Benchmarking Regulations on Energy Efficiency of Buildings

Federation of European Heating, Ventilation and Air-conditioning Associations

Benchmarking Regulations on Energy Efficiency of Buildings

Executive summary


– REHVA –Olli Seppänen

Guillaume Goeders

May 5, 2010


This summary and conclusions are based on theinformation collected from the countries listed below. Dueto the limited time and resources the information may notbe totally consistent or may include some inaccuracies.

• Belgium, BE• Denmark, DK• Finland, FI• France, FR• Germany, DE• Hungary, HU

• Italy, IT• The Netherlands, NL• Norway, NO• Slovenia, SL• Sweden, SE• UK, UK


Participating experts• REHVA group of experts

– Francis Allard, France– Michael Schmidt, Germany– Derrick Braham, UK– Livio Mazarella, Italy– Ioan Dobosi, Romania– Jean Lebrun, Thierry van Steenberghe, Guillaume Goeders, Belgium– Vincenc Butala, Slovenia and EPBD CA– Zoltan Magyar, Hungary and EPBD CA– Olli Seppänen, REHVA, co-ordinator

• Invited experts– Johnny Andersson, Sweden– Kirsten Engelund Thomsen, Denmark – Jaap Hogeling, the Netherlands– Peter Schild, NorwayIn collecting the information the experts are supplied information for this study but this summary is notapproved by any of them, and may contain individual but unintentional mistakes. The interpretationsare solely on the responsibility to the authors of this summary.


Situation in member countries• Very lively activities in all countries on regulatory

and professional levels• Regulations revised in 2-3 year intervals

according to a published plan• No time for feedback from previous to next step –

this is considered to be a problem• Published revision will also explain what can be

expected in the next revision (UK, DE, NO)• Extremely wide variety in the contents of

regulations– What is regulated?– How is regulated?– How is controlled?


Status of energy efficiency regulations in some MS (1)

DK: - very advanced- generally acknowledged as a model country

NO: - not EU country but very advanced- realistic regulations

DE: - very active and advanced - ahead in RES and renovations- a model for central European countries - protective with DIN pre-standards

FR: - very active - innovative solutions


SL: - an example for small and Eastern countries - active and innovative

IT: - active- very complicated due to regional administration and policy

NL: - cost conscious

- leading in CEN calculation procedures and in many other areas of standardisation

FI: - advanced in thermal insulation, indoor climate and ventilation

- very conservative and slow, do not follow the front line

Status of energy efficiency regulations in some MS (2)


How CEN standards are used(41 EPBD related standards)

• In principle, solutions based on CEN standards are accepted in all counties

• But in practice, they are not accepted due to National barriers like

• Language• National input values are needed• Building inspectors

• CEN standards are not directly used as such as part of legislation in any country

• Methods described in CEN standards are adopted in national regulations like calculation of energy use EN 13790, but also EN 15251

• Some parts are taken from standards to regulations in some countries

• CEN standards will be revised – mandate from DG Energy any time during 2010


EPBD recastsee also specific ppt-summary

• Content agreements between the Commission, Parliament and Council on Nov 17 2009 during Swedish presidency (essential support)

• More stringent than EPBD 2002 version• More stringent than the original proposal

commissioned in 2008• Not so stringent, and more realistic than the

proposal by the Parliament in April 2009• Final text available in April 16, 2010 in all

languages• Many MS already preparing the legislation to

adopt recast EPBD


Major changes in EPBD (1)• Reference to CEN standards

• National cost optimised solutionsguidelines under preparation

• Primary energy target values have to be set in kWh/m2

• The 1000m² limit removed from articles dealing with renovation of existing and new building RES etc.

• Regulations for new buildings to apply in major renovations


Major changes in EPBD (2)• Specific regulations needed also for technical

systems – existing compulsory, new buildings optional

• All new buildings have to be “nearly zero energy buildings” in 2020 - the commission will define this in 2010

• Measures to overcome market barriers are requested

• Stronger and more meaningful position needed for energy certificates


Major changes in EPBD (3)• From boiler inspections to heating system

inspections

• In A/C inspections more emphasis is put on reducing cooling loads

• Independent controls system for all national inspections

• RES and EuP directives to be taken in account in EPBD regulations


Are the building codes applied to the renovations?

