Terminal Evaluation of UNDP/GEF Project: Belarus: Improving Energy Efficiency in Residential Buildings

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Evaluation Plan:
2016-2020, Belarus
Evaluation Type:
Final Project
Planned End Date:
12/2018
Completion Date:
06/2018
Status:
Completed
Management Response:
Yes
Evaluation Budget(US $):
40,000

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Title Terminal Evaluation of UNDP/GEF Project: Belarus: Improving Energy Efficiency in Residential Buildings
Atlas Project Number: 00061054
Evaluation Plan: 2016-2020, Belarus
Evaluation Type: Final Project
Status: Completed
Completion Date: 06/2018
Planned End Date: 12/2018
Management Response: Yes
Focus Area:
  • 1. Environment & Sustainable Development
  • 2. Others
Corporate Outcome and Output (UNDP Strategic Plan 2014-2017)
  • 1. Output 1.5. Inclusive and sustainable solutions adopted to achieve increased energy efficiency and universal modern energy access (especially off-grid sources of renewable energy)
SDG Target
  • 4.7 By 2030, ensure that all learners acquire the knowledge and skills needed to promote sustainable development, including, among others, through education for sustainable development and sustainable lifestyles, human rights, gender equality, promotion of a culture of peace and non-violence, global citizenship and appreciation of cultural diversity and of culture‚Äôs contribution to sustainable development
  • 7.2 By 2030, increase substantially the share of renewable energy in the global energy mix
  • 7.3 By 2030, double the global rate of improvement in energy efficiency
Evaluation Budget(US $): 40,000
Source of Funding:
Evaluation Expenditure(US $): 32,356
Joint Programme: No
Joint Evaluation: No
Evaluation Team members:
Name Title Email Nationality
Roland Wang Mr rolandwong@shaw.ca
Viktoryia Kalosha Ms viktoryia.kalosha@gmail.com
GEF Evaluation: Yes
GEF Project Title: Belarus: LGGE Improving Energy Efficiency in Residential Buildings
Evaluation Type: Terminal Evaluation
Focal Area: Climate Change
Project Type: FSP
GEF Phase: GEF-4
GEF Project ID: 4228
PIMS Number: 4290
Key Stakeholders: Line Ministries; Implementing Partners; UN agencies; CSOs, private sector
Countries: BELARUS, REPUBLIC OF
Lessons
1.

1. The IEERB Project has provided excellent support within a period of 6 years to improve the enabling environment for increased investments into EE residential buildings in Belarus, notwithstanding the Project having a weak Project Results Framework (PRF) which did not convey to the Evaluation Team the targets that the Project needed to meet to achieve its overall objective. With strong and stable leadership of the IEERB Project from a highly experienced and top Belarussian climate change expert, the IEERB PMU was able to overcome this issue and facilitate significant achievements for energy efficiency in the building sector in Belarus:
• It has raised awareness in Belarus amongst all building stakeholders of the benefits of energy efficiency in residential buildings;
• It has provided support to the Government of Belarus in the preparation of a Technical Code on Energy Performance of Buildings (TC-EPB) that is aligned with EU Directive 2010/31/EU and has been approved by a number of key technical entities prior to its full adoption;
• It has also improved the capacities of building professionals with various academic institutes through the process of preparing the TC-EPB, disseminating knowledge products and contributing to academic construction curriculums;
• It has supported the completion of 3 A+ energy efficient residential buildings that will serve as an excellent resource for generating information on EE buildings, and inform policy improvements for the Government of Belarus to the TC-EPB.

2. The long-term sustainability of the IEERB Project of reducing energy consumption and GHG emission reductions on new residential buildings, however, is difficult to assess considering that existing heating tariff rates are too low for economic justification of the installation of energy efficient heating equipment in buildings, and the uncertainty of when these heating tariffs will be raised from a 21.4% to a 50% recovery rate; as shown on Table 7, the decrease in the number of EE buildings approved from 2016 to 2017 is an indicator of this need for a heating tariff review and amendment. There have been several Government Decrees (most recently 2016) proposing the raising of heating tariffs from 20% to 50% of the real cost by 2020, making EE measures economically feasible after 2020. There is also the expected full adoption of the TC-EPB that will make it mandatory for Belarusian building developers to implement energy efficiency measures in their buildings notwithstanding the low heating tariffs.


3. Looking forward in the context of sustaining the objectives of the IEERB Project of reducing energy consumption and related GHG emissions with a focus on new residential buildings, the IEERB Project has left a solid foundation consisting of the TC-EPB, raised awareness, strengthened technical capacity and demonstration EE buildings (as described in Para 103). However, the building sector will continue to need Government support to sustain further reductions of energy consumption and GHG emissions from the sector:
• Technical capacities of building technicians, operators and owners needs to be periodically
refreshed to ensure minimization of fossil fuel consumption for heat generation from district
CHPs. The lack of attention to maintaining these fuel system over the long-term can lead to
increasing inefficiencies and trends of increased fuel consumption;
• While the IEERB Project focused on energy efficiency of new buildings, the Government of
Belarus will need to refocus its efforts in this sector on implementing energy efficiency measures for the existing building stock which is more than 98% of all buildings in Belarus, if it wishes to sustain a downward trajectory of energy consumption and GHG emissions from the building sector;
• GHG emission reduction calculations from energy efficiency of new buildings as well as
retrofitted existing buildings needs to be more robust and institutionalized with the involvement of MoNREP. While the IEERB Project has initiated work towards its institutionalization with RUE Belarusian Research Centre “Ecology”, continued work in this area is required to build the country’s database on actual energy consumption in buildings, instead of a database that only contains buildings that are compliant with the TC-EPB.


Findings
1.

