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An international survey of building energy codes and their implementation

Buildings are key to low-carbon development everywhere, and many countries have introduced building energy codes to improve energy efficiency in buildings. Yet, building energy codes can only deliver results when the codes are implemented. For this reason, studies of building energy codes need to consider implementation of building energy codes in a consistent and comprehensive way. This research identifies elements and practices in implementing building energy codes, covering codes in 22 countries that account for 70% of global energy demand from buildings. Access to benefits of building energy codes depends on comprehensive coverage of buildings by type, age, size, and geographic location; an implementation framework that involves a certified agency to inspect construction at critical stages; and independently tested, rated, and labeled building energy materials. Training and supporting tools are another element of successful code implementation, and their role is growing in importance, given the increasing flexibility and complexity of building energy codes. Some countries have also introduced compliance evaluation and compliance checking protocols to improve implementation. This article provides examples of practices that countries have adopted to assist with implementation of building energy codes.

54 ENVIRONMENTAL SCIENCES↗

Building Energy Codes and Grid-Interactive Efficient Buildings: How building energy codes can enable a more dynamic and energy-efficient built environment

This report considers the role of national model codes to promote grid-interactive efficient buildings (GEBs) as part of the modernization of the U.S. electricity grid. It introduces GEBs, describes their ability to support a clean, resilient grid, and considers challenges and approaches for incorporating GEB measures into national model energy codes and standards. Desirable traits of GEB include being low energy, low peaking, and responsive to grid needs, and minimizing the curtailment of renewable energy resources. In addition, the future grid incurs a time and locational value on these types of building services. Accounting for these considerations in future code development requires a continuation and expansion of code-minimum energy efficiency requirements and inclusion of demand responsive and load flexibility measures while ensuring annual use and cost reductions. Also, efforts to include GEB measures in codes will be limited until they are fully developed into an American National Standards Institute (ANSI)-approved standard. Then it would be straightforward to address GEB measures through points or packages and/or scoring requirements. Otherwise, the building code would have to describe each specific grid responsive strategy. This document reviews topics pertinent to considering codes in this context. Specifically, the study presents the status and direction of current building energy codes, the future smart grid, low-energy buildings, and grid-integrated buildings. The report concludes with recommendations for future code development activities to support low-energy, grid-interactive buildings in order to provide added value to building owners, the grid, and society.

24 POWER TRANSMISSION AND DISTRIBUTION↗

Best practices for building energy codes compliance

Building energy codes are a proven policy mechanism to achieve economy-wide energy savings in buildings. In 2021, the International Energy Agency Energy in Buildings and Communities Programme (IEA EBC) Building Energy Codes Working Group (BECWG) set out to survey the diverse codes compliance practices across BECWG member countries. While codes vary in format and approach, attaining the energy reduction potential of building energy codes requires effective implementation and compliance. This is a large undertaking for countries, as effective compliance checking requires adequate resources, technical knowledge, capacity, and strong institutions. Many nations face the same compliance issues, such as requiring faster and easier methods to verify codes and coordinating among numerous stakeholders and levels of government. This paper explores the need for stronger institutional approaches to enforce building energy codes that will lead to code compliance. Specifically, this report sets out to address the question of what practices result in effective building energy code compliance in selected BECWG member countries.

29 ENERGY PLANNING, POLICY, AND ECONOMY↗

Commercial Zero Code Plug-In: Zero Energy and Operational Emissions Overlay for Model Energy Codes (Technical Brief)

Model energy codes (MEC) describe requirements needed to demonstrate building energy performance compliance. They can be readily adopted by states and local jurisdictions to support desirable energy efficiency investment in new buildings and major renovations. This report provides commercial building energy code language as an overlay to current MEC, which is recognized by the U.S. DOE as ASHRAE Standard 90.1 2022. The code language provides a performance-based compliance path for achieving net zero energy or net zero operational energy emissions buildings with MEC. The path requires meeting two compliance metric target values: 1) a required minimum level of efficiency and 2) a measure of zero energy or emissions. The supporting documentation illustrates the magnitude of needed efficiency improvement and the additional offsets to be achieved from renewable energy sources.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

