2018/94 K NKONW A A WELDEGDEG E OL N ONTOET E S ESREI R E ISE S F OFRO R P R&A C T HTEH E NEENREGRYG Y ETX ITCREA C T I V E S G L O B A L P R A C T I C E THE BOTTOM LINE Energy Efficiency in the Public Sector As a collectively large energy user, the public sector can set an example for efficiency Why is energy efficiency in the public sector important? as improving quality and access to basic services (such as health, improvements in other sectors. education, and infrastructure). Finally, public sector EE makes for a Publicly owned facilities are major energy users and more resilient energy supply and lowers local and global emissions. It can also stimulate EE markets, bring down costs for other energy ready targets for energy efficiency measures users, lower emissions, and free Government facilities—which can include central and municipal What are the main challenges to achieving EE up funds for investments for administrative buildings, universities and schools, hospitals and in the public sector? other development priorities. For clinics, orphanages, museums and other publicly owned facilities— years, barriers specific to public Barriers specific to public sector budgeting and are, collectively, the largest energy user in most countries. Available sector budgeting and financing data suggest that the public sector typically accounts for 2–5 percent financing discourage the necessary investments discouraged the investments of a country’s total energy consumption, although this figure is much Despite attractive payback periods and the potential for energy and other changes necessary to higher (up to 30 percent) in countries with large heating loads (such savings, the public sector, particularly in developing countries, lags realize the vast potential of energy as China and the countries of the World Bank’s Europe and Central the rest of the economy on efficient energy. This is traceable to a efficiency, but a range of smart Asia Region) or low energy access (as in many Sub-Saharan African number of inherent market failures and characteristics. Although policies, programs, and approaches countries, where only major cities are electrified). the market barriers to EE in general are relevant here—low energy has now been developed to The public sector also represents a strategically important prices, high upfront and transaction costs, and limited access to data overcome them. market segment for energy efficiency (EE). As a large and visible and information—other barriers are specific to the public sector, consumer, the sector can set an example for EE improvements in including: other sectors. Because EE measures in public facilities are highly • Restrictive government policies and procedures. From visible, they can demonstrate good energy-management practices budgeting to procurement, government policies and procedures and high-performance technologies. The inclusion of energy-efficient make it difficult to justify higher upfront costs and upgrades even criteria for products purchased for public offices, for example, can when costs over the lifecycle may be much lower. stimulate manufacturers to seek the necessary certifications for their • Limited financial resources for capital upgrades. Public products to compete in public tenders. The public sector can also agencies rely on annual budget allocations that primarily cover use its purchasing power to stimulate EE markets; by purchasing operating costs. Restrictions on public borrowing, low creditwor- in large volumes, it can also bring down costs for all energy users. thiness, and existing debt levels may also prevent these costs Moreover, the development of practices that promote public sector from being amortized. Jas Singh is a lead EE (for example, standard contracts, tools, and so forth) can also • A lack of incentives. Government agencies are often unable energy specialist in be utilized by businesses and institutions, while public campaigns to retain cost savings from one budget year to the next. A the Energy and can showcase the benefits of and build confidence in EE among principal-agent or split-incentive issue may also arise, whereby a Extractives Global citizens. Reductions in the government’s energy costs can open up parent budgeting agency determines capital budget needs while Practice. fiscal space for investments in other socioeconomic priorities, such a subordinate agency pays the monthly energy bills. 