REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL 2019 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 as required by Article 24(3) of the Energy Efficiency Directive 2012/27/EU
Date: 2020-07-20
Institutions: Directorate-General for Energy, European Commission
Subjects: EU Member State, EU energy policy, energy consumption, energy efficiency, energy saving, energy use, greenhouse gas, reduction of gas emissions

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 20.7.2020  COM(2020) 326 final  REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL 2019 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 as required by Article 24(3) of the Energy Efficiency Directive 2012/27/EU  
 
 
Introduction 

1. 
In December 2019, the Commission adopted a communication on the European Green Deal1, 
which sets a path towards climate-neutrality by 2050 and calls for increased decarbonisation 
efforts by 2030. Given that 75% of the greenhouse gases emitted in the EU derive from the 
supply and use of energy, further progress in energy efficiency is essential to deliver on our 
commitments towards carbon neutrality and more ambitious climate objectives in the coming 
decade.  Energy  efficiency  is  as  a  priority  in  the  Green  Deal.  Of  even  greater  importance  in 
moving forward, is implementing the existing energy efficiency legislation and commitments, 
together with the widespread application of the energy efficiency first principle. 

Much as the attention is now focused on the next decade and the longer time perspective until 
2050,  it  is  equally  important  to  keep  in  mind  the  progress  towards  the  2020  targets.  These 
goals are the starting point for any increase in ambition. Any gaps and delays in 2020 would 
affect the pathways for achieving the 2030 and 2050 objectives. Furthermore, the impact of 
the COVID-19 crisis will also play its role. It is estimated that it will reduce energy demand in 
2020,  potentially  allowing  achieving  the  2020  targets,  while  rebounds  are  expected 
afterwards.  It  should,  however,  not  be  forgotten  that  this  reduction  will  not  be  due  to 
structural changes. 

This  progress  report is  presented by the Commission  in  line with  Article 24(3) of  Directive 
2012/27/EU  on  energy  efficiency,  as  amended  by  Directive  (EU)  2018/2002  (‘the  Energy 
Efficiency Directive’). This report is the last of the series of reports in such format under the 
Energy  Efficiency  Directive,  as  this  approach  will  need  to  be  aligned  with  Article  35  of 
Regulation  (EU)  2018/1999  on  the  Governance  of  the  Energy  Union  and  Climate  Action 
(Governance Regulation).  

This  report  provides  the  latest  insights  into  progress  made  up  until  2018  to  meet  the  EU 
energy efficiency 20% targets for 2020.2 It does not yet take into account the potential impact 
of  the  COVID-19  crisis  on  the  achievement  of  the  2020  target.  The  official  European 
statistics3  on  energy  were  used  as  the  primary  data  source,  applying  the  methodology  for 
calculating  energy  balances  used  up  to  20184  (in  order  to  maintain  consistency  with  the 
previous reports and the methodology used for setting energy efficiency targets). The report 
also  builds  on  the  2018  energy  efficiency  progress  report,5  the  annual  reports  submitted  by 
Member States in 20196, and complementary analysis carried out during 2019 and early 2020. 

1 COM(2019) 640 final. 
2 The 2020 target involves lowering the EU-28’s final energy consumption to at most 1086 Mtoe, and its primary 
energy consumption to at most 1483 Mtoe. 
3 Published by Eurostat up to January 2020. 
4 
at 
detailed 
https://ec.europa.eu/eurostat/documents/38154/4956218/Energy-Balances-April-2020-edition.zip/69da6e9f-bf8f-
cd8e-f4ad-50b52f8ce616 
5 COM(2019) 224 final. 
6 https://ec.europa.eu/energy/content/annual-reports-2019_en 

available 

datasets 

report 

used 

The 

are 

the 

for 

1 

 
                                                 
To better understand the factors behind recent energy trends, a breakdown analysis developed 
by the Joint Research Centre (JRC)7 and the Odyssee-Mure project8 was used.  

Summary of the findings 

2. 
The report looks at the EU-28 and covers data up to 2018. 

The main findings are as follows: 

  Primary  energy  consumption  declined  by  0.7%  in  2018  compared  to  2017.  Final 
energy  consumption  increased  by  0.1%  year-on-year.  Even  so,  both  indicators  are 
above the fixed trajectory for the 2020 targets. 

  Weather fluctuations continue to affect the level of energy consumption9. The warmer 
winter in 2018 moderated energy demand for space heating, but this impact was offset 
by  increases  in  energy  consumption  in  the  transport  and  industry  sectors.  Weather-
corrected figures actually show a bigger increase in final energy consumption in 2018 
(see Figure 1). 

  Growth in activity continues to push energy consumption up and the new policies and 
measures implemented by the Member States in 2018 were not sufficient to offset it.  
  The 2019 annual energy efficiency reports findings indicate that some Member States 
achieved  much  lower  savings  than  what  would  be  needed  for  2018  to  reach  their 
cumulative savings requirements for 2014–2020. 

The reduction in primary energy consumption might be interpreted as a positive development. 
However, its  pace, if  continued, would be insufficient  to  meet  the target  set for 2020 under 
normal  economic  conditions,  and  is  lower  than  the  average  annual  reduction  of  a  linear 
trajectory from 2005 to the 2020 target (1% per year). Given the limited time to implement 
new policies, it seems increasingly unlikely that the 2020 targets could be reached without a 
strong impact of external factors, such as the COVID-19 crisis. However, it is still important 
that  efforts  are  quickly  stepped  up,  as  any  remaining  delivery  gap  to  the  2020  targets,  or  a 
rebound  of  energy  demand  after  the  COVID-19  crisis  would  also  make  reaching  the  2030 
targets more challenging. 

To better assess the growing energy consumption trend and identify a possible way forward, 
in July 2018 the Commission set up a task force on mobilising efforts to reach the EU energy 
efficiency  targets  for  2020.10  During  the  task  force  meetings  in  2019,  Member  States 
highlighted the need to fully implement existing legislation, to better mobilise EU structural 
and cohesion funding, and to undertake additional measures that would deliver quick savings. 
In  addition,  the  need  to  put  a  stronger  focus  on  ensuring  that  buildings  undergoing  major 

7 Economidou, M. and Romàn Collado, R. (2020) Assessing energy efficient trends in the EU productive sectors: 
monetary- and physical-based index decomposition analysis 
8 http://www.indicators.odyssee-mure.eu/decomposition.html 
9  Winter  temperatures  affect  heating  needs  (higher  temperatures  reduce  heating  demand)  accounting  for  some 
65% of the residential and 45% of the  service  sector energy consumption. Based on DG ENER estimates and 
Eurostat data. 
10  European  Commission  (2019),  Report  of  the  work  of  the  Task  Force  on  mobilising  efforts  to  reach  the  EU 
Energy efficiency targets for 2020 

2 

 
 
 
                                                 
renovations  achieve minimum  energy performance standards was recognised. However, this 
would not ensure the energy savings required in the short term, but would rather contribute to 
the 2030 target. 

