REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Assessment of the progress made by Member States towards the national energy efficiency targets for 2020 and towards the implementation of the Energy Efficiency Directive 2012/27/EU as required by Article 24 (3) of Energy Efficiency Directive 2012/27/EU
Date: 2015-11-18
Institutions: Directorate-General for Energy, European Commission
Subjects: EU programme, energy consumption, energy efficiency, energy saving, energy use, renewable energy

EN 

   EN 

   EUROPEAN COMMISSION  Brussels, 18.11.2015  COM(2015) 574 final   REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Assessment of the progress made by Member States towards the national energy efficiency targets for 2020 and towards the implementation of the Energy Efficiency Directive 2012/27/EU as required by Article 24 (3) of Energy Efficiency Directive 2012/27/EU  {SWD(2015) 245 final}  
 
 
Table of contents 

1. 

Introduction ..................................................................................................................................... 3 

2.  Progress towards the 2020 EU energy efficiency target ................................................................. 3 

3.  National targets ............................................................................................................................... 4 

4. 

Energy consumption trends and assessment of national measures by sector ............................... 5 

4.1. 

Industry .................................................................................................................................... 5 

4.2. 

Residential sector .................................................................................................................... 6 

4.3. 

Services sector ......................................................................................................................... 8 

4.4. 

Public sector ............................................................................................................................ 8 

4.5. 

Transport sector ...................................................................................................................... 9 

4.6.  Generation sector .................................................................................................................. 10 

4.7. 

State of transposition of the EED .......................................................................................... 11 

4.8. 

Financing ............................................................................................................................... 11 

4.9. 

Final energy savings in 2016 required by the Energy Services Directive 2006/32/EC .......... 13 

5.  CONCLUSION ................................................................................................................................. 13 

Annex I ................................................................................................................................................... 16 

Annex II .................................................................................................................................................. 17 

2 

 
 
 
 
 
 
 
 
INTRODUCTION 

1. 
The Energy Union Strategy1 called for a fundamental rethinking of energy efficiency, to treat 
it as an energy source in its own right, representing the value of energy saved. Focusing on 
energy  efficiency  as  a  way  of  moderating  energy  demand  delivers  on  the  objectives  of 
security  of  supply,  competitiveness  and  sustainability,  and  results  in  cost  savings  for 
consumers and industry.  

The  Energy  Union  Strategy  confirmed  the  energy  efficiency  target  of  20 %  by  2020,  which 
means less than 1086 Mtoe of final energy consumption or less than 1483 Mtoe of primary 
energy consumption. This is the basis for moving forward to a reduction of at least 27 % by 
2030 to be reviewed by 2020, having in mind a figure of 30 %. 

In  2014,  the  Commission  concluded  in  its  Energy  Efficiency  Communication  (COM(2014) 
520 final) that the EU would achieve energy savings of around 18-19 % in 2020. Since then 
Member  States  have  made  improved  efforts  to  implement  EU  energy  efficiency  legislation 
and  have  set  more  ambitious  energy  efficiency  targets  (now  adding  up  to  17.6 %  primary 
energy  saving  in  2020,  last  year  the  targets  added  to  only  16.4 %).  On  this  basis  the 
Commission  remains  optimistic  that  the  20 %  target  will  be  achieved  provided  existing  EU 
legislation  is  fully  implemented,  Member  States  increase  their  level  of  ambition  and  the 
investment conditions for energy efficiency continue to improve across Europe. 

This  report  gives  an  assessment  of  progress  made  towards  this  target  as  well  as  the 
includes  some 
implementation  of 
recommendations  for  Member  States2  and  is  based  on  Member  States’  Annual  Reports  and 
the National Energy Efficiency Action Plans. This report is accompanied by a staff working 
document3 which contains a detailed description of the used performance indicators.  

the  Energy  Efficiency  Directive  2012/27/EU.  It 

2. 

PROGRESS TOWARDS THE 2020 EU ENERGY EFFICIENCY TARGET 

There  has  been  significant  progress  in  reducing  energy  consumption  at  EU  level.  Overall, 
final  energy  consumption  decreased  by  7 %  between  2005  and  2013.  Primary  energy 
consumption  decreased  by  8 %  in  the  same  period  and  preliminary  estimates  show  a 
continuation of this declining trend to 1516 Mtoe in 2014.4 
Final energy consumption5 in the EU-28 dropped from 1186 Mtoe in 2005 to 1102 Mtoe in 
2012, but increased to 1105 Mtoe in 2013. The increase in 2013 was mainly due to increases 
in  Belgium,  the  Czech  Republic,  Germany,  Ireland,  France,  Hungary,  the  Netherlands, 
Austria, Slovakia and the United Kingdom.6 

  The  energy  consumption  of  industry  decreased  in  absolute  terms  from  327  Mtoe  in 
2005 to 275 Mtoe in 2012 (16 %). Overall, the economic crisis, restructuring effects of 
the European economies  and energy efficiency measures contributed considerably to 

1 COM(2015) 80 final. 
2 As required by Article 24(3) Energy Efficiency Directive 2012/27/EC. 
3 SWD(2015) 245 final. 
4 See European Environmental Agency (2015): Trends and projections in Europe 2015 
(http://www.eea.europa.eu). 
5  Final  energy  consumption  is  the  energy  supplied  to  industry,  transport,  households,  services  and  agriculture 
excluding deliveries to the energy transformation sector and the energy industries themselves.  
6  Member  States  are  required  by  Annex  XIV  of  the  EED  to  explain  the  reasons  for  an  increase  in  energy 
consumption by sector in their Annual Reports, e.g. economic growth, weather. However, not all Member States 
provided information on this. 

3 

 
 
 
                                                            
this  downward  trend.  Nevertheless,  the  energy  consumption  of  industry  increased  to 
277  Mtoe  in  2013.  This  was  due  to  an  increase  in  several  industrial  subsectors,  the 
highest of which was a 6 % increase in the mining and quarrying sector. 

  In  the  residential  sector,  final  energy  consumption  decreased  by  3 %  in  2013 

compared to the level of 2005. 

  In the services sector, final energy consumption increased by 6% from 2005 to 2013, 
but the added value created in this sector increased by 11 % over the same time which 
resulted in an improved energy intensity. 

  Final  energy  consumption  in  transport  decreased  by  6 %  over  this  period.  In  2013, 
transport accounted for the biggest share of final energy consumption (32 %). It was 
followed  by  the  residential  sector  with  27 %,  industry  with  25 %  and  the  services 
sector with 14%. Other sectors were responsible for the remaining 2 %.  

Primary energy consumption7 in the EU-28 dropped from 1709 Mtoe in 2005 to 1567 Mtoe 
in 2013. Preliminary estimates show that primary energy consumption continues declining in 
2014  to  1516  Mtoe8.  However,  Belgium,  Denmark,  Germany,  Estonia,  France,  Poland, 
Portugal and Slovakia showed an increase in primary energy consumption in 2013 compared 
to 2012. 