2 E n e r g y E ffi c ie n c y i n t h e P u b l i c S e c t o r • Public employees have behavioral inertia. They have Table 1. Improving public sector energy efficiency: Dismantling incentives to do things the same way. They may also lack the barriers awareness and expertise to identify potential EE improvements, Barrier Indicative action estimate cost savings, implement and finance upgrades, assess Lack of information/ Initiate awareness campaigns and risks, and maintain and operate new equipment. Staff have no awareness, including demonstrations; publish and disseminate Public employees have incentives to lower their agency’s costs, as assessments of their opportunities, costs, benefits, information such as case studies, performance are rarely tied to EE or cost savings. and risks procurement guidelines, product catalogs, behavior inertia. They specifications, etc. have no incentives to Lack of technical capacity Create nodal agency to provide technical How have countries addressed these challenges? for audits, project assistance for EE projects; appoint lower their agency’s costs, design, procurement, energy managers; develop training as assessments of their Governments have developed a range of policies, implementation, monitoring; programs for facility operators and energy performance are rarely tied programs, and approaches to help overcome trust in EE potential managers; encourage the formation and prequalification of ESCOs; develop EE to energy efficiency or cost barriers analytical tools, audit and procurement guidelines, and measurement and savings. Although some government interventions are specific to a particular verification protocols barrier, most address several simultaneously. For example, many Limited incentives to Revise budgeting to allow retention governments have so-called nodal agencies, such as EE agencies implement EE (potential of energy savings; issue awards for or departments, to provide an overall framework for government loss of budget), try new agencies/staff; include EE in management approaches, and take risks performance reviews; develop risk sharing/ programs, advise on policies and provide information, develop financing programs; set EE targets model tender documents, and assist public agencies in reducing Lack of agency accountability Create public sector/agency targets their energy use. But there are no simple measures or universally for energy savings with monitoring; set penalties for applicable approaches. Consequently, solutions need to be tailored nonperformance; establish program to to each country’s (or local government’s) context and circumstances. label energy performance of buildings Differences might stem from policy and regulatory frameworks, Restrictive procurement, Revise public policies on purchase of EE institutional setups, available resources, income levels, cultural contracting, and financing products (e.g., to mandate the purchase of rules products with energy efficient labels or to norms, or other factors. A summary of tested approaches can be make purchasing decisions based on life- found in table 1. cycle costing) and services; develop local Financing is one of the most difficult issues for public sector EE. ESCO models; create public EE funds The financing ladder in figure 1 identifies options that policymakers Lack of funding for upfront Earmark public EE budgets; create energy audits and project dedicated grant/subsidy programs, public can adapt to provide products suited to their country’s needs. In the funding revolving funds; levy a demand-side case of “MOF financing with budget capture,” the main budgeting management surcharge or “electricity agency provides financing for EE upgrades through the budgetary surcharge” to mobilize funds for free process and then scales back future budgetary outlays, thus energy audits “capturing” the energy savings. “Energy efficiency revolving funds” Small size and high Bundle public EE projects; generate model transaction costs documents/templates to streamline are independent, publicly owned entities that provide EE financing to projects; develop ESCO umbrella public clients, which are then obliged to repay the investment from contracts; practice bulk procurement of EE the energy cost savings. “Utility on-bill financing” refers to schemes products through cooperative purchasing agreements where a public or private utility borrows and finances EE investments in public clients and then recovers its investments through its Source: Adapted from ESMAP (2012). Note: EE = energy efficiency; ESCO = energy service company. customers’ utility bills. “Public ESCOs” (energy service companies) 3 E n e r g y E ffi c ie n c y i n t h e P u b l i c S e c t o r are publicly owned companies that provide financing and imple- A new financing scheme called the energy service agreement mentation support for public EE projects, with repayments based on (ESA) was recently developed by the World Bank to help municipal- energy cost savings. ities that had reached their debt limits or were deemed not credit- Over time, as local markets evolve, the goal should be to move up worthy. This mechanism is explained in box 1. the ladder to more commercial financing mechanisms. Thus, once a Financing is one of the mechanism is selected, the design should ideally include elements to most difficult issues for facilitate the transition to schemes that are higher on the ladder. Of course, the ladder is only meant as a guide. In reality, the mechanisms Box 1. Energy service agreements (ESAs) public sector EE. As local are not mutually exclusive, and governments need not climb every Under an ESA, the financier (usually an energy efficiency revolving markets evolve, the goal step of the ladder. The selection of appropriate mechanisms and their fund or public/super energy service company) offers a package of should be to move up the subsequent design will depend on a number of factors, including: (i) services to identify, finance, procure, implement, and monitor EE projects for clients. The client is asked to pay only what it is currently ladder to more commercial legislative and regulatory conditions; (ii) the maturity of financial and paying for energy; that is, to pay its baseline energy costs, from which public credit markets; (iii) the state of the local EE service markets, the financier draws to make the new, lower energy payments, thereby financing mechanisms. recovering its investment cost and associated fees until the contract including ESCOs and energy auditors; and (iv) the technical and Once a mechanism is financial capabilities of public entities for EE. Once the mechanisms period ends. selected, the design are selected, they must be designed to suit the local market. The figure illustrates the basic idea of clients’ cash flow under the ESA, with payments equal to their baseline energy bill. This allows them to should ideally include maintain a constant cash flow while retaining their energy cost savings for the duration of the ESA. In some cases, the contract duration is fixed; elements to facilitate the Figure 1. Financing energy efficiency in public buildings: in others, the contract can be terminated after an agreed amount has transition to schemes that A ladder of options been paid, which can encourage the client to save more energy. are higher on the ladder. For public clients, ESAs are viewed not as debt, but as long-term service contracts. For central government entities that are not allowed The mechanisms are not Greatter to borrow, and for municipalities that have reached their debt limits, mutually exclusive, and •market maturity Advanced commercial or project financing (EScos) ESAs provide the twin advantage of being relatively simple and carrying little risk. governments need not • Vendor, credit, leasing climb every step. • Commercial financing commericial financing, bonds EE retrofit • Partial risk guarantees Baseline payments to escrow account • credit lines with commercial bank(s) Agency cash flow (€) • credit lines with development bank Investment repayment • Public or Super EScos Public financing • EE revolving funds • utility (on-bill) financing Baseline Lesser market • budget financing, grants with co-financing bill Energy bills maturity • grants Source: World Bank (2014). Source: World Bank (2014; 2018). 4 E n e r g y E ffi c ie n c y i n t h e P u b l i c S e c t o r Table 2. World Bank program models for public EE Program models Public/budget financing, EE/urban development funds, super ESCOs, credit lines, loan guarantees, single municipal loans, municipal district heating Implementing agency or agencies Ministry or municipal implementation units, EE funds, public ESCOs, commercial/development/municipal banks, utilities Success factors • Strong, committed implementing partners Public and municipal • Target sectors that want EE and have credible borrowers entities often place EE • Required repayments and periodic recapitalization to ensure sustainability below service expansion • A national program framework with regulatory obligations to drive demand and other revenue- • Project bundling to lower transaction costs generation schemes. Source: Adapted from ESMAP (2012). Note: EE = energy efficiency; ESCO = energy service company. What has the World Bank done? financing), with total investments of about $5.1 billion (when coun- terpart and partner financing are included). But because a number The Bank has developed a robust portfolio of public of programs support both public and private facilities or are part of sector EE over the past ten years larger urban, water, and supply-side EE projects, some figures are More than half of that portfolio is in the Bank’s Europe and Central estimates. Table 3 includes a selection of these projects to show the Asia Region1 because of the region’s old, inefficient stock of public range of models and project types. buildings and inefficient, Soviet-era heating systems. More recently, The main challenges to increasing the portfolio include the municipal energy efficiency programs, from China to Mexico, have limited credit capacity of many public and municipal entities and bolstered the pipeline, as green and sustainable cities have become their vast investment needs. Those able to borrow often place EE, an emerging product line. A number of projects fall outside the whether for new or renovated facilities, below service expansion and energy sector, such as urban and water projects that contribute to other revenue-generation schemes. As energy costs continue to rise, the overall public EE portfolio. however, and climate change becomes part of national strategies, Investment projects fall into three categories: (i) credit lines demand for EE is expected to grow. Innovative financing mecha- through development banks or specialized funds, (ii) direct loans to nisms, such as ESAs, can overcome some of these challenges. municipalities or municipal utilities, and (iii) public or super ESCOs Table 4 includes results from several recently closed operations. (table 2). Although such projects are still usually limited to a single Although results vary and are difficult to aggregate, reporting shows sector, such as buildings, they increasingly cover multiple sectors, cost-effective energy savings in public sector infrastructure. such as water pumping, street lighting, and district heating. The total current portfolio is estimated to be about $3.4 billion (World Bank 1 The ECA region comprises 23 countries: Albania, Armenia, Azerbaijan, Belarus, Bosnia & Herzegovina, Bulgaria, Croatia, Georgia, Kazakhstan, Kosovo, Kyrgyz Republic, Macedonia FYR, Moldova, Montenegro, Poland, Romania, Russian Federation, Serbia, Tajikistan. Turkey, Turkmeni- stan, Ukraine, Uzbekistan. 5 E n e r g y E ffi c ie n c y i n t h e P u b l i c S e c t o r Table 3. Selection of World Bank public EE projects Total project cost Country Project [WB financing] (US$ million) Description/model/target market Approval date/closing date Bosnia and Energy Efficiency $32.0 Finance EE investments in schools, hospitals, and March 13, 2014/December 31, 2019 Herzegovina [IDA: $32.0] clinics, and develop sustainable EE financing mechanisms in the public sector China Green Energy Schemes for Low-carbon City $246.0 Finance EE in buildings in commercial and public March 20, 2013/December 31, 2018 in Shanghai [IBRD: $100.0; GEF: $4.3] buildings China Urban Scale Building Energy Efficiency and $30.6 Develop energy performance benchmarking and April 26, 2013/December 31, 2018 Renewable Energy [GEF: $12.0] disclosure (EPB&D) systems and improve supporting mechanisms for public and commercial buildings Georgia Second Regional Development Project $37.5 Improve infrastructure services, including EE of September 12, 2012/December 30, 2019 [IDA: $30.0] street lights India Partial Risk Sharing Facility in Energy $133.0 Finance EE investments in SMEs and municipal street February 25, 2015/April 1, 2022 Efficiency [CTF: $25.0; GEF: $18.0] lighting through partial risk-sharing facility India India Energy Efficiency Scale-Up $1,348.0 Scale up energy savings in residential and public May 17, 2018/September 20, 2022 [IBRD: $300.0] sectors, including financing public street lighting Kazakhstan Energy Efficiency Project $23.0 Improve EE in public and social facilities through May 22, 2013/March 31, 2019 [SDC: $21.8] implementation of demonstration EE projects Kosovo Energy Efficiency and Renewable Energy $32.5 Renovate central government buildings for EE and June 18, 2014/August 31, 2020 [IDA: $31.0] RE-heating measures Kyrgyz Republic Urban Development $14.4 Pilot EE and seismic resilience retrofits in schools. March 18, 2016/December 31, 2020 [IDA: $12.0] Macedonia, FYR Second Municipal Services Improvement $28 Improve municipal services including EE of municipal January 11, 2016/March 31, 2021 Project [IBRD: $28.0] buildings. Mexico Municipal Energy Efficiency $211.8 Finance EE in municipal buildings, schools, hospitals, March 8, 2016/October 31, 2021 [IBRD: $150.0; GEF: $5.8] water and street lighting through fund using ESAs and utility on-bill repayment Montenegro Second Energy Efficiency Project $9.0 Finance EE investments in state-owned public health June 4, 2018/May 26, 2023 [IBRD: $7.4] sector facilities and enhance local EE capacity Serbia Enhancing Infrastructure Efficiency and $764.0 Finance improvement of EE and safety in public February 11, 2017/December 31, 2021 Sustainability [IBRD: $118.6] buildings (under energy component of project) Tuvalu Energy Sector Development $9.1 Increase EE in selected buildings, including government January 26, 2015/March 31, 2019 [IDA: $7.0; SIDS DOCK: $2.1] buildings, through installation of prepayment and smart meters, EE investments, policy and standards development, and awareness raising Uruguay OSE Sustainable and Efficient $84.0 Reduce energy costs through energy management July 5, 2012/February 28, 2018 [IBRD: $42.0] and investment component of water project Source: Author’s compilation. Note: CTF = Clean Technology Fund; EE = energy efficiency; ESA = energy service agreement; GEF = Global Environment Facility; IBRD = International Bank for Reconstruction and Development; IDA = International Development Association; SIDS DOCK = Small Island Developing States sustainable energy transition initiative; SME = small and medium-sized enterprises; WB = World Bank.: 6 E n e r g y E ffi c ie n c y i n t h e P u b l i c S e c t o r Table 4. Results from recently closed World Bank public EE projects Total project cost Project name [WB financing] [Implementation period] (US$ million) Description Reported results Armenia Energy Efficiency Project $11.3 Finance EE in public • Commissioned 124 public sector projects [Mar 2012–Jun 2016] [GEF: $1.8] social facilities using • Lifetime energy savings of 540,000 MWh (250 percent of target) ESAs • Lifetime carbon savings of 145,739 tons CO2 equivalent (288 percent of target) Belarus Post-Chernobyl Recovery $92.1 Renovate buildings and • Annual energy savings were more than twice the target, reaching 348,214 MWh (heat and electricity) [Apr 2006–Dec 2013] [IBRD: $80.0] other infrastructure • CO2 emission reductions (114,662 tons) were over 2.7 times the target to provide efficient, • 741 buildings and 32 boiler houses were renovated reliable heat/hot water • Over 250,760 beneficiaries, including 5,005 households with new gas connections for cooking and heating services China Urumqi District Heating $343.2 Upgrade and extend • Annual reduction in coal consumption for heating exceeded target by 126 percent (final value: 7.8 ktce/km2) [May 2011–Dec 2015] [IBRD: $100.0] district heating system, • Significant reductions in heating boiler emissions (SO2, dust, CO2)— fuel switch (coal to gas) all exceed project targets • 86.3 km of new pipelines installed; two pressure-regulating substations added; 63 new group and 2 building level substations constructed; 65 group substations rehabilitated Macedonia Sustainable Energy $9.3 Finance EE retrofits • Lifetime energy savings of 112,000 MWh [Dec 2006–Mar 2013] [GEF $5.5] in public buildings • Triggered an initial market for EE measured by increased demand for EE retrofits from municipalities focusing on municipal schools and kindergartens Montenegro Energy Efficiency $13.3 Finance EE in public • 45 public buildings (across 25 facilities) were renovated including hospitals, clinics, and schools [Dec 2008–Mar 2018] [IBRD: $13.3] buildings (hospitals and • Lifetime energy savings of 109,000 MWh schools) • Lifetime carbon savings of 40,464 tons CO2 equivalent Poland Energy Efficiency $57.8 Guarantees and grants • Number of transaction relating to EE projects/ESCOs increased from 3,195 to 28,115 during the project period [Oct 2004–Oct 2012] [GEF: $11.0] for EE projects in Volume of debt financing relating to EE projects/ESCOs increased from $210 million to $3 billion buildings, including • Number of EE/ESCO projects larger than $250,000 increased from public buildings 151 to 1,830 Serbia Energy Efficiency $51.4 Finance EE in public • 82 public buildings renovated (36 schools, 41 hospitals, 5 social care buildings) [Mar 2004–April 2013] [IDA/IBRD: $49.2] buildings • 66 percent energy savings in schools; 53 percent savings in hospitals • Significant reduction in air pollution in target hospital boilers; emission of SO2, ash, soot were eliminated Source: Author’s compilation. Note: CTF = Clean Technology Fund; EE = energy efficiency; ESA = energy service agreement; ESCO = energy service company; GEF = Global Environment Facility; IBRD = International Bank for Reconstruction and Development; IDA = International Development Association; ktce = kilotons of carbon equivalent; WB = World Bank. 7 E n e r g y E ffi c ie n c y i n t h e P u b l i c S e c t o r What have we learned? • Promote cobenefits. When old systems are renovated, or MAKE FURTHER new systems built to higher standards, the benefits extend