2014年-世界发展银行全球_Energy_Services_Market_Development___Scaling_Up_Energy_Efficiency_in_Buildings_in_the_Western_Balkans_29页_2mb

Summary of "Scaling Up Energy Efficiency in Buildings in the Western Balkans"

Core Content

This guidance note focuses on the development of private sector energy service providers (ESPs) in the Western Balkans to scale up energy efficiency (EE) projects, especially in the public sector. It outlines the business models of ESPs, the challenges they face, and the strategies that governments can adopt to foster the growth of the energy services market.

Main Views

• Energy Service Providers (ESPs) are crucial for scaling up EE projects due to their ability to provide technical expertise, access to financing, and risk mitigation through performance-based contracts.
• The public sector is a key driver for ESP market development, as it can offer stable demand, clear procurement rules, and access to public financing.
• Private sector involvement is essential to overcome the barriers of limited technical and financial capabilities, high transaction costs, and risk perception.
• The development of ESP markets requires a three-pronged approach: policy and regulatory initiatives, technical assistance (TA), and financing strategies.

Key Information

1. Purpose of the Guidance Note

• To support the scaling up of energy efficiency projects in the Western Balkans.
• To provide a strategy and roadmap for governments to foster the development of ESPs/ESCOs.
• To address the barriers to EE implementation through private sector involvement.

2. Energy Efficiency Potential in the Western Balkans

• Buildings account for about half of total energy consumption.
• Estimated energy savings in buildings range from 20 to 40%, with the public sector showing the highest potential (35–40%).
• A World Bank study (2010b) estimated potential energy cost savings of US$3.4 billion from cost-effective EE measures.
• The Energy Community Secretariat (ECS) (2012) estimated potential annual energy savings of €462 million or 7,940 GWh.

3. What is an Energy Service Provider (ESP)?

• An enterprise that provides services across the energy services value chain, including:
  • Energy auditing
  • Design and engineering
  • Equipment procurement
  • Installation and commissioning
  • Financing
  • Operation and maintenance
  • Facility management
  • Sale of energy services
• ESPs are broader than ESCOs, which are a subset of ESPs focused on performance contracting.

4. Benefits of Energy Service Providers

• Mobilize private sector innovation and entrepreneurship.
• Access to latest technologies and equipment.
• Facilitate private financing for EE projects.
• Use of diverse business models.
• High-quality installation, operation, and maintenance.
• Training for facility engineers and managers.
• Performance guarantees that reduce risk for energy users.

5. Challenges to the Development of ESPs

• Small size and limited technical/financial capacity of ESPs.
• Difficulty in obtaining commercial financing due to:
  • Limited assets and weak balance sheets
  • Lack of market track record
  • High perceived risk by lenders
  • Lack of technical due diligence capabilities
• Public sector constraints include:
  • Inability to enter into long-term contracts
  • Budgetary restrictions that prevent retaining cost savings
  • Procurement rules that favor the lowest bidder over the most value
  • Accounting treatment of ESP payments as debt
  • Inefficient billing systems in district heating (DH) networks
  • Lack of capacity in public agencies to evaluate and manage ESPs

ESP Business Models

Common ESPC Models

• Shared Savings Model: ESP provides most or all financing, and cost savings are shared with the host.
• Guaranteed Savings Model: Host takes on financing, and ESP guarantees performance. Savings are used to repay debt.
• Simplified Models for Developing Countries:
  • Public or Super ESCO: A public entity that can enter into ESPCs and subcontract to private ESPs.
  • Variable-Term Contract: Contract term varies based on actual savings.
  • One-Year Contract: Payments occur in stages, with a large portion in the first year.

How Governments Can Foster ESPs

Governments can support ESPs through:

Creating Demand for EE Services

• Increase public agency knowledge and awareness of EE and ESPs.
• Develop EE action plans and binding targets.
• Create standardized templates and M&V schemes.
• Provide technical assistance for identifying EE opportunities.
• Organize workshops and collaboration between public agencies and ESPs.
• Aggregate similar projects across public agencies to reduce transaction costs.

Removing Barriers to Public Procurement

• Allow multi-year contracts.
• Permit retention of energy cost savings for paying ESPs.
• Change procurement rules to prioritize value over cost.
• Exclude ESP payments from public debt.
• Require consumption-based billing for DH.
• Allow public-private partnerships (PPPs) and energy equipment leasing.
• Encourage the use of simple ESP business models.

Facilitating Financing of ESP Projects

• Establish energy efficiency revolving funds.
• Provide budgetary grants.
• Set up risk-sharing facilities.
• Facilitate forfeiting of ESP contracts.
• Establish public or super ESCOs to act as intermediaries.

Roadmap for Developing the Energy Services Market

The guidance note proposes a roadmap to develop the energy services market, which includes:

1. Creating demand through policy and awareness initiatives.
2. Removing procurement barriers and setting clear rules.
3. Facilitating financing through revolving funds, grants, and risk-sharing.
4. Encouraging private sector participation in public EE projects.
5. Extending ESP activities to the private sector as the market matures.

International Examples

Several countries, such as Armenia, Croatia, the Czech Republic, Hungary, and others, have implemented initiatives to support the energy services market. These include:

• Establishing public or super ESCOs.
• Introducing simplified ESPC models.
• Providing technical assistance and financial support.
• Implementing clear procurement and financing rules.

Conclusion

• There is no universal formula for developing an energy services market.
• Governments must adopt a comprehensive approach involving policy, regulation, and technical assistance.
• Public sector engagement is critical for the initial development of the market.
• As the market matures, ESPs can expand to the private sector, offering more complex services and financing models.