Audit on Public Administration
Energy Efficiency Program (Eco.AP)
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Eco.AP Program
The Eco.AP Program is part of the
National Energy Efficiency Action Plan
for (NEEAP) and also of the National
Energy Strategy 2020 (ENE 2020).
The Eco.AP aims to promote the
rational management of energy
consumption in public administration,
increasing energy efficiency by 20%
until 2020.
The program consists of a set of
measures to implement by public
services in the short, medium and
long-term, in public buildings and
equipments.
(Resolution of the Council of Ministers n.º
2/2011, from January 28th)
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Eco.AP Program
Main objectives:
❖ Reduction of energy bills of public services
and agencies;
❖ Reduction of the greenhouse gas emissions;
❖ Economic stimulus, by enabling a legal
framework for Energy Saving Companies
(ESCo’s) and public procurement of energy
efficiency services;
❖ Contribution to the achievement of the
objectives set out by the National Program
on Climate Change.
Coordination and Monitoring:
Ministry of Economy.
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Eco.AP Program
Audit question:
Fulfillment of the actions included in the
ECO.AP
program
with
performance
scheduled for the year audited.
Audit criteria:
Resolution of the Council
n.º 2/2011, from January 12th.
of
Ministers
Audit object:
❖ Achievement of the targets set in the ECO.AP
Program scheduled for the year audited;
❖ Actions developed for energy efficiency
measures implementation through energy
efficiency
services,
foreseen
to
be
implemented;
❖ A survey of the entities belonging to the
domain of Audit Department III* was also
carried out (70 entities)
* Departments and agencies in the areas of Agriculture, Sea, Environment, Spatial
Planning, and Economy.
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Eco.AP Program measures
Program measures:
❖ Appointment of a local energy manager,
within 90 days, by all departments and
agencies of the direct and indirect
state administration, public
enterprises, universities, corporate
public entities, public foundations,
public or private associations with a
majority of public capital.
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Eco.AP Program measures
❖ Obligation of each ministry to select, by the end
of the 1st half of 2011, the entities under its
authority with an higher energy consumption
(or inefficiency), in order to fulfill
energy performance contracts.
❖ Obligation of each ministry to implement, by the
end of 2013, energy efficiency measures in all
entities under its authority, through
energy performance contracts,
where it is deemed appropriate.
❖ Obligation of each ministry to order all entities or
services not covered by the above measure, to
adopt and implement an energy efficiency
action plan by the end of 2011.
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Eco.AP Program measures
❖ Creation of the Public Administration Energy
Efficiency Barometer, by the end of the 1st half
of 2011, aiming to compare and to publicly
disclose the energy performance of public
entities.
❖ Implementation, within 180 days, of a white
certificates trade system, providing for its
application to public authorities, to develop by
Directorate-General for Energy and Geology with
relevant stakeholders.
❖ Promotion of a program to increase energy
efficiency in street lighting.
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Audit findings
❖ Appointment of a local energy manager, within 90 days, by all departments and
agencies of the direct and indirect state administration, public enterprises,
universities, corporate public entities, public foundations, public or private
associations with a majority of public capital.
Ministry of Environment
Ministry of Economy
Most services (58%) appointed the
Manager on time and only one had no
appointed Manager.
Only 27% of the services appointed the Manager on
time, although most had appointed them in 2011, and 7
services had not appointed a Manager yet.
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Audit findings
❖ Appointment of a local energy manager, within 90 days, by all departments and
agencies of the direct and indirect state administration, public enterprises,
universities, corporate public entities, public foundations, public or private
associations with a majority of public capital.
It was observed that there was
lack of adequate professional
qualifications among many of the
designated Local Energy
Managers, and the planned
training courses had not started
yet.
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Audit findings
❖ Obligation of each ministry to select, by the end of the 1st half of 2011, the entities under
its authority with an higher energy consumption
(or inefficiency), in order to fulfill energy performance contracts.
The deadline for selecting entities "by the end of
2011” failed to fulfill, and by the time of the
completion of the audit, was not yet selected any
entity for the opening of a procurement
procedure for an energy performance contract
award, within the scope of the ECO.AP.
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Audit findings
❖ Obligation of each ministry to implement, by the end of 2013, energy efficiency
measures in all entities under its authority, through energy performance contracts,
where it is deemed appropriate.
In January 2013 the legal framework for energy savings performance contracts was ready:
Decree-Law n.º 29/2011,
from January 28th
❖ Developed the legal framework for energy performance
contracts in the public sector.
Normative Order n.º 15/2012,
from June 26th
❖ Created the ESCo’s pre-qualification system.
Ordinance n.º 60/2013,
from January 23th
❖ Published the tender specification model to be used by
the public sector for energy performance contract awards.
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Audit findings
❖ Obligation of each ministry to implement, by the end of 2013, energy efficiency
measures in all entities under its authority, through energy performance contracts,
where it is deemed appropriate.
In April 2013, twelve Energy Saving Companies were already qualified, five of which
qualified for buildings.
August 2015
Converting Lisbon’s 20 000 traffic lights from incandescent
bulbs to LED technology was the first ESCo contract with a
public administration body under the Eco.AP program.
This contract brought energy savings of 94%, as well as
significant savings in maintenance and replacement costs
(1,5 M€ investment (100% private) / 2 years contract / 6,5
GWh annual savings).
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Audit findings
❖ Obligation of each ministry to order all entities or services not covered by the above
measure, to adopt and implement an energy efficiency action plan by the end of
2011.
It was concluded that most services did not develop nor implement an Energy Efficiency
Action Plan (EEAP), within the specified schedule:
Ministry of Agriculture
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Ministry of Economy
Audit findings
❖ Obligation of each ministry to order all entities or services not covered by the above
measure, to adopt and implement an energy efficiency action plan by the end of
2011.
Almost half the services did not have guidelines for energy efficiency, though
most had established targets for reducing consumption
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Audit findings
❖ Obligation of each ministry to order all entities or services not covered by the above
measure, to adopt and implement an energy efficiency action plan by the end of
2011.
Electricity consumption was the most
monitored of all public utilities, and
most services make a monthly control
Almost all services control the
consumption of fuel of their vehicle fleet
(as required by law)
It has been observed a
"dieselization" of the car fleets:
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Audit findings
❖ Obligation of each ministry to order all entities or services not covered by the above
measure, to adopt and implement an energy efficiency action plan by the end of
2011.
The fluorescent lighting is higher than 90% in most buildings (202 of 307).
LED were present in 16 buildings, but were a significant percentage of the total only in two.
(Obs .: Includes LED lighting)
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Audit findings
❖ Obligation of each ministry to order all entities or services not covered by the above
measure, to adopt and implement an energy efficiency action plan by the end of
2011.
One of the conclusions of the survey was that it was possible to improve the energy
efficiency of consumption in many areas, especially in the heating, ventilation, and air
conditioning equipment.
With air conditioned
Without air
conditioned
AC Window-mounted
AC split
AC multisplit
60
39
233
92
With heating
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Without heating
With AC
Without heating
Electric heating
Heat pump
Gas heating
Boiler
25
31
91
216
6
35
Audit findings
❖ Obligation of each ministry to order all entities or services not covered by the above
measure, to adopt and implement an energy efficiency action plan by the end of
2011.
Nevertheless, investment to reduce consumption was low:
Total
“Yes”
60
Value
“Yes”
(specifying the value
of the investment)
21
“Yes”
(specifying the
action but without
indication of value)
16
“No”
(expressed)
141
€ 581 402
The investments done aimed almost exclusively to reduce electricity
consumption (60 buildings).
(Without indication of value: replacement of incandescent bulbs with
fluorescent bulbs, computers and peripherals more efficient, energy efficiency
audits, wind turbine).
The average investment is low (€ 27 686 per building).
The greater investment concerned to a geothermal project carried out to
support an air condition system, with the amount of € 100 000.
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Audit findings
❖ Obligation of each ministry to order all entities or services not covered by the above
measure, to adopt and implement an energy efficiency action plan by the end of
2011.
The use of renewable energy sources was also very low:
Renewables were used only in 11 buildings (in 320), and only in one were two ways of
harvesting used (solar thermal and solar photovoltaic):
•Solar thermal – 7 buildings;
•Solar photovoltaic – 2 buildings;
•Biomass – 2 buildings;
•Geothermal – 1 building.
Only 3 of 16 Schools of Hospitality and Tourism buildings used solar collectors for water
heating.
Only 2 of the 34 buildings of the local services of the Institute for Nature Conservation and
Biodiversity (22) and National Forest Authority (12) used biomass (firewood in both cases).
None of the 64 local departments of Regional Directorate for Agriculture and Fisheries used
biomass as an energy source.
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Audit findings
❖ Creation of the Public Administration Energy Efficiency Barometer, by the end of the
1st half of 2011, aiming to compare and to publicly disclose the energy performance of
public entities.
The deadline set was not met, and the
availability of the Public Administration Energy
Efficiency Barometer, allowing the data
collection of energy consumption and emissions
in a systematic way, started on June 1th, 2012.
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Audit findings
❖ Implementation, within 180 days, of a white certificates* trade system, providing for its
application to public authorities, to develop by the Directorate-General for Energy and
Geology with relevant stakeholders.
The implementation of a white certificates
trade system has been postponed and is being
reconsidered, although there is no formal
decision on this matter
(Ministry of Economy)
.
* ‘white certificates’: certificates issued by independent certifying bodies confirming
the energy savings claims of market actors as a consequence of energy efficiency
improvement measures (Directive 2006/32/EC).
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Audit findings
Energy and Indoor Air Quality Certification of Buildings
(Directive 2002/91/EC (Energy Performance of Buildings Directive )):
10 buildings had the energy performance certificate legally required and the certification of
others was ongoing.
It was received copy of the Certificate of 8 buildings, 2 ranked "B-", 5 "C" and one "D“ (3
state property, 3 owned by a public company and 2 private (leased)).
The number of buildings that have not but should have energy certification was 105, within
a total of 320 buildings.
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Audit findings
Energy and Indoor Air Quality Certification of Buildings
(Directive 2002/91/EC - Energy Performance of Buildings Directive ):
The Energy Performance Certificate is based on an assessment of the building energy
performance and includes a proposal for energy performance improvement, with
suggestions of measures to take, the estimation of the annual reduction of the energy bill,
the total cost of investment and return period of the investment.
If the law had been duly fulfilled, these certificates could have been a good basis for the
public entities and for the Local Energy Managers to plan energy efficiency measures, as
well as procedures for the award of energy performance contracts.
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Audit recommendation
To the Government:
Provide arrangements for an effective
coordination and monitoring of ECO.AP
Program and the acceleration of the
implementation of these measures, to
speed up progress and fulfill the set global
objectives.
Expected impact
A 30% reduction in the energy
consumption will save the state
22.5 million euros annually.
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Eco.AP Program
Thank you
for your
attention!
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