• All countries apply the new building regulations on renovations but in different ways

• Renovation is defined in different ways ( 25% rule is used but variations in definition)

• Most stringent requirements are

• Germany If more than 15 m² floor area or 10 % of wall area renovated -> all requirements for

renovation apply; if more than 50 m² floor area renovated -> all requirements for new buildings apply

• Denmark DK: if more than 25% thermal envelope renovated-> all cost-effective requirements

are to be fulfilled DK: if more than 25% of the value of the building renovated-> all cost-effective

requirements are to be fulfilled• UK

all regulation for new buildings apply when the cost of renovation is more than 25% of the cost of similar new building construction

Definition of renovation is inconsistent and weak in most countries


Primary energy factors

• Most of the countries use primary energy in definition of energy efficiency in [kWh/m²,a], in Italy [kWh/m³,a]

• Only UK and RO use CO2 emission per m² as the criteria but even in UK the pressure is towards primary energy

• Primary energy factors vary significantly between countries, however, quite common is to have primary energy factor = 1 for all fuels and 2,5 for electricity

(see detailed table in separate report)


Which energy flows are controlled?

• All countries include in the regulated energy:• Heating, • Domestic hot water,• Ventilation and infiltration

• Cooling & Air-conditioning is included with some exceptions • Electricity for building HVAC (fans, pumps) is typically included • In FR auxiliary energy includes pumps, fans and humidity control• Electricity for building level lighting is included with some

exceptions • Tenant HVAC energy not included in any country, except NO• Electricity for tenant/occupant lighting is not included, except FR• Electricity for other use- not included in any country• Other use of electricity (outlets, kitchen etc) - not included in any

country


Renewable energies(see notes section )

• Most countries have a quota for RES to achieve the goals of the RES directive, some examples:

• DE (15 - 50% depending on RES source and building type)

• NO (40%) – calculated from heat demand• SL (min 20-25% up to 70%) decision in June 2010• UK (10%)• IT min 50% of the energy used for DHW

• DK In BR10 there will be demand for thermal solar if DHW consumption exceed more than 20 m³/day

• NL gives credits for the RES use

• At the same time other countries are investigating the issue (BE, HU)


Reference buildingsReference building approach is commonly used but

in different purposes– In SE an alternative approach only for <100m2 buildings– NO: the alternate way to show the compliance– In DK applied only in renovations– DE: used to calculate EP values

• Reference building is defined in building regulations, and the energy use in design intent cannot be higher

• Almost all countries define for example the U-values for reference building, and maximum U-values ( see the separate tables)

• Technical solutions for reference buildings are country dependent -> national EP values cannot be compared


Calculation procedure

• Commonly based on simple CEN procedure• Only national methods accepted• Typically several programmes available –

based on same “engine”• Dynamic simulation allowed in some

countries DE, IT, NO, NL – verification needed • Methods revised almost annually to include

new, innovative systems


U-values(see also the separate summary of U-values)

• More emphasis on regulations by EP –values (kWh/m2) DK, SE• Target U-values are still given in all countries - some MS give

different U-values for residential and non-residential buildings, and by building type

• Most countries give also the max U-values for compensation calculations

• Average U-value used for houses in DE• Specific, tighter requirements for electrically heated houses (SE)• Allowance to log constructions (NO, FI)• Max total transmission loss in W/m2 is given in some countries (IT,

DK, SL) buildings also depending on wall or heating system type – see notes

• Max specific conductance given in HU in W/m3,K• U-values depend on climate in some countries – IT, ES, FR (also

altitude)• Average U-value depends on V/A ratio only IT) - was also in DE but

not any more • V/A ratio reflected also in the building type


Air tightness of building envelope• Tight building envelop in necessary in Nearly zero energy

buildings• Almost all countries have now numeric values for building air

tightness with some exceptions (HU, RO)• Both ach and m3/h per m2-evelope area are used• The trend is to tighten the requirements step by step • Most countries specify also the control methods but in practice

poorly controlled

Simple control/measuring methods should be developedIn European level danger of inadequate ventilation –see also the

ventilation slides


Thermal bridges• Thermal bridge are getting more and more important with

improving thermal envelope of building. The trend in many countries is out of table-value estimation towards more sophisticated methods

• Calculation of the effect of thermal bridges is an underdeveloped area and something should be developed.

• They will be more important in the future with nearly zero energy buildings.

• A problems have been ig the location of window in a thick wall. Flush with exterior wall (best in thermal sense) or interior wall (may be more practical for user)

• Only a few countries include thermal bridges also in cooling load calculations


Thermal conductivity of insulation materials used when calculating U-values

• The expert group draws the conclusion that this is not an issue and is solved by current standards

• Practical values are used is calculations. They take in the account the moisture, installation etc.

• However, there are cases with composite structures and materials that significantly complicate calculations.


Summer comfort and air-conditioning• Due to energy use and power demand of A/C this

is an issue in all MS• All countries limit the load qualitatively or

quantitative i.g. 30 W/m² (UK)• In all countries the summer temperatures have to

be calculated, consequences may differ if limits are exceeded: Fictive use of energy for A/C added to EP Re-design of building until criteria are met

• A/C is not as much used in Central European new buildings than in Finland : Natural ventilation and window ventilation are more used

• New DE/VDI guidelines in 2010 will lead to an increase of A/C due to more stringent IAQ requirements


Windows• All countries limit the U-value of

windows, some have different values for glass and window with frame

• Widow area is typically not limited (No considering)

• Solar protection is required but only some countries give max g-values for windows

• Some countries require openable windows or possibility to window ventilation


Indoor temperatures• Legally binding temperature limits originate from other

legislation than energy• Design values are rather homogenous among countries• Winter: 19°C -21°C• Summer: 24°C -26°C (except 28°C in UK)• CEN standards 15251 is becoming more and more used

– Adaptive approach is getting accepted and used in evaluation of the thermal performance of buildings in summertime

– Some counties (NO, UK) have adopted the CEN 15251 principles of IAQ classes and number of hours the temperature can be exceeded


Heat generation• Minimum requirements for the efficiency

of boilers and other heat generators are given in most countries (but not all) and in different ways like: nominal, part load, annual, also reference to CEN standards

• Requirements also given for the boiler type (like condensing) and heat pump COP

• Boiler replacement required but the criteria varies when to be replaced Chimney sweepers has taken this market in many counties with

minimum expertise


Heating system• Design temperatures are given in general

• Balancing of central system required in most countries

• Central automatic control required

• Room level control required in most countries (DE, DK, UK, FR, SL, SE advised)

• Low pressure loss requirements of hydraulic system: Not at the moment in any country, but under consideration in DE, SL, UK

• Pumps; no requirements in general excepted for DK and DE

• Pump electricity included in the reference building calculations in most countries

• Heat generator and heating load to be balanced and load factor included –requirement only in DE


Heat metering

• Metering of heating energy use is getting more common in apartment buildings

• Compulsory in Germany: allocation of cost 30-50% fixed, rest by measured use

• Generally 15% reduction in energy use just by metering system

• Electronic remote readable systems more and more used • DK: heat metering is required by law• SL: all radiators has to be metered from 2012• IT: system available but not used –meters destroyed in social

housing• NO, NL: not required, but is used in some apartments• UK: not used


DHW water use• DHW is getting more important in the total

energy use of residential building• For energy use estimation the table values are

used either in kWh/m² or kWh/per tenant UK: decentralized 5 and in central system 15 kWh/m²

• None of the countries calculates/estimates the water or energy use based on type of faucets or equipment


DHW systems• Temperature requirements 45°C - 60°C,

Boosting once a week UK, DE, NL, HU, FR, SL,DK, BE to 65°C for controlling Legionella

55 °C min requirement in FI, SE (in all parts of the system)

• Circulation of water in central DHW system is not usually required but allowed

• Central Europe uses much more decentralized systems for DHW with gas or electricity, than Scandinavia

• Performance quality of decentralised systems is often low: Long waiting times for hot water Varying hot water temperature Low capacity of the system

• In Central Europe, it is much more common to have faucets only for cold water in comparison with Scandinavian countries

• Heat recovery from sewage water: not required but in NL heatrecovery from shower water is allowed and rewarded in EP calculations


Insulation of HVAC systems

• Pipe insulation of heating system in most countries but not all, numeric values are given

• More variation in pipe insulation of DHW system Not required: UK, FR, HU,NO, NL Required: DE, IT, SL , FI, DK, SE

• Even more variation and less requirements for insulation storage tanks and valves

• Insulation of valves required in DE, UK, DK, SE (VVS AMA)


Residential ventilation ratesDefinition of ventilation rates varies widely between countries: In this area Finland is one of the most advanced country

For example:DE: does not have any regulations regarding residential buildings andIT : does not have any ventilation regulations at all, except for

hospitalsSome examples of how ventilation rates are specified:

NO: Min 0,5 air changes and 7 ℓ/s per person in bedrooms SL: Min 0,6 ach during occupied period and 0,2 ach as a basic level 24h/d DK: each habitable room as well as the dwelling as a whole must have

fresh air supply of no less than 0.35 l/s/m². NL: for new buildings : Residential 0.9 l/s/m² usable space, for existing

buildings 0,7 l/s/m² UK: 0,3 l/sm² SE: “necessary OA air flow” but :

• min 0.35 l/s,m2 OA if occupied;• min 0,10 l/s,m2 OA) if not.


Residential ventilation: System requirements in mechanical supply and exhaust systems

• Heat recovery System level requirements, DE (if used), FIN (45%)

*** low Finnish %-is not understood abroad – the system efficiency is not understood in Central Europe***

Equipment level requirements SL: nom temperature efficiency 65/75% NO: seasonal efficiency 70% all dwellings (or equivalent, as heat recovery not

explicitly required) NL: practice: temp efficiency 90%, DC motor DK: 65% UK: in 2010 regs

• Fan energy Min efficiency requirement given in FR SFP used in DE, SL, FI, NO, FR(reference system)

• Insulation of ducts required in FI, SL, DE, DK

• Air tightness of ducts and system FI, DE, UK,SL, SE, DK,


Non-residential ventilation ratesAir flow requirements are typically based on occupancy:

FR: min 10 L/s (non smoking or specific pollution) UK: 8 - 10 [L/s.occ] (2006 - 2010)

3, 5, 8 [L/s.occ] (Schools)

SL: 4 [L/s.per] + air pollution based flow (olf/decipol), butMin 0,2 ach in all building from 2003

HU: 4-10 [L/s.occ] NO: 7 [L/s.pers.] + min 0.7 [L/s.m²] for emissions, with minimum

approx 0.7 [L/s.m²] at night etc.

EN 15251 Used but not mandatory in DE, HU, NO and FR

Some remarks Working spaces have more stringent requirements, even schools or teachers,

offices etc DE -SL: no mechanical ventilation in schools IT: Ventilation requirements only for hospitals


Non-residential ventilation: System requirements in mechanical supply and exhaust systems

• Heat recovery System level requirements (FI) Equipment level requirements (other countries)

Definitions are being developed for i.g.: NO: seasonal efficiency 80% except for hospitals/nursing homes (70%), from 2010

• Fan energy SFP- all countries

• DCV Allowed but no requirements CO2 – based control more often used

• Insulation of ducts required in all countries

• Air tightness of ducts and air handling system required in FI, DE, DK, SE should be also UK, FR (expert opinion) Control by random measurement UK, FR, DE, SE, NO, DK


Calculation of energy use• Required by building codes - all countries

• Required for building permit - all countries but

calculation can be avoided if building complieswith a prescriptive checklist of measures (ig NO)

• Required for energy certificate in all countries

• For all buildings - all Exempted are the buildings listed in EPBD

The expert group concluded that temporarily occupied buildings should not be excluded


Energy flows included in the calculation process and calculated separately

• Ventilation, Heating, DHW are included in all countries

• Cooling/air conditioning – typically but break down may differ from country to country

• HVAC Electricity (can be part of those above)• Lighting: FR, DE, DK, NL, NO, UK 2010 (but not in

residential)• Facility/building electricity most of the countries

but not in FR, HU, SL• Household electricity not usually but estimated

in UK, NO• Humidity control – not in any of the countries but

should


Innovative systems• Innovative system = equipment or system

that may have an excellent energy performance but is not yet in national calc. process

• The purpose of EBPD is not to limit innovations

• But if only the traditional technologies are included in calc. procedure → limitation

• Each MS has to have a procedure how to show the performance of a new system

• Cal procedures has to be revised frequently• …or a process has to be established to

handle new innovations


Process for innovative systems• Certified bodies are slow and expensive• Accredited institutes can be used• Specific processes and equipment needed• National approvals vs. local approvals• Open register should be established • Danish light system is preferred to heavy

process in Belgium• For reference calculations input values

have to be standardized – hopefully on a pan-European level


New/unusual/innovative systems that are not yet included in “official”calculation process (1)

exceptions identified• Night time ventilative cooling –DK, FR• Ground source cooling – DK, FR• Air quality or demand based ventilation - DK • Demand controlled lighting -DK• Ventilation effectiveness• Thermal bridges for cooling season- DK• Double skin facades• Water loop heat pumps for simultaneous heating and cooling• Phase change materials• Aquifer cooling and heating • Evaporative and desiccant cooling• Waste water heat recovery


Standard operation schedules are not available but are needed for:• Ventilation schedule• In DCV ventilation: the control values for concentrations • Occupancy schedules in various buildings• Window opening pattern• Solar shading, threshold values for radiation and

lighting, requirements for daylight factors• Domestic water use pattern• Use of household and kitchen equipment and their use

including Sauna• Revised weather data for innovative systems like

desiccant cooling


Subsidies (1)(see a specific report how the subsidies an punishments are applied in some countries)

Direct Funding of Energy Repairs as part Governmental action plans From investment Dependent on energy efficiency Controlled afterwards

Direct Subsidies on Sustainable energy technology Heat Pumps, Micro CHP, Thermal solar collectors, PV…

Financial help for low-income households

Personal Tax deduction related to domestic employment of service provider

Lower VAT on labour costs and/or Materials Government adopt lower VAT rates on materials and services in the

(sustainable) energy sector (insulation, heating system, solar thermal system)

Green loans / Soft Loans Banks and/or national organisms grant loans with advantageous interest

rates to finance sustainable energy or energy repairs projects.