  Overall, the decrease in primary energy consumption in the EU-28 from 2005 to 2013 
was primarily due to a drop in final energy consumption and was also influenced by 
the  structural  change  in  the  power  generation  sector  towards  more  renewable 
electricity.  The  energy  consumption  of  the  energy  sector  decreased  by  13 %  and 
distribution losses fell by 8 % in this period. 

  The  heat  produced  by  CHP  plants  in  the  EU-28  decreased  by  9 %  from  46  Mtoe  in 

2005 to 42 Mtoe in 2013.  

NATIONAL TARGETS 

3. 
In  2013,  Member  States  identified  national  indicative  targets  for  energy  efficiency.9  Since 
then, Austria, Bulgaria, Croatia, Cyprus, Greece, Hungary, Italy, Slovakia and Spain have set 
more ambitious targets in their 2014 National Energy Efficiency Action Plans for final energy 
consumption, focusing on a larger decrease of demand in the residential, services, industrial 
and  transport  sectors.  Only  Malta  and  Poland  have  notified  less  ambitious  final  energy 
consumption  targets  to  the  Commission.  The  objective  of  energy  efficiency  is  to  decouple 
energy consumption from economic growth due to efficiency gains. In this context, the level 
of the indicative targets set by Croatia, Cyprus, Finland, Greece, Italy, Portugal and Romania 
are  not  ambitious  enough  as  final  energy  consumption  is  projected  to  be  higher  than  the 
forecast GDP development from 2014 to 2020.10 

As regards primary energy consumption, Cyprus, France, Greece, Hungary, Ireland, Malta, 
Spain and Sweden have set more ambitious indicative targets in their 2014 National Energy 
Efficiency  Action  Plans  compared  to  their  initial  targets.  In  particular  Austria,  Belgium, 
France,  Germany,  Malta,  the  Netherlands,  Sweden  and  the  United  Kingdom  have  set 
themselves  ambitious  targets  in  light  of  the  GDP  growth  expected  in  2014-2020.  Bulgaria, 

7  In  addition  to  final  energy  consumption,  primary  energy  consumption  also  includes  generation  and 
transformation losses, the consumption of the energy transformation sector and network losses. 
8  See  European  Environmental  Agency 
(http://www.eea.europa.eu). 
9 Under Article 3 of the Energy Efficiency Directive 2012/27/EU (EED). 
10 The detailed analysis can be found in SWD(2015) 245 final. 

in  Europe  2015 

and  projections 

(2015):  Trends 

4 

 
 
 
                                                            
Croatia and Slovakia have reduced their level of ambition. For Croatia, Finland, Greece and 
Romania the indicative primary energy consumption targets for 2020 would allow an increase 
of primary energy consumption, at a rate higher than their expected average GDP growth in 
2014-2020.11 

Collectively,  Member  States  have  failed  to  set  national  energy  efficiency  targets  ambitious 
enough  to  add  up  to  the  20%  EU  level  target.  The  sum  of  the  national  indicative  targets 
corresponds to 17.6 % primary energy savings compared to projections for 2020. While this 
represents  a  welcome  improvement  compared  to  the  first  set  of  notified  targets,  it  still  falls 
short  of  the  EU  target  to  save  20 %  of  primary  energy  compared  to  projections  in  2020. 
However, data on recent progress suggest that a more optimistic conclusion can be drawn. 

4. 

ENERGY  CONSUMPTION  TRENDS  AND  ASSESSMENT  OF  NATIONAL  MEASURES  BY 
SECTOR  

To  assess  Member  States’  progress  towards  their  indicative  energy  efficiency  targets,  the 
Commission  analysed  their  National  Energy  Efficiency  Action  Plans  (NEEAPs),  Annual 
Reports and the set of indicators described in more detail in the accompanying staff working 
document12. The analysis shows that  most  Member States  decreased their  primary and final 
energy consumption between 2005 to 2013 at a rate that was higher than the rate of decrease 
which would be needed in the period 2005 to 2020 for them to meet their primary and final 
energy consumption targets by 2020. The exceptions are: Belgium, Estonia, France, Germany, 
the Netherlands, Poland and Sweden (for primary energy consumption) and Austria, Belgium, 
Estonia, France, Germany, Lithuania, Malta and Slovakia (for final energy consumption).13 

Primary energy intensity14 for the whole economy decreased in all Member States on average 
between 2005 and 2013, except in Estonia.  

4.1. 

Industry 

The final energy consumption of industry decreased in absolute terms from 327 Mtoe in 2005 
to  277  Mtoe  in  2013  (-15 %).  The  decrease  between  2008  and  2012  can  be  explained  by  a 
decrease of industrial activity and changes in the structure of the industry. However, energy 
efficiency  improvements  contributed  most  to  this  positive  trend  with  an  almost  three  times 
bigger impact.15  

11 The detailed analysis can be found in SWD(2015) 245 final. 
12 SWD(2015) 245 final. 
13 As only 2013 data are available, this comparison cannot take into account the impact of recently implemented 
energy  efficiency  measures  on  meeting  the  new  obligations  under  the  EED,  nor  the  impact  of  some  of  the 
measures  recently  adopted  under  Ecodesign,  energy  labelling  and  the  Energy  Performance  of  Buildings 
Directive  (2010/31/EU).  In  addition,  this  comparison  does  not  make  it  possible  to  carry  out  a  conclusive 
assessment of whether Member States are on track to meet their indicative 2020 energy efficiency targets. This is 
because  the  future  effects  (positive  or  negative)  of  changes  in  the  economy  (e.g.  an  increase/decrease  of 
economic activity or a shift from energy intensive industries to the service sector), changes in energy prices, fuel 
switching  or  climate  variations  cannot  be  foreseen  until  2020.  See:  European  Environment  Agency  (2014): 
Trends  and  projections  in  Europe  2014  (http://www.eea.europa.eu/publications/trends-and-projections-in-
europe-2014) and Staff Working Document (2015) 245 final. 
14 Energy intensity is defined as primary energy consumption divided by GDP. An analysis of drivers for energy 
intensity improvements can be found in 'Member States' Energy Dependence: An Indicator-Based Assessment', 
ECFIN Occasional Papers 196, June 2014. 
15 PwC/Fraunhofer ISI/TU Wien (2014): Study evaluating the current energy efficiency policy framework in the 
EU and providing orientation on policy options for realising the cost-effective energy efficiency/ saving potential 

5 

 
 
 
                                                            
As  economic  growth  is  expected  in  most  Member  States  in  the  coming  years,  more  efforts 
will  be  needed  to  ensure  the  decoupling  of  energy  consumption  from  economic  growth.  In 
addition, lower oil and gas prices could reduce the incentive for energy efficiency investments 
in this sector as the payback period gets longer. 