well Implementing EE in the public sector requires focus beyond energy cost savings. They can include improvements in CONNECTIONS and commitment, patience, and institution-building service quality (better street lighting), more comfortable indoor Live Wire 2014/11. “Designing Some lessons from recent projects include: temperatures (renovated public buildings), better education and Credit Lines for Energy Efficiency,” by Ashok Sarkar, Jonathan Sinton, • Start with good policies. Because of the inherent disincen- health (improved school/hospital conditions, reduced indoor air and Joeri de Wit. pollution), urban renewal (upgrading of old building stock), and tives for public agencies to lower their costs, strong policies and Live Wire 2014/18. “Exploiting Market- regulations obligating public agencies to invest in EE are critical. service expansion (reduction of energy/water losses in utilities). Based Mechanisms to Meet Utilities’ In many cases, the public client may value these cobenefits more Energy Efficiency Obligations,” by Targets, rewards, recognition, enforcement, and the right energy Jonathan Sinton and Joeri de Wit. prices can also improve incentives. than the EE benefits. • Borrow and adapt models. Policy, program, and delivery • Disseminate the benefits to the market. When the govern- Live Wire 2014/25. “Doubling the Rate of Improvement of Energy Efficiency,” models from Europe, Japan, and North America can offer valu- ment leads by example, the entire economy can benefit if the by Jonathan Sinton, Ashok Sarkar, able approaches and examples, but they must be simplified and results are properly communicated. Proper documentation of Ivan Jaques, and Irina Bushueva. adapted to suit the local context. Feedback mechanisms are also costs and benefits, strong monitoring and tracking systems, and Live Wire 2016/53. “Why Energy important; these allow enhancements to be made and lessons to sharing of approaches and lessons can ensure that successful Efficiency Matters and How to Scale measures are widely replicated. It Up,” by Jas Singh. be learned during implementation. • Strengthen the enabling environment. Public procurement Live Wire 2016/54. “Fostering the Development of ESCO Markets for rules, procedures, agency, and staff capabilities all need to be References Energy Efficiency,” by Kathrin Hofer, enhanced to enable agencies to meet the obligations noted ESMAP . 2012. “Public Procurement of Energy Efficiency Products: Dilip Limaye, and Jas Singh. above. Tools and guidance notes can help standardize and Lessons from Around the World.” ESMAP Technical Report Live Wire 2016/55. “Designing Effective streamline the actions agencies can take. 003/12, Washington, DC. National Programs to Improve Industrial • Make financing accessible and affordable. Financing, World Bank. 2014. “Western Balkans: Scaling Up Energy Efficiency in Energy Efficiency,” by Feng Liu and Robert Tromop. whether delivered through budgetary outlays, loans, or other Buildings.” Working Paper 89321, Europe and Central Asia Region, means, needs to be affordable and accessible. Equally critical World Bank, Washington, DC. Live Wire 2018/88. “Financing Energy Efficiency, Part 1: Revolving Funds, is the need to reduce transaction costs and risks associated ———. 2016. “Why Energy Efficiency Matters and How to Scale It by Aditya Lukas. with investments and to develop mechanisms that can bundle Up.” LiveWire 2016/53, World Bank, Washington, DC. Live Wire 2018/91. “Financing Energy investments. ESCOs are one mechanism, but capable ESCOs ———. 2018. “Financing Energy Efficiency, Part 1: Revolving Funds.” Efficiency, Part 1: Credit Lines,” by Yun must exist in the market. Engaging an ESCO must be simple. Live Wire, 2018/88, World Bank, Washington, DC. Wu, Jas Singh, and Dylan Karl Tucker. • Operate on a national scale. Given the homogeneity of most Live Wire 2018/92. “Transforming public entities (common ownership, building typology, and energy The internal World Bank briefing note on which this Live Wire is based was Energy Efficiency Markets in Developing use patterns), programs should be developed at a national (or prepared in July 2016 and reviewed by Gevorg Sargsyan and Martina Bosi. Countries : The Emerging Possibilities The updates to the 2016 paper were done by Aditya Lukas. of Super ESCOs,” by Ashok Sarkar and sometimes statewide) scale. Small pilots to renovate a few Sarah Moin. buildings or street-lighting systems should plan for sustainable Live Wire 2018/95. “Residential Energy scaleup to ensure their eventual expansion through scalable Efficiency,” by Aditya Lukas. delivery mechanisms. 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