3.1.1 Analysis of Project Results Framework
29. The Project Results Framework (PRF) for the IEERB Project was slightly revised after the Inception Phase workshop of June 2013 and the MTR of December 2014 in consideration of the 9-month delay to start-up the IEERB Project (see Para 42 for details). The PRF only contains 2 objective level indicators and 6 indicators for 4 outcomes. In the context of best practices for preparing PRF’s for GEF projects, the wording of the indicators and targets are poorly formulated and do not meet SMART criteria7. Some specific comments on the 2013 PRF includes:
• 5 of the outcome indicators not being specific and measurable. This includes indicators such as “demonstrated capacity” and the “status” of regulatory documents and demonstration projects, both of which are not specific or measurable for the purposes of monitoring the progress of the Project;


Tag: Emission Reduction Energy Effectiveness Relevance Programme/Project Design

2.

3.1.2 Risks and Assumptions
32. A number of assumptions were identified in the PRF from 2012 as well as the revised PRF in June 2013 and Dec 2014 as keys to the achievement of IEERB Project objectives. This included:

  • suggested EE measures are adopted by design institutes and construction companies into the design of new buildings;
  • continued commitment of the Government of Belarus to proceed with suggested legislation;
  • demonstration projects adding value to new approaches for targeted building practitioners;
  • the assumption that the design of the demonstration buildings would be completed in the first 18 months of IEERB, and construction would be completed at the end of Year 3.

Tag: Energy Relevance Results-Based Management Risk Management

3.

3.1.4 Planned Stakeholder Participation
35. One of the primary purposes of IEERB Project was to increase the knowledge and build the capacity of key stakeholders8 while concurrently strengthening the legal and regulatory framework to support the Law on Energy Savings, and defining minimum energy performance standards (MEPS) for energy efficiency in buildings in line with best international practice. In addition, the IEERB Project also planned stronger engagement of stakeholders through supporting implementation of demonstration energy efficient buildings and disseminating positive information of these EE buildings to raise the confidence of targeted stakeholders.


Tag: Energy Effectiveness Relevance Bilateral partners Country Government Capacity Building Private Sector

4.

3.1.5 Replication Approach
37. The Project design envisaged a replication approach by improving and adopting mandatory minimum energy performance standards (MEPS) in the process for approvals of new building construction. Replication would be bolstered through new building designs needing to comply with these mandatory MEPS, increased knowledge of all building practitioners to implement energy efficient designs in residential buildings, and increased confidence of building practitioners to implement energy efficient residential buildings through examples set in completed demonstration EE buildings.


Tag: Energy Effectiveness Sustainability Programme/Project Design

5.

3.1.6 UNDP Comparative Advantage
38. UNDPs comparative advantage to other donor agencies is its focus on policy-based and cross-sectoral approaches as well as building local capacities through effective collaboration with a wide range of local stakeholders, ranging from the public and private sectors to technical experts, civil society and grassroots level organizations. These approaches are strongly applicable on energy efficiency projects such as this IEERB Project. In particular, UNDP has carried out over 15 projects related to energy efficiency in buildings in the Europe & CIS region over the past 10 years. Given UNDP’s long track record on a wide variety of projects within the energy sector, UNDP is suited as an implementing agency for this Project.


Tag: Relevance Policies & Procedures Strategic Positioning Bilateral partners Country Government Civil Societies and NGOs

6.

3.1.7 Linkages between IEERB Project and Other Interventions within the Sector
39. The IEERB Project was intended to be linked with several completed energy sector related projects by the Government of Belarus with their donor partners including:

  • The UNDP/GEF project “Biomass Energy for Heating and Hot Water Supply” with an objective to reduce GHG emissions of Belarus by removing barriers to economically feasible wood and wood waste utilization for heat and hot water supply. The project was completed in 2008 with a satisfactory rating;
  • UNDP/GEF project “Removing the Barriers to Improving Energy Efficiency in the State Sector of Belarus” with an objective to attract investments in the implementation of energy efficiency activities in the state sector. The project was completed in 2011 with a satisfactory rating;
  • World Bank Social Infrastructure Retrofitting Project was approved in 2001. The project aims to improve the social sector facilities with particular emphasis on reducing energy consumption. The project has two main components. The first component supports investment in physical infrastructure. Energy retrofitting measures in schools and medical facilities include building envelope and heating system improvements as well as conversion or replacement of individual autonomous boilers. Rehabilitation of limited parts of the district heating network is also included, when deemed as necessary, to capture savings at the heat production source. Project was completed in 2010 with a satisfactory rating;
  • World Bank Energy Efficiency Project was approved in May 2009. The objective of the project is to improve energy efficiency in heat and power generation in selected towns of Belarus. The project has three components: The first component is the conversion of existing heat-only-boiler plants to combined heat and power plants at six sites. The Project has had a satisfactory completion in December 2017.

Tag: Emission Reduction Energy Effectiveness Relevance Global Environment Facility fund Country Government International Financial Institutions

7.

3.1.8 Management Arrangements
40. The national implementing partner of the IEERB Project is the Department of Energy Efficiency (DEE) under the State Committee on Standardization of Belarus. The IEERB Project was to be implemented in accordance with UNDPs National Implementation Modality (now referred to as National Execution or NEX modality). NEX modality tasks DEE with responsibility for certifying work plans and approved budgets, reporting on procurement, coordinating and tracking co-financing, terms of reference for contractors and tender documentation, and chairing the Project Steering Committee (PSC). The Chair of the PSC was to be the National Project Director (NPD) from DEE.
41. In the ProDoc, UNDP provides Project implementation support to DEE by managing the budget and project expenditures, contracting project personnel, executing actions for procurement, and implementing the day-to-day management and monitoring of the project operations. An organogram of the IEERB Project implementation arrangements is provided on Figure 2.


Tag: Relevance Implementation Modality Oversight Project and Programme management Country Government

8.