There is a significant difference between the energy intensity of industry in different Member 
States, with a sevenfold difference between the most energy-intensive Member State, Bulgaria 
and  the  least  energy-intensive  ones:  Denmark  and  Ireland.  Most  Member  States  decreased 
energy  intensity  in  the  industry  and  construction  sectors  from  2005  to  2013,  with  the 
exceptions being Greece, Hungary, Ireland and Latvia.  

The  European  emission  trading  system  has  been  an  important  driver  of  energy  efficiency 
investments  in  the  energy-intensive  industry  sectors.  Furthermore,  most  Member  States 
support  the  energy  efficiency  of  industry  through  financial  incentives  and  fiscal  measures. 
Voluntary  agreements  are  another  common  policy  instrument  for  the  industry  sector.  Nine 
Member  States  have  set  up  such  agreements  with  industry  actors:  Belgium,  Denmark, 
Finland, Ireland, Luxembourg, the Netherlands, Portugal, Sweden and the United Kingdom. 
Energy  savings  in  the  industry  sector  are  also  achieved  with  the  help  of  market-based 
instruments,  e.g.  in  Italy  through  the  white  certificate  scheme  and  in  Denmark  through  the 
energy saving obligation scheme. 

The implementation of Article 8(4) of the EED, which requires large companies to carry out 
energy  audits  from  2015  onwards,  can  help  the  industrial  sector  to  identify  cost-efficient 
energy efficiency measures. However, around half of the Member States have not yet notified 
the  Commission  of  national  legislation  transposing  this  EED  requirement;  the  Commission 
has therefore started infringement procedures against these countries. 

Member States should also address their policies towards small- and medium-sized companies 
to  remove  market  barriers  and  enable  them  to  exploit  any  remaining  energy  efficiency 
potential. 

4.2. 

Residential sector 

The final energy consumption of the residential sector decreased in absolute terms from 306 
Mtoe in 2005 to 296 Mtoe in 2013 (-3 %), although it slightly increased from 2012 to 2013. 
The overall decrease was mainly due to energy efficiency measures, especially in relation to 
space heating energy consumption.16 

Energy consumption per square metre decreased in all Member States between 2005 and 2013 
except in Italy, where it increased by 10 %, and Estonia, where it was constant.17 The lower 
energy consumption per square metre could be explained by more stringent energy efficiency 
requirements for buildings, appliances and heating technologies, partly due to the progressive 
implementation of the Energy Performance of Buildings Directive. 

until  2020  and  beyond,  Figure  18  (https://ec.europa.eu/energy/sites/ener/files/documents/2014_report_2020-
2030_eu_policy_framework.pdf). 
16 See Odyssee-Mure http://www.odyssee-mure.eu/publications/efficiency-by-sector/household/household-
eu.pdf. 
17  See  Odyssee-Mure  database:  http://www.indicators.odyssee-mure.eu/online-indicators.html.  The  increase  in 
Italy  is  due  to  a  revision  of  the  biomass  consumption  in  recent  years  according  to  the  Odyssee-Mure  (2015): 
Energy Efficiency Trends and Policies in Buildings. 

6 

 
 
 
                                                                                                                                                                                          
Member States recently prepared a first long-term renovation strategy for their entire building 
stock, as required by Article 4 of the EED.18 Although some strategies were missing certain 
information,  for  example  on  non-residential  buildings,  investment  costs  and  sources  of 
funding, the quality of the long-term renovation strategies is expected to improve in the next 
update which is due in 2017. 

To  improve  the  quality  of  renovation,  installers  and  craftsmen  need  to  be  trained  and  their 
skills  in  new  and  more  efficient  technologies  that  could  replace  existing  equipment  and 
processes  in  construction  and  renovation  needs  to  be  increased.  The  implementation  of 
national  qualification  and  training  roadmaps  developed  under  the  EU  'BUILD  UP  Skills' 
project  have  started  in  21  Member  States  in  2013  and  2014  already.19  In  addition,  other 
national  training  measures  have  been  described  in  the  NEEAPs  but  further,  targeted  efforts 
are needed in this area.  

Energy efficiency in the residential sector benefits from a wide range of policy actions, such 
as  regulatory  and  financial/fiscal  measures,  as  well  as  information-  and  awareness-raising 
measures,  voluntary  agreements,  infrastructure  investment  (smart-metre  roll  outs),  market-
based instruments, and others. Regulatory measures mostly relate to the implementation of the 
Energy  Performance  of  Buildings  Directive,  including  minimum  energy  performance 
requirements and certificates for new and existing buildings and inspections of water boilers 
and  air  conditioning  systems,  and  the  Ecodesign  Directive,  including  energy  efficiency 
standards for appliances and equipment. 

Financial and fiscal measures that support energy efficiency improvements include grants and 
subsidies.  A  few  Member  States  (France,  Germany,  Greece,  the  Netherlands  and  Portugal) 
offer  loan  programmes.  Tax  relief  on  energy  efficiency  upgrades  for  households  is reported 
for  Denmark,  Finland,  France,  Germany,  Greece,  Italy,  the  Netherlands  and  Portugal.  Six 
Member States (Austria, Denmark, Estonia, Germany, the Netherlands and Sweden) have put 
in  place  energy  taxes  that  aim  to  change  behavioural  and  investments  in  energy  efficiency. 
Smart  metres  are  being  rolled  out  to  residential  customers  in  Austria,  Cyprus,  Denmark, 
Finland, France, Greece, Ireland, Latvia, Malta and the United Kingdom. 

The energy efficiency obligation schemes focus mostly on the residential sector to achieve the 
1.5 % annual end-use energy savings required by Article 7 of the EED. In total, 16 countries 
have adopted or plan to adopt an energy efficiency obligation scheme. Most Member States 
have chosen to apply the allowed exemptions to achieve the maximum permitted reduction of 
25 %  (except  for  Denmark,  Portugal  and  Sweden).20  This  reduces  the  amount  of  energy 
savings  which  will  be  achieved  by  2020.  The  Commission  also  recognises  a  weak 
implementation of this article in some countries as many Member States rely on old measures, 
the implementation of the notified measures are delayed, expected savings are overestimated 
or overlapping effects of different policies are not taken into account correctly. Therefore, the 
Commission will follow the further implementation of this article closely. 

Member States need to better inform consumers about energy efficiency options and to further 
improve the investment conditions for private consumers to accelerate the currently very low 
renovation  rates  for  the existing  building  stock in  Europe.  Targeted  measures  are  needed  in 

18 The long-term renovation strategies of Member States are published under 
http://ec.europa.eu/energy/en/topics/energy-efficiency-directive/buildings-under-eed. 
19 See www.buildupskills.eu. 
20  The  EED  allows  for  certain  exemptions  to  lower  the  required  amount  of  1.5 %  of  annual  end-use  energy 
savings, to exclude the energy used in industrial activities listed in Annex I to Directive 2003/87/EC from the 
calculation  of  the  baseline,  to  count  savings  from  early  actions  or  savings  in  the  energy  transformation, 
distribution and transmission sector under Article 7(2) EED. 

