 85 measures proposed in the EEAP have been completed or are in the process of being 
finalized. Only a few have not b een addressed now (see annex 1). 
Despite the strong impact, in contrast, some aspects of the EEAP limit its overall 
effectiveness. Indeed, its approa ch of listing 85 measures lead to a political reality where the 
Plan is often perceived as a technical docum ent more than a strong and visible political 
commitment to energy efficiency and savings . Although an overarching aim was defined, it 
lacks clear objectives for the different sectors and the measures proposed are not directly 
interlinked. Further, the EEAP is mainly conceived as (priority) actions to be taken by the Commission, while the success of many measures depends to a large extend on their level of 
implementation in Member States (e.g. in the case of legislation) and the interplay with 
supportive measures (e.g. financing). 
 
EN 48   EN 4.2. Contribution of the EEAP to the energy saving objective in 2020 
In addition to the assessment of the indivi dual progress made with each priority action 
(chapter 2), it is imperative to provide an appr aisal of the overall co ntribution of the Plan 
towards the 2020 energy saving objective. Such an overall review is a complex task when 
approaching it from a bottom-up perspective, i. e. by adding up savings  from single measures, 
to generate an aggregated impact. Indeed, overlaps resulting from interacting measures 
targeting the same sector would need to be identified and a ccounted for when compiling the 
overall impact. As an alternative, a top-down approach can be used to estimate the overall 
impact of the EEAP measures. To this end, the Energy Model called PRIMES, developed by 
the Technical University of Athens on behalf of the Commission, was used. 
At the time of the EEAP's adopt ion in 2006, it was estimated th at it had the potential to 
deliver 14% energy savings by 2020 compared to  a baseline scenario of the Energy Model 
PRIMES. To observe the effects at the macroec onomic level, it is necessary to compare the 
changes between the baseline used for the EEAP impact assessment90 and the newest 
available one taking into account the impact of major EEAP measures implemented until the 
end of 2009 as well as other economic developm ents affecting primary energy consumption. 
This suggests that the energy efficiency policie s are expected to deliver not 14% but about 
half of the savings  objective in 2020.  
However, it should be pointed out that these pr ojections do not take in to account policies in 
the pipeline, especially the fo rthcoming ecodesign implementing measures as well as adopted 
policies in full such as the recast Energy Performance of Buildings Directive. This would have an additional impact on reducing future consumption.  
4.3. Way forward – A new Framework on Energy Efficiency Policies 
The experience gained with the implementation of the EEAP is valuable for the design of any 
new European framework for energy efficiency  policies. The following main conclusions can 
be drawn: 
• A full and ambitious application of existing en ergy efficiency legislation by Member States 
is crucial to deliver the full potenti al of energy savings in practice; 
• As energy savings are realized at national an d local level, it is important to steer and 
mobilize action at all levels of government; 
• Supporting tools need to be strengthened or e xpanded further to increase the impact of 
legislation, such as National Energy Efficien cy Plans, monitoring  systems, access to 
financing and training; 
• More ambitious measures are needed to t ackle energy consumption in all sectors; 
• An overarching energy efficiency framework with  a longer term persp ective is needed to 
trigger lasting political comm itment towards energy efficiency improvements and energy 
savings. It needs to be streamlined and focu sed on main policy objectives, containing clear 
priorities without getting too technical. 
Any new framework should imperatively bu ild upon the experience s gained with the 
implementation of the EEAP 2006 and propose additi onal policies to close the gap and realize 
                                                
 
90 The baseline used for the EEAP assessment dates from 2005. This baseline has been updated in 2007 
taking into account all energy effici ency policies and measures adopte d until the end of 2006. As the 
assumption for the Gross Inland Consumption of energy are the same between the two baselines, it is 
recommend to use the baseline update from 2007 to coincide better with the implementation start of the 
new Energy Efficiency Action Plan in 2006. 
 
EN 49   EN its aspiration to mobilise the general public and policy-makers , and to provide EU citizens 
with energy-efficient infrastructure, buildings , appliances, processes, transport means and 
energy systems. 
 
EN 50   EN ANNEX 1: STATUS OF EEAP  IMPLEMENTATION BY MEASURE (AS OF OCTOBER 2010) 
1. Dynamic energy performance requirements  for products, buildings and services 
Measure  Description of implementation  Status  
1.1 Implementation of the Eco-Design 
Directive (2009/125/EC, ex 
2005/32/EC) Implementation  is ongoing. 
Amendment: 
A recast of the Ecodesign Directive entered into force in November  2009 as Directive 
2009/125/EC (OJ L 285/10, 31.10.2009). This has extended the scope to include all energy-related 
products. The Commission now has a mandate to bring forward, where appropriate, for detailed 
implementing acts on the eco-design of products. Ongoing 
Completed 
1.1.1 Co-ordinate eco-design 
requirements, labelling and 
incentives • Energy Labelling is taken into account as a complementary policy option to minimum 
efficiency requirements when cons idering measures relating to the individual product groups in 
the preparatory work ca rried out under the Eco-design Directive. 
• Synergies have been developed with the US Energy Star Program. 
• There is now greater coherence in laying down eco-design requirements as part of provisions 
for public procurement tendering. Ongoing 
1.1.2 Develop eco-design requirements 
for 14 priority product groups • Ongoing analysis for 25 priority product groups. 
• 8 detailed measures to implement the Direc tives were adopted in 2009 as regards: 
– Simple set-top boxes ((EC) No 107/2009) 
– Non-directional household lamps ((EC) No 244/2009) 
– Fluorescent lamps without integrated ballast, for high intensity discharge lamps and for 
ballasts and luminaires able to operate such lamps ((EC) No 245/2009) 
– Efficiency of external power supplies ((EC) No 278/2009) 
– Electric motors ((EC) No 640/2009) 
– Glandless standalone circulators and glandless circulators integrated in products ((EC) 
No 641/2009) 
– Televisions ((EC) No 642/2009) 
– Household refrigerating appliances ((EC) No 643/2009) Ongoing 
1.2 Develop eco-design requirements 
for additional product groups • Preparatory studies on additional product groups underway, including 
– Fans 
– Dishwashers 
– Washing Machines 
– Electric pumps 
– Water heaters 
– Boilers 
– Personal computers and electronic displays Ongoing 
 