Figure 1: GDP and weather-corrected final energy consumption (FEC), 2000-201811. 

Source: Own calculations based on ESTAT and Odyssee data, AMECO (GDP). 

3. 
Progress towards the EU’s 2020 energy efficiency target 
Final energy consumption12 in the EU-28 fell by 5.8%, from 1194 Mtoe in 2005 to 1124 Mtoe 
in  2018.  This  is  3.5%  above  the  2020  final  energy  consumption  target  of  1086  Mtoe.  It 
decreased at an annual average rate of 0.42% between 2005 and 2018, but since 2014 (when 
heating  demand  was  much  lower  due  to  an  exceptionally  warm  winter),  it  rose  by  5.3%  in 
2018 compared to 2014. In 2018, it increased by 0.1% compared to the previous year. 

In 2018, higher energy consumption was mainly observed in the transport (+1.3% year-over-
year  increase  compared  to  2017)  and  industry  sectors  (+0.6%).  By  contrast,  energy 
consumption declined in the residential sector (-1.6%) and in the services sector (-1.4%). 

11 The  weather correction factor  was calculated as a  proportion of heating degree days (HDD) in a given  year 
over the  average HDD between 1980 and 2004. This correction factor  was applied to the energy consumption 
used  for  space  heating  in  the  residential  and  services  sector.  The  calculation  of  the  HDD  follows  the  JRC 
methodology, as published by Eurostat (https://ec.europa.eu/eurostat/cache/metadata/en/nrg_chdd_esms.htm) 
12 Indicators from the Eurostat’s energy balances in line with the methodology up to 2018 (FEC 2020-2030 and 
PEC 2020-2030) are used to monitor progress towards achieving the Europe 2020 energy efficiency targets. 

3 

 
  
 
                                                 
The  transport  sector  accounted  for  34%  of  final  energy  consumption  in  2018  followed  by 
industry and the residential sectors (both 25%), the services’ sector (13%) and other sectors 
including, agriculture, fishing and forestry (3%). 

Primary  energy  consumption13  in  the  EU-28  dropped  by  9.8%,  from  1721  Mtoe  in  2005  to 
1552 Mtoe in 2018. This is 4.65% above the 2020 target of 1483 Mtoe. It dropped on average 
by 0.8% per year between 2005 and 2018. Following three years of increase, a year-over-year 
drop of 0.7 % was recorded in 2018.  

National targets 

4. 
Until 2018, 12 Member States managed to reduce or keep the final energy consumption level 
below their hypothetical linear trajectory for reaching their indicative targets by 2020.14 For 
primary  energy  consumption,  15  Member  States  were  below  their  hypothetical  linear 
trajectories in 2018.15 Overall, the final energy consumption of 11 Member States (a decrease 
from 17 in 2017) was below the indicative 2020 final energy target in 2018.16 Similarly, 13 
Member States (a decrease from 14 in 2017) reached or managed to keep their primary energy 
consumption level below their indicative 2020 target in 2018.17 

In 2018, no Member State revised its energy efficiency target resulting in national targets still 
do  not  adding  up  to  the  EU  targets.  For  final  energy  consumption,  the  national  indicative 
targets add up to a total of 1085 Mtoe, i.e. 1 Mtoe below the target set for the EU; for primary 
energy consumption, they add up to 1533 Mtoe, i.e. 50 Mtoe above target set for the EU.18 

Developments in Member States and sectors 

5. 
Between  2005  and  2018,  final  energy  consumption  (FEC2020-2030)  rose  in  nine  Member 
States:  Austria,  Cyprus,  Estonia,  Finland,  Latvia,  Lithuania,  Malta,  Poland  and  Slovenia. 
Compared  to  2017,  final  energy  consumption  rose  in  18  Member  States  in  2018,  with  the 
highest  increases  recorded  in  Malta  (+6.1%),  Ireland  (+4.7%)  and  Latvia  (+4.1%).  The 
biggest reductions were observed in Greece (-4.8%), Austria (-2.5%) and Germany (-1.5%). 

Between  2005  and  2018,  primary  energy  consumption  (PEC2020-2030)  fell  in  all  Member 
States  except  Estonia,  Cyprus,  Latvia  and  Poland.  Countries  with  the  sharpest  drops  in 
primary  energy  consumption  include,  Greece  (-25.7%),  Lithuania  (-23.4%)  and  the  United 
Kingdom  (-21.1%).  Compared  to  2017  primary  energy  consumption  dropped  further  in  14 
Member States, with the sharpest drops observed in Belgium (-4.6%), followed by Austria (-
3.1%)  and  Greece  (-3.0%).  By  contrast,  the  sharpest  increases  were  recorded  in  Estonia 
(+9.4%), Latvia (+5.1%) and Luxembourg (+4.0 %).  

13 Idem 12 
14 Czechia, Greece, Spain, Croatia, Italy, Cyprus, Latvia, the Netherlands, Portugal, Romania, Slovenia, Finland. 
15 Czechia, Estonia, Greece, Croatia, Italy, Latvia, Lithuania, Luxemburg, Malta, Portugal, Romania, Slovakia, 
Slovenia, Finland, the United Kingdom. 
16 Greece, Spain, Croatia, Italy, Cyprus, Latvia, the Netherlands, Portugal, Romania, Slovenia, Finland. 
17 Czechia, Estonia, Greece, Croatia, Italy, Latvia, Lithuania, Luxemburg, Romania, Slovakia, Slovenia, Finland, 
the United Kingdom. 
18  The  difference  can  be  even  bigger  given  that  the  levels  of  primary  energy  consumption  and  final  energy 
consumption for some national targets do not follow the right methodology. 

4 

 
                                                 
Primary  energy  intensity  fell  in  all  Member  States  in  2018  compared  to  2005.  However, 
between 2015 and 2018 it rose in Denmark, Estonia and Luxemburg.  