7 

 
 
 
                                                            
this  sector  as  households  have  a  lower  responsiveness  to  increasing  energy  prices  than  e.g. 
energy-intensive  industry.  In  addition,  more  focused  measures  are  needed  for  vulnerable 
consumers to address fuel poverty effectively and to improve living standards, for example, 
measures  such  as  interest-free  loans  and  addressing  the  tenant-landlord  dilemma  would  be 
beneficial. 

4.3. 

Services sector 

The final energy consumption of the service sector increased in absolute terms from 144 Mtoe 
in 2005 to 153 Mtoe in 2013 (6 %), However, energy consumption grew more slowly than the 
added  value  over  the  same  period  (11 %).  Overall,  the  energy  intensity  of  the  EU  services 
sector  (normalised  with  heating  degree  days)  decreased  by  4 %  between  2005  and  2013, 
mainly  in  Austria  (20 %),  Hungary  (26 %),  Ireland  (37 %)  and  Portugal  (21 %)  which  is  a 
very  positive  trend.  However,  Bulgaria,  Croatia,  Finland,  Greece,  Italy,  Luxembourg  and 
Spain increased their energy intensity in 2013 compared to 2005 levels.  

Most  of  the  regulatory  measures  applied  in  the  residential  sector  also  apply  in  the  services 
sector. 

As the services sector is expected to grow, Member States will need to tackle its challenges 
further  with  appropriate  measures  to  continue  the  positive  trend  of  its  decreasing  energy 
intensity across the EU. 

4.4. 

Public sector  

Article  5(1)  of  the  EED  requires  Member  States  to  renovate  3 %  of  the  total  floor  area  of 
heated  and  cooled  buildings  owned  and  occupied  by  central  government,  or  to  achieve 
equivalent savings per year. 18 Member States will implement the requirements of Article 5 
through alternative measures (such as measures that create incentives for occupants to change 
their behaviour); the others have opted for the default approach of renovating 3 % of the total 
floor area. Member States are obliged to report in their Annual Reports the total building floor 
area  of  buildings  which  did  not  meet  the  requirements  of  Article  5(1)  of  the  EED  and  the 
renovated floor area or the amount of energy savings achieved under Article 5(1) and 5(6) of 
the EED in the previous year. Most Member States provided some information on this in their 
2015 Annual Reports; Greece, France, Hungary, the Netherlands and Slovenia did not provide 
any information on this.21 Data on the total building floor area of the buildings which did not 
meet the energy performance requirements under Article 5 were provided in most of the times 
but data on the savings through the renovations (or alternative measures) of buildings owned 
by  the  central  government  which  are  obligatory  from  1  January  2014  on  were  missing  or 
unclear  in  most  of  the  Annual  Reports.  Therefore,  is  not  possible  yet  to  assess  if  Member 
States fulfilled their obligations in 2014 in line with Article 5 EED but the Commission will 
follow the proper implementation closely. 

Under  Article  6  EED,  Member  States  must  ensure  that  central  governments  purchase  only 
products, services and buildings that have a high energy-efficiency. All Member States have 
presented the measures needed to ensure that this happens, but measures to encourage other 
public bodies to do likewise were missing in the NEEAPs for Belgium, Italy and Spain. The 
Commission has launched a study to assess the effectiveness of this provision. Interim results 
show that energy efficiency requirements in public procurement are not fully understood by 
all procurement agents and that the transposition of the requirements of Article 6 EED is not 
yet  finalised  in  some  countries.  According  to  Member  States,  other  barriers  include: 

21 See http://ec.europa.eu/energy/en/topics/energy-efficiency/energy-efficiency-directive/national-energy-
efficiency-action-plans. 

8 

 
 
 
                                                            
authorities’  lack  of  skills  and  practical  know-how  on  energy  efficient  public  procurement; 
lack  of  clear  guidance  and  a  shortage  of  practical  toolkits;  and  unclear  criteria  for  public 
procurement  assessments.  The  Commission  will  therefore  look  into  ways  to  better  assist 
Member States in implementing this provision. 

Transport sector 

4.5. 
The final energy consumption in transport22 of the EU-28 decreased from 370 Mtoe in 2005 to 
349  Mtoe  in  2013  (-6 %).  This  reflects  an  increase  of  4 %  during  2005-2007  but  a  rapid 
decrease since then (-9 % for 2007-2013).  

About  40 %  of  the  2007-2013  reduction  is  estimated  to  be  due  to  the  economic  crisis,  with 
stabilisation  of  passenger  traffic  and  a  fall  in  freight  traffic.  The  remaining  60 %  mostly 
originates  from  improvements  in  the  energy  efficiency  of  passenger  cars,  driven  by  stricter 
CO2 standards and targeted transport policies in Member States (which were also notified in 
some cases as transport measures under Article 7 EED to reduce final energy consumption).23  

The highest reductions in final energy consumption in the transport sector were registered in 
Greece,  Ireland  and  Spain  in  the  period  2005-2013.  Consumption  increased  slightly  in 
Croatia, Finland and Germany and a considerable increase was recorded in Lithuania, Malta, 
Poland, Romania, Slovakia and Slovenia.24  

In  2013,  the  share  of  collective  passenger  transportation  increased  in  half  of  the  Member 
States: Austria,  Belgium, Croatia, Czech Republic, Finland, Greece, Hungary, Luxembourg, 
the  Netherlands,  the  United  Kingdom,  Portugal,  Slovenia,  Spain  and  Sweden.  In  the  rest  of 
the  Member  States  the  share  of  passenger  cars  increased.25  Regarding  freight  transport, 
Austria,  Belgium,  Denmark,  Finland,  Germany,  Italy,  the  Netherlands,  Portugal,  Romania, 
Sweden and the United Kingdom increased the share of railway and inland waterways freight 
transport in 2013 compared to 2005 levels. 

Member States support efficiency in both private and public transport through improvement 
of  vehicle  efficiency  and  reduced  CO2  emissions  compliant  to  the  EU  CO2-standards,  shift 
towards more environmentally friendly means of transport (e.g. rail or other means of public 
transport), consumer information and behaviour.  