EN 51   EN – Air conditioning and ventilation 
– Commercial refrigerators 
– Laundry dryers 
– Vacuum cleaners 
– Solid fuel combustion 
• Draft measures for these product groups will be submitted to the Regulatory Committee from 
2010 onwards. 
1.3 Support self-commitments to 
deliver energy savings • Work on-going for the adoption of voluntary agreements for 4 product groups: 
– Complex set-top boxes 
– Imaging equipment 
– Machine tools 
– Medical imageing equipment Ongoing 
1.4 Implementation and amendment of 
the Labelling Framework Directive 
(92/75/EC) Implementation is ongoing. 
 
Amendment : 
A recast of the Labelling Direc tive 92/75/EC entered into fo rce June 2010 as Directive 
2010/30/EU (OJ L 153/1,  18.06.2010) The recast includes the extention of  the scope to energy-
related products.  Ongoing 
 
 
Completed 
1.4.1 Propose Commission Directives for 
energy labelling of gas water heaters and electric water heaters  Preparatory work completed. Directives  will be tabled for adoption in 2010. 
 Ongoing  
1.4.2 Prepare additional labelling 
implementing measures and revise 
existing labels, with a view to re-scale them every 5 years with only 
10 – 20 % having A-label status 
and verifying life-cycle costs and 
expected energy savings New labels for boilers, water heaters and televisions are being prepared. 
 Ongoing  
1.4.3 Launch a comprehensive survey on 
the implementation of the Directive The study will be launched in 2010. Ongoing  
1.5 Implementation and amendment of 
the Energy Star Agreement on 
office equipment The implementation is ongoing.  Ongoing 
1.5.1 Conclude a new 5-year Energy Star 
Agreement New Agreement concluded in December 2006. Completed 
1.5.2 Propose amending Regulation (EC) 
No 2422/2001 on a Community 
energy efficiency labelling Regulation (EC) No 106/2008 adopted in January 2008, including compulsory Energy Star 
efficiency levels to be used in public procurement.  
 Completed 
 
EN 52   EN programme for office equipment  
1.5.3 Develop stronger energy efficiency 
criteria for office equipment • Ongoing process with US Environmental Protection Agency.  
• In 2009 revised criteria for imaging equipment, computers and displays were agreed 
(Commission Decisions 2009/347, 489 and 789).  
• In 2010 revised criteria for servers should be agreed. On-going work for four additional 
product groups. Ongoing 
1.6 Implementation and amendment of 
the Energy End-Use Efficiency and 
Energy Services Directive 
(2006/32/EC) Implementation: 
• Reasoned opinions were sent in February 2009 to 20 MS for non-communication of 
transposing measures (17.05.08 was deadline of  transposition by MS). Bilaterals with MS 
being in situation of not fully transposed Directive; By 20.07.2010: 4 open cases on non-communication of full transposition. 
• All MS have submitted their first NEEAPs. Su mmary report on the NEEAPs assessment was 
published in June 2009 (SEC(2009) 889). Template for the 2
nd NEEAP has been prepared. 
• Recommendations on common methods and indicators (draft) to measure and verify energy 
savings have been sent to  relevant Committee (EDMC). 
• A Concerted Action was launched in June 2008 to  assist the MS with the implementation of 
the Directive. 
Amendment: 
A study to investigate the issues at stake has been launched. Final resu lts expected for 2011. Ongoing 
 
 
  
 
  
 
  
Ongoing 
1.6.1 Prepare a Memorandum of 
Understanding (MoU) on energy 
efficiency in co-operation with CEER through ERGEG  MoU on energy efficiency problematic as not all regulatory authorities have competences in end-
use energy efficiency. Measur e has been postponed for the time being. However, regular 
discussions on energy efficiency with CEER/ ERGEG are taking place in various fora (eg. Citizen’s Energy Forum). Not realised  
1.6.2 Assess a Community-wide White 
Certificate Scheme Internal Commission study on Community-wide Certif icate Scheme realised. Results indicate that 
a Community-wide White Certificate Scheme is not recommendable even though national 
schemes for white certificates can be considered  as useful for promoting energy efficiency. Completed 
1.6.3 Improve coherence of national 
public procurement guidelines on 
energy efficiency 
 • 16.07.08: Communication on Green Public Procurement, setting the 50% (political) target for 
GPP (where "green" means compliant with endorsed common core GPP criteria) and 
establishing a process of cooper ation with the Member States to identify environment criteria 
for inclusion in tender documents (as part of the Sustainable Consumption and Production and Sustainable Industrial Policy action plan).  
• The training toolkit which includes a strategic, legal and practical module, the latter with 
examples of GPP criteria for inclusion in tend er documents, has been finalised and can be 
downloaded from http://ec.europa.eu/environment/gpp/training_toolkit_en.htm
. The toolkit 
includes GDP criteria for the following products : construction, food and catering services, 
office IT equipment, gardening products and se rvices, transport, elect ricity, cleaning products 
and services, textiles, furniture and paper. Completed  
 
