Berlin: The energy concept as a plan for energy saving

Abstract:

At the end of 1994 the Berlin Government adopted its Energy Concept as a policy designed to lead to a long-term ecological energy policy. The measures in the action plan should contribute to an energy saving policy that is based on joint action in order to achieve a reduction of CO ₂ emissions by 25%. The Berlin Energy Concept has been chosen as an example of good practice for the following reasons:

• the energy saving policy targets all relevant energy-related sub-areas;
• the dimension of energy awareness is incorporated;
• the energy concept is conducted with a newly established institutional framework;
• the energy concept considers a balance between the city’s responsibilities and local district participation;
• the energy saving measures are linked to fiscal targets;
• the energy concept is followed by an action programme.

Concept and aims

Although these days all major environmental policies or projects in Berlin are geared toward improving the environmental situation of the city as a whole, one still has to bear in mind that for more than 40 post-war years environmental progress was determined by the actions of two city administrations in very different political systems in West and East Berlin. In particular, this fact was relevant for the energy supply situation before the political changes in 1989. Since the division of the two parts of Berlin after the Airlift in 1949 and the building of the Wall in 1961, West Berlin was no longer connected to the national electricity grid. Instead, the geographically isolated city developed as an energy island and organised its supply of electricity in a self-sufficient way. Consequently, the energy situation in West Berlin developed in a completely different way to that in other European conurbations. It was only in 1994 that Berlin was connected to the network of European grids, and conversion of the gas supply from coal to natural gas was completed in 1996. Since West Berlin was de facto an "energy island" and the East Berlin energy situation was controlled by a single integrated state utility, this led to the build-up of the largest district heating network in Europe with approx. 800 km. It covers 18% of the total demand for heating in West Berlin and supplies about 22% of the end-use energy in East Berlin.

In general the energy situation in Berlin is characterised by some important preconditions resulting from this historic development which, therefore, have to be taken into account as basic policy elements of the energy action plan:

• The policy of self-sufficiency (guarantee of the security of supply) in West Berlin was combined with a policy of increasing environmental standards (retrofitting of desulphurising equipment at those power stations burning hard coal);
• Local energy policy in West Berlin had been forced to pay particular attention to the optimisation of resources and the avoidance of waste. In consequence, incentives were given to the exploitation of combined heat and power and to district heating;
• Environmental awareness about the importance of energy efficiency has been traditionally strong in West Berlin as it is transformed into practical action by policy programmes (e.g. pilot projects in the urban renewal sector, the International Building Exhibition or programmes for ecological modernisation in the industrial and commercial sector). In East Berlin public perception of the energy saving benefits is steadily growing (e.g. due to activities of the Energy Team project).

Furthermore, energy policy in Berlin is shaped by a multitude of activities from various actors and institutions within the framework of energy planning and implementation (cf. actors and structures section). The primary aim of the Energy Concept is to achieve common ground on the direction towards an ecologically oriented energy system which is capable of contributing to an overall reduction of CO ₂ emissions. Three scenarios were developed for the Energy Plan which proceed from different basic assumptions:

1. The reference scenario describes a future where no special energy and environmental policy strategies have been put into practice. However, existing environmental regulations from West Germany would be also valid in the new "Länder".
2. The strategy scenario sketches out the areas where in Berlin rational and environmentally friendly energy supply and consumption could be put into practice.
3. The reduction scenario outlines the conditions that will need to be met in order to achieve the halving of CO ₂ emission goal of the European Cities Alliance.

After lengthy discussion on the potentials of each scenario, the strategy scenario was selected as the most appropriate approach in order to met the challenge of CO ₂ reduction on the city level. The goals of this forecast of the energy future seem most likely to be fulfilled as it assumes that with the help of direct intervention and a co-ordination of all local policy measures the target of a 25% reduction of CO₂ emissions can be met. Finally, the strategy scenario was chosen as the basis of the "Berlin Saves Energy" plan of action which was accepted by the Berlin Government as the heart of the Berlin Energy Plan in 1994.