For  public  transport,  Bulgaria,  Czech  Republic,  Denmark,  France,  Italy,  Latvia,  Portugal, 
Sweden and the United Kingdom reported measures targeting rail transport in their NEEAPs. 
Energy efficiency requirements for taxis have been established in Denmark. The extension of 
metro transport has been reported by Bulgaria, Czech Republic, Denmark, Greece and Italy. 
The  promotion  of  modal  shift  and  encouragement  to  use  public  transport  or  cycling  and 
walking  has  been  mentioned  by  Belgium,  Ireland  and  Portugal.  Private  transport  measures 
include  improvements  in  car  fleet  efficiency,  measures  supporting  the  use  of  electric, 
hydrogen or more fuel-efficient cars, developing bicycle lanes etc. Financial incentives to buy 

22 Excluding pipeline transport. 
23 Odyssee-Mure (2015): Trends and policies for energy savings and emissions in transport (available at: 
http://www.odyssee-mure.eu/publications/br/energy-efficiency-in-transport.html). 
24  Most  of  the  increase  originated  from  the  road  transport.  Comparison  between  Member  States  have  to  be 
undertaken with caution because final energy consumption is based on the fuels sold rather than on the fuel used 
on  the  territory of  a  country.  Therefore, factors other  than energy efficiency  come  into  play  e.g.  the degree  to 
which a given Member State is a ‘transit country’ for road transport or a hub for aviation. Official statistics (e.g. 
on  the  split  of  final  energy  by  passenger  and  freight  transport)  are  not  available  at  this  stage  for  providing 
meaningful energy intensity indicators but data availability will be further explored in the future. 
25 No data was available for Cyprus and Malta. 

9 

 
 
 
                                                            
energy efficient vehicles are provided by Croatia, Luxemburg and Spain (for electric cars) and 
the  Netherlands,  while  Denmark  offers  tax  incentives  for  electric  and  hydrogen  car  owners 
and  owners  who  change  to  lower  fuel  consumption  vehicles.  Behaviour  measures  are  also 
mentioned for Finland, the Netherlands (driver training) and the United Kingdom. The shift of 
freight  transport  towards  more  environmentally  friendly  modes  such  as  rail,  maritime 
transport and inland waterways is also planned in France. 

4.6. 

Generation sector  

The decrease of primary energy consumption during the past years was due to a decrease in 
final energy consumption, the implementation of the European emission trading system and a 
structural  change  in  the  power  generation  sector.  In  particular,  structural  changes  from 
thermal power generation towards more renewable energy sources took place in the last years. 

Efficiency  in  the  generation  sector  is  key  to  achieving  the  2020  energy  efficiency  targets. 
Energy  efficiency  in  the  generation  sector  contributes  strongly  to  security  of  supply  and 
decarbonisation.  Besides  the  European  emission  trading  system  targeted  energy  efficiency 
policies can increase energy efficiency in this sector e.g. through the increase of the share of 
heat  and  electricity  produced  with  high-efficiency  combined  heat  and  power  plants  (CHP), 
district heating and cooling, as well as renewable energies. 

Member States have increased their efforts with regard to renewable energy in recent years. In 
2013, the combined EU share of renewable energy reached 15 %  and the  estimate for 2014 
indicates a 15.3 % share which contributed to a reduction in primary energy consumption as 
most sources of renewable energy have 100 % transformation efficiency.26 

Article  24(6)  of  the  EED  requires  Member  States  to  provide  information  on  heat  and 
electricity produced from thermal power plants and, in particular, from CHP. For EU-28, the 
heat produced from CHP plants decreased from 46 Mtoe in 2005 by 9 % to 42 Mtoe in 2013. 
Given  the  efficiency  gains  and  contribution  to  industrial  productivity,  additional  effort  is 
needed  from  Member  States  to  increase  the  share,  in  particular,  of  high-efficiency  CHP 
plants. 

Article 14 of the EED sets a framework to trigger investment in efficient district heating and 
cooling.  A positive trend  can  be  observed  in  nine  Member States,  where  the  transformation 
output  from  district  heating  plants  increased  on  average  between  2005  and  2013. 
Nevertheless, in the remaining 12 Member States with district heating, a decreasing trend can 
be  observed.27  Therefore,  to  fully  exploit  the  energy-efficiency  potential  in  the  generation 
sector,  the  full  implementation  of  Article  14  and  the  comprehensive  assessments  Member 
States  are  required  to  undertake  by  end  2015  (analysing  their  potential  for  applying  high-
efficiency cogeneration and efficient district heating and cooling) are of major importance. 

26 See Renewable energy progress report COM(2015) 293 final. 
27 No data is available for Cyprus, Greece, Ireland, Italy, Malta, Portugal and Spain. 

10 

 
 
 
 
 
                                                            
Box 1: Good examples in Member States  







their  ambitious  national  energy  efficiency 

Some  Member  States  have  embedded 
in 
comprehensive long-term strategies like the German National Action Plan on Energy Efficiency (NAPE) 
or the recently adopted bill on the transition énergétique in France. 
The National Fund for Environmental Protection created in Poland successfully supports many energy 
efficiency  projects  in  various  sectors  and  includes  training  aspects  and  the  involvement  of  local  and 
regional authorities which helps create broad support for energy efficiency at all levels. 
Romania  has  implemented  an  ‘Improving  Energy  Efficiency  in  Low-Income  Households  and 
Communities  programme’  in  recent  years  to  address  fuel  poverty  effectively.  This  has  helped  some 
160 000 people in Romania to live in more energy efficient apartment blocks, with lower heating bills. A 
similar programme 'Better Energy Warmer Homes' has been established in Ireland.  

targets 



 Many Member States have established successful strategies to reduce in particular their primary energy 
consumption: Malta is improving its generation sites and invests in new efficient generation capacities; 
the  British  government  supports through  its  heating  strategy the  deployment  of  new  district heating in 
cities that currently lack it; and Italy, Belgium and Germany have developed broad support-schemes for 
highly-efficient CHP. 
Belgium,  Denmark,  Finland,  Ireland,  Luxembourg,  the  Netherlands,  Portugal,  Sweden  and  the  United 
Kingdom  have  already  established  voluntary  energy  efficiency  agreements  to  reduce  energy 
consumption  and  increase  the  competitiveness  in  the  industry  sector.  Austria  has  created  a  successful 
'Green  Building  Cluster'  to  increase  productivity,  competitiveness  and  innovation  of  companies  in  the 
buildings  sector  in  Lower  Austria.  In  Sweden,  for  example,  companies  can  receive  a  five  year  tax 
exemption on electricity, if they participate in the voluntary scheme, which requires them to carry out an 
energy audit, to implement an energy management system and to implement the measures identified in 
the audit with a repayment period less than three years. 
Bulgaria,  Czech  Republic,  Denmark,  France,  Italy,  Latvia,  Portugal,  Sweden  and  the  United  Kingdom 
have  already  reported  measures,  for  example,  which  target  rail  transport  through  improvements  in  the 
rail infrastructure, electrification of railways and increasing the use of passenger railway systems. 



4.7. 

State of transposition of the EED  

Legal transposition of the EED is still not completed in many Member States, which prevents 
some  from  reaching  their  indicative  national  2020  targets,  stops  energy  efficiency  markets 
from developing properly and prevents consumers and market actors from exploiting the full 
benefits  of  energy  efficiency.  The  full  and  proper  implementation  of  the  existing  energy 
efficiency legislative framework is key for achieving the EU-28's energy and climate targets 
for  2020.  To  this  end,  the  Commission  has  launched  infringement  procedures to  ensure  full 
and correct transposition. Stronger efforts are required in this respect. 

The  Commission  has  so  far  sent  27  letters  of  formal  notice  and  20  reasoned  opinions  to 
Member  States  for  not  notifying to  the  Commission  all  the  national legislation  necessary to 
transpose  each  of  the  EED  requirements.  In  addition,  the  Commission  initiated  bilateral 
contacts  with  all  28  Member  States  requesting  a  substantial  level  of  information  on  the 
implementation of Article 7 of the EED. 

4.8. 

Financing  

The energy efficiency market has strong investment potential, but is still small, fragmented, 
(deemed)  risky,  and  (in  particular  as  regards  deep  building  renovations  or  efficiency 
investments  going  beyond  3  years  payback)  relies  predominantly  on  direct  or  indirect 
subsidies. 

11 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The European Structural and Investment Funds (ESIF) are the largest EU financing source in 
this area. In the last multi-annual financial framework (2007-2013), the EU allocated around 
EUR  6.1  billion  (2 %  of  the  total  European  Regional  Development  Fund  (ERDF)/Cohesion 
Fund)  to  the  ‘Energy  efficiency,  co-generation,  energy  management’  priority  theme.  More 
than half of this EU funding (EUR 3.4 billion) was earmarked for energy efficiency in public 
and  residential  buildings.  In  2007-2013,  90 %  of  ESIF  support  for  energy  efficiency  was 
provided through grants, with loans representing only 8 % of EU support. 

Energy efficiency also represents a high share of the available funding for the financial period 
2014-2020.  Out  of  EUR  45  billion,  it  is  estimated  that  EUR  13.3  billion  will  be  used  to 
support  energy  efficiency  in  public  and  residential  buildings,  helping  almost  1  million 
households.  In  addition,  EUR  3.4  billion  will  be  allocated  to  support  energy  efficiency  in 
businesses, with a focus on small and medium firms, leading to over 50 000 companies with 
improved energy performance. However, implementing these funds will require high quality 
projects  and  the  mobilisation  of  private  finance  to  address  the  investment  needs  for  energy 
efficiency (over EUR 100 billion a year28). Therefore, the ESIF comes with a new narrative: 
Grants  should  be  used  only  to  finance  the  funding  gap,  i.e.  project  investment  costs  that 
cannot  be  covered  by  the  expected  energy  savings  within  a  reasonable  timeframe,  or  to 
address social issues, e.g. energy poverty. Rather than grants, financial instruments should be 
used to reduce financing costs for projects that are close to being bankable. Public and private 
funds  must  work  together  –  to  attract  private  capital  and  deliver  more  and  larger  energy 
efficiency  investments.29  In  2014-2020,  the  EU  is  aiming  to  double  the  use  of  financial 
instruments in the form of loans, guarantees or equity. This change is expected to encourage 
private  financing  and  to  help  small-scale  projects  that  predominate  in  the  area  of  energy 
efficiency. 

Moreover,  the  creation  of  the  European  Fund  for  Strategic  Investments  (EFSI)  in  2015 
provides additional funding for Member States and project promoters to upscale and tune up 
energy  efficiency  schemes  (including  those  co-financed  by  the  ESIF)  –  in  particular  by 
pooling projects under larger investment operations. 

The  overall  market  framework  has  improved  for  consumer  loans  and  mortgages,  but  key 
issues related to energy efficiency financing still persist. In the EU, investment is influenced 
by macro-economic conditions and the low-interest rate policy of the European Central Bank 
(ECB).  Since  most  European  banks  do  not  offer  specific  products  for  energy  efficiency 
investments, it can be assumed that the interest rates applied for loans that also finance energy 
efficiency measures  are  following  the  downward  trend  of bank  interest  rates,  as  pursued  by 
the  ECB.  For  instance,  the  latest  ECB  statistics  shows  that  loans  to  households  for 
consumption  (with  collateral  and/or  guarantees)  in  August  2015  are  rated  in  the  range 
3,30 % – 4,53 % (depending whether it is a floating or fixed rate). These rates have decreased 
by around 22 % over the last year. There is a lack of market confidence in up-scaled energy 
efficiency investment, as a specific ‘asset class‘. Such investment and its financing needs to 
be  based  on  wider  fundamentals,  including  the ‘freed‘  cash  flow  of  operators (due  to  lower 
energy  costs)  and  increased  asset  value  (due  to  its  higher  energy  performance),  and 
underpinned by a predictable long-term investment framework.  

28 See www.eefig.eu.  
29 Grants should be only used where commercial financing would not work (low income groups, social housing, 
energy poor). Grants should be combined with commercial finance so that final financing products are attractive 
for the market. 

12 

 
 
 
                                                            
4.9. 

Final  energy  savings  in  2016  required  by  the  Energy  Services  Directive 
2006/32/EC 

Directive  2006/32/EC  required  Member  States  to  set  –  and  aim  to  achieve  –  a  national 
indicative energy savings target of at least 9 % of final energy savings in 2016. Most of the 
provisions  in  this  Directive  have  been  replaced  by  more  precise  provisions  in  the  EED. 
However,  the  requirements  related  to  the  9 %  target  will  not  be  repealed  until  2017.  So 
Member States were required to provide information on their 2016 saving target in their 2014 
NEEAPs:  19 Member  States  state that the required  savings will be  achieved  by 2016;  for 7 
Member States it is not clear from the NEEAPs if the saving target will be achieved.30  

5. 

CONCLUSION 

The  report  demonstrates  that  Member  States,  in  addition  to  a  range  of  EU  policy  measures 
(e.g.  eco-design,  labelling,  EU  ETS,  car  standards),  have  introduced  energy  efficiency 
measures in the industry, residential, service, transport and generation sectors. The NEEAPs 
show  that  most  Member  States  have  increased  their  effort  and  either  strengthened  existing 
energy efficiency measures or introduced new ones.  

Having  in  mind  that  the  EU-28  needs  to  reduce  primary  energy  consumption  annually  on 
average by 11.9 Mtoe (2.7 Mtoe expressed in final energy consumption) from the 2013 level 
to  achieve  its  2020  targets,  it  can  be  concluded  that  –  despite  the  achievements  of  previous 
years  –  additional  efforts  are  needed  in  particular  in  the  buildings,  transport  and  generation 
sectors.  The  performance  indicators  2005-2013  used  in  this  report  to  analyse  progress  on 
energy  efficiency  show  big  variations  between  Member  States  –  nevertheless,  most  have 
improved at European level. The main exceptions are an increase in final energy consumption 
from 2012 to 2013 and a decrease in heat generated by CHP plants between 2005 and 2013.  