Figure  2:  Relative  change  in  primary  energy  consumption,  primary  energy  intensity19  and 
GDP, 2015-2018. 

Source: Eurostat. 

The task force on mobilising efforts to reach the EU energy efficiency targets for 2020 held a 
meeting in July 2019. The discussion focused on assessing progress based on Eurostat energy 
consumption  estimates  for  2018,  and  on  sharing  good  practice  to  deliver  further  savings. 
Given  the  limited  time  until  the  end  of  2020,  Member  States  did  not  introduce  many  new 
measures in 2018, and the focus seemed to be more on the plans for 2030. Member States also 
pointed out that, at this stage, there was no incentive to invest in technical measures and that it 
was  better  to  wait  until  2021  so  that  the  measures  could  be  counted  under  Article  7  of  the 
Energy Efficiency Directive. 

In the 2019 annual  reports20, Member States identified economic  and activity  growth  as the 
main factors that drove the increase the energy consumption in 2017. The factors behind the 
year-on-year decline in primary and a minor increase in final energy consumption in 2018 are 
yet to be analysed. As indicated above, the latest growth in final energy consumption could be 
mainly driven by increases in the transport and industry sectors. Energy consumption in the 
residential and services’ sectors decreased year-on-year, which was in part due to the warmer 
weather  in  2018.  The  decline  in  primary  energy  consumption  may  be  more  an  outcome  of 
changes  in  energy  mix  (e.g.  shift  to  renewable  energy)  and  imports  (both  affecting  the 
calculation rather than having a real impact on the current level of consumption) or efficiency 
improvements in energy transformation. 

19 Primary energy consumption in relation to GDP. 
20 https://ec.europa.eu/energy/content/annual-reports-2019_en 

5 

 
 
 
 
                                                 
Unofficial preliminary data on electricity consumption for 201921 give some partial indication 
on the projected developments for last year. In 2019, electricity consumption in the EU fell by 
2% year-on-year bringing demand back to 2015 levels, while GDP grew by 1.4% that  year. 
The  weather  seems  to  play  a  role  in  this  respect.  The  2019  summer  heatwaves,  with  highs 
above  40°C  in  northern  Europe,  caused  a  surge  in  power  consumption  because  of  air 
conditioning.  However,  the  warm  winter  months  of  early  and  late  2019  lowered  power 
consumption,  which  on  balance  more  than  compensated  for  that  summer’s  high  energy 
demand. Furthermore, a shift from industrial production as a source of GDP growth also had 
an  impact  on  electricity  consumption  -  industrial  production  fell  in  2018  and  2019, 
particularly in the steel sector.22 

The  breakdown  analysis  will  allow  for  a  more  quantitative  analysis  of  the  different  factors 
behind the changes in energy consumption. 

The JRC analysis  for 2005-201723 indicates that the improvements  in energy  intensity  were 
the  main  factor  behind  reduction  in  energy  consumption  in  productive  sectors  (industry, 
services and agriculture). This impact was reinforced by structural changes. However, higher 
labour productivity (gross value added per hour worked) and employment effect drove energy 
consumption  up.  In  the  same  period,  the  drop  in  energy  consumption  was  also  driven  by 
improvements  in  energy  efficiency  and  the  knock-on  effects  of  the  weather.  Half  of  these 
impacts  were  offset  by  the  wealth  effect  and  increase  in  population,  which  drove  up 
consumption.  In  both  passenger  and  freight  transport,  growth  in  activity  more  than  offset 
improvements in energy intensity, driving energy consumption up between 2005 and 2017.  

The Odyssee-Mure analysis for 2005-201724 confirms that energy savings played a major role 
in reducing final energy consumption. Structural effects and climate effects were also leading 
to additional energy savings. These impacts were largely offset by growth in activity and to a 
lesser  extent  by  changes  in  lifestyles  and  other  effects.  The  drop  in  primary  energy 
consumption  was  mainly  due  to  variations  in  the  power  sectors’  consumption  (changes  in 
electricity consumption, thermal efficiency of power mix) as well as the impacts of changes in 
final  energy  consumption  and  to  a  lesser  extent  the  variation  in  the  consumption  of  other 
energy transformations.  

5.1. 

Industrial sector 

The  final  industry  energy  consumption  (calculated  with  the  old  methodology  of  energy 
balances) in  the EU-28  decreased in  absolute terms  from  332 Mtoe in  2005 to  285 Mtoe in 
2018 (-14%). However, in some countries industry increased its energy consumption during 
this  period,  namely  in  Hungary  (+43%),  Latvia  (+29%),  Poland  (+14%),  Malta  (+11%), 
Germany (+6%), Lithuania, Belgium, Austria and Slovakia (by less than 5% each). Compared 
to 2017, the EU’s final industry energy consumption increased by 0.6% in 2018, however six 
Member  States  recorded  a  decline.  The  countries  with  the  highest  increases  were  Latvia 

(2020),  The  European  Power  Sector 

21  Agora  Energiewende 
energiewende.de/fileadmin2/Projekte/2019/Jahresauswertung_EU_2019/172_A-EW_EU-Annual-Report-
2019_Web.pdf 
22 Ibid.  
23 Economidou, M. and Romàn Collado, R. (2020), op. cit. 
24 http://www.indicators.odyssee-mure.eu/decomposition.html 

in  2019,  https://www.agora-

6 

 
 
 
 
                                                 
(+14.0%), Slovenia (+7.3%) and Estonia (+6.6%). In the three year period between 2015 and 
2018, the gross value added of industrial production rose by 8% (4% in 2018 year-on-year). 
However,  this  growth  in  activity  was  only  partially  reflected  in  changes  in  energy 
consumption, which rose by 2.3% in since 2015.   

For  energy  intensity,25  almost  all  Member  States  managed  to  improve  their  industry 
performance  between  2005  and  2018,  leading  to  an  overall  reduction  in  energy  intensity  of 
22% in the EU-28. The industrial sector’s energy intensity increased only in Hungary (+20%), 
Latvia (+20%) and Greece (+1%). However, Romania, Estonia, Ireland and Bulgaria recorded 
the biggest improvements (50% or more). Looking at annual developments compared to 2017, 
nine Member States (Latvia +6.8%, Finland +3.5%, Romania +2.6%, Belgium +1.6%, France 
+1.3%, Spain +1%, Hungary +0.8%, Croatia +0.6%, Bulgaria +0.1%) recorded a rise in the 
industry’s energy intensity in 2018, while all other Member States continued to improve their 
performance. 

5.2. 