3.2 Project Implementation
42. The following is a compilation of critical path events and issues of IEERB Project implementation in chronological order:

  •  The IEERB Project was approved by the GEF CEO on 15 December 2011;
  • The Government of Belarus signed the ProDoc on July 31, 2012 and registered it on August 10, 2012 marking the official commencement of the IEEERB Project;
  • The Project Management Unit (PMU) for the IEERB Project was only established in December 2012. This coincided with the hiring of the first and only National Project Manager for the IEERB Project (17 December 2012), nearly 11 months after the formal start of IEERB according to the ProDoc and 5 months after its official registration by the Belarusian Government on Aug 10, 2012;
  • The Project’s Inception Workshop was conducted in June 2013 (three months later than anticipated) due to long-lasting negotiations between the PMU, DEE and the Ministry of Natural Resources and Environmental Protection (MoNREP) to verify and secure MoNREP's co-financing commitments;
  • In November 2013, MoNREP formally withdrew from its co-financing commitments on the IEERB Project;
  • A Mid Term Review (MTR) for the IEERB Project was conducted during the September-December 2014 period;
  • Support was provided to selected policymakers and building development practitioners for study tours to Austria, Czech Republic, United Kingdom and Germany in 2013-2015;
  • During 2014 and 2015, the Project initiated and helped organize a “Technical Committee” to lead development of the Technical Code for Energy Performance of Buildings along with several interrelated standards in support of the TC-EPB’s key provisions. This subsequently led to a draft of the TC-EPB that was approved by the State Standardization Committee (GosStandard) on 21 December 2015, and a recommendation by the GosStandard to the Council of Ministers for full adoption;
  • Studies into the construction and designs of the 3 demonstration buildings commenced during 2014 and 2015;
  • Since June-July 2016, the Project has been sharing its experiences with UNDP-GEF sister projects in building energy efficiency in Turkmenistan, Kazakhstan and Uzbekistan;
  • Approval of an 18-month extension on 10 November 2016 from 31 December 2017 to 30 June 2018;
  • By December 2016, demonstration buildings in Mahiliou and Minsk were completed;
  • By May 2017, demonstration building in Hrodna was completed;
  • By early 2016, the Belarusian National Technical University (BNTU) adopted educational materials, tutorials and reference books on building energy efficiency developed by the IEERB Project into their Construction Faculty curriculum;
  • During 2013-2017, the Project organized and held more than 100 different informational campaigns (international and national conferences, seminars, roundtables, trainings, pressconferences, etc.).
  • Since June 2017, extensive training campaigns started both for residents of the pilot buildings and specialists from the housing and utility companies responsible for operation and maintenance of the buildings.

Tag: Relevance Implementation Modality Project and Programme management Bilateral partners Country Government Education Capacity Building

9.

3.2.1 Adaptive Management
43. Adaptive management is discussed in GEF terminal evaluations to gauge performance of project personnel to adapt to changing regulatory and environmental conditions, common occurrences that afflict the majority of GEF projects. Without adaptive management, GEF investments would not be effective in achieving their intended outcomes, outputs and targets. Examples of adaptive management during implementation of the 5.75-year duration of the IEERB to March 2018 included:


Tag: Global Environment Facility fund Communication Human and Financial resources Project and Programme management Results-Based Management

10.

3.2.2 Partnership Arrangements
45. The National Implementing Partner of the IEERB Project is the Department of Energy Efficiency (DEE) under the State Committee on Standardization of Belarus. The IEERB Project was designed to bring together the appropriate partners to promote and catalyze the interest in energy efficiency in residential buildings in Belarus. With many of these partners already identified in the IEERB ProDoc, Project resources were utilized to define partnership arrangements with these partners to strengthen the regulatory and legal framework for energy efficiency in buildings, build the awareness and technical capacity of these partners, and to collaborate with key partners to plan, design and construct pilot energy efficient buildings under Component 3.


Tag: Energy Partnership Country Government Capacity Building Private Sector

11.

3.2.3 Feedback from M&E Activities Used for Adaptive Management
48. Feedback for M&E activities was provided primarily through PSC Meeting Minutes (9 PSC meetings from April 2013 to December 2017) and PIRs (from 2014 to 2017) providing details of activities for adaptively managing the Project. This would include sections in the PIRs on “annual project quality assurance assessments” and “critical risk management” where recommendations on managing risks are divided into political, regulatory, organizational, and strategic categories. Strategic risks would include risks with stakeholder engagement of an important stakeholder group such as construction companies or building professionals.


Tag: Effectiveness Monitoring and Evaluation Project and Programme management Results-Based Management

12.

3.2.4 Project Finance
52. The IEERB Project had a GEF budget of USD 4.50 million that was to be fully disbursed over a 6-year duration, managed by the PMU under the direction of DEE. Table 3 reveals very little deviation between the actual outcome expenditures and original ProDoc Outcome expenditures. The only significant deviation would be the actual annual expenditures versus the projected annual expenditures. The information notes that annual expenditures in 2014 and 2015 were only 81% and 76% of projected expenditures while 2016 expenditures were 144% of ProDoc expenditures. This indicates and is confirmed by the Evaluation that implementation of the demonstration buildings under Component 3 was slow in delivery primarily due to late commencement of these buildings in 2014 after MoNREP withdrew its co-financing support of the Project.


Tag: Efficiency Global Environment Facility fund Human and Financial resources

13.

3.2.5 M&E Design at Entry and Implementation
55. The M&E design as covered in Section IV (Pgs 29-34) in the IEERB Project ProDoc is robust and thorough. The design thoroughly covers all M&E activities including:

  • the Project inception phase;
  • monitoring responsibilities and advance;
  • monitoring reporting requirements including annual Project reviews and Project implementation reports (APRs/PIRs);
  • independent evaluations that includes the Midterm Evaluation as well as the Final Evaluation;
  • Project audits; and dissemination of Project results to encourage learning and knowledge sharing.

Despite the weaknesses of the PRF (as explained in Para 29), the M&E design is rated as satisfactory.