Even  though  some  Member  States  increased  their  indicative  energy  efficiency  targets 
expressed in primary energy consumption recently (to a combined total of 17.6 %), the EU-
28 as a whole falls short of the required 20 % level. To close the remaining gap towards the 
2020 target expressed in primary energy consumption, Member States should accelerate their 
efforts  in  order  to  achieve  their  national  energy  efficiency  targets  for  2020  or  to  go  beyond 
them.  It  is  worth  noting  that  some  Member  States  –  Austria,  Belgium,  France,  Germany, 
Malta,  the  Netherlands,  Sweden  and  the  United  Kingdom  –  have  already  set  themselves 
particularly  ambitious  targets.  Croatia,  Finland,  Greece  and  Romania,  which  have  set  less 
ambitious targets for 2020 in light of expected GDP growth in 2014-2020, could benefit from 
assessing  again  how  an  increased  level  of  energy  efficiency  could  increase  their  security  of 
supply, competitiveness and sustainability.  

Many  Member  States  have  established  successful  strategies  to  reduce  their  primary  energy 
consumption.  However,  Belgium,  Estonia,  France,  Germany,  the  Netherlands,  Poland  and 
Sweden  will  all  need  to  reduce  their  primary  energy  consumption  at  a  higher  rate  in  2014-
2020  than  in  the  period  2005-2013  to  meet  their  indicative  primary  energy  consumption 
targets by 2020.  

For final energy consumption, the analysis in this report shows a decreasing trend in most 
Member  States  from  2005  onwards.  Besides  energy  efficiency  policies  the  economic  crisis 
has  of  course  contributed  to  this  trend.  Austria,  Belgium,  Estonia,  France,  Germany, 
Lithuania, Malta and Slovakia have set themselves final energy consumption targets in 2020 
that require rates of final energy consumption reduction in 2014-2020 which are higher than 

30 The final NEEAPs of Hungary and Romania were notified in 2015 only. Therefore, a detailed analysis has not 
yet taken place. 

13 

 
 
 
                                                            
the  reduction  rate  achieved  in  2005-2013.  These  countries  will  depend  on  a  strong 
implementation of their Article 7 EED obligation schemes or alternative measures that enable 
consumers to save final energy and money in the short and long term. 

Looking  at  the  sectors  on  Member  State  level,  the  overall  positive  trend  in  final  energy 
intensity in industry in most Member States is encouraging. However, with regard to energy 
intensity,  there  is  a  seven-fold  difference  between  the  Member  State  with  the  highest  and 
lowest  energy  intensity  in  industry.  There  could  be  scope  for  Cyprus,  Ireland,  Greece, 
Hungary and Latvia to draw on positive examples in other Member States to reverse their own 
increasing trend in final energy intensity in industry.  

In  the  residential  sector,  most  Member  States  reduced  energy  demand  in  recent  years  by 
implementing  energy  efficiency  measures  targeting  this  sector.  This  helps  households  to 
achieve  the  same  comfort  level  for  less  money.  Consumers  could  benefit  from  a  stronger 
focus  on  policies  to  reduce  the  energy  consumption  in  the  residential  sector  in  Belgium, 
Estonia,  Italy,  Latvia,  Malta,  Poland,  Romania  and  Slovenia  where  the  energy  consumption 
per  capita  increased  on  average  over  the  past  years.  In  general,  to  empower  consumers  to 
reduce their energy consumption, all Member States need to better inform them about energy 
efficiency  options  and  further  improve  investment  conditions  for  them  to  accelerate  the 
currently  very  low  renovation  rates  for  the  existing  building  stock  in  Europe.  In  addition, 
more focused measures are needed for consumers to address fuel poverty effectively. 

As  the  services  sector  is  expected  to  grow,  targeted  energy  efficiency  measures  could  help 
counterbalance  the  increase  of  final  energy  consumption  in  this  sector  and  continue  the 
sector's  positive  trend  of  decreasing  energy  intensity  at  EU  level.  In  particular,  Cyprus, 
Belgium, Finland France, Greece, Italy, Luxembourg and Spain could try to set up or increase 
the intensity of appropriate measures to counterbalance the recent increase in energy intensity 
in their services sector.  

The shift towards a higher use of collective transportation for passengers and share of railway 
and inland waterways for freight transport needs to be encouraged through further efforts in 
the  transport  sector.  Despite  recent  progress  on  energy  efficiency  and  the  reduction  in 
transport energy demand, transport's overall high share in final energy consumption at EU-28 
level makes further energy efficiency action needed to meet the 2020 objectives. Therefore, 
the  Commission  recommends  that  Member  States  implement  forcefully  the  transport 
measures described in their NEEAPs and take further action to decrease energy consumption 
in the transport sector. Member State action for promoting alternative fuels, vehicles/vessels 
and  deploying  the  related  infrastructure  (following  the  requirements  of  the  Directive 
2014/14/EU)  should  further  support  energy  efficiency  improvements  in  transport.  A 
Communication on actions needed to decarbonise the transport sector has been announced by 
the Commission in the Energy Union Roadmap and will further complement Member States 
efforts.  

In general, Member States need to increase their energy efficiency efforts to ensure that they 
achieve their indicative targets by 2020 or go even beyond them to ensure that the European 
Union meets its 20 % reduction target by 2020. This underlines the need to fully implement 
the  European  legislative  framework  for  energy  efficiency.  This  enables  energy  efficiency 
service markets to develop and the removal of existing market barriers for energy efficiency 
investments. But also the implementation of the legislative framework related to greenhouse 
gas reductions e.g. in the non-ETS sector or the recently adopted Market Stability Reserve for 
the ETS sector are key as the two policy areas are interlinked and are reinforcing each other.  

With  a  view  to  the  2030  targets,  the  Commission  will  assess  in  2016  how  the  energy 
efficiency  framework  can  be  further  improved,  building  on  the  already-reviewed  product 

14 

 
 
 
efficiency  framework  and  with  a  view  to  the  significant  contribution  of  (i)  the  Energy 
Performance  of  Buildings  Directive  and  (ii)  the  Energy  Efficiency  Directive  (especially  its 
Article  7).  This  review  should  help  all  stakeholders  (national  governments,  regions,  local 
authorities, energy efficiency companies, financial institutions, consumers, etc.) exploit cost-
efficient  energy  saving  potentials  in  the  long-term  with  regard  to  the  2030  and  2050  EU 
climate and energy targets and objectives.  

The  Commission  will  continue  to  closely  follow  Member  States'  progress  towards  their 
indicative national energy efficiency targets for 2020 and the implementation of the EED and 
update its assessment annually as part of the State of the Energy Union. 

The Commission invites the European Parliament and Council to express their views on this 
assessment.  

15 

 
 
 
 
ANNEX I 

Table 1: Indicative national energy efficiency target for 2020  

Absolute level of energy consumption in 2020 [Mtoe] as notified by Member States 
in 2013, in the NEEAP 2014 or in a separate notification to the European 
Commission in 2015 

Member State  

PRIMARY energy consumption  

FINAL energy consumption  

Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus  
Czech Republic 
Denmark 
Estonia 
Finland  
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 
United Kingdom 

Sum of indicative targets 
EU-28 

EU-28 target 2020 

Status: 07/10/2015 

31.5 
43.7 
16.9 
11.5 
2.2 
39.6 
17.8 
6.5 
35.9 
219.9 
276.6 
24.7 
24.1 
13.9 
158.0 
5.4 
6.5 
4.5 
0.7 
60.7 
96.4 
22.5 
43.0 
16.4 
7.3 
119.8 
43.4 
177.6 

1526.9 

1483 

16 

25.1 
32.5 
8.6 
7.0 
1.8 
25.3 
14.8 
2.8 
26.7 
131.4 
194.3 
18.4 
14.4 
11.7 
124.0 
4.5 
4.3 
4.2 
0.5 
52.2 
71.6 
17.4 
30.3 
9.0 
5.1 
80.1 
30.3 
129.2 

1077.5 

1086 

 
 
 
 
 
Table 2: Overview indicators  

ANNEX II 

Source: Eurostat, DG ECFIN, Odyssee -Mure 

17 

Intensity whole econoomyIndustryService SectorMember State Ambition level of 2020 PEC target compared to GDP estimations for 2014-2020Ambition level of 2020 FEC target compared to GDP estimations for 2014-2020PEC 2005-2013 trend compared to PEC 2005-2020 trend to reach the 2020 targetFEC 2005-2013 trend compared to FEC 2005-2020 trend to reach the 2020 targetChange of PEC 2013 compared to PEC 2012 in %Change of FEC 2013 compared to FEC 2012 in %2005-2013 average annual change of PEC energy intensity in %2005-2013 average change of energy intensity in industry in %2005-2013 average annual change of final energy consumption residential per capita in % 2005-2013 average annual change of  energy consumption per m2 with climatic corrections in koe/m2 in % (Source: Odyssee)2005-2013 average annual change of energy intensity in the service sector in % 2005-2013 average annual change of total FEC in the transport sector in %Change of share of trains, motor coaches, buses and trolley buses for passenger transport  in 2005 vs. 2013 in percentage points Change of share of railway and inland waterways for freight transport in 2005 vs. 2013 in percentage points 2005-2013 average annual change of heat generation from CHP Ratio transformation output thPG/Fuel input for thPG 2005 vs. 2013 change in percentage points2005-2013 average annual change of transformation output of district heating plants  in % EU28++++-1.1%0.1%-1.7%-1.9%-0.8%-1.4%-0.4%-0.7%0.01-1.0%0.100.7%BE++--2.6%2.9%-1.9%-1.7%-3.5%-3.2%1.2%-0.2%2.487.8%2.7438.3%BG++++-8.3%-5.1%-3.7%-7.1%2.7%-1.7%-0.9%-0.2%-10-52.1%2.07-4.2%CZ++++-1.3%0.8%-2.4%-5.4%-0.2%-1.5%-1.2%-0.1%1.9-5-0.9%-1.06-4.2%DK++++0.7%-1.2%-1.0%-1.7%-1.0%-2.4%-0.7%-1.2%-0.95-0.6%3.196.8%DE++--1.9%2.4%-1.9%-1.3%-1.1%0.0%-0.6%0.2%0.12-0.5%1.321.4%EE++--8.4%0.0%0.8%-3.0%1.7%0.1%-0.4%0.0%-8.2-212.4%-5.69-3.6%IE++++-0.5%0.9%-1.4%0.9%-2.9%-4.1%-4.6%-2.1%-1.1-1n.a.4.21n.a.EL--++-11.9%-10.4%-0.8%3.6%-2.9%-4.1%0.9%-2.9%-3-1-0.9%0.29n.a.ES++++-6.6%-2.4%-2.3%-1.3%-0.2%-2.3%0.1%-2.7%1.30n.a.-2.79n.a.FR++--0.7%3.2%-1.3%-0.8%-1.0%-1.9%0.2%-0.3%0.50-9.1%-1.0949.5%HR--++-3.9%-1.6%-1.3%-1.8%n.a.-2.7%-0.4%0.8%-1.60-0.8%2.50-3.3%IT+-++-3.0%-2.8%-1.2%-2.9%1.5%1.3%0.9%-1.9%1.431.5%1.66n.a.CY--++-12.7%-8.4%-2.1%0.0%-1.4%-3.5%1.1%-1.4%n.a.n.a.n.a.4.59n.a.LV-+++-1.8%-4.3%-1.4%2.6%0.0%-1.2%-1.5%0.3%-3.8-103.3%-6.31-8.2%LT+++--3.2%-2.2%-5.7%-1.7%2.1%-0.9%-1.7%1.6%-1.6-10-2.1%41.53-0.5%LU++++-2.7%-1.2%-2.7%-2.4%-4.0%-7.7%1.8%-1.0%2.6-20.8%3.5511.8%HU++++-3.3%1.3%-2.3%2.4%-1.8%-3.1%-4.8%-1.9%-3.3-6-6.3%-1.122.6%MT++---13.8%-0.2%-3.6%n.a.12.3%-3.4%n.a.5.9%n.a.n.a.n.a.10.92n.a.NL++-+-1.7%0.0%-1.1%-1.3%-1.0%-1.9%0.0%-0.5%1.18-3.3%-1.63-1.0%AT+++--0.1%1.6%-1.6%-0.3%-0.8%-1.0%-2.6%-0.4%2.2112.9%6.128.3%PL++-+0.4%-1.7%-3.0%-6.0%0.9%-1.0%-0.3%3.4%-10.3-14-1.6%-0.81-0.7%PT+-++0.5%-2.4%-1.5%-0.8%-1.5%-4.6%-2.9%-1.4%0.218.8%1.50n.a.RO--++-8.2%-4.6%-4.4%-7.3%1.8%-0.7%-0.7%2.9%-6.810-4.4%-3.07-6.5%SL++++-1.7%-1.0%-1.1%-3.8%0.4%-1.3%-0.1%3.3%-0.6-30.3%0.53-3.4%SK+++-2.9%5.0%-4.4%-5.0%-0.8%-1.5%-0.9%2.5%-8.5-62.2%-1.30-8.3%FI--++-2.6%-2.1%-0.7%0.0%-0.3%-0.1%0.6%0.6%050.4%-0.901.5%SE++-+-1.9%-2.4%-2.0%-1.4%-1.3%-1.4%-1.3%-0.4%0.823.2%1.29-2.7%UK++++-1.0%1.1%-2.2%-1.8%-3.1%-3.5%-0.5%-1.2%2.42n.a.-0.781.1%Trend to reach the 2020 targetHouseholdsTransportShort term trendGeneration2020 Ambition level