Subsidies (2)Rent Indexation Measures against split incentives

The owner that retrofits and increases the energy efficiency of his estate does often notbenefit from the situation while the renter benefits of a lower energy bill. Therefore, insome countries or regions, the maximum rent an owner is allowed to ask for a housewill be coupled to the energy label.

“Feed-in” Tariffs In some countries, the electricity providing companies buy the energy surplus that

comes from renewable sources with an attractive kWh price. Households or industriesthat “over-produce” energy can inject this surplus

Third Party Financing Third Party financers for energy projects are referred to as “Energy Service

Companies,” or ESCOs. ESCOs are businesses that design, build, install, finance, andmaintain projects designed to provide energy through energy generation and/ orreduced demands.

Intracting intracting involves a city or community that reserves special funds for the energy

improvement of buildings. This fund is spent as a investment and paid back by theenergy savings. This return on investment is then again injected in the next energyefficient renovation.

Taxes on CO2 emissions Such taxes are not incentives but hindrances that influence the behavior of some

industries at a national level as well as a more regional one in some countries.Moreover, the revenues that this taxation brings as well as the revenues from emissiontrading are often re-injected in green energy plans.


Example 1: Punishments and administrative fees - Belgium

Walloon region (Belgium): • Thermal insulation: 60€ per W/K difference between the observed and

the threshold value of thermal conductance with code U-values• Global Energy Performance: 0.24€ per MJ difference between the

observed global energy performance and its legal threshold.• Overheat: 0.48€ per 1000 Khm³ difference.• Ventilation: 4€ per 1m³/h difference from the ventilation equipment

capability.• The fee amount goes from minimum 250€ to maximum 50 000 €• If in the next 3 years following the sanction decision a new infringement

is detected and charged to the same contravening, the fee amount is doubled (but can't reach more than 50.000€)


Examle 2: Subsidies in Germay 2010• Benefit for energy consulting• Benefit for energy efficient renovation• Credit with special conditions for energy efficient renovation and new

buildings• Benefit for CO2 reduction arrangements• Benefits for renewable energy systems:

– Solar thermal systems for domenstic hot water, ore and heating– Heat pumps– Wood heating systems– Especial in schools and churches– Combined heat and power generation plant (CHP) and micro CHP

• Compensation for electricity fed into the grid• Benefit for local heat distributions for renewable energys• Credit with special conditions for big thermal solar plants, big biomass

heating systems, local heating distributions, deep geothermal energy• Benefit for renovation or new cooling systems (more than 100,000 kWh/a)


Lombardia region (Italia)

Example 3: Punishments and administrative fees examples in Italy –Lombardia (1)

Certifier who produce a certificate not complying to the standard:

Fine from € 500,00 to € 2.000,00

If the certificate assesses an energy class higher than the real one

Additional Fine of 10 €/m2 di Susefull and the certificate has to be redone

If the designer releases a false technical report

Fine from € 2.000,00 to € 10.000,00

The fine is increased of 50% if through such T.R. it was possible to get subsidies or others facilities otherwise not possible




Work director who realizes the construction not as described in technical report

Fine from € 5.000,00 to € 15.000,00

Owner, who accepts as the work director has done, if the real energy performance is lower of what described in the technical report

Double the fine and has to adequate the building to the Community requirements.

Who does not provide the energy certificate when selling the building / flat

Fine fron € 5.000,00 to € 20.000,00




Who rents a flat and does not provide a copy of the energy certificate

Fine from € 2.500,00 to € 10.000,00

An Energy Service Company which does not provide the energy certificate after 6 month form the contact signature

Fine form € 500,00 to € 2.000,00

If a designer, the work director or the certifier has got a fine he will be denounced to his professional association.

The certifier cannot do any certificate for 6 month.

The second time he is getting a fine, he will be deleted from the register for 2 years, after which he has to follow an qualification course.

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Benchmarking Regulations on Energy Efficiency of Buildings

Government & Nonprofit