The first measures of the Energy Plan were implemented within fiscal year 1995/96 in order to lay a foundation stone for the first energy programme of the Land of Berlin. The plan of action is aimed at measures in the following six areas:

1. Energy awareness

Energy awareness is the most important precondition for the implementation of an energy savings policy. The Energy Task Force is setting up an initiation programme which offers information and target group oriented expertise on practical solutions. This campaign includes the offer of specific further training measures for various interests groups (e.g. on low energy dwellings), energy savings months in the various districts and via the housing development companies, the continuing of varied school projects on energy saving, which started at the time of the Climate Conference in Berlin. Together with the universities the Energy Task Force has set up a working group in order to make better use of the various scientific activities on climate protection.

2. Energy saving in existing housing and energy saving policy in the area of new housing construction

Energy saving in residential areas is one of the key issues of the energy concept. The CO ₂ emissions from dwellings, amounting to 5.2 million t in 1990, are to be reduced by 25% by the year 2010. An evaluation of the current reconstruction programmes indicates that these have already contributed to substantial reductions in CO₂ emissions. However, to reach the reduction target additional activities have to be pursued. The reconstruction programmes, which have been allocated a total of 5 billion DM, focus on the modernisation and refurbishment of older housing in Berlin. Particularly in the eastern part of the city, the modernisation of heating systems is subsidised. Here, on account of the high proportion of lignite fired heaters and the desolate general condition of many houses, substantial reductions have been attained in energy consumption and in CO₂ emissions. The experience of the implemented programmes makes obvious that not only in ecological pilot projects, but also in redevelopment with lower standards, primary energy consumption and CO₂ emissions can be reduced by approximately one third. However, it also became clear that the substitution of central heating systems for lignite fired stand-alone heaters does not automatically result in a reduction of CO₂ emissions, and that publicly financed redevelopment alone does not, in the long-term, suffice to reach the targets set out in the Berlin energy concept.

3. Energy saving in public institutions

The public authorities must set an example in energy saving. Therefore, the Berlin government has extended the "3% resolution" of the Berlin parliament, which translates into a further 3% cut in energy expenditure. In consequence, this policy is stimulating the environmentally conscious use of these resources for energy saving investments. In the general instructions on the procurement of environmentally compatible products and materials, the Berlin government has stipulated that environmentally relevant service features, e.g. energy saving, are to be included as procurement criteria, and preference given to products of that kind.

4. Energy saving in the trade and industry sector

Energy saving measures in the trade and industry sector are encouraged via a number of information and supporting programmes. Special attention is given to small and mid-sized enterprises. Funding is provided by the Environmental Improvement Programme and the Programme for an ecologically oriented economy as well as the future initiative for an ecological-orientated economy. Energy saving information campaigns work in co-operation with the Chamber of Commerce and at various workshop forums.

5. Energy saving in transport

In the area of transport the first goal is to avoid unnecessary traffic. Priority is given to rail transport in the city, and 2 billion DM is to be invested in rail infrastructure per year within this period. However, despite this effort the volume of transport continues to be an important problem factor for CO ₂ emissions, given the increase in vehicles. In order to limit individual motorised traffic, the transport planning authority of the Berlin Government is trying to support environmentally friendly modes by the following policies:

- Parking space management will be introduced in the two city centres in East and West Berlin and in the district of Spandau;

- Bicycle usage will be promoted by extending the existing cycle track network;

- Ministries will support the well-established car-sharing schemes (e.g. leasing of parking space, advertisement in public transport);

- From 1 July 1998 onwards the inner city has no longer been accessible for cars without a three- way catalytic converter. From July 2000 the restriction also applies to commercial vehicles without EURO II exhaust standards;

- Urban planning aims at ensuring a mix of the functions of housing, work, shopping, and leisure which has a long-established tradition in Berlin;

- At least five new residential estates are to be built encouraging a lifestyle without a car.

6. Energy saving in energy supply

The modernisation of the networks for electricity, natural gas and district heating is the basic precondition to offer new energy services which contribute to the policy of energy saving. So far the total investments in these areas amount to approximately 300 million DM. A new power station has been constructed in the District of Mitte, the most up-to-date power station in Germany with a gas and steam turbine facility. In 1996 a gas steam turbine plant with 380 MW output went online and the reduction in CO ₂ emissions is approximately 1 million tonnes per year.