56. The M&E plan was executed according to the designed as detailed in Para 55. The Evaluation Team has had access to review a Project Inception phase report, PIRs, MTR, Project audits, PSC meeting minutes, as well as Project logs (for risk, monitoring, lessons and issues). All these files especially the Project logs provide good insights into the management of the IEERB Project in the identification of risk, issues and corresponding management responses. In addition, these Project logs also documented checklists for the M&E plan on a semi-annual basis to ensure compliance with the original M&E plan. With these files having been reviewed by the Evaluation Team, M&E plan implementation is rated as satisfactory. Ratings according to the GEF Monitoring and Evaluation system27 are as follows:

  • M&E design at entry - 5;
  • M&E plan implementation - 5;
  • Overall quality of M&E - 5.

Tag: Effectiveness Monitoring and Evaluation Oversight Project and Programme management

14.

3.2.6 Performance of Implementing and Executing Entities
57. The performance of the implementing partner, the Department of Energy Efficiency, can be characterized as follows:

  • DEE provided an appropriate level of guidance to the PMU with regards to the work required to update the Technical Code for energy efficiency in buildings during the early stages of the Project. This included assistance in sourcing technical specialists for the Technical Committee for Standardization or TCS-14 for preparing the TC-EPB;
  • accelerated the approval of the TC-EPB by involving and informing policy makers of other ministries (such as Ministry of Energy, MoNREP, Ministry of Economy, and MoAC) of the work of the Technical Committee on updating the TC-EPB;
  • support to the PMU to obtain approval for the full adoption of the TC-EPB from the Council of Ministers;

 


Tag: Effectiveness Efficiency Human and Financial resources Implementation Modality Project and Programme management Results-Based Management

15.

Outcome 1: Strengthened legal and regulatory framework and mechanisms to enforce legislation for improving energy efficiency of building sector 65.

To achieve Outcome 1, Project resources would be used to:
• develop for adoption an endorsed methodology for building energy performance monitoring in line with EN and other applicable international standards (Output 1.1);
• complete at least 50 completed energy audits providing information on factual energy consumption and energy balance of different type of existing residential buildings of different age and using different construction techniques (Output 1.2);


Tag: Energy Effectiveness Rule of law Capacity Building National Institutions

16.

3.3.6 Relevance
94. The IEERB Project is relevant to the development priorities of the Government of Belarus which has been seeking efficiency improvements to specific energy consumption within building envelopes since 1993 as described in Para 18. In 1998, the Government of Belarus adopted a “Law on Energy Saving”, which was replaced by a new Law in 2015. The legal framework of this Law seeks to accelerate the harmonization of the country’s entire regulatory and legal system for energy efficiency with relevant legislative framework and technical regulations of the European Union.


Tag: Energy Relevance Country Government

17.

3.3.7 Effectiveness and Efficiency
95. The effectiveness of the IEERB Project has been satisfactory, in consideration of resources being used to develop the TC-EPB that has received approval from several ministries within the Government of Belarus, engaged relevant building practitioners, professionals and policymakers to build their knowledge base on energy efficiency in buildings, and technically and financially supported the completion of 3 pilot EE buildings in 3 cities in Belarus. Effectiveness could have improved if the PMU had a PRF that better described the targets and outputs of the IEERB Project.


Tag: Energy Effectiveness Efficiency Country Government

18.

3.3.8 Terminal Evaluation of Improving Energy Efficiency in Residential Buildings Country Ownership and Drivenness
97. The drivenness of the Government of Belarus to lower its carbon intensity within the residential building sector is reflected in:
• several standards and laws as described in Para 18 to bring specific energy consumption of heating and hot water systems in Belarus residential buildings closer to EU Directives;
• actions and strong support of the Department of Energy Efficiency at PSC meetings to direct the IEERB PMU towards the strengthening of the TC-EPB and the capacities of building practitioners and professionals throughout Belarus that will improve their abilities to comply with new building MEPS;
• strong support from DEE at PSC meetings to engage appropriate stakeholders to implement energy efficiency in new buildings;
• Strong support from the Ministry of Architecture and Construction to implement the systems for the checking of designs of new buildings for compliance with the new TC-EPB.


Tag: Energy Effectiveness Ownership Country Government

19.

3.3.9 Mainstreaming

98. The IEERB Project was successfully mainstreamed with the Belarus UNDAF (2011-2015)46, notably:

  • UNDAF Area of Cooperation 3: Assistance for ensuring environmental sustainability;
  • Agency Outcome 3.1: National capacity to mitigate and adapt to climate change enhanced;
  • Agency Output 3.1.1: Energy efficiency in buildings is improved.

Tag: Climate Change Adaptation Energy Effectiveness Gender Mainstreaming Capacity Building

20.

3.3.10 Sustainability of Project Outcomes
101. In assessing sustainability of the IEERB Project, the evaluators asked “how likely will the Project outcomes be sustained beyond Project termination?” Sustainability of these objectives was evaluated in the dimensions of financial resources, socio-political risks, institutional framework and governance, and environmental factors, using a simple ranking scheme:

  • 4 = Likely (L): negligible risks to sustainability;
  • 3 = Moderately Likely (ML): moderate risks to sustainability;
  • 2 = Moderately Unlikely (MU): significant risks to sustainability; and
  • 1 = Unlikely (U): severe risks to sustainability; and
  • U/A = unable to assess.

Tag: Energy Sustainability

21.

3.3.11 Impacts

103. The Project has made significant impacts within the building sector in Belarus:
• Most of the standards and regulations of the TC-EPB are mandatory to ensure minimum energy performance of new buildings. Compliance to the TC-EPB should now be higher for the building sector given that building developers will now be required to comply considering that approval for construction of these buildings is contingent on compliance. A remaining issue for the Government is to strengthen their building inspections to ensure that installed equipment complies with their TC-EPB compliant construction drawings;
• Completion of pilot energy efficient residential buildings has raised awareness amongst key building professionals of key engineering design aspects of TC-EPB compliant buildings. This in turn has informed construction companies, both state and private entities, of a key business direction for construction companies;
• The IEERB Project has raised the profile of energy efficiency in buildings through increasing the availability of EE building information on several and easily accessible platforms (such as the Project website: www.effbuild.by).