Impacts of Model Building Energy Codes

The Department of Energy (DOE) Building Energy Codes Program (BECP) periodically evaluates national and state-level impacts associated with energy codes in residential and commercial buildings. Pacific Northwest National Laboratory (PNNL), funded by DOE, conducted an assessment of the prospective impacts of national model building energy codes from 2010 through 2040. A previous PNNL study evaluated the impact of the Building Energy Codes Program. A 2016 study looked more broadly at overall code impacts and this report describes the methodology used for the assessment and presents the impacts in terms of energy savings, consumer cost savings, and reduced emissions at the state level and at aggregated levels. In 2021, DOE conducted an interim and limited update to its 2016 study to evaluate potential building code updates using the 2016 methodology. That interim update includes estimated savings resulting from updates to the model energy codes, including the ANSI/ASHRAE/IES Standard 90.1-2016 (ASHRAE 90.1-2016) and 2019 editions, as well as the 2018 and 2021 International Energy Conservation Code (IECC). In 2023, DOE developed a fully updated report that includes code updates (ASHRAE 90.1-2019 and 2021 IECC), as well as additional enhancements and updates, including updated energy prices, annual floorspace additions, state code adoption dates, and emission factors, among others. This current version is another fully updated report that includes code updates (ASHRAE 90.1-2022 and 2024 IECC), as well as additional enhancements and updates, including updated energy prices, state code adoption dates, emission factors, and renewable energy contribution among others. Energy codes follow a three-phase cycle that starts with the development of a new model code, proceeds with the adoption of the new code by states and local jurisdictions, and finishes when the new code is implemented and builders, architects, and engineers are required to comply with the new provisions. The development of new model code editions creates the potential for increased energy savings. After a new model code is adopted, potential savings are realized in the field when new buildings (or additions and alterations) are constructed to comply with the new code. The contributions of all three phases are crucial to the overall impact of codes and are considered in this assessment. Figure ES.1 schematically describes the analysis framework. Energy savings are expressed in terms of energy use intensity (EUI) in the figure.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

Impacts of Model Building Energy Codes

The U.S. Department of Energy (DOE) Building Energy Codes Program (BECP) periodically evaluates national and state-level impacts associated with energy codes in residential and commercial buildings. Pacific Northwest National Laboratory (PNNL), funded by DOE, conducted an assessment of the prospective impacts of national model building energy codes from 2010 through 2040. A previous PNNL study evaluated the impact of the Building Energy Codes Program; this study looked more broadly at overall code impacts. This report describes the methodology used for the assessment and presents the impacts in terms of energy savings, consumer cost savings, and reduced CO 2 emissions at the state level and at aggregated levels. This analysis does not represent all potential savings from energy codes in the U.S. because it excludes several states which have codes which are fundamentally different from the national model energy codes or which do not have state-wide codes. Energy codes follow a three-phase cycle that starts with the development of a new model code, proceeds with the adoption of the new code by states and local jurisdictions, and finishes when buildings comply with the code. The development of new model code editions creates the potential for increased energy savings. After a new model code is adopted, potential savings are realized in the field when new buildings (or additions and alterations) are constructed to comply with the new code. Delayed adoption of a model code and incomplete compliance with the code’s requirements erode potential savings. The contributions of all three phases are crucial to the overall impact of codes, and are considered in this assessment.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

Impacts of Model Building Energy Codes

The Department of Energy (DOE) Building Energy Codes Program (BECP) periodically evaluates state and national impacts associated with energy codes in residential and commercial buildings. Pacific Northwest National Laboratory (PNNL), funded by DOE, assessed the prospective impacts of national model building energy codes from 2010 through 2040. The model codes of interest in this report are the International Energy Conservation Code (IECC) for residential buildings and ASHRAE Standard 90.1 for commercial buildings. This report describes the methodology used for the assessment and presents the impacts in terms of energy savings, consumer cost savings, and reduced CO 2 emissions at the state and national levels.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

Building Performance Standards and Energy Code Alignment - Technical Brief

Building energy codes focus on building design, construction and renovation and have significantly increased building efficiency since the first national energy code was published in 1975. Most jurisdictions have energy codes based on ANSI/ASHRAE/IES Standard 90.1 (hereto referred to as Standard 90.1) and the International Energy Conservation Code (IECC). Compliