Energy Performance Contacts and Guarantees
Energy Performance Contacts and Guarantees
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05
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10
Case Studies
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Other Considerations
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19 Glossary
20 References
Version: Draft for consultation
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Energy Consultancy
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10-20 Years
1M+
Negotiated
Tender
IPMVP
Supply of Capital
Procurement Process
With ESCO
Energy Supply
Contracr
With
Customer
Months
1,000+
Three
Quotes
Simple
Checks
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EPC in a Nutshell
An important principle of energy performance contracting is that energy efficiency investments are
paid for over time by the value of energy savings achieved.
Key elements of any energy performance contract are:
The ESCO undertakes to improve the energy efficiency of the facility.
The contract is structured so that the compensation is contingent on demonstrated performance,
i.e. the ESCO takes a risk.
There is an agreed method for measuring and verifying energy savings.
An EPC arrangement may involve the energy efficiency investment being financed by either the
ESCO or a third party financier.
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06
Savings
Capital
Financially
Viable
Project
Risk
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Customer
Energy
Investment
Share of
Savings
Repayments
ESCO
Loan
Third Party
Financier
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Guaranteed Savings Contract
Customer
Energy
Works
ESCO
Payment
for work
Repayments
Loan
Savings
Guarantee
Savings Paid to
ESCO or Financier
Savings Kept
by Owner
Third Party
Financier
Contract
Begins
Early
Payout
Maximum
Contract
Term
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Energy Use
Jan
Feb
Mar
Apr
May
Jun
Jul
Aug
Sep
Oct
Nov
Dec
Savings
Jan
Feb
Mar
Baseline Period
Apr
May
Jun
Jul
Aug
Sep
Oct
Nov
Dec
FIG.8 MEASURING AND VERIFYING ENERGY SAVINGS AS A RESULT OF AN ENERGY PERFORMANCE CONTRACT.
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Case Studies
Customer
Port of Cork.
ESCO
Longship.
Investment
270,000.
Measures
The ESCO undertook lighting, heating and
insulation upgrades to buildings, water saving
projects and specific works to dockside cargo
handling equipment such as straddle carriers and
mobile cranes which are used to move containers
around the facility. Local energy metering is also
being installed.
Savings
It was calculated that these projects would result
in a 5% overall reduction in energy use by the
Port in 2012 relative to 2011. This will kick start
the Port of Corks journey to implementing the
ISO50001 energy management standard and
achieving their target of a 33% energy efficiency
improvement by 2020.
Contract
The project was financed and is owned by the
customer (with grant assistance from SEAI). There
is a gain share agreement between the customer
and the ESCO, whereby if actual savings are 4-6%
of overall energy use, then the ESCO will be paid
their fees in full. If savings are less than 4%, then
the customer may claw back a percentage of the
fees paid to the ESCO. If savings are greater than
6%, the ESCO will be paid bonus. Savings will
be monitored and the final fee paid at the end
of 2012.
With ESCO
With ESCO/TPF
Negotiated Tender
IPMVP
Risk of Achieving
Savings
Supply of Capital
Procurement
Process
Measurement
and Verification
of Savings
With Customer
With Customer
Months 1,000+
Three Quotes
Simple Checks
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Case Study of Equipment Supply & Installation with Energy
Performance Guarantee
Customer
44 poultry broiler sheds across 22 sites in six
counties.
ESCO
Candelas Ltd.
Measures
Lighting only retrofit involving the removal of
existing incandescent lighting and replacing
it with dimmable fluorescent T5 corrosion
proof fittings, including dimming systems and
waterproof distribution boards. The lights were
hung using a catenary wire suspension system,
and wired using seven-core cable for maximum
dimming flexibility.
Contract
The ESCO assembled a group of farmers, and
applied for co-funding from SEAI. The ESCO
guaranteed energy savings of 65% (typical,
depending on each farms existing installation)
based on a direct reduction in lighting load.
Further savings associated with the use of
dimming were not included in the guarantee due
to the added complexity of verifying savings.
Cost meters also installed on lighting circuits and
farmers trained in their use.
The farmers paid 50% to the ESCO up front, and
50% on installation and verification of
energy savings.