Tag: Energy Impact Country Government

22.

3.3.3 Outcome 2: Enhanced expert capacity of the Belarusian specialists to implement new energy efficiency standards and construction norms

70. To achieve Outcome 2, Project resources would be utilized to:
• develop and publish different target groups’ technical guides, handbooks and other related training materials on energy efficiency design and construction of new buildings, materials that would be used for introducing new construction norms and disseminated through an internetbased energy platform and the Project’s website (Output 2.1);
• develop new courses on integrated building design and building energy efficiency to be included into the curricula of universities educating architects and building engineers, and with at least 200 students having passed new courses by the end of the Project (Output 2.2);


Tag: Energy Effectiveness Education Capacity Building National Institutions

23.

Outcome 3: Implementation of demonstration projects for energy efficient buildings

To achieve Outcome 3, Project resources would be utilized to:

  • • finalize design of the demo buildings by applying integrated building design principles and incorporating new technologies and approaches for meeting the HVAC needs of those buildings in a most energy and cost-efficient way (Output 3.1);
  • • provide oversight in the completion of construction of the demo buildings by ensuring that construction and equipment installation are completed in accordance with the adopted standards and guidelines (Output 3.2);

Tag: Emission Reduction Energy Effectiveness Sustainability Project and Programme management

24.

Outcome 4: Documented, disseminated and institutionalized project results providing a basis for further replication

To achieve Outcome 4, Project resources would be utilized to deliver the following outputs:

  • Developed public awareness-raising materials and completed nation-wide awareness and information campaign advocating the benefits of energy saving measures, including economic, social, health, environmental and aesthetical aspects (Output 4.1);
  • Agreed methodology and sustainable institutional arrangements for annual market monitoring keeping track on buildings constructed each year, as well as the sale of key building materials, accessories and appliances together with their energy performance characteristics (Output 4.2);
  • Fully mandated and capacitated state agency with a responsibility to monitor the energy savings and CO2 emission reductions in residential and other buildings, together with the agreed procedures for compiling the respective data (Output 4.3);
  • Approved national procedures for extending energy audit practice in residential and other buildings and forming mechanisms for using the energy audit results for elaboration of the energy efficiency strategies for the building sector at the national level (Output 4.4);
  • Energy-efficiency aspects integrated into the regional and local plans for territorial development being developed by the Institute of Urban and Regional Planning (IURP) (Output 4.5);
  • An International conference on energy efficiency in residential sector held in Belarus, including a field visit to the pilot demonstration sites; coordination with the results of other UNDP/GEF Project “Removing the Barriers to Improving Energy Efficiency in the State Sector of Belarus” (Output 4.6);
  • A regularly updated Project website with postings on Project information that are of interest for all stakeholders, including the general public (with a link to an Expanded Energy Platform) (Output 4.7);
  • Annual market monitoring reports for new building construction (Output 4.8);
  • and  Final Project Report consolidating the results and lessons learnt from the implementation of the proposed Project components and future recommendations (Output 4.9).
     

Tag: Emission Reduction Energy Effectiveness Oversight Country Government

25.

To enhance the delivery of Outputs 2.7 and 2.8, the Project provided support and organized logistics for 58 decision-makers, designers, builders and other relevant specialists for their participation on 8 study visits to five European countries (Germany, Austria, Czech Republic, England and France)39 and 16 international events abroad on best practice for energy efficient residential buildings design, construction and operation as well as legal framework, standards and policies.


Tag: Energy Effectiveness Knowledge management Capacity Building South-South Cooperation National Institutions

26.

86. Project resources were used to cover the cost of additional energy efficiency measures estimated to be around 17% of the total capital cost of these buildings. Project partners provided the necessary technical supervision during the construction of the building envelope and installation of the energy efficient equipment by subcontractors. Technical supervision reports as a part of the delivery of Output 3.2 were generated during this period including information on necessary adjustments to ensure proper installation of equipment that would perform to the intended standards and guidelines in the design documentation. Construction completion dates of the demonstration buildings were 14 December 2016 for Mahiliou, 26 January 2017 for Minsk and 20 May 2017 for Hrodna.


Tag: Energy Effectiveness Project and Programme management

27.

The Project engaged "RUE StroyTechNorm" (STN) who assembled the Technical Committee on Standardization in the Field of Architecture & Construction (TCS-14) in 2014 to lead the development of the TC-EPB; the Technical Committee consisted of 20 members (including four Project’s experts) from various entities throughout Belarus including those working under an Energy Efficiency Committee within DEE. TCS-14 with the assistance of Project resources undertook a number of activities to develop the TC-EPB including:


Tag: Energy Effectiveness Capacity Building National Institutions

28.

91. To date, the Project has successfully implemented numerous outreach and institutional activities since late 2013:
Preparation and distribution of public awareness raising materials on energy savings in buildings as a part of Outputs 4.1 and 4.2.

This included:

  • The Project briefs are updated and issued every quarter and distributed as leaflets to more than 2,500 recipients;
  • More than 90 articles, press-releases, and reviews were prepared for broadcasting through television broadcasts and web-based media42 . This also included animated videos for residential households residents on energy efficiency in residential buildings43;
  • Interviews and news on television broadcasts and web-based media;
  • 65 communication campaigns45;
  • More than 250 technical reports, brochures, reference books and guidelines posted on web-based media;

Tag: Emission Reduction Energy Effectiveness Communication National Institutions

29.