Residential sector 

The  final  residential  sector’s  energy  consumption  (calculated  using  the  old  energy  balances 
methodology) sharply fell by 10.4% from 310 Mtoe in 2005 to 278 Mtoe in 2018 (but only by 
4.6%  when  applying  the  weather  correction).  However,  energy  use  rose  by  0.1%  between 
2015 and 2018 (with a -1.6% year-on-year fall in 2018). This three-year increase was to some 
extent  a  result  of  the  colder  winter  weather  in  2016  and  2017  (partially  offset  by  a  warmer 
winter  in  2018)  as  space  heating  energy  consumption  accounts  for  around  two  thirds  of 
residential  energy  consumption.  Weather-corrected  heating  energy  consumption  has  been 
slowly declining since 2010. In 2018, the number of heating degree-days was 3% lower than 
in  2017,  but  energy  consumption  in  the  residential  sector  increased  by  0.5%  year-on-year 
(based  on  estimates).  Although  residential  space  cooling  still  accounts  for  a  rather  limited 
proportion of energy consumption, it has been growing fast in some countries. 

In  their  annual  reports,  Member  States  identified  several  factors  driving  their  energy 
consumption in 2017:  

 

 

Increase in the population or the number of households;  

Increase in the disposable income of households; 

  Economic growth; 

  Deterioration in winter climatic conditions; and  
  Deterioration in summer climatic conditions.26  

The first three factors, which could be put down to the wealth effect, probably continued to 
push  energy  consumption  up  in  2018.  However,  their  impact  was  more  than  offset  by  the 
weather  factor  leading  to  a  year-on-year  decline  of  energy  consumption  (-1.6%)  in  the 
residential sector in 2018. 

25 Energy consumption relative to gross value added. 
26. Tsemekidi-Tzeiranaki, S., Economidou, M., Cuniberti, B. and Bertoldi, P. (2020), Analysis of the annual 
reports 2019 under the Energy Efficiency Directive, Luxembourg, JRC120194. 

7 

 
 
                                                 
Residential sector intensity in terms of EU-28 energy consumption per population dropped by 
13.5%  between  2005  and  2018  (it  also  fell  by  1%  in  2018  compared  to  2017).  However, 
performance was not the same across the Member States. In five countries, performance had 
deteriorated since 2005: Lithuania, Bulgaria (both +16.5 %), Estonia (+9%), Romania (+6%) 
and Malta (+1.7%). By contrast, Greece (-29.5%), Luxemburg (-27.4%), Belgium (-26%), the 
United  Kingdom  (-22%),  Ireland  (-20.5%)  and  Slovakia  (-20%)  managed  to  reduce  their 
intensity the most. 

The increasing trend in energy consumption may be linked to the average energy renovation 
rate,  which  still  remains  very  low:  only  about  1%,  ranging  from  0.4%  to  1.2%  across  the 
Member States. Even in those Member States with relatively high rates, most of the savings 
come from light or medium renovations, while the number of substantial renovations is still 
very  low.  This  presents  the  added  risk  of  lock-in-effect,  as  renovated  buildings  will  not 
undergo renovations again for a number of years27. 

5.3. 

Services sector 

The services sector recorded a small increase in energy consumption (calculated using the old 
energy balances methodology) between 2005 and 2018 (+1.5%). This increase is partly due to 
the high growth in  activity levels  — the services sector’s gross value added (GVA) rose by 
23%  between  2005  and  2018.  The  relationship  between  rising  employment  and  energy 
consumption in the services sector is more evident, with energy consumption rising during the 
period of relatively strong employment growth until 2008 and again since 2014. However, the 
drop in energy consumption in 2018 by 1.4% that was accompanied by an increase in GVA 
and employment was caused by the warmer winter in 2018.  

Final  services  energy  intensity  improved  by  17%  in  2005-2018.  The  biggest  improvements 
were  observed  in  Ireland,  Hungary,  Slovakia,  Ireland,  Austria  and  Slovenia.  Compared  to 
2017,  the  EU’s  energy  intensity  improved  further  in  2018.  Energy  consumption  declined, 
while the sector’s GVA rose by 2.3%. 

5.4. 

Transport sector 

The  EU’s  final  transport  energy  consumption  (calculated  using  the  old  energy  balances 
methodology)28 increased by 3.6% from 368 Mtoe in 2005 to 381 Mtoe in 2018. In 2018, only 
seven Member States decreased their energy consumption in this sector29 compared to 2005 
levels: Greece (-14%), Italy (-12%), Spain (-7%) and to a lesser extent the United Kingdom, 
Luxemburg, the Netherlands and Sweden. By contrast, it rose significantly in Poland (+87%), 
Lithuania,  Malta  and  Romania  (by  over  50%).  The  positive  trend  continued  in  2018  in  21 
Member States with the highest increases  year-on-year recorded in Malta (+13%), Hungary, 
Lithuania and Hungary (all above 7%) and Poland (+6%).  

Considering  the  developments  in  the  years  following  the  adoption  of  the  Energy  Efficiency 
Directive (i.e. 2013-2018), transport energy consumption rose by 33 Mtoe explaining 87% of 

27  https://ec.europa.eu/energy/en/studies/comprehensive-study-building-energy-renovation-activities-and-uptake-
nearly-zero-energy 
28  Including  pipeline  transport,  contrary  to  the  approach  taken  in  COM(2015)  574  final  as  the  2020  energy 
efficiency targets do not exclude pipeline transport. 
29 Comparing Member States should be approached with caution since final energy consumption is based on the 
fuels sold rather than the fuels used in a country. 

8 

 
                                                 
the gap (38 Mtoe) to  the EU final  energy consumption  target  in  2020. Aviation, accounting 
for a growing proportion of overall EU energy consumption (over 5%), alone would explain 
over 27% of this gap. In other words, had road and air transport energy consumption stayed 
close at its 2013 levels, the EU would be much closer to reaching its final energy consumption 
target. 

