Implementation of the EPBD in The Netherlands
Status in November 2010
Nienke Betlem
1 > Introduction
Ministry of the Interior
and Kingdom Relations
Hans van Eck
Raymond Beuken
Marjolein Heinemans
Leanne van Diggelen
NL Agency
The Netherlands
The implementation of the EPBD in The Netherlands has reached an almost full
grown status. The date of implementation of the Directive as to the Energy
Performance Certificate was January 1st 2008. For social housing companies this was
one year later on the provision of certification of their complete building stock. The
permanent certification for public buildings was mandatory as of January 1 st 2009.
In 2009, a revision of the Energy Performance Certification scheme started that led
to improvements ranging from training and examination of assessors, to an updated
methodology and software, to a new lay-out of the Energy Performance Certificate,
and to a newly adopted quality assurance scheme, as of January 1 st 2010.
For the implementation of the inspection of heating systems a voluntary scheme,
according to ‘option B’, was adopted. Option B consists of non-mandatory tools and
information campaigns and partly of existing Environmental law.
The inspection of air-conditioning systems is fully implemented in The Netherlands.
Currently, the inspection of air-conditioning systems is dispersed amongst different
parts of national law. Therefore, an improvement will be made to aggregate the
inspection of air conditioning systems completely into Environmental law by July 1 st
2011, also largely taking into account the provisions following the Recast of the
EPBD.
This report presents an overview of the current status of implementation in The
Netherlands. It addresses certification and inspection systems, quality control
mechanisms, training of qualified assessors, information campaigns, incentives and
subsidies.
National websites:
› www.minbzk.nl
› www.rijksoverheid.nl
/onderwerpen/energi
elabel-woning
› www.agentschapnl.nl
›
www.energielabelgeb
ouw.nl
2 > Certification
Certification of buildings
In The Netherlands the implementation of the EPBD is the overall responsibility of
the Ministry of the Interior and Kingdom Relations. NL Agency, the Dutch energy
agency is the executive body for the implementation process.
In December 2006 the ‘Decree on Energy Performance of Buildings’ (BEG) as well as
 on
B Energy Performance of Buildings’ (REG) were legally
the ‘Regulation
B Netherlands. This enabled The Netherlands to develop an
implemented in The
R
I
(
d
1
Energy Performance Certificate for existing buildings that first came into force on
January 1st 2008. The certification of new buildings was already integrated into
Dutch law by as early as 1995.
For each existing building or building unit, e.g., an apartment, an Energy-Index is
calculated according to a fixed methodology. An energy certificate class is then
assigned based on the Energy-Index and building type. Certificates can only be
issued by qualified assessors. There are voluntary educations for assessors, but
examination by a national board is mandatory. The list of qualified assessors is
permanently updated and always available online for the public at the website of
KBI, the Dutch quality assurance association (www.kbi.nl).
The energy performance certificate
Figure 1 – Cover page of the EPC for residential buildings
The Energy Performance Certificate is the most visible aspect of the EPBD. This
document assigns an energy performance rating to residential and non-residential
buildings including building units and it lists individually tailored cost-effective
measures for improving their energy performance.
The Energy Performance Certificate consists of 3 pages. On the first page, the
energy certificate class of the building is indicated. The classes range from A (many
energy saving measures taken) to G (many energy saving measures possible). The
energy certificate class is determined by the calculated Energy-Index that can be
found on page three of the Energy Performance Certificate. On the front page,
furthermore, the standardised annual primary energy use in MJ is displayed
including a sub-division into electricity (kWh), gas (m3) and heat (GJ). The Energy
Performance Certificate for non-residential buildings also displays the annual CO 2
emission. The first page also mentions the building type for which the energy
certificate is issued, the assessor of the certificate and the date until when the
certificate is valid (with a maximum of 10 years).
The energy saving measures that are advised for a specific building are described on
page 2 of the certificate. As shown in Fig. 2, suggested improvements include a
short general description for each energy-saving measure. Page 3 gives a description
on how the Energy-Index is calculated, according to a standardised methodology.
2
Figure 2 – page 2: Recommendations to improve the energy performance, page 3:
Description on how the Energy Index is calculated.
Residential
Non-residential
600000
2.400
500000
2.000
400000
1.600
300000
1.200
200000
800
100000
400
0
Certificates non-residential
buildings
(Only in Dutch)
Certification of existing residential and non-residential buildings started January 1 st
2008, when a building or building unit is sold or rented out. The owner must present
a valid Energy Performance Certificate at the moment of transaction. This involves
a qualified assessor to visit the property and assess the building in terms of the type
and quality of constructions and installations. The qualified assessor will then
calculate the Energy-Index with an accredited software and issue the Energy
Performance Certificate (Figure 1). This is done by sending an automated report to
the central database that is hosted by NL Agency which returns a unique number for
each certificate that can then be printed.
Certificates residential buildings
For more information on
accredited software
please visit
http://www.kbi.nl/zoek
-een-certificaathouder/
-
A++
A+
A
B
C
D
E
F
G
Energy label class (-)
Figure 3 – Number of Energy Performance Certificates issued
Up to and including September 2010 (Figure 3), in The Netherlands 1,726,631 Energy
Performance Certificates for residential buildings were issued (approx. 25% of the
total residential building stock) and 8,207 for non-residential buildings, covering
24.5 million m2 surface area.
New buildings
The existing Energy Performance Certificate applies to existing building and building
units, both residential and non-residential, including public buildings. For new
buildings, The Netherlands has had a methodology since 1995. The so-called Energy
Performance Standard (EPN) sets requirements for the energy efficiency of new
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buildings and major renovations of existing buildings. This is expressed in an Energy
Performance Coefficient. This coefficient is a dimensionless number to indicate the
energy efficiency of a new building. The EPN sets an integral requirement for the
whole building.
Year
1995
1998
2000
2006
2011
2015
2020
EPN – energy
performance
coefficient
1.4
1.2
1.0
0.8
0.6
0.4
Zero energy
Development of the EPN
(EPC number)
requirement for new
residential buildings
A general description of
the methodology for new
buildings can be found on
www.agentschapnl.nl/ep
n
2
1,8
1,6
1,4
1,2
1
0,8
0,6
0,4
0,2
0
40% reduction
EPC
R esid en tial
EPC
N o n R esid en tial
1995
2000
2006
2011
Figure 4 – Development of the Energy Performance Standard in the Netherlands
Dutch building legislation sets minimum requirement for building components. Each
couple of years both sets of requirements are evaluated and if necessary adjusted
(see figure 4). Dutch policy for new buildings hereby already fully incorporates all
requirements following from the EPBD Recast towards nearly zero-energy buildings
in 2020. See also the table next to the text.
(only available in Dutch).
Figure 5 – Example of software for calculation cost effectiveness of EPN
The government decided to leave the solutions to achieve the EPN to the builders
and/or architects. The builders can choose their own package of measures to meet
the requirements. Important is the focus on the total energy performance of the
building and not on stand-alone solutions. The same methodology applies to major
renovations (new building envelope, HVAC and lighting) of existing buildings.
With regards to Public Buildings, The Netherlands has incorporated in national law
the requirement that the owner of a building with a total useful floor area of more
than 1.000 m2 occupied by public authorities and by institutions providing public
services to a large number of persons and therefore frequently visited by these
persons must place an Energy Performance Certificate in a prominent place clearly
visible to the public.
The calculation methodology
The calculation method for existing buildings is based on Energy Performance
Advice (EPA) methodology. For existing buildings, the existing voluntary EPA
methodology was simplified and enhanced and made mandatory for the calculation
of an Energy Performance Certificate by publishing a Building Decree in 2006.
4
The methodology calculates the total annual primary energy use of a building for
the components heating, hot water, ventilation and lighting (including renewable
energy). Cooling is only considered for non-residential buildings. Each calculation is
performed under average annual climate conditions, average number of occupants
and occupant behavior. This method is currently being adapted to meet CEN
standards.
It is expected that, during 2011, a new calculation methodology will be adopted in
The Netherlands, the so-called Energy Performance of Buildings (EPG), combining a
methodology for new and existing buildings, residential and non-residential
buildings, into one package, taking into account existing CEN standards as much as
possible. It is likely that this methodology will first be adapted to replace the
current EPN methodology for new buildings.
As of the effectuation of the EPBD Recast starting from 2013, the new EPG
methodology will be adapted for new and existing buildings, residential and nonresidential buildings as the methodology to determine the Energy Performance
Certificate.
Quality assurance (QA)
Through the Decree (BEG) and Regulation (REG) on the energy performance of
buildings that were published in 2006, a quality assurance scheme was appointed.
The quality assurance system is built on a national quality standard for energy
consultants and qualified auditors: BRL9500 for quality assurance on the
certification of buildings by qualified assessors and BRL9501 for quality assurance on
accredited software. The methodology for non-residential buildings was published
as ISSO 75 publication and the methodology for residential buildings was published
as ISSO 82 publication. ISSO 54 publication covers the accreditation of software.
Figure 6 – Legal context energy certification
In order to issue an Energy Performance Certificate, the qualified assessor has to
use accredited software. This software is developed by commercial companies but
tested and accredited according to a software assessment guideline, BRL9501. All
commercial software products communicate the same defined XML file to the
central database which is operated by NL Agency. Only when an Energy Performance
Certificate is composed by a qualified assessor and calculated with accredited
software, can it be sent to the central database. And only under these
circumstances a unique number is issued for the Energy Performance Certificate.
Without this number the Energy Performance Certificate is not valid. When working
under the BRL9500 guideline a qualified assessor is regularly checked by a
certification institute which includes a full review of a certain number of Energy
Performance Certificates issued. Such an audit involves checking all the supporting
documentation prepared and used by the assessor (e.g. projects, drawings, reports,
photos, etc.) and identification of eventual differences and mistakes incurred.
Penalties may be applied when relevant faults occur. Penalties can include loss of
licence.
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3 > Inspections - Status of implementation
Inspection of boilers
For more information on
the “verwarmingswijzer”
please visit
www.verwarmingswijzer.nl
(only in Dutch)
The system that The Netherlands has adopted will lead, with regard to the
inspection provisions as laid down in the directive, to the intended result based on
a voluntary inspection scheme and legislation, which is in accordance with Article
8.b of the EPBD 2002/91/EG. This system consists of three main paths.
1. Domestic buildings with an individual boiler
In The Netherlands small boilers (typically 15-35 kW) are inspected and maintained
every year or every two years, depending on the type, size and age of the boiler.
This is typically done by installation companies that provide various levels of service
contracts, mainly to housing corporations, but to individual home owners as well.
To stimulate the replacement of older boilers by a new energy efficient condensing
boiler, a tool has been developed for consumers, the so-called ‘verwarmingswijzer’.
The tool gives consumers insight, based on the current installation and the current
gas use, if a new and energy efficient heating system is economically viable.
2. Boilers larger than 100 kW
With regard to large boilers (> 100 kW), the Netherlands complies with current
legislation in Environmental legislation. This means a mandatory regular inspection
of the boiler according to a specified scheme. For gas-fired boilers, this requires an
inspection at least once every 4 years. For non gas-fired boilers, the prescribed
inspection frequency is at least once every 2 years .
The inspection focusses on safe functioning, optimum combustion control and
energy efficiency of the boiler. The inspection furthermore includes inspecting the
set-up of the combustion system, the system for fuel supply and the exhaustion of
combustion gases. When an inspection shows that the heating or combustion plant
needs maintenance, this should be done within two weeks of the original
inspection. The owner must keep the last inspection report issued as well as the
records of any maintenance job.
For more information on
the “Installatie
Performance Scan” please
visit
www.installatieperformanc
escan.nl
(only in Dutch)
3. Inspection based advice on the heating system
For non-residential buildings and residential buildings with a collective boiler a tool
has been developed to advice the owner and/or user of the building on possible
measures to make the installation more energy efficient. With this tool, the
‘Installatie Performance Scan’, the installer or advisor scans the existing
installation of the building, heating as well as cooling, on energy efficiency. The
tool is unique because it provides an integral check on the generation, controls,
distribution etc. Altering the installations on the basis of the scan can lead to
reduction of energy use and reduction on the chance of breakdown of the
installation and higher comfort levels in the building.
Furthermore, for large heating systems in non-residential buildings a new law
(‘BEMS’) was published in April 2010 that sets requirements for emission standards in
new installations with an output ranging between 1 and 50 MW. This emission
standards law prescribes inspection duty and if need be a maintenance obligation as
follow up.
6
Inspection of air-conditioning systems
The article on the inspection of air-conditioning systems is implemented in The
Netherlands, but this requirement is dispersed amongst different parts of national
law. Therefore, an improvement will be made to aggregate the inspection of airconditioning systems into one law by mid 2011. The inspection of air-conditioning
systems will then be adapted and combined to the inspection on CFC-regulation.
4 > Qualified Assessors
The assessors who may issue an Energy Performance Certificate have to meet
certain minimum qualifications, including the ability to assess the quality and
condition of materials, building envelope and installations present in a building. The
training of assessors is the first (voluntary) stage to guarantee high level quality
Energy Performance Certificates. The second stage is a mandatory national exam
that each individual assessor needs to pass. When the assessor has passed the exam,
he/she will receive a NL-EPBD process certificate which enables him/her to issue
Energy Performance Certificates in accordance with the BRL9500 assessment
guideline (see also the paragraph on Quality Assurance and figure 6).
Residential
Nonresidential
Individuals
1.578
231
Companies
226
119
Number of qualified persons
and companies to issue EPCs
Figure 7 – Qualified assessor professional license
By mid September 2010, about 1,800 individual assessors were qualified in The
Netherlands to issue Energy Performance Certificates, divided over the residential
sector (1,578 individuals) and non-residential sector (231 individuals), see also the
table on the left.
Assessors of (large) boiler inspections have to meet certain qualifications as well.
These qualifications are set out in a quality assurance scheme which includes a
mandatory examination. These assessors need to prove their ability to perform
maintenance and inspections on combustion systems.
5 > National Information and Communication Campaigns
Public awareness concerning the EPBD, and in particular the Energy Performance
Certificate, in The Netherlands is the main responsibility of the Ministry of the
Interior and Kingdom Relations. At the end of 2007, before the launch of the Energy
Performance Certificate, the first national information campaign aired in The
Netherlands. This campaign was repeated in the spring of 2008. The campaign
focused on home-owners and consumers and informed the public on the Energy
Performance Certificate with the slogan: “An energy efficient house? Through the
Energy Performance Certificate you will know!”. The campaign consisted of short
commercials on radio and television, items in housing programs, advertisements in
national newspapers and a campaign site with guidelines to inform the broad public
about the conditions under which an Energy Performance Certificate is required.
7
In 2009/2010 a more general campaign ran to raise public awareness on the topic of
energy saving in the build environment.
Specific information for professionals is issued by NL Agency. NL Agency’s website
www.energielabelgebouw.nl (only in Dutch) provides detailed information about
the EPBD and in particular the Energy Performance Certificate for professionals in
the building sector: qualified assessors, commercial building owners and managers,
installers and builders, real estate agents, notaries, municipalities and mortgage
lenders.
6 > National incentives and subsidies
‘More With Less’ (Meer Met Minder)
‘More with less’ is a Dutch energy saving programme for existing buildings. It is an
agreement between the Ministry of the Interior and Kingdom Relations, the Ministry
of Economic Affairs, Agriculture and Innovation and private partners and
organisations including utilities, installation sector, building constructors and social
housing corporations. The goal of the programme is to create a substantial market
for energy savings interventions to stimulate private and public home owners to
make their buildings more energy efficient at low monthly costs. The Energy
Performance Certificate plays a vital role in ‘Meer Met Minder’, as it is used to
measure energy improvement of buildings in order to fulfil the goals set in the
agreement.
For more information
please visit
www.meermetminder.nl
(only in Dutch)
‘Meer Met Minder’ started in 2008. By the end of 2010, the implementing
organisation is fully up and running and the initial target of improving the energy
quality of 10,000 buildings has been met. Through the whole of The Netherlands,
projects are running supported by installers, builders, housing corporations,
municipalities and others not only aimed at improving the energy efficiency of the
existing building stock, but also aimed at training the building workforce through
educational programs.
‘Energy subsidy guide’ (Energiesubsidiewijzer)
By the end of 2010, many subsidies and other incentives are available to Dutch
consumers and/or professional building owners, related to the Energy Performance
Certificate, improvement of the current installation and energy saving measures in
general. These subsidies include a grant of 200 € for a detailed Energy Performance
Advice, which often includes an Energy Performance Certificate, a subsidy of 350 €
or 750 € respectively when improving the energy performance of a dwelling in terms
of 2 or 3 energy classes, and a higher mortgage sum when buying a ‘green
certificate’ or ‘A class’ dwelling, bank guarantees for loans meant for energy saving
measures, lower VAT rate for insulation of roof, wall and floor, incentive scheme
for sustainable energy production and a subsidy scheme for sustainable heating.
For more information
please visit
www.energiesubsidie
wijzer.nl
(only in Dutch)
A current overview of subsidies and incentives is available online through a subsidy
tool that was developed by NL Agency for consumers and professionals, the
‘Energiesubsidiewijzer’. This internet tool gives an overview of financial
instruments (such as subsidies, loans etc.) to stimulate energy saving measures in
The Netherlands. The user of the tool can select his/her place of residence, select
the type of ‘user’ he/she is (e.g. home owner, tenant of professional building
owner) and, if desired, select a specific energy saving measure to get an overview
of
current
financial
instruments
for
their
specific
location.
The
‘Energiesubsidiewijzer’ contains subsidies, loans and other financial instruments on
a national, regional and local level. The tool can help professional parties to
communicate with consumers on the financial possibilities of energy saving
measures.
8
‘Energy Scout’ (Energiebesparingsverkenner)
For more information
please visit
www.energiebesparingsv
erkenner.nl (only in
Dutch).
This is an interactive tool on the internet that gives insight into the possibilities of
energy saving measures in existing houses and financial consequences. The tool
gives information on the energy expenses and what the effect of energy saving
measures is. Information is given on the expected improvement of the building
energy performance, in terms of energy certificate classes, after taking measures,
what the costs of the measures are and what the return of investment will be. This
very useful instrument can be used by consumers organisations, housing
associations, municipalities, building contractors etcetera to advise consumers
professionally on the (financial) possibilities of energy saving.
A more consumer
friendly version is
available via
www.verbeteruwhuis.nl
(only in Dutch).
Information for
consumers can be found
on
www.milieucentraal.nl
(only in Dutch)
Building
function/
type
EPN – energy
performance
coefficient
Meeting
2.0
Detention
1.8
Health care,
with beds
2.6
Health care,
other
1.0
Office
1.1
Lodging
1.8
Educational
1.3
Sports
1.8
7 > Impact of the EPBD at national level
Both for residential and non-residential buildings, The Netherlands already had
minimum energy performance requirements in place since 1995. The Energy
Performance Standard (EPN) sets requirements for the energy efficiency of new
buildings and major renovations of existing buildings. This is expressed in an Energy
Performance Coefficient (EPC). The EPN sets an integrated requirement for the
whole building. Dutch building legislation further sets minimum requirement for
building components. Each couple of years both sets of requirements are evaluated
and if necessary adjusted.
For new non-residential buildings, integrated requirements for buildings were
introduced in 1995 and tightened in 2000, 2003, 2009 (see figure 4). Current levels
Shopping
2.6
are displayed in the table on the left for all nine buildings typologies in the nonresidential sector. Further adjustments towards zero-energy of nearly zero-energy
Overview of current EPN (new) buildings in 2020 are expected in 2017, with a 50% increase in energy
requirements for new
efficiency levels compared to current requirements.
non-residential buildings
9
For new residential buildings, a similar development has occurred since 1995 when
integrated building requirements were first published. These requirements were
tightened in 1998, 2000 and 2006 (see figure 4). Further adjustment from the
current requirement of 0.8 are expected in 2011 (25% efficiency increase to 0.6),
2015 (50% efficiency increase to 0.4) and 2020 (zero–energy or nearly zero-energy
new residential buildings).
Year
1980
1990
1995
2000
2007
2011
2015
Future
EPN – energy performance
coefficient
Natural gas use in m3
Obligatory insulation
1.4
1.0
0.8
0.6
0.4
Zero energy
3000
2000
1400
1000
800
600
400
0
Figure 8 – overview of natural gas use in a typical Dutch dwelling over the years
For existing buildings that are retrofitted, minimum requirements currently apply to
building envelope components. New developments are expected for retrofit
situations to set minimum performance requirements for installations, following the
implementation of the ECO-design guideline and EPBD Recast. Also future increases
of energy performance requirements for building envelope components are
expected following implementation of EPBD Recast.
8 > Conclusions and future planning
The Netherlands is well under way with the implementation of the EPBD and has
started preparations for the implementation of the EPBD Recast in 2010. The Energy
Performance Certificate for existing buildings was introduced in 2008, while new
buildings already had to comply with minimum energy performance requirements
since as early as 1995. Inspections of installations are largely based on existing laws,
with added instruments to facilitate voluntary inspections and successive
improvements. In 2011, existing dispersed inspections for air-conditioning systems
will be brought together into one law.
Future Dutch energy policy already has some major issues covered that play a role
in the EPBD Recast. Energy performance requirements for new buildings will be
steadily tightened to zero-energy or nearly zero-energy level from 2020. For
retrofitting existing buildings, requirements for building envelope components and
installations will be increased and/or introduced within one or two years. Studies
are currently under way to improve sanctioning and enforcement of EPBD in near
future, in accordance with the EPBD Recast. Also preparatory work started on items
like displaying the Energy Performance Certificate in public buildings with a useful
floor area of 500 m2 and in advertisements in commercial media. Concerted Action
EPBD will remain of great value to The Netherlands in upcoming years to share best
practices with other Member States and learn from each others experiences.
Useful links
›
›
›
›
›
›
›
›
›
›
www.minbzk.nl
www.rijksoverheid.nl/onderwerpen/energielabel-woning
www.agentschapnl.nl
www.energielabelgebouw.nl
www.energiebesparingsverkenner.nl
www.energiesubsidiewijzer.nl
www.meermetminder.nl
www.milieucentraal.nl
www.installatieperformancescan.nl
www.verwarmingswijzer.nl
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This report is funded by the Community’s
Intelligent Energy Europe programme
under the contract IEE/CA/07/333
The sole responsibility for the content of this publication lies with the authors. It does not
necessarily reflect the official opinion of the EACI, the European Commission or other
European Institutions. Neither the EACI, nor the European Commission nor any other
European Institutions are responsible for any use that may be made of the information
contained herein. The content is given for information purposes only and does not legally
bind any of the parties involved.
© European Union, 2011
More details on the IEE Programme can be found at
www.ec.europa.eu/intelligentenergy
This report can be downloaded from
www.epbd-ca.eu and also from www.buildup.eu
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