The Project supported the training for a wide spectrum of building professionals that commenced with the preparation of appropriate training materials in 2013 and 2014. Project consultants prepared 250 technical reports of high quality for introducing new principles into design and construction of energy efficient housing as delivery of Outputs 2.1. Many of these reports have been adopted by academic institutes such as the Construction Faculty of BNTU in Minsk. Dissemination of these materials were supplemented by presentations, lectures, leaflets, brochures and guidelines through numerous 6-day training sessions in Minsk and Hrodna, dedicated to construction policies, norms and standards, recent international developments, integrated energy efficient building design principles and techniques, available technical options and correct installation of the materials and equipment used, and methodologies for assessing energy performance.


Tag: Energy Effectiveness Education Capacity Building National Institutions

30.

82. Prior to the commencement of Component 3, there were no energy efficient residential buildings with comparable energy performance in Belarus that could be monitored and used to inform policy for energy efficient buildings, and which could be used to demonstrate to the public and relevant building stakeholders the potential and feasibility of energy efficiency improvement measures in residential buildings.


Tag: Emission Reduction Energy Effectiveness Efficiency

31.

71. The baseline scenario of the Project was only 3 out of more than 120 design institutes in Belarus using a new design approach to energy efficiency for buildings, with little to no dissemination of this new approach beyond the local design institutes of NIPTIS, MAPID and Grodnograzhdanproekt. Prior to training being delivered (around June 2014), the Project had completed:
• an analysis of target groups along with assessment of needs in their capacity building (following meetings with Energy Efficiency Department and round-table discussions on a capacity building action plan for 2014-2015);
• 15 special technical reports and guidelines on energy efficiency design principles for dissemination to various training and academic institutes (as a part of Output 2.1). This included important issues such as cost efficiency analysis of different technical options applicable to the development of energy efficient residential buildings and development of designs for the pilot buildings of Outcome 3;
• analysis of curricula of different relevant universities and proposals to improve the curricula to address building energy efficiency through suggested university courses;
• drafting of recommendations for updating relevant university curricular as approved at a round table with 60 stakeholders; and
• a draft of the proposed syllabus to the boards of universities for their adoption.


Tag: Energy Effectiveness Education Capacity Building National Institutions

32.

78. As an adaptive management measure as mentioned in Para 43, the Project in early 2017 commenced a new series of trainings for professionals from construction companies, housing operation entities and utilities as well as for tenants with practical courses at the project pilot sites in Minsk, Mahiliou and Hrodna. In May 2017, three training sessions were held for tenants in the demonstration residential buildings in Minsk, Hrodna and Mahiliou. During the heating season of 2017-2018, four 1-day training workshops with on-site practical exercises were conducted for 50 specialists of municipal services responsible for operation of the pilot residential buildings in Hrodna and Mahiliou.


Tag: Energy Effectiveness Knowledge management Capacity Building South-South Cooperation National Institutions

33.

88. During 2017 and 2018, regular visits to the pilot buildings were made by local architects, designers, builders and decision makers as delivery of Output 3.5. However, despite the Project’s target to monitor the energy consumption from these pilot buildings for a period of one year, the Project, although conducting the monitoring of these pilot buildings for a period of 12 months, has not had the opportunity to obtain continuous energy consumption data and has not delivered Output 3.4 in full due to:

  • occupancy of the pilot buildings during the evaluation mission of February 2018 being less than 30%. In May 2018, the occupancy rate reached 42%. With this occupancy rate, the inhabitants of each unit in each building have been reluctant to use the energy efficiency features, which have been resulting in higher utility costs (for both heating and electricity). This is due to: o the use of electricity (at the 80.2% cost recovery tariff as shown on Figure 1) for these features has a fixed cost for operating the pumps, fans and meters all of which would have been distributed amongst fewer households due to the low occupancy rate; and
  • the preference for heat from the CHPs which is only charged at a tariff equivalent to a 21.4% cost recovery rate (see Figure 1);
  • most of the occupied units of the demonstration buildings not having normalized energy consumptive patterns due to the common practice when new housing units are purchased in Belarus, of new tenants typically taking up to one year to undertake retrofits (required for painting walls, installation of necessary kitchen appliances and washing machines along with piping for these facilities, ducting and electrical connections, and other adjustments). It is highly probable that normalized energy consumptive patterns would occur in the next heating season of 2018-2019 when there is a stronger likelihood all units would be occupied with completed retrofits;
  • the recent data of monitoring nevertheless show that almost two third of families who have already occupied the buildings consciously and properly use the system of forced ventilation with heat recuperation installed in each flat; and
  • the solar heaters, the system of heat pumps and the PV-station are under normal operation, as designed, and provide heat and electricity with certain deviations related to low energy demand

 


Tag: Energy Effectiveness Project and Programme management

34.

These discussions are still ongoing since the Institute of Urban and Regional Planning is reluctant to accommodate all new approaches. The Project issued 2 reports in 2017 and 2018 on EE urban development that were submitted to DEE and IURP for consideration:

  • “Proposals for urban development concepts, regional and local development plans based on recommendations on the integration of energy efficiency approaches into these plans”;
  • Amendments and additions to the technical standard TCH 45-01-284-2014 "Urban detailed planning. Structure and order of development” that was sent to the Institute of Urban and Regional Planning and TCS-14.;
  • Issuance of 3 relevant Project reports to DEE in April 2018 as a part of Output 4.8 including:
  •  “Analysis of practical procedures (methodologies) and relevant provisions for the system of annual monitoring of the status of energy efficient housing”;
  • “Institutional mechanisms for annual monitoring of the status of energy-efficient housing”;
  • “Draft provisions and methodology of the system for annual monitoring of the status of energy efficient housing”’;

 


Tag: Emission Reduction Energy Effectiveness Communication National Institutions

35.