Transport  activity  growth  and  the  limited  number  of  alternative  fuel  vehicles  on  the  market 
continue to be the main factors for rising energy consumption. Another important factor in the 
recent years is vehicle stock fuel efficiency. In 2018, specific emissions from newly registered 
cars  (which  are  linked  to  energy  consumption)  increased  for  the  second  consecutive  year, 
after  a  steady  decline  between  2010  and  2016.  The  growing  share  of  new  registrations  for 
petrol  cars,  in  particular  sport  utility  vehicles  (SUVs),  seems  to  be  the  main  factor  for  the 
increasing  emissions  from  new  cars  in  2018.  In  2018,  petrol  cars  were  the  best-selling 
vehicles in the EU, accounting for almost 60% of sales (up from 53% in 2017), while SUVs 
accounted for one in three new cars sold30. More energy efficient diesel cars made up 36% of 
new car registrations.31  

On aviation, world demand for air transport has more than doubled since 2000. In 2018, the 
EU  recorded  the  second  highest  growth  (after  Asia/Pacific  region)  at  6.7%  in  revenue 
passenger-kilometres  compared  to  2017.32  It  is  worth  noting  that  the  growth  in  aviation 
energy  consumption would be much higher without  energy efficiency improvements. While 
policy  and  industry’s  efforts  have  shown  concrete  improvements  over  the  past  years  (for 
example fuel burn per passenger has dropped by 24% from 2005 to 2017), these benefits have 
been outpaced by the sustained growth in traffic.33  

Energy Efficiency Directive – Current situation 

6. 
The  Commission  continues,  in  close  cooperation  with  Member  States,  to  monitor  how  the 
Energy Efficiency Directive is transposed and implemented.  

In 2018, the Commission  concluded the structured dialogue (EU pilot  information  requests) 
initiated  with  the  Member  States  the  previous  year  to  ensure  that  all  the  obligations  and 
requirements  under  the  Energy  Efficiency  Directive  were  correctly  turned  into  national 
legislation  and  policy.  Following  an  assessment  of  replies  from  EU  pilots,  the  Commission 
between July 2018 and January 2019 launched infringement proceedings under Article 258 of 
the Treaty on the Functioning of the EU against all Member States for their failure to comply 
with  obligations  under  the  Energy  Efficiency  Directive.  These  proceedings  progressed  at 
different  speed,  but  Member  States  clarifications  and  commitments  resolved  most  of  the 
concerns the Commission raised. 

30 Petrol SUV have on average 10% higher CO2 emissions than the average emissions of other new petrol cars 
(see https://www.eea.europa.eu/highlights/average-co2-emissions-from-new). 
31 https://www.eea.europa.eu/publications/transport-increasing-oil-consumption-and 
32 
2018.aspx 
33 
Eurocontrol 
EEA, 
https://www.easa.europa.eu/eaer/downloads 

https://www.icao.int/Newsroom/Pages/Solid-passenger-traffic-growth-and-moderate-air-cargo-demand-in-

European  Aviation 

Environmental 

(2019), 

Report, 

EASA 

and 

9 

 
                                                 
All  Member  States  submitted  their  2019  annual  reports  as  required  under  Article  24  of  the 
Energy Efficiency Directive. However,  yet again many reports were submitted late, were of 
poor quality or lacked some important information. The JRC analysed these annual reports in 
a separate document.34 

6.1. 

Progress under Article 7 (energy savings obligation) 

Under Article 7, Member States have reported achieved energy savings for 2014-2017 in view 
of delivering the national energy savings obligation for 2014-2020. 

The analysis shows that several Member States risk not meeting their national energy savings 
obligation by December 2020. Taking into account achieved energy savings from 2014-2017 
and  projected  energy  savings  until  2020  from  the  implemented  policy  measures,  it  appears 
very  unlikely  (<  75%  likelihood)  that  Bulgaria,  Croatia,  Lithuania,  Luxembourg,  Portugal, 
Romania  and  Spain  will  meet  their  national  obligation.  For  Czechia,  Estonia,  Greece, 
Hungary, Italy and Sweden, it appears unlikely (>75% and < 95% likelihood). On the other 
hand, it is  very likely (> 105% likelihood) that Austria, Cyprus, Denmark, Finland,  Ireland, 
Latvia,  Malta,  the  Netherlands,  Poland,  Slovakia  and  the  UK  will  achieve  more  energy 
savings than required by 31 December 2020. For Belgium, France, Germany and Slovenia, it 
appears likely (> 95% and <105% likelihood) that they will meet their 2020 national energy 
savings target. 

By comparing the reported energy savings between 2014 and 2017 to the cumulative energy 
savings for 2014-2017 estimated by each Member States based on average yearly delivery, it 
appears that Bulgaria, Croatia, Czechia, Greece, Lithuania, Luxembourg, Portugal, Romania 
and Spain achieved less than 80% in 2017. 
In  their  2019  annual  reports,  nine  countries35  reported  that  they  had  introduced  new  policy 
measures.  Furthermore,  some  countries  updated  their  estimates  of  expected  and/or  actual 
energy savings for 2014 and 2015. 

In 2019, a total of 58 new measures have been reported under Article 7. Of which, twelve (or 
20.7%) were implemented by Hungary, eleven (19.0%) by Latvia, ten (17.2%) by Lithuania, 
followed by Cyprus, the UK and Spain36 (10.3% each of them).37  
Most  energy  savings  (36%)38  have  been  achieved  through  energy  efficiency  obligation 
schemes,  16%  due  to  energy  or  CO2  taxes,  and  20%  due  to  financing  schemes  or  fiscal 
measures. Only a minor proportion of energy savings (0.02%) was achieved due to labelling 
schemes and national funds (see Figure 3). 

34 Tsemekidi-Tzeiranaki, et al. (2020), op. cit. 
35 Spain, Czechia, Greece, Latvia, Hungary, Italy, Lithuania, UK, Cyprus 
36 Some new measures listed by Romania have been included in previous version of Annual Reports (i.e. Annual 
Report of 2017 but not in Annual Report of 2018). 
37 Tsemekidi-Tzeiranaki, et al. (2020), op. cit. 
38  Achieved  cumulative  energy  savings  in  2017  from  national  measures  that  are  additional  to  the  EU  level 
measures 

10 

 
                                                 
Figure 3. Distribution of cumulative energy savings in 2014-2017 eligible under Article 7 
per policy measure type 

Source: Own calculations based on the 2019 national annual reports. 

Almost two thirds of achieved savings (63%) were due to cross cutting measures that target 
different sectors, including buildings. The remaining energy savings were achieved thanks to 
measures  targeting  households  (16%),  industry  and  services  (17%),  followed  by  transport 
(4%). 

Figure 4. Distribution of cumulative energy savings in 2014-2017 eligible under Article 7  
per sector type 

Source: Own calculations based on the 2019 national annual reports. 

11 

 
 
 
 
 
 
6.2. 

Progress under Article 5 (exemplary role of buildings used by public bodies) 

In 2018, a higher level of compliance with reporting obligations was observed in comparison 
to  the  previous  year,  but  still  six  Member  States  did  not  provide  the  requested  update 
regarding  Article  5.  Among  these,  Belgium,  Malta,  the  Netherlands,  and  Romania  did  not 
report their achievements to the Commission for the last two years. 
Among the Member States that have chosen the default approach,39 four achieved their annual 
targets  in  terms  of  renovated  floor  area  in  2018.  These  were  Bulgaria,  Estonia,  Italy,  and 
Luxembourg. Among the Member States that have implemented the alternative approach, five 
Member  States  achieved  their  annual  energy  saving  targets.  These  are  Austria,  Ireland, 
Poland, Slovakia and the United Kingdom. For the remaining countries, the information was 
either missing or the reported data were below what is required to reach the annual goal. 

Besides annual progress, it is also important to look at the achievements made between 2014 
and 2018, taking into account that extra savings achieved in one year can be used to fulfil the 
requirement over a period of three years. According to the available data, 16 Member States 
have fulfilled or overachieved their cumulative targets under Article 5 for 2014-2018.  This is 
a  significant  improvement  in  comparison  to  the  assessment  made  in  the  previous  year,  but 
further  efforts  are  needed  in  the  countries  lagging  behind  (Czechia,  Hungary)  or  for  which 
information is missing for some years (Bulgaria, Croatia, Denmark, Estonia, Greece, Portugal, 
Romania, Slovenia, Malta, and Sweden). 

6.3. 

Products 

For  product  energy  efficiency,  the  Commission  adopted  in  March  and  October  2019,  14 
ecodesign  and  energy  labelling  regulations  following  several  years  of  preparation  with 
stakeholders.  These  regulations  amend  requirements  for  seven  product  groups  ((i) 
refrigerators,  (ii)  washing  machines,  (iii)  dishwashers,  (iv)  lighting  products,  (v)  electronic 
displays,  (vi)  electric  motors  and  (vii)  external  power  supplies)  and  address  a  new  product 
group  (refrigerating  appliances  with  a  direct  sales  function).  A  major  change  in  the  new 
ecodesign rules is the need to further improve the reparability and recyclability of appliances. 
For  these  energy  labelling  regulations,  it  is  the  new  QR  code  energy  labels  that  will  enable 
consumers  to  get  more  (non-commercial)  information  from  1  March  2021.  To  speed  up  the 
process  to  sustainability  end  energy  efficiency,  the  QR  code  could  provide,  among  others, 
information about the “product passport” including information about materials, etc. as well 
as  the  plug-and-play  readiness  for  the  smart  home  (e.g.  support  for  European  specifications 
such as SAREF). These 14 energy labelling regulations, in addition to two more regulations 
on  ecodesign,  constitute  the  ecodesign  and  energy  labelling  package,  which  is  expected  to 
deliver annual final energy savings of 167 TWh in 203040. 

Conclusion 

7. 
The  upward  trend  in  energy  consumption  observed  since  2014  was  interrupted  in  2018, 
partially  due  to  warmer  winter  temperatures.  Nevertheless,  positive  developments  in  2018 

39 The default approach refers to measures taken to renovate 3 % of the total floor area of heated and/or cooled 
buildings  over  250 m2  owned  and  occupied  by  central  government  which  do  not  meet  minimum  energy 
requirements while the alternative approach to other cost-effective measures taken to achieve equivalent energy 
savings.  
40 Non-compliance and consumer behaviour may reduce the actual savings achieved by these measures. 

12 

 
                                                 
were not sufficient to put the EU back on track to reach the 2020 energy efficiency targets, 
before  the  advent  of  the  COVID-19  crisis.  It  shows  that  rising  economic  activity, 
unaccompanied  with  new  and  additional  energy  efficiency  policies,  can  result  in  higher 
energy demand. This will remain an issue, when energy demand recovers after the COVID-19 
crisis, with a view on achieving the 2030 energy efficiency targets.  

However,  the  situation  varies  across  sectors.  Since  the  adoption  of  the  Energy  Efficiency 
Directive  in  2012,  transport  has  experienced  a  continuous  growth  in  energy  consumed  and 
improvements.  The  Commission’s 
greenhouse  gas  emissions  despite  efficiency 
Communication  on  a  European  Green  Deal  highlights  this  issue  and  indicates  the 
Commission’s plan to bring forward a new strategy for smart and sustainable transport later in 
2020. There will also be other specific measures, such as the review of the Energy Taxation 
Directive, which will look closely at the role of taxation in the transport sector, as well as the 
current exemptions for aviation and maritime activities. Moreover, the use of electric vehicles 
needs to be further promoted and the policy to transfer passenger and freight to rail is to be 
continued  and  further  enhanced,  taking  into  account  the  superior  energy-efficiency  of  rail 
transport. 

Without  the  onset  of  the  COVID-19  crisis,  it  would  have  been  unlikely  that  new  policies 
could  change  the  situation  sufficiently  to  achieve  the  2020  target  for  energy  efficiency. 
However, some delayed impacts of current policies might still occur, while weather and other 
external factors might also play an important role in extending or limiting the gap. As all these 
are, however, temporary or specific events, subsequent changes in energy consumption cannot 
be considered structural or long lasting. 

The  current  delivery  gap  gives  no  space  for  complacency.  It  is  very  likely  that  the  national 
energy  efficiency  contributions  for  2030  –  described  in  the  National  Energy  and  Climate 
Plans submitted to the Commission  by end 2019  according to  the Governance Regulation  – 
will be cumulatively short in ambition to reach the EU 2030 energy efficiency targets.  This 
delivery  gap  in  energy  efficiency  efforts  for  2020  and  the  ambition  gap  for  2030  require 
robust action at national and at EU level. The Commission is presently preparing an impact-
assessed plan to increase the EU’s greenhouse gas emission reductions target for 2030 to at 
least  50% and towards 55% compared with  1990 levels  in  a responsible way. This  includes 
the possible need for energy efficiency to substantially contribute to the achievement of this 
higher GHG emissions reduction target in 2030. It needs to be recalled that the Commission 
Communication “A Clean Planet for All”41 foresees a strong role for energy efficiency in all 
scenarios to reach the climate change targets. 
The  Commission’s  2020  Annual  Sustainable  Growth  Strategy42  indicates  the  importance  of 
energy efficiency to avoid a trade-off between climate policy and rising energy prices. Indeed, 
achieving  the  existing  2030  climate  and  energy  targets  will  require  EUR  260  billion  of 
additional  investment  in  the  energy  system  annually  in  2021-2030.  The  biggest  investment 
push will be required to improve energy efficiency in the residential and tertiary sectors.  