With ESCO
With ESCO/TPF
Negotiated Tender
IPMVP
Supply of Capital
Procurement
Process
Measurement
and Verification
of Savings
With Customer
Months 1,000+
Three Quotes
Simple Checks
Risk of Achieving
Savings
With Customer
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Case study of Energy Performance Contract with Shared Savings
Customer
Royal Victoria Eye and Ear Hospital.
ESCO
ARAMARK.
Measures
The ESCO carried out an investment grade
audit and assessed the feasibility of upgrading
equipment in the hospital to provide energy
savings. The equipment was selected, installed
and commissioned including a 70KWe combined
heat and power plant, building management
system, efficient lighting, insulation and a remote
energy monitoring system.
Contract
The project was financed by the ESCO and
the customer (with grant assistance from SEAI).
The customer receives a quarterly report and
invoice detailing the savings. The costs on the
invoice are fully financed by the savings in the
utility bills. This is a shared savings agreement
over 10 years with future savings going directly to
the hospital. There is an incentive for both
the customer and the ESCO to work together to
achieve additional savings.
Benefits
This project resulted in guaranteed electrical
and fuel savings for the client combined with
improved comfort conditions for both staff and
patients. All operational and maintenance risks
are the responsibility of the contractor.
Investment
300,000 financed by the ESCO and the
customer (with grant assistance from SEAI).
Savings
Circa 60,000 per annum.
With ESCO/TPF
Risk of Achieving
Savings
With Customer
Negotiated Tender
IPMVP
Procurement
Process
Supply of Capital
With Customer
Months 1,000+
Measurement
and Verification
of Savings
Three Quotes
Simple Checks
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Case Study of Integrated Energy Contract with Shared Savings
Customer
Stewarts Hospital.
ESCO
dalkia.
Measures
Fuel conversion from oil to gas. new energy
centre and district heating system incorporating
2no. 1 tonne steam boilers, 700kW heating boiler,
and 140kWe CHP. new main distribution board
and emergency generator. Controls to optimise
the boilers and provide 55no. heating zones.
Energy monitoring system. Energy efficient
lighting. Second 140kWe CHP at leisure centre.
Benefits
new, reliable plant with no upfront capital cost.
Energy savings, arising from supply side and
demand side efficiencies, help offset monthly
payment cost. Operational and maintenance
risks transferred to contractor. Greenhouse gas
reduction.
Investment
1.5 million, financed by dalkia (with grant
assistance from SEAI).
Savings
Circa 100,000 per annum.
Contract
The project was financed and is owned by the
ESCO (with grant assistance from SEAI). ESCO
invoices monthly to cover cost of energy supply,
financing, operation, maintenance and energy
management, replacement guarantee on failure.
Shared savings agreement. Lower energy costs
help offset financing costs. 15 years.
With ESCO
With ESCO/TPF
Negotiated Tender
IPMVP
Risk of Achieving
Savings
Supply of Capital
Procurement
Process
Measurement
and Verification
of Savings
With Customer
Months 1,000+
Three Quotes
Simple Checks
With Customer
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Other Considerations
Comprehensive Refurbishment
Generally EPCs are used to implement energy
conservation measures for building technologies
such as heating, ventilation, air conditioning/
cooling systems which often have payback
periods of up to 10 years. In most cases a building
envelope refurbishment (or refurbishment of
plant with low energy consumption) is excluded
due to the much longer payback of these
measures. This results in a large portion of the
overall energy saving potential being neglected
during refurbishment and lost until the next
comprehensive refurbishment cycle of the
building, more than 30 years later.
It is worth noting that this still provides the main
benefits of EPC: transfer of technical performance
risk using a turnkey solution with guaranteed
energy (and maintenance) savings, and those
savings used to (in this case partially) cover the
investment cost. The additional funding provided
by the customer simply faces up to the reality
that energy efficiency cannot finance everything.
Drivers
The National Energy Efficiency Action Plan provides
a vision for 2020 that the public sector will improve
its energy efficiency by 33% and will be seen to
lead by example showing all sectors what is
possible through strong, committed action1. As
part of its plan to reach this goal, and in line with
the EU Energy Services Directive, SEAI is promoting
the use of Energy Performance Contracts (EPCs)
in the public sector, particularly EPCs that involve
the deployment of private sector capital to finance
investments in energy efficiency. In essence, SEAI is
encouraging the development of a market where
the private sector makes investments in energy
efficiency, with the energy savings being used to
repay those investments over time.