30. The GHG emission reductions target of the IEERB Project is 220,000 tonnes CO2 that are lifetime emission reductions generated mainly from more than 80 EE new residential buildings which comply to Technical Code “Energy Efficiency of Buildings” which is actually the Technical Code for Energy Performance of Buildings (TC-EPB). This was to be calculated by taking the baseline annual specific energy consumption (SEC) for space heating demand from the average of 60 kWh/m2 (as adopted in 2010) to 20 kWh/m2 and the annual heat demand for sanitary hot water from the current average of 65 kWh/m2 similarly to 40 kWh/m2. The Ministry of Architecture and Construction (MoAC) maintain a database of buildings that are approved for construction and compliance with EEB Technical Code, complete with the actual SEC values of the new building and the building area in m2. GHG emission reductions can then be calculated by applying an average energy emissions factor in Belarus (consisting of composite electricity and heat factors). Table 1 provides a sample calculation from the IEERB ProDoc of the direct GHG reduction impact with the target of 65 kWh/m2/yr savings in final energy use compared to similar constructed buildings in accordance with the construction norms in force in 2012. This analysis would also be applicable to the detailed design of the 3 demo buildings that were implemented on this Project as well as other buildings that are approved for construction and in compliance to the TC-EPB.

The objective level target in the PRF of 220 ktCO2eq for GHG emission reductions would appear to be reasonable based on 80 buildings adopting the energy efficiency norms for buildings of the EEB Technical Code, for which the design or construction has started during the project implementation. With the enforcement system in place with MoAC approving project designs that are in compliance with the TC-EPB, the PMU will be reliant on reporting from the implementing partner, DEE, of buildings that have received these design and construction approvals. The target of 80 buildings assumes approximately 800,000 m2 of floor area for each of the 80 buildings.

 


Tag: Emission Reduction Energy Effectiveness Relevance Project and Programme management

Recommendations
1

To improve design of the future CCM projects including any follow-up “building energy efficiency” project

2

To improve implementation of future projects similar to IEERB, the PRF (strengthened through ToC analysis and ROtI) needs to be used as a guide for preparing project work plans.

3

Continue training workshops in oblast training centres to ensure the availability of a critical mass of certified EE building operational personnel.

4

(to MoHU with assistance from EED and UNDP): Set up a program that continually informs occupants of EE buildings on optimizing use of their EE systems for hot water, heating and fresh air ventilation systems.

5

(to the Ministry of Architecture and Construction (MoAC) with assistance from DEE and UNDP): Continue training programs to ensure the availability of a critical mass of building design personnel to enforce compliance to the TC-EPB

6

(to EED and MoHU): Monitor progress of Decree No.1037 of 29.12.2017 on the “Concept of Improvement and Development of Housing and Utility Services until 2025” addressing elimination of cross-subsidies and upward adjustment of low heating tariff rate towards 50% and higher that should be

7

(to DEE and MoAC): Disseminate monitored energy consumption data from 3 demo buildings to the Government policymakers and investors in line with Deputy Prime Minister’s Order No.04/26p of July 4, 2017, with more emphasis on the time when the pilot buildings are fully occupied and when the tenants have been in their units for a sufficient time during which their energy consumption would be normalized; this could be as long as 18-24 months when all units are occupied although the currently monitored data are being provided for decision makers..

8

(to MoNREP): Provide support to appropriate institutions to help formalize protocols and methodologies developed by the Project for reporting GHG emission reductions for EE buildings and retrofits

9

(to EED): Support future retrofit programs or construction of new EE buildings (supported either by GoB or donors) through training of building energy operators or managers using experiences gained through the Project

10

Scope for improved practice: Many country offices including Belarus need assistance in the preparation of ProDocs, most notably the Project Results Framework which needs to be focused with insertion of SMART indicators that directly contribute to an intended outcome.

1. Recommendation:

To improve design of the future CCM projects including any follow-up “building energy efficiency” project

Management Response: [Added: 2018/11/09] [Last Updated: 2020/12/11]

Key Action(s)

Time Frame

Responsible Unit(s)

Tracking*

Status

Comments

1.1.  Future projects should contain a clear logical framework matrix with SMART indicators and measurable targets that are reflected in the project outputs.

2018 -on

UNDP

On-going

This relates to future projects and should be considered during the project preparation phase.

1.2 Specific M&E activities should be designed that can help project teams focus on specific indicators for monitoring and respective and the respective adequate budget allocated in the project document.

2018 -on

UNDP

On-going

1.3 In the future projects that would focus on energy efficiency in residential sector sufficient resources should be allocated for capacity building of building owners and buildings operators to monitor energy consumption

2018 -on

UNDP

On-going

Key Actions:

2. Recommendation:

To improve implementation of future projects similar to IEERB, the PRF (strengthened through ToC analysis and ROtI) needs to be used as a guide for preparing project work plans.

Management Response: [Added: 2018/11/09] [Last Updated: 2020/12/11]

Management Response: All new projects include theory of change as a standard section in the Project Document. PRF is used as a guide for ADWP preparation.

Key Action(s)

Time Frame

Responsible Unit(s)

Tracking

Status

Comments

2.1.  Constantly monitor that PRF is used for ADWP preparation

2018 -on

UNDP

On-going

The best timing is during the APR and ADWP preparation.

 

Key Actions:

3. Recommendation:

Continue training workshops in oblast training centres to ensure the availability of a critical mass of certified EE building operational personnel.

Management Response: [Added: 2018/11/09] [Last Updated: 2020/12/11]

This recommendation is addressed to the Ministry of Housing and Utilities (MoHU) and the Energy Efficiency Department (EED) capitalizing on the expert and institutional capacities built within the project.

Key Action(s)

Time Frame

Responsible Unit(s)

Tracking

Status

Comments

3.1  As a post-project monitoring, request information from the MoHU and EED on the training activities after the project completion

Jun  - Jul 2019

UNDP. MoHU and EED

pending

The project ended in Jul 2018.

3.2 Discuss with the national partners further capacity building needs which can be including in one of the future projects.

Jul – Jan 2019

UNDP. MoHU and EED

pending

To meet with the MoHU and EED to discuss their capacity building needs to be considered for future energy efficient projects.

Key Actions:

4. Recommendation:

(to MoHU with assistance from EED and UNDP): Set up a program that continually informs occupants of EE buildings on optimizing use of their EE systems for hot water, heating and fresh air ventilation systems.