The Commission will also continue focusing on the enforcement of EU legislation. Article 7 
of the amended Energy Efficiency Directive improves monitoring and checking provisions for 
energy  savings.  In  addition,  to  obtain  a  higher  GHG  emissions  reduction  target,  the  next 

41 COM(2018) 773 
42 https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52019DC0650&from=EN  

13 

 
                                                 
review of the Energy Efficiency Directive has been brought forward and is due by June 2021. 
The whole Energy Efficiency Directive will be evaluated. If decided, the subsequent revision 
would  be  expected  to  focus  on  new  areas  where  energy  efficiency  could  be  strengthened 
and/or pushed. In addition, the application of the energy efficiency first principle will be more 
prominently  applied  across  policy  areas,  taking  into  account  additional  benefits  of  energy 
savings and supporting just transition. 

On  buildings,  the  upcoming  ‘Renovation  wave’  initiative  aims  at  boosting  renovations  and 
contributing  to  the  recovery  from  the  economic  impact  of  the  COVID-19  in  line  with  the 
principle  of  just  transition.  Moreover,  the  review  of  the  cost-optimal  minimum  energy 
performance requirements for new and existing buildings undergoing major renovations43 and 
the implementation of the nearly zero-energy building standards44 are expected to improve the 
energy performance of the building stock in  the short term.  Enforcement and compliance at 
local  level  needs  to  improve  and  for  this  reason  the  Commission  stepped  up  its  well-
established  cooperation  with  the  Covenant  of  Mayors  and  other  local  channels.  In  addition, 
the  work  on  energy  performance  standards  and  product  labelling  will  continue  and  the  new 
2020-2024 Ecodesign working plan is under preparation and new fast-growing areas could be 
considered, such as datacentres and telecommunication networks. 

Apart  from  legislative  efforts  the  Commission  will  work  on  mobilisation  of  the  funding 
instruments  at  its  disposal  to  deploy  digital  solutions  and  apply  smart  digitalisation  (AI, 
automation,  Big  Data,  Internet  of  Things,  etc.)  to  help  speed  up  the  improvement  process, 
where benefits are demonstrated, and drive energy efficiency to the next level. Furthermore, 
the Commission will include in future reviews reports on the energy performance of the ICT 
sector (including data centres) as a considerable and fast-growing final energy consumer. 

To ensure there is no accumulated delivery gap for the 2030 targets, the task force dedicated 
to  mobilising  efforts  in  reaching  the  EU  energy  efficiency  targets  will  continue  to  assist 
Member States in pursuit of this goal. 

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

43 Member States reviewed their cost-optimal calculations to set up minimum requirements in March 2018. 
44  As  of  2021  all  new  buildings  must  meet  the  requirements  for  nearly  zero-energy  performance  buildings  as 
defined in Member States (for new public buildings this obligation is required since 2019). 

14 

 
 
 
                                                 
Table 1: Overview of indicators 45 

The ‘+’ symbol is used if Member States decreased their primary and final energy consumption between 2005 
and 2018 at a rate  which is higher than the rate of decrease  which would be needed in 2005-2020 to meet the 
2020 primary and final energy consumption  targets. The ‘-’ symbol is used for the other cases. FEC stands for 
final energy consumption, PEC for primary energy consumption. 

Source: Eurostat (old methodology of energy balances), JRC, Odyssee. 

45 The energy intensity of industry is calculated as the ratio between final energy consumption and gross value 
added in chain linked volumes (2010). Due to data limitations, the denominator of gross value added at current 
prices has been used for Malta. 

15 

Energy Intensity whole economyIndustryPEC 2005-2018 trend compared to PEC 2005-2020 trend to reach the 2020 targetFEC 2005-2018 trend compared to FEC 2005-2020 trend to reach the 2020 targetChange of PEC 2018 compared to PEC 2017 [%]Change of FEC 2018 compared to FEC 2017 [%]2005-2018 average annual change of PEC energy intensity [%]2005-2018 average change of FEC energy intensity in industry [%] 2005-2018 average annual change of FEC in residential per capita with climatic corrections [%]2005-2017 average annual change of FEC in residential per dwelling with climatic corrections [%]EU28---0.6%0.2%-2.0%-1.9%-0.4%-1.2%BE---4.6%0.6%-2.2%-0.3%-1.7%-1.6%BG--0.1%0.2%-2.8%-4.5%2.3%0.4%CZ++0.1%-0.7%-2.9%-4.3%1.4%0.0%DK--0.4%0.6%-2.0%-2.1%0.1%-0.6%DE---2.1%-1.5%-2.2%-1.4%-0.1%-0.2%EE+-9.6%3.4%-1.0%-5.5%1.4%0.8%IE--1.1%4.7%-4.1%-4.9%-2.1%-2.9%EL++-2.8%-2.9%-0.6%0.6%-0.8%-1.0%ES-+-0.5%3.8%-1.6%-1.5%0.6%-1.0%FR---0.1%-1.3%-1.7%-1.1%-0.4%-1.1%HR++-1.8%-1.1%-1.7%-1.3%0.6%-1.1%IT++-1.1%1.1%-1.3%-2.6%0.9%-0.3%CY-+0.5%-0.3%-1.4%-0.6%4.7%-1.6%LV++5.1%4.1%-1.8%2.1%0.5%-0.9%LT+-2.8%3.8%-4.7%-2.0%2.1%-0.9%LU+-4.0%4.0%-3.0%-1.7%-1.2%-3.1%HU---0.1%0.1%-1.8%2.0%0.5%-0.2%MT+-1.8%6.1%-4.8%-1.5%10.9%1.4%NL-+-0.6%-0.1%-2.1%-1.7%-0.8%-1.6%AT---3.1%-2.5%-1.3%-1.2%1.1%-0.1%PL--1.9%1.4%-2.7%-3.6%2.9%0.2%PT++-0.7%2.1%-1.0%-1.2%-0.2%-1.7%RO++0.4%1.1%-4.3%-5.4%1.9%-0.6%SI++-0.8%0.6%-2.0%-2.7%0.7%-0.4%SK+--2.2%-0.1%-4.0%-4.2%-0.1%-1.5%FI++2.0%2.3%-1.7%-0.3%-0.2%-0.7%SE--1.3%-0.6%-2.5%-1.4%-1.0%-0.9%UK+--0.3%0.7%-3.0%-2.9%-1.9%-2.1%Source and extraction dataEurostat04/2020Eurostat04/2020Eurostat04/2020Eurostat04/2020Eurostat04/2020Eurostat04/2020Eurostat04/2020Odyssee01/2020MSResidentialShort-term trendTrend to reach the 2020 target 
 
