waking a sleeping giant: Policy tools to improve the energy performance of the existing housing stock in the netherlands

The Netherlands like many European countries has issued ambitious national targets to achieve climate change goals. It is recognised that to achieve these goals the energy saving potential idling in the existing housing stock must be exploited. To date the Dutch response is largely defined by the typical national repertoire of policy instruments including voluntary agreements, economic incentives and information campaigns. Alongside this, the Energy Performance Certificate (EPC) required under the Energy Performance of Buildings Directive has entered the fold. Despite a controversial arrival and a low impact on much of the intended target group this tool is entering a new phase in Dutch policy circles. By providing an overview of the Dutch situation, this paper offers a contribution to the much-needed debate on policy instruments utilised to improve the energy performance of existing housing. Using policy instruments as a lens and drawing on stakeholder interviews, the Dutch national response to harnessing the energy saving potential of the existing housing stock is evaluated. Stakeholder interviews demonstrate consensus that the usual suspects from the policy toolbox are inadequate. Consensus on what an adequate toolbox should consist of is less forthcoming. Within this debate the EPC is materialising as a core component. But can manipulations of the EPC wake the sleeping giant that is the energy guzzling existing housing stock? Introduction In response to the multipronged climate change and energy security agenda, countries have issued ambitious targets and objectives for CO2 emission reduction, increased share of renewable energy and improved energy efficiency. Responsibility for reaching targets is enthusiastically assigned to all sectors with the building sector and existing housing in particular regarded as pivotal (Ecofys 2009; McKinsey & Company 2009; Ürge-Vorsatz et al 2007). Constructed before even modest energy standards, the cost efficient and effective energy savings idling in the existing housing stock is recognised in the Netherlands and elsewhere (ibid, BZK 2011). Nonetheless, existing housing is yet to be at the receiving end of the type of ambition evident for new build such as achieving nearly zero energy status by 2020. What is more, there is little academic debate on the type of policy instruments and instrument combinations best suited to tackle demand-side energy use in existing houses. While the energy saving capacity of the existing stock is eagerly acclaimed, its exploitation is markedly less celebrated. Hamilton (2010), McCormick and Neij (2009) and Höhne et al (2010) report on how ambitious targets fail to materialise into comprehensive frameworks, effective instruments and transparent results even among countries heralded as fore-runners. The Netherlands is an example of where policy tools have been introduced to reach the energy saving potential of the existing housing stock with varying degrees of success (Energy Transition Task Force 2006; VROM 2007; BZK 2011). This paper recounts research into national policy instruments deployed to win energy performance improvement of existing housing in the Netherlands. Energy performance in this context is understood as energy efficiency improvements