Management Response: [Added: 2018/11/09] [Last Updated: 2020/12/11]

The MoHU and EED should use the capacity built within the project

Key Action(s)

Time Frame

Responsible Unit(s)

Tracking

Status

Comments

4.1 Discuss with the MoHU and EED if they need such a programme along with a very preliminary programme content. 

Jul-Jan 2018

UNDP. MoHU and EED

pending

The best option will be the government allocating their own resources to develop such a programme which can be used for other buildings, as well.

4.2. Consider including the development of such a programme within future projects focusing on energy efficiency

2018-on

UNDP

On-going

Key Actions:

5. Recommendation:

(to the Ministry of Architecture and Construction (MoAC) with assistance from DEE and UNDP): Continue training programs to ensure the availability of a critical mass of building design personnel to enforce compliance to the TC-EPB

Management Response: [Added: 2018/11/09] [Last Updated: 2020/12/11]

The MoAC should and EED should use the capacity built within the project

Key Action(s)

Time Frame

Responsible Unit(s)

Tracking

Status

Comments

5.1  As a post-project monitoring, request information from the MoAC and EED on the training activities after the project completion

Jul – Jan 2019

UNDP. MoAC and EED

pending

The project ended in Jul 2018.

5.2 Discuss with the national partners further capacity building needs which can be including in one of the future projects.

Jul – Jan 2019

UNDP. MoAC and EED

pending

Key Actions:

6. Recommendation:

(to EED and MoHU): Monitor progress of Decree No.1037 of 29.12.2017 on the “Concept of Improvement and Development of Housing and Utility Services until 2025” addressing elimination of cross-subsidies and upward adjustment of low heating tariff rate towards 50% and higher that should be

Management Response: [Added: 2018/11/09] [Last Updated: 2020/12/11]

This issue is politicized and beyond UNDP control and influence. UNDP should however monitor the elimination of cross subsidies as this will drastically affect economic attractiveness of energy efficiency in residential sector

Key Action(s)

Time Frame

Responsible Unit(s)

Tracking

Status

Comments

6.1  Monitor the elimination of cross subsidies as this will drastically affect economic attractiveness of energy efficiency in residential sector

2018 - on

UNDP

On-going

UNDP has been and will be monitoring this issues as it defines significantly the national energy efficiency policy and practice

 

Key Actions:

7. Recommendation:

(to DEE and MoAC): Disseminate monitored energy consumption data from 3 demo buildings to the Government policymakers and investors in line with Deputy Prime Minister’s Order No.04/26p of July 4, 2017, with more emphasis on the time when the pilot buildings are fully occupied and when the tenants have been in their units for a sufficient time during which their energy consumption would be normalized; this could be as long as 18-24 months when all units are occupied although the currently monitored data are being provided for decision makers..

Management Response: [Added: 2018/11/09] [Last Updated: 2020/12/11]

The information on pilot buildings actual energy consumption would be very valuable for estimation of the effectiveness of the energy efficiency technologies and approaches employed by the project and can be used for future energy efficiency related projects designed by UNDP and the Government.

Key Action(s)

Time Frame

Responsible Unit(s)

Tracking

Status

Comments

7.1  As a post-project monitoring, request information from the MoAC and EED on the actual energy consumption from 3 demo buildings

June 2019, June 2020 and June 2021

UNDP. MoAC and EED

pending

Data should be requested after the completion  of  a heating period

Key Actions:

8. Recommendation:

(to MoNREP): Provide support to appropriate institutions to help formalize protocols and methodologies developed by the Project for reporting GHG emission reductions for EE buildings and retrofits

Management Response: [Added: 2018/11/09] [Last Updated: 2020/12/11]

UNDP may provide assistance to the MoNREP to elaborate/update/tailor the protocols and methodologies for GHG emission reductions reporting.

Key Action(s)

Time Frame

Responsible Unit(s)

Tracking

Status

Comments

8.1  Discuss with the MoNREP (and other relevant stakeholders) their needs with respect to the use of the protocols and methodologies developed by the Project for reporting GHG emission reductions for EE buildings and retrofits. Based on the results of these consultations, consider to assist the MoEnv in elaborating/updating/tailoring the protocols and methodologies for GHG emission reductions reporting within future climate change related projects, e.g. the MRV project.

Jul-Jan 2018

UNDP. MoEnv, PIU

On-going

N/A

Key Actions:

9. Recommendation:

(to EED): Support future retrofit programs or construction of new EE buildings (supported either by GoB or donors) through training of building energy operators or managers using experiences gained through the Project

Management Response: [Added: 2018/11/09] [Last Updated: 2020/12/11]

The EED should use the capacity build within the project.  If appropriate, activities on training of the respective specialists into the scopes of future climate change related projects.

Key Action(s)

Time Frame

Responsible Unit(s)

Tracking

Status

Comments

9.1  Discuss with the EED, MoAC and other stakeholder their needs with respect to knowledge and skills building of building energy operators or managers.

2018 -2020

UNDP. MoAC and EED

On-going

This is an on-going discussion and UNDP assistance will depend on resource availability.

Key Actions:

10. Recommendation:

Scope for improved practice: Many country offices including Belarus need assistance in the preparation of ProDocs, most notably the Project Results Framework which needs to be focused with insertion of SMART indicators that directly contribute to an intended outcome.

Management Response: [Added: 2018/11/09] [Last Updated: 2020/12/11]

During the project formulation stage seek assistance from the IRH with respect the PRF and the set of targets and indicators quality

Key Action(s)

Time Frame

Responsible Unit(s)

Tracking

Status

Comments

10.1  send draft ProDocs to the IRH specialist for review of the PRF and the proposed set of targets and indicator for every new project

2018 -on

UNDP CO and IRH.

On-going

It is our usual practice to get IRH commenting on and clear new Project Documents and we will continue this practice.

Key Actions:

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