Land Energy Programme Berlin

In May 2000 the Senat passed the Land Energy Programme Berlin for the period 2000-2003. The programme is designed to further the City’s plan to reduce per capita CO ₂ by 25% compared to 1990 levels by the year 2010. It entails measures aimed at reducing energy related pollution in the areas of housing and new construction, public institutions, industry and trade, energy services as well as solar energy and the use of regenerative energy sources. Particular emphasis is being laid on the areas of transportation, heating, and warm water. The programme contains new initiatives and profitable solutions in cost and energy savings affecting all branches of the economy:

• The ”ImpulsE” programme is intended to disseminate current knowledge on energy saving technologies and practical measures, especially in regard to energy efficient construction and living, while mobilising wide-scale participation.
• The Senat has developed a building typology in regard to space heating needs as an informational and advisory instrument. It establishes the specific heating needs in different building types.
• In residential building renovation, the Berlin ”energy service standard” (BEST) and contracting solutions in regard to energy conversion are being applied in order to increase energy efficiency.
• In public institutions, the successful ”energy saving partnership” project will be expanded and energy saving management will be optimised through the establishment of a central energy saving office.
• The Senat has decided to set an example by demanding the strict maintenance of ecological criteria in public buildings.

Solar Technology

Berlin already plays a leading role in the utilisation of solar energy. It will continue to expand its solar programme by means of subsidies, the solar energy campaign, education and model projects. In the 1990s solar energy use was greatly expanded in co-operation with the private economy. By the year 2000, 1.5 Mw of photo-voltaic energy and over 17,000 m² of solar thermal collectors have been realised in Berlin. For the coming years, public and private investments of up to 100 million DM have been allotted to promote innovative energy technologies. The goal is a doubling of the share of regenerative energy in Berlin between 1999 and 2002.

The Senat subsidises the installation of solar equipment in blocks of flats which were completed before the end of 1990. Solar thermal equipment receives a 30% subsidy and photo-voltaic equipment receives subsidies of up to 40%, whereas ”equivalent efficient measures” are subsidised by 30%. Furthermore, the ”CO ₂ and Solar Initiative of Berlin Business” was introduced in 1997 to promote solar energy and to minimise CO₂ emissions. Among other things, it calls for the furnishing of 75% of all new buildings with solar collectors. At the same time, CO₂ reduction measures are to be implemented in both new and older buildings. These measures include improved insulation, district heating, energy saving construction methods, and photo-voltaic cells. They are combined with an extensive information and training campaign.

In 1998 the Senat and GASAG, the Berlin gas utility, concluded a co-operative agreement calling for GASAG to provide 1 million DM for the promotion of solar thermal equipment. This means the creation of almost 3,000 m² of new solar thermal collection surfaces. The project is open-ended and future measures will be revealed later on.

In the year 2000 an ”International Solar Centre” will be opened in Berlin as part of the project ”Centre for Future Energies Berlin / International Solar Centre” (ZZB / ISC). Incorporating the latest technology and low-energy construction methods, the International Solar Centre is a multifunctional production, service, and cultural centre for solar energy and rational energy use. It integrates such themes as solar construction and solar systems, and is designed to set new standards for energy saving and ecological construction in the 21 ^st century.

Actors and Structures

An important actor in the administrative network on energy-related responsibilities is the Energy Task Force (Energieleitstelle) which was established within the Ministy of Urban Development and Environmental Protection in 1989. It has the aim of co-ordinating the divided activities of energy-related policies in order to promote a rational use of energy and to increase the share of renewable energy sources as well as to enhance energy conservation. The duties are mainly carried out by the initiation of pilot projects, the stimulation of local energy policies on the district level, the preparation of energy studies and the elaboration and implementation of measures of the Energy Concept.

In order to include a wide spectrum of political actors as well as interest groups, the Energy Task Force set up an advisory committee, the Council on Energy (Energiebeirat), which offers the opportunity to discuss a broad range of energy policy issues and to recruit consultancy from important actors (e.g. energy utilities, trade unions, the scientific community, environmental groups etc.).

The Berlin Energy Agency has been set up to advise businesses, public authorities and non-profit organisations on the rational use of energy, on environmentally friendly modernisation, on ecological building methods, and on energy-efficient plants. The agency’s services include identifying potential energy savings as well as supporting the realisation of energy measures (e.g. mobilisation of investors). The agency also provides financing. The agency is independent and does not affect competition.