Avoid Skimming The Cream
Despite discussion about project viability, it is
important to remember the public sector goal of
a 33% reduction in energy use by 2020. Achieving
the public sector goal usually requires deep
retrofit, i.e. implementing projects with long
paybacks (exceeding 10 years). When assessing a
menu of energy saving opportunities, it is tempting
to implement those with the shortest payback first
(skimming the cream). However, doing so makes
it difficult to finance subsequent projects with
longer paybacks that may be needed to reach the
33% saving target. Consideration should be given
to bundling a number of opportunities of varying
investment attractiveness into a single project.
Balance Sheet Considerations
Whoever receives the finance effectively carries
this liability on their balance sheet. Balance sheets
show an organisations assets and liabilities. If an
organisation is perceived to have borrowed money
to purchase an asset (in this case energy efficiency
equipment), then the asset and the loan (liability)
are shown on either side of the organisations
balance sheet. For some organisations, particularly
those in the public sector, whether or not the
financing cost is on that organisations balance
sheet is an important consideration.
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No ESCO Involved
Get Commitment
Get Organised
Preliminaries
ESCO Tender
Objectives?
Identify your
organisations
financial and energy
objectives.
Establish a strategic
group and sponsor.
Appoint legal
advisors.
Is EPC a solution?
Consider appetite for
risk, access to capital,
energy expertise.
Will EPC work?
Consider
organisation
structures and
culture; type of
buildings and
potential for savings.
Identify a project
manager and project
management group.
Agree process and
timeframe.
Identify and agree
financial and human
resource
commitments,
allocate budget.
Select procurement
process. Typically
competitive
dialogue or
negotiated
procedure.
Prepare and issue
procurement
documentation.
Bid evaluation and
interviews.
Begin gathering
Baseline energy
records.
Decision Point
Decision Point
Decision Point
Scope suitable
for EPC?
Project viable?
3-6 Months
6 Mont
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No ESCO Involved
Detailed Analysis
and Negotiation
Implementation
Savings and
Performance
Contract Ends
ESCO undertakes
investment grade
survey.
Energy savings
achieved. Monitor
and verify results.
Negotiate contract
terms.
Finalise contract,
scope and price.
Insurance.
Award contract.
Operation and
maintenance.
Financier pays ESCO
for works
(guaranteed savings
contract).
Ongoing fee
payments to
financier and/or
ESCO.
Decision Point
Final decision.
Proceed?
ths
6-12 Months
5-20 Years
Rest of
Equipment Life
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Contractual Considerations
Authority to Purchase
A public authority should confirm at the outset
that it has the necessary authority to enter into
any project. The State Authorities (Public Private
Partnership Arrangements) Act 2002 may be of
relevance.
Procurement Framework
The ESCO will need to be procured in compliance
with national and European public procurement
law and rules on state aid. The Competitive
Dialogue process may be appropriate for
complex EPCs, but involves a number of steps.
Where prior overall pricing is not possible or if no
acceptable tenders are submitted, the Negotiated
Procedure may provide an alternative.
Corporate Structure of Contracting Parties
If a tenderer is a consortium, a prime contractor
model could be used or consortium members
could execute the contract documents on a joint
and several liability basis. In the case of a project
involving multiple public authorities, the public
authorities can enter into the relevant contracts
on their own behalf or, alternatively, can create
a Special Purpose Vehicle (SPV, i.e. a company
specifically incorporated for this purpose) for the
purpose of the project which will enter into the
contracts. This approach would generally not be
necessary if there is a single public authority.
Contractual Structure
The Contract Documents may be based upon a
suite of different contracts for different stages/
parts of the project.
For instance:
The FIDIC Conditions of Contract for EPC/
Turnkey Projects (1st Edition 1999) are an
industry standard form of contract which the
industry is familiar with and which provide for
appropriate risk transfer for engineer, procure
and construct projects.
The separate HPAs for each public authority
provide each public authority with a greater
level of autonomy in managing (and paying
for) the ultimate deliverable and managing
their relationship with the ESCO in such
respect, whilst also simplifying the relationship
between the public authorities by making
them less interdependent operationally,
Glossary
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Project team
Alan Ryan, SEAI
Declan Meally, SEAI
Cian ORiordan, PowerTherm Solutions
Toni Mercer, SEAI
T. +353 1 8082100
F. +353 1 8082002
[email protected]
www.seai.ie