                                                 
Table 2: Overview of indicators 46 

Source: Eurostat47, DG MOVE, JRC, Odyssee  

46 Eurostat’s energy balances based on the methodology up to 2018 have been used with the exception of "Heat 
generation  from  CHP"  and  "Transformation  output  (Conventional  Thermal  Power  Stations  +  Nuclear  Power 
Stations) / Fuel input for thermal power generation". 
47 Eurostat’s energy balances based on the methodology up to 2018 have been used with the exception of "Heat 
generation  from  CHP"  and  "Transformation  output  (Conventional  Thermal  Power  Stations  +  Nuclear  Power 
Stations) / Fuel input for thermal power generation". 

16 

Services2005-2018 average change of FEC energy intensity in the service sector [%]2005-2018 average change of FEC in the transport sector [%]2017 vs. 2005 change of share of trains, motor coaches, buses and trolley buses for passenger transport [%]2017 vs. 2005 change of share of railway and inland waterways for freight transport [%]2005-2018 average annual change of heat generation from CHP [%]2005-2018 average annual change of ratio Transformation output/Fuel input of thermal power generation [%]EU285.7%0.3%-0.4%-0.5%-0.8%1.7%BE-0.5%0.6%-2.2%7.0%4.1%2.5%BG-0.8%1.9%-14.2%-8.2%-2.3%0.9%CZ-2.1%1.2%1.6%0.8%-1.0%0.6%DK-1.4%0.2%-2.5%NA-1.0%2.9%DE-2.3%0.4%0.1%0.8%0.0%2.4%EE0.0%1.3%-3.5%NA3.3%0.1%IE-3.8%0.3%-0.5%NANA3.8%EL0.9%-1.0%-4.2%NA1.3%2.3%ES0.3%-0.4%-3.3%NANA2.0%FR-0.6%0.2%1.6%0.6%-3.5%0.8%HR-0.2%1.5%-0.5%-1.4%1.1%4.4%IT0.7%-0.9%-0.9%5.4%1.0%2.6%CY1.0%0.3%NANA67.4%1.6%LV-1.8%1.5%-7.9%NA1.7%-0.7%LT-1.8%3.7%-1.4%-9.9%-3.9%9.2%LU-0.6%-0.1%2.6%NA2.2%7.7%HU-5.3%1.5%-5.8%-2.0%-6.6%0.4%MT-2.6%3.5%NANANA4.8%NL-1.7%0.0%2.4%8.2%-2.5%0.5%AT-2.9%0.1%1.7%9.8%2.0%3.0%PL-2.2%1.7%-8.9%-13.5%-0.9%0.7%PT-1.7%0.1%0.7%NA3.8%5.2%RO-1.6%3.3%-4.2%0.3%-4.9%0.5%SI-2.1%2.6%-0.8%NA0.8%1.9%SK-4.4%1.6%-3.6%-7.8%-0.6%0.3%FI0.2%0.6%0.7%NA-0.7%1.3%SE-2.3%0.0%2.2%NA2.3%0.7%UK-1.4%-0.2%2.1%-1.6%NA3.7%Source and extraction dataEurostat04/2020Eurostat04/2020DG MOVE Pocketbook 2019DG MOVE Pocketbook 2019Eurostat04/2020Eurostat04/2020MSTransportGeneration 
 
 
                                                 
Table 3: 2017 reported energy savings overview under Article 7 (ktoe)  

New 
savings 

2017 

Total 
annual 
savings 

Cumulative 
savings in 
2014-2017 

Progress towards the target 

Total 
cumulative 
savings 
required by 
2020 (target) 

Progress 
towards total 
cumulative 
savings 
required by 
2020 

Estimated 
annual savings 
required for 
2014- 2017 

2014-2017 
compared to 
estimated 
annual savings 

BE 

BG 

CZ 

DK 

DE 

EE 

IE 

EL 

ES 

FR 

HR 

IT 

CY 

LV 

LT 

LU 

HU 

MT 

NL 

AT 

PL 

PT 

RO 

SI 

SK 

FI 

SE 

UK 

286 

40 

167 

212 

1024 

139 

470 

872 

2691 

318 

1104 

2142 

2754 

5157 

15217 

92 

90 

321 

436 

1281 

9 

879 

64 

79 

90 

10 

122 

5 

668 

332 

1039 

29 

56 

34 

78 

561 

1702 

966 

97 

379 

489 

1665 

4120 

71 

3183 

69 

245 

135 

34 

415 

11 

2088 

1071 

2646 

124 

421 

134 

369 

1119 

1702 

4471 

279 

942 

881 

4318 

11038 

175 

8172 

78 

557 

365 

69 

1156 

31 

5503 

2725 

5914 

329 

1097 

314 

969 

3276 

3218 

6911 

1942 

4565 

3841 

41989 

610 

2164 

3333 
15979 
31384 

1296 

25502 

242 

851 

1004 

515 

3680 

67 

11512 

5200 

14818 

2532 

5817 

945 

2284 

4213 

9114 

Total 

12401 

32720 

13500 

86378 

27859 

230169 

39% 

16% 

24% 

56% 

36% 

46% 

44% 

26% 

27% 

35% 

13% 

32% 

32% 

65% 

36% 

13% 

31% 

46% 

48% 

52% 

40% 

13% 

19% 

33% 

42% 

78% 

35% 

48% 

38% 

2468 

694 

1630 

1372 

14996 

218 

773 

1190 

5707 

11209 

463 

9108 

86 

304 

359 

184 

1314 

24 

4111 

1857 

5292 

904 

2078 

338 

816 

1505 

3255 

9950 

82203 

109% 

46% 

68% 

156% 

101% 

128% 

122% 

74% 

76% 

98% 

38% 

90% 

91% 

183% 

102% 

38% 

88% 

128% 

134% 

147% 

112% 

36% 

53% 

93% 

119% 

218% 

99% 

136% 

105% 

Source: Information reported by Member States and complemented by the Commission’s calculations 
and estimations where necessary.  

17