Source of Information

Senatsverwaltung für Stadtentwicklung und Umweltschutz, (Hg.) 1990, Energieagentur Berlin. Konzeptstudie, Neue Energiepolitik für Berlin H. 2, Berlin

Pearce, Rosaria 1994: Implementing the energy action plan for Berlin, in: EA.UE, (ed.) 1994: Ecoenergia. Rational and Renewable Energies for the cities of the future. Report of congress and workshop Milan, June 16th - 19th, 1993, Berlin, pp. 60-79

Müschen Klaus 1994: Der Stellenwert regenerativer Energien im Energiekonzept Berlin in: Michael Knoll / Rolf Kreibich, (Hg.), Modelle für den Klimaschutz. Kommunale Konzepte und soziale Initiativen für erneuerbare Energien, Weinheim, S. 65-79

InnoTec Systemanalyse GmbH, (ed.) 1994: Seven City Workshop - Overcoming the Barriers to Implementing Energy Saving Measures at a Municipal Level. By Order of the European Commission Directorate-General for Energy (DG XVII), Berlin

Senatsverwaltung für Stadtentwicklung und Umweltschutz, (Hg.) 1995: Ressourcenschonende räumliche Planung - Stadtklima und Lufthygiene - Beiträge zum globalen Klimaschutz, 46. Sitzung des Stadtforum Berlin 3./4. März 1995, Berlin

Senatsverwaltung für Stadtentwicklung und Umweltschutz 1995: Energiekonzept Berlin. Materialien zur Energiepolitik in Berlin H.14, Berlin

Senatsverwaltung für Stadtentwicklung und Umweltschutz, (Hg.) 1995: Neue Wege im Energiesparmarketing, Materialien zur Energiepolitik in Berlin H.16, Berlin

Senatsverwaltung für Stadtentwicklung und Umweltschutz 1995: Umweltschutzbericht 1995, Berlin

Senatsverwaltung für Stadtentwicklung und Umweltschutz 1998: Umweltschutzbericht 1998, Berlin

Senatsverwaltung für Stadtentwicklung und Umweltschutz 1999: Landesenergieprogramm 1999-2002, Berlin

Hassemer, Volker 1996: The Berlin energy concept. How far have we gone?, in: EA.UE, (ed.), Facing the Challenge. Successful Climate Policies in European Cities, Berlin, pp.18-21

Foerster-Baldenius, Peter 1996: Energy Savings in buildings stock. Programmes and projects of the Berlin Government, in: EA.UE, (ed.), Facing the Challenge. Successful Climate Policies in European Cities, Berlin, pp. 126-128

www.sensut.berlin.de/sensut/umwelt/

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Cities:

Berlin :

Berlin has a population of almost 3.5 million of which approximately 11% are foreign citizens. The wider conurbation has an additional population of nearly one million. The city covers 889 square kilometres; 38 km from north to south and 45 km from east to west. 24 per cent of the city’s surface is water and navigable waterways are 197 km in length. In size it is almost as large as the densely populated Ruhr area in North Rhine Westphalia. Berlin is the largest city in Germany, and one of the sixteen regional States (Bundesländer) of the Federal Republic of Germany.

The unified municipality of Berlin is a decentralised body divided into 23 districts (Bezirke). The districts have between 50,000 and 300,000 inhabitants. They carry responsibility for local politics and their own administration. Unlike independent municipalities, however, they do not have financial autonomy but are allocated funds by the City Government, the Senate of Berlin. The main authority for the City as a whole is the Senate which is divided into different administrative departments (comparable to Ministries in other German Länder).

Although Berlin has experienced a steady decline in industry, there are still over 200,000 people working in the manufacturing sector. Approximately 230,000 of the 1.5 million citizens in the workforce are employed in trade and about 750,000 people have jobs in service, primarily in the public sector.

In addition, Berlin is a centre of environmental research as well as technology, and a great number of businesses are engaged in environment-related activities. According to a study by the ifo Institute in Munich and the IÖW (Institute for Ecological Economic Research) in Berlin, 400 companies with 13,000 employees are directly involved in environmental protection (engineering offices, and producers and distributors of environmental technology). This number has tripled within the last ten years, and half of the companies have started as new businesses since 1990. Furthermore, Berlin is a stronghold of scientific research with approx. 100 companies involved in measurement and analytical activities, approx. 80 eco-research institutes (including universities), and 45 public administrations and authorities in charge of environmental matters.

Population:

Project was added at 21.06.1996
Project was changed at 21.08.2001

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