EN 53   EN • Buying Green! A handbook on environmental public procurement (2004) is a practical 
guideline for public authorities and contracting parties to support the introduction and use of 
GPP. The handbook explains in concrete terms how environmental considerations can be integrated at each stage of pub lic procurement procedures and cl arifies the legal possibilities as 
introduced by public procurement directives. 
• An overview survey was carried out in 2009 and beginning of 2010 to analyse national energy 
efficiency procurement measures in the EU; Results will be shared with the MS in 2010 
• Publication of a Green Paper on the modernisation of EU public procurement policy: Towards 
a more efficient European Procurem ent Market (COM(2011) 15 final). 
1.6.4 Seek agreement on more stringent 
and harmonised criteria for 
voluntary agreements to significantly increase energy 
efficiency • Existing Voluntary Agreement sc hemes has been assessed with  a view to identify their 
strengths and weaknesses. Recommendations for criteria have been developed. 
• Internal overview survey was carried out in 2009 and beginning of 2010; Results have been 
shared with the MS in April 2010. Completed 
1.6.5 Issue a mandate for a European 
norm (EN) for energy audits • CEN/CENELEC Working Group on Energy Auditing was established in 2008 
• CEN mandate for energy audits is under preparation to support the work of CEN/CENELEC Ongoing  
1.6.6 Will consider  and propose as 
appropriate more detailed metering 
and billing requirements • An internal study investigated MS experience with advanced metering and billing. It assessed 
the potential for energy savings ac hieved through these measures.  
• Facilitation of exchanges between MS on that topic is ensured by the ongoing ESD Concerted 
Action. 
• More detailed metering and billing requirements are also covered in the Third internal energy 
market package with Directives 2009/72/EC and 2009/73/EC. Completed 
1.6.7 Consider supporting or establishing 
a centre to iden tify and improve 
emerging and existing technologies • Energy efficiency is addressed by a numbe r of European programmes and initiatives. The 
Energy Theme of the current Research Fram ework Programme (FP7, 2007-2013) focuses on 
increasing the efficiency in ener gy generation for all energy technologies, the efficient energy 
use in the manufacturing industry, poly-g eneration and socio-economic research. 
• The Strategic Energy Technology Plan proposed by the Commission is the technology pillar of 
the EU's energy and climate policy. It is a blueprint for Europe to develop a world-class 
portfolio of affordable, clean , efficient and low emission en ergy technologies through 
coordinated research.  Completed 
1.7 Implementation and amendment of 
the Energy Performance of Buildings Directive (2002/91/EC) 
 Implementation: 
• Infringement cases for non-communication are open for 2 MS. 
• A thorough conformity check is currently being carried out for the transposition of Art. 7, 8 & 
9 for which 23 MS requested an additio nal 3-year period (until 01/2009).  
• The Concerted Action on the EPBD (2005 – 2010) brings together the national implementing 
bodies in a forum for exchange of experience on its effective, practical implementation. The 
outcome of almost 20 Intelligent Energy Europe projects on the topic were fed directly into this Ongoing 
  
 
  
 
 
EN 54   EN forum, whilst the majority of them can claim di rect uptake of their outcome within either 
national and regional legislati on/tools or the proposed recast.  The consolidated, practical 
experiences of the national bodies expressed via the Concerted Action were the basis for the recast proposal. 
Amendment: 
• A recast of the Energy Performan ce of Buildings Directive entered into force in July 2010 as 
Directive 2010/31/EU (OJ L 153/13, 18.06.2010). MS have to transpose it by July 2012.  
 
  
 
Completed 
1.7.1 Propose an expanded role for the 
public sector to demonstrate new 
technologies and methods The exemplary role of the public sector has been strengthened in the recast EPBD. By the end of 
2018 all new buildings built for public authorities shall be nearly zero energy. MS taking into 
account the leadership  role of the public sector shall develop policies and measures to stimulate 
the transformation of buildings that are refurbis hed into nearly zero-energy buildings. Public 
authorities should become early adopters of energy efficiency improvements by having to comply with the requirements of the EPBD earlier than  other sectors. Public authorities are also 
encouraged to implement the reco mmendations included in the en ergy performance certificate as 
soon as feasible.  Completed 
1.7.2 Propose lowering significantly the 
threshold for minimum 
performance requirements for 
major renovations  The threshold was completely abolished in the recas t Directive 2010/31/EU. With this the scope of 
the Directive has been extended to include basically all existing and new buildings. 
 Completed 
1.7.3 Propose minimum performance 
requirements (kWh/m²) for new 
and renovated buildings and some 
components with a target for new buildings to approach the level of 
passive houses from 2015. • Setting EU-level harmonised cost-optimal minimum energy performance requirements for the 
various types of new and renovated buildings has proven to be an unfeasible option because of 
the very different local conditions (e.g. climate, culture, history, taxation, labour costs). This 
issue was solved through the prov isions in the recast that Member States set minimum energy 
performance requirements for buildings with a view to achieving cost-optimal levels. This 
means the energy performance level which leads to the lowest cost during the estimated 
lifecycle. 
• The level of ambition of these nationally set e quipments will be checked using the European 
comparative methodology framework, which shall be defined in detail under a Comitology 
process in 2010-2011. If there are major discrepancies MS would have to justify in writing 
why the gap exists and if the gap cannot be justified then they have to send a plan of how they 
plan to close it.  
• MS have to draw national plans for the increasing the number of nearly zero-energy buildings 
(e.g. close or more ambitious to the passive houses) and include in them intermediate target for 
their share of new build in 2015. The nearly zero energy consumption will be the norm for new 
buildings by the end of 2020 (and end of 2018 for new buildings occupied by public 
authorities). Completed 
1.7.4 Consider proposing binding 
requirements to install passive • These requirements were considered in a more holistic way in the recast EPBD. Firstly, these Completed 
 
EN 55   EN heating and cooling technologies are more explicitly stated as elements in the common general framework for the calculation of 
energy performance of buildings (see Article 3 and Annex 1 of Directive 2010/31/EU). 
Secondly, these elements are commonly pa rt of nearly zero energy buildings. 
1.7.5 Propose measures for Member 
States to provide financing for 
highly cost-effective investments • Financial incentives are addressed in the recast Directive 2010/31/EU. Art. 10 foresees that in 
view of the importance of providing appropriat e financing and other instruments to catalyse the 
energy performance of buildings and the transition to nearly zero-energy buildings, MS shall 
take appropriate steps to consider and report on the most relevant such instruments in the light of national circumstances. 
• As an obligation from the recast EPBD, the Co mmission will prepare a report on financing and 
may consider to make proposals with resp ect to the available Union instruments.  Completed 
1.8 Implementation of the Construction 
Products Directive (89/106/EEC) 
 Implementation is ongoing. 
Amendment : 
• The Commission has adopted on 23/05/2008 a proposal for a Regulation on Construction 
Products, which will replace the existing “Constr uction Product Directiv e” (89/106/EEC). The 
proposal aims at strengthening a “common tec hnical language” for expressing the performance 
of construction products, thus simplifying and clarifying the present situation. A clarification of procedures leading to CE marking is introduced as well, to reduce costs for manufacturers, 
whilst ensuring that the decl aration of performance accompanyi ng the product is accurate and 
reliable. Specific measures are introduced to reduce the burden for manufacturers and 
additional provisions are foreseen for micro-enterprises. 
• The proposal was examined by the EP in a 1st Reading in April 2009 and the Council reached 
a political agreement in late May 2010.After th e official transmission of the Council's Common 
position to the Parliament, the procedure for the 2nd  Reading will start and it is envisaged to be 
completed in January 2011. Ongoing 
 
1.8.1 Introduce energy  efficiency aspects 
in construction product standards 
whenever relevant 
 • The CPD and the current proposal for a Construction Products Regulation do not impose 
minimum energy performance of products but set common requirements for testing and 
certifying the declared performances of the construction products, including those related to 
energy economy and heat retention. 
• Minimum requirements are expected to be developed in the framework of eco-design and 
labelling, or other EU legislative measures.  Completed 
2. Improving energy transformation 
Measure Description of implementation Status 
2.1 Develop minimum efficiency 
requirements for new electricity, heating and cooling capacity lower 
than 20 MW  and consider if 
necessary such requirements for • No direct measure was proposed to set minimum efficiency requirements  for new electricity, 
heating and cooling capacity lower than 20MW. 
• The following measures define best available t echniques with strengthen application in the 
scope of the IPPC recast for plans above 50MW: 
– A reference document on Best Available Techniques regarding Energy Efficiency was Not realised  
 
 
EN 56   EN larger production units adopted in spring 2009 and aims at improving energy efficiency in industrial 
installations, including also smaller production units for electricity, heating and cooling. 
– A similar Reference Document on Best Available Techniques for Large Combustion 
Plants was adopted in July 2006 and includes some useful elements regarding energy 
efficiency both for heating pl ans, power plans and CHP.  
• The IPPC Directive will be revised (merging of IPPC with 6 other Directives related to 
industrial emissions). Political compromise on the proposal was reached in June 2010 and will 
be voted in July at the second reading in the EP. 
• The recast Directive on Industrial Emissions w ill strengthen the role of BAT and BREF in 
setting specific conditions in permits for industrial installations. The Commission original 
proposal covered plants above 20MW. However, in ongoing negotiations under the co-decision procedure the threshold has been raised to plants above 50MW only. 
2.2 Develop with supply industry 
guidelines on good operating 
practices for existing capacity See 2.1. Both reference documents mentioned under 2.1 provide industry with guidelines on good 
operating practices.  Completed 
2.3 Issue a mandate for a European 
Norm for a certification scheme for 
heat and electricity plant engineers Discussions to issue a mandate for a European Norm have taken place. The need for such a 
mandate is still under discussion. 
 Ongoing  
2.4 Agree guidelines in co-operation 
with CEER through ERGEG on good regulatory practices to reduce 
transmission and distribution losses Commission has had discussions with European energy regulators groups (CEER/ERGEG) 
without agreeing on concrete further steps. Not realised 
2.5 Propose a new regulatory 
framework for the promotion of grid access and connection of 
decentralised generation A new regulatory framework for the promotion of  grid access and connection of decentralised 
generation has been adopted with Directive 2009/72/EC (OJ L211 of 14.8.2009) Completed 
2.6 Implementation and amendment of 
the Directive on the Promotion of 
Cogeneration (CHP) (2004/8/EC) Implementation: 
• Reports by MS are currently being assessed (r eports on national poten tials, guarantees of 
origin, administrative barriers and solutions and progress made with the implementation). 
• In 2008, Commission issued a Communication on the progress made with the implementation 
of the CHP Directive. 
Amendment: 
• A new report on the implementation of the Directive including the evaluation of national 
support schemes is scheduled in 2011. Ongoing 
 
 
  
 
Ongoing 
2.6.1 Accelerate harmonisation of the 
calculation methods for high-
efficiency CHP A Commission Decision on detailed guidelines for CHP electricity calculation has been adopted in 
November 2008. Completed  
 
EN 57   EN 2.6.2 Reach agreement on a harmonised 
electronic Guarantee of Origin The initiative for a harmonised CHP Guarantee of Origin will not be launched before the national 
schemes have been evaluated in 2011 and stakeholders have been consulted.  Ongoing  
2.6.3 Propose stricter requirements for 
market regulators to promote CHP  • MS have been asked to include this element in their reports on the analysis of the national 
potential required under Article  6 of the CHP Directive. 
• The evaluation of the reports will be completed in early 2011.  
• The issue has now also been included in the guidelines for reporting by the regulators 
(CEER/ERGEG). Ongoing  
2.6.4 Propose to require Member States 
to identify heat demand suitable for 
CHP  • MS have been asked to identify this aspect in their reports on the national potential required by 
the CHP Directive.  
• The evaluation of the reports will be completed early 2011. Ongoing  
2.6.5 Propose that Member States be 
required to identify in national 
potentials waste heat potential • MS have been asked to include this element in their reports on national potential required 
under Article 6 of CHP Directive.  
• The evaluation of the reports will be completed in 2011. Ongoing  
2.6.6 Propose minimum efficiency 
requirements for district heating 
based on new norm Study to investigate this issue has been launched and final results are expected for mid 2011.  Ongoing 
2.6.7 Seek to adopt a European Norm 
and a minimum efficiency requirement for micro CHP The eco-design implementing measure under preparation on boilers will among other equipments 
cover micro CHP equipment.  Ongoing 
3. Moving on Transport 
Measure Description of implementation Status 
3.1 Measures, including legislation if 
necessary, to meet through a 
comprehensive and consistent approach a 120 g CO
2/km target by 
2012. This target should be met 
based on the achievement of a 140 g CO
2/km target through a 
voluntary agreement by 2008-2009 • Regulation on Emission performance standards for new passenger cars as part of the 
Community's integrated approach to reduce CO2 emissions from light duty vehicles entered 
into force in June 2009 (Regulation (EC) No. 443/2009). New registered vehicles will have to 
reach an EU average specific emissions target of 130g CO2/km by means of improvement in 
vehicle motor technology, starting with 65% in 2012, 75% in 2013, 80 in 2014 and 100% from 
2015 onwards. A further reduction of 10 g CO 2/km will be delivered by other technological 
improvements and by an increased use of sustainable biofuels as part of Community's 
integrated approach. Long-term target of 95g CO2/km is set for the year 2020.  
• The voluntary agreement refe rs to the agreement between the European Automobile 
Manufacturers Association  (ACEA) and the European Commission to limit the amount of CO2 
emitted by new passenger cars sold in Europe. Signed in 1998, the agreement sought to achieve 
an average of 140 g/km of CO2 by 2008 for new passenger vehicles sold by the association's 
cars in Europe. However, the target has not be en achieved as the average for the whole car 
market for 2008 was 153.7 g/km. Therefore a regulation was proposed to replace the voluntary 
agreement. Completed  
3.2 Strengthen efforts to develop • Directive 2009/33/EC entered into force in May 2009 (OJ L120/5, 15.05.2009). MS need to Completed 
 
EN 58   EN markets for cleaner, smarter, more 
energy-efficient an d safer vehicles, 
following a Commission proposal for a Directive on the promotion of 
clean road transport vehicles 
(COM(2005) 634) transpose this Direc tive by 4 December 2010. 
• To facilitate the implementation process, the Commission has launched an internet site on 
clean and energy efficient vehicles displayi ng a legislation guide, a lifetime calculator, 
information on joint procurement and references to Community funded projects in the field. 
• March 2010: Launch in the framework of it Action Plan on Urban Mobility the preparation of 
information and database on clean and energy e fficient road transport vehicles ('Clean Vehicle 
Portal'). 
• By 12/2012, a first assessment report on the implementation of the Directive is expected. 
3.3 Strengthen EU-wide real-time 
traffic and travel information 
(RTTI) systems and traffic 
management (TEN-T) • Commission has supported financially the EasyWa y project in the tran s-European transport 
network programme (TEN-T) for the period 2007-2009 (total budget: 500 M€ with an EC 
contribution: 100 M€). This project, covering more than 20 MS, deals among others with the 
development of targeted Deployment Guide lines to ensure harmonised and accelerated 
deployment of RTTI and traffic management systems on the trans-European Road Network. A 
follow-up proposal (2010-2011) has been submitted under the 2009 MAP Call/ ITS and has 
been evaluated. Negotiations on this follow- up will start as soon evaluations confirmed 
successful conclusion of th e first phase (2007-2009). 
• Commission adopted on 16 Decem ber 2008 the ITS Action plan and a Framework Directive 
proposal for the deployment of ITS across Europe. Several actions of the ITS Action Plan, notably regarding EU-wide RTTI and traffic management, have been launched in 2009, with 
results expected in 2010 and 2011. EP adopted in July 2010 a legislative resolution approving 
EC's position at first reading with a view to the adoption of a directive of the European 
Parliament and of the Council on the framework for the deployment of Intelligent Transport 
Systems in the field of road transport and fo r interfaces with othe r modes of transport. 
Legislative procedure is completed, awaiting publication in Official Journal. Ongoing 
3.4 Encourage financing for market 
introduction of efficient vehicles  • July 2009: Launch of the European Green Car Initiative, which includes a large-scale 
demonstration project on electric vehicles. 
• Call closed on 14.01.2010 
• Project expected to start in  the beginning of 2011.  Ongoing 
3.5 Propose an amended Directive 
(1999/94/EC) relating to the 
availability of consumer information on fuel economy and 
CO2 emissions in respect of the 
marketing of new passenger cars The revision of the measure is planned, the specific timeline for adoption still to be determined. Ongoing  
3.6 Issue a mandate for a recognised 
European Norm and international 
standard to measure tyre rolling • 23.5.08: Commission adopted a proposal on car general safety which includes the mandatory 
fitting of tyre pressure mon itoring systems on new cars, and maximum values for rolling 
resistance of new tyres, to be  implemented as of 2012.  Ongoing 
 
EN 59   EN resistance • See 3.8 for the proposal for labelling for rolling resistance. 
3.7 Work towards mi nimum efficiency 
requirements for mobile air-
conditioning (MAC) systems A draft proposal for a Regulation addressing ener gy efficiency of MACs is currently being 
prepared by Commission services. Ongoing  
3.8 Propose a labelling scheme for 
tyres Regulation (EC) No 1222/2009 adopted November 2009. Completed 
3.9 Facilitate voluntary agreements and 
propose other measures on accurate 
tyre pressure monitoring schemes A regulation on compulsory fitting of tyre pressu re monitoring systems on new vehicles is being 
prepared (see 3.6) Ongoing 
3.10 Consider compulsory fitting of tyre 
pressure monitoring systems on 
new vehicles See 3.6. Ongoing 
3.11 Submit a Green Paper on urban 
transport putting forward joint 
solutions based on concrete 
measures that have been successfully tested, including, if 
appropriate, infra structure use and 
road and congestion charges • 25.09.2007: Adoption of Green Paper "Towards a new culture for urban mobility" putting 
forward a broad set of measures.  
• 30.09.2009: Adoption of the Action Plan on Urban Mobility with 20 actions in six thematic 
areas. Completed  
3.12 Propose legislation to harmonise 
requirements to promote fuel 
efficiency in drivers education 
curricula and support projects  • Pilot project supported by IEE Programme ongoing. 
• Measure planned. The specific timeline for adoption still to be determined. Ongoing  
3.13 Promote energy efficiency in the 
aviation sector through SESAR The Sesar Joint Undertaking was established in spring 2007. Completed 
3.14 Propose legislation to include the 
aviation sector in the EU Emissions 
Trading Scheme • A proposal for a directive was presen ted by the Commission in December 2006. 
• Political agreement was reached on the scheme in July 2008, and entry into force was in 
February 2009. 
• The aviation sector will be included in the European Emission Trading Scheme from 2012. Completed 
3.15 Exploit the potential for optimising 
hull cleaning of ships • Regulation 782/2003 has been modified by comitology in 2007-2008 with a Commission 
Regulation adopted in June 2008. The aim of this EU legislation concerns the protection of the marine environment for the release into the sea of hazardous substances contained in certain 
coating used to maintain the hull of ships. 
• Hull maintenance can amount to a 5% difference in energy requirements. Hull cleaning is only 
a part of the maintenance options. A single action of the EU is overrated. It should be 
integrated in technical and operational measures to optimize ships' energy  efficiency as they 
are developed by the International Maritime Organization. Completed 
 
EN 60   EN 3.16 Realise savings benefits of shore-
side electricity for harboured ships 
by proposing legislation  Ongoing consultation on proposal that would oblige harboured ships to use electricity instead of 
diesel engines, which decreases CO2 emissions. Ongoing 
3.17 Promote short sea shipping and the 
motorways of the sea • Programme COM(2003)155 adopted for the promotion of short sea shipping containing set of 
14 actions to be implemented between 2003 and 2010.  
• Action Plan for the establishment of a Europ ean Maritime transport space without barriers 
adopted in 2009 (COM(2009)10). First measures to be implemented in 2012. Ongoing 
3.18 Implement the legal framework for 
rail transport The legal framework is there and MS have to properly implement to increase interoperability. 
COM monitors the implementation of the legal framework. Completed  
4. Financing energy efficiency, econ omic incentives and energy pricing 
Measure Description of implementation Status 
4.1 Seek to identify and remove legal 
barriers in Member States to use Energy Service Companies 
(ECSOs), and contracting 
instruments for energy efficiency  • Joint Research Center of the Commission is an alysing the development of the ESCOs market 
on a regularly basis and publishing the results of their studies as well as organizing workshops. 
• Around 10 IEE programme projects have aimed at removing the market barriers faced by 
ESCO's in Europe. Completed 
4.2 Develop local revolving funds 
affiliated through close cooperation 
with EBRD, EIB Group and other 
IFIs  • Facilitation of financing of energy efficiency in cooperation with the EIB (including 
JESSICA/JEREMIE initiatives) and EBRD (M oU between the Commission and EBRD in 
respect of reinforcing coopera tion in the energy field).  
• Role of IFIs considered in the operation of  IEE, with a view to 2009 WP onwards. 
• IEE WP2010 foresees support for the creation of revolving funds for energy efficiency. Completed  
4.3 Facilitate the emergence with 
EBRD, EIB Group and other IFIs of public-private partnerships to 
attract funding for debt financing, 
guarantees and venture capital for SMEs, ESCOs and other 
enterprises offering energy services Discussions are ongoing. Ongoing 
4.4 Facilitate leveraging of financing 
for energy efficiency projects, including the multi-family and 
social housing sectors, in the new 
Member States through the Structural and Cohesion funds  • Regulation 397/2009 of the Council and the European Parliament of 6/5/2009 allowed Member 
States to use the European Regional Developm ent Fund (ERDF) for en ergy efficiency and 
renewable energy investments in existing housing, so as to support social cohesion. Up to 4% 
of the total ERDF allocations (approx. €8 billion) could be reallocated, if Member States 
decide to re-programme accordingly. 
• European local energy assistance (ELENA) es tablished by COM and EIB in December 2009 
facilitating the mobilisation of funds for investments in sustainable energy at local level. 
ELENA support covers a share of the cost for tech nical support that is necessary to prepare, 
implement and finance the investment programme, such as feasibility and market studies, Ongoing 
 
EN 61   EN structuring of programmes, business plans, energy audits, preparation for tendering procedures 
- in short, everything necessary to make cities' and regions' sustainable energy projects (energy 
efficiency and RES) ready for EIB funding or other funding from e.g. Structural Funds. 
4.5 Promote networking amongst 
Member States and regions to 
ensure financing of best practices 
in energy efficiency • Out of the 200 projects supported by the Intelligent Energy Europe programme to unlock the 
potential for energy efficiency in  all end-use sectors, more than  20 have specifically aimed at 
networking and exchanging knowledge between countries and regions to ensure financing of 
best practices in energy efficiency. 
• Noteworthy project is the Concerted Action on the Energy End-Use Efficiency and Energy 
Services Directive (2008-2011). This strategic 3-year action involves a ll 27 Member States and 
aims to achieve a certain degree of converge nce across Europe in the implementation of the 
Directive. One of its five core themes is on the use of financial instruments.  Ongoing 
4.6 Promote use of public-private 
energy efficiency funds and finance packages for SMEs and public 
sector for energy audits and 
specific energy efficiency investments identified in energy 
audits with EBRD, EIB Group and 
EU Structural and Cohesion funds. • Energy Efficiency Finance Facility launched by the Commission in 2006. This facility aims to 
support energy efficiency investments in the industry and building sectors in Bulgaria, 
Romania, Croatia and Turkey. The financial support is provided through EBRD, EIB and KfW 
as loans or risk sharing to local financial in stitutions and through Community grant resources 
allocated as investment incentives  and/or consultancy costs.  
• JASPERS is developing several operations combining grants from EU Structural and Cohesion 
funds with loans.  
• EIB is developing other initiatives in this area, e.g. to support the Covenant of Mayors 
initiative.  Ongoing 
4.7 Encourage the use of Community 
financing such as Green Investment Funds, co-financed by CIP, for 
SMEs in view of promoting eco-
innovation solutions  • For the period 2007-2013, €433 mio have been earmarked for Eco-innovation under one of the 
CIP pillars - the Entrepreneurship and Innovation Programme (EIP).  
• Part of this money, more than €200 mio has been allocated to the High Growth and Innovative 
SME Facility (GIF), which supports eco-innovation but also other types of innovation. The 
facility allows the EU budget to participate in venture and risk capital funds set up to provide 
equity to small businesses in th eir early and expansion stages. Wh en the focus of these funds is 
mainly on eco-innovative SMEs, the EU participation, through the European Investment Fund, 
can be higher than normal thresholds  (up to 50% compared to 25%).  Ongoing 
4.8 Consider costs and benefits of tax 
credits as incentives for enterprises 
to produce more and better energy-
efficient appliances and equipment; and for consumers,  to promote the 
purchase of such appliances and 
equipment • The final report on "the costs and benefits associ ated with the use of tax incentives to promote 
the manufacturing of more and better energy-efficient appliances and equipment and the 
consumer purchasing of these products" was published by DG TAXUD in January 2009. 
• The study was meant to inform the policy-makers about the costs and benefits of using direct 
tax incentives to promote the purchases of energy-efficient products. It remains in the 
competence of the Member States  to use such instruments. Completed 
4.9 Prepare a Green Paper on indirect 
taxation (2007) and subsequently • Adoption in March 2007 of a Green Paper on market-based instruments for environment and 
related policy purposes  Ongoing  
 
EN 62   EN review the Energy Tax Directive 
(2008) to incorporate better energy 
efficiency and environmental considerations • Proposal for a review of Energy Taxation Directive under discussion in the Commission. 
4.10 Propose a special tax arrangement 
for commercial diesel, aiming at 
narrowing excessive differences in tax levels between MS in order to 
increase energy efficiency in the 
transport haulage sector by reducing "tank tourism" Proposal submitted in 2007 (discussion in the Council currently adjourned in view of possible 
proposal for comprehensive ETD revision). Completed 
4.11 Call upon the Council to adopt 
Commission proposal (COM2005/261) to relate vehicle 
taxation to CO
2 performance, and 
invites Member States to already introduce these modifications into 
the tax reforms they may be 
considering Proposal tabled in 2005. Still subject to discussion in the Council.  
  
 
  
 
  
 Completed  
5. Changing energy behaviour 
Measure Description of implementation Status 
5.1 Lead by example by EMAS 
certifying all Commission buildings (2007-2009) and propose 
extending to other EU Institutions 
(2010) • 23 Commision buildings are EMAS registered (D ecember 2005). 8 will be registered until the 
end of 2010. EMAS will be gradually extende d to cover all Commission-owned buildings 
during the period 2009 - 2014.  
• The energy efficiency and legal conformity is no w integral part of the procurement procedures 
for new buildings.  
• The European Parliament is EMAS registered for their three sites Brussels, Luxembourg and 
Strasburg 
• The Committee of Regions and the Economic  and Social Committ ee are starting the 
implementation of an Environmental management system in line with EMAS.  
• The Council has not yet started with any kind of registration of its buildings. Ongoing  
5.2 Strengthen energy efficiency 
guidelines by amending the EMAS 
regulation  • The revision of EMAS Regulation is one of m easures under the Action Plan for Sustainable 
Consumption and Production and Sustainable Industrial Policy adopted in July 2008 
• The revised EMAS Regulation was adopted in November 2009 (in force as of 11 January 
2010) Completed  
 
EN 63   EN 5.3 Adopt energy efficiency 
Commission procurement 
guidelines (2008), promote energy management schemes, guidelines 
on how to promote energy-efficient 
products, and training toolkits for industry, SMEs and the public 
sector and present IPPC reference 
document  • Communication on green public procurement has been adopted as part of the Action Plan for 
Sustainable Consumption and Production and Sustainable Industrial Policy (16.07.2008). 
• The Commission has launched a web-based GPP Training Toolkit in 2008. The main aim is to 
make it easy for Member States and procurement practitioners to apply GPP.  
• A reference document on Energy Efficiency (IPPC 2008/1/EC) was adopted in spring 2009 
(see 2.1). Ongoing 
5.4 Propose recommendation to 
Member States for energy security 
and climate change dimension in 
national educational curricula 
(2007); Community programmes 
will provide relevant information material and teaching guidelines • Summer 2006: Launching of raising awareness campaign "You control climate change". It has 
a dedicated section for schools, to enable teacher s to use the provided teaching material in the 
classroom on voluntary basis .  
• IEE Programme has supported about 20 energy education projects which involve over 200 
beneficiaries from 26 MS. Around 5,000 schools across Europe benefit directly from the 
actions with a huge replication potential to many millions of students, teacher and parents. Ongoing 
5.5 Propose a vocational educational 
initiative on energy efficiency Under the IEE a new initiative "BUILD UP Skills : Sustainable Building Workforce" will be 
launched in 2011 Ongoing  
5.6 Create a 'Covenant of Mayors'. • January 2008: Covenant launched during Sustainable Energy Week 2008.  
• The Covenant of Mayors now represents more than 126 million citizens across 41 countries. 
Since its launch in 2008, the initiative has grown to include more than 1800 towns and cities. 
Together these signatories are wo rking towards a cleaner and gree ner future for their citizens. Completed 
5.7 Create and operate new networks in 
Sustainable Energy Europe (SEE) Campaign  • Second phase of the campaign included in the 2008 IEE Work Programme.  
• Programme extended until 2011. Ongoing  
5.8 Organise a competition in each 
Member State with a view to award 
a prize for the most energy-
efficient school • Out of the 20 energy education projects support ed by the IEE programme in the field of 
education, several contain an important competition element. 
• Dec. 2009: start of the preparation of a Eur opean-wide competition to award the most energy 
efficient practices in schools. The first competition will be launched in the school year 
2010/2011 and a second will follow in 2011/2012. The competition aims at awarding (a) the most significant energy efficiency measures in sc hools, and (b) the most advanced practices to 
introduce intelligent energy education in schools. A budget of 1.8 million has been earmarked 
under the IEE programme to cover these activities Ongoing 
5.9 Involve the Executive Agency for 
Competitiveness and Innovation, as 
well as the national, regional and 
local energy agencies in the • Strong involvement of EACI and national, regional and local energy agencies in the Intelligent 
Energy Europe programme which energy efficiency  funding priorities are fully in line with the 
Action Plan.  
• To date, the IEE programme has supported more than 250 projects to unlock the potential for Ongoing 
 
EN 64   EN implementation of the Action Plan end-use energy efficiency in buildings, products, industry, transport, communities, education , 
and services, using a combination of measures, tools, actors and target groups. The national, 
regional and local energy agencies have been very active in IEE and rank among the first 
beneficiaries. 
6. International partnerships 
Measure Description of implementation Status 
6.1 Launch an initiative for an 
International Framework 
Agreement on Energy Efficiency • The international agreement has taken the form of an international partnership: the 
International Partnership for Energy Efficiency Cooperation (IPEEC) has been established 
following a Commission initiative within the G8 framework. The Partnership was launched in 
May 2009. Members include the G8 + Australia, Brazil, China, India,  Mexico, South Africa 
and South Korea. The EU has become a member in January 2010.  
• The IEA will host IPEEC's secretariat. Completed  
6.2 Propose voluntary agreements 
(commitments) with export 
industries on information, minimum efficiency requirements 
and labelling • See point 1.3 Completed 
 
6.3 Strengthen energy efficiency in 
energy and trade treaties, agreements, dialogues and other 
cooperation frameworks  • Focus on energy efficiency in EU bilateral agreements has increased: the issue is 
systematically covered in negotiations on lega l framework agreements with third countries 
(TCA, PCA, enhanced agreements, etc.) as we ll as Action Plans negotiated in the framework 
of the European Neighbourhood Policy.  
• Specific collaboration frameworks on energy effi ciency are being established: e.g. under the 
EU-US Energy Council and with th e Gulf countries. Dialogues with  relevant countries such as 
Brazil, China, India are held on a regular basis.  
• The Action Plan on Sustainable Industrial Policy has a strong focus on international 
cooperation. Several bilateral and multilateral di scussions on sectoral agreements are ongoing. 
First on cement, steel, aluminium and then on pulp and paper and tyres.  
• ACP countries: EU-Africa Energy Partnership wa s launched in December 2007. One of its key 
elements is energy efficiency. This political dialogue is supported by concrete projects 
developed under a Thematic Program. 
• Improvement of energy efficiency measures and energy savings is also covered in several MoU 
on specific energy efficiency issues between the EU and important third countries such as 
China (on buildings).  
• Several projects exist that provide technical assist ance to third countries in  the field of energy 
efficiency in particular in the ENP area. Ongoing 
6.4 Increase international co-operation 
on measurement methods for The International Energy Agency 's 4E (Efficient Electrical En d-use Equipment) Implementing 
Agreement is the platform for this work. Ongoing 
 
EN 65   EN minimum efficiency requirements 
and labelling  
6.5 Create an international network for 
dissemination of information and advice on efficient technologies  G8 + G5 collaboration in the "Heiligendamm Process" focused on energy efficiency; information 
exchange notably on energy efficiency in bu ildings. Will be continued under IPEEC (see 6.1). Completed 
 
Explanations: 
• A measure is labelled as "ongoing" when th e activities to implement the measure have been initiated. Many measures can only be "completed" at 
the end of the EEAP implem entation period, which is 2012. 
• Whenever the measure has been fully implemented it is labelled as "completed". 
• Whenever a measure has no been addressed yet for what ever reason, it is labell ed as "not realised". 
 
Background documents:  
COM (2006) 545 final:  Action Plan for Energy Efficien cy: Realising the Potential.  
SEC (2006)1173: Commission Staff working doc ument accompanying document  COM (2006) 545 final. 
SEC (2006)1174:  Impact assessment accompanying document COM (2006) 545 final.  
SEC (2006)1175: Executive summary of the Impact Assessment accompanying document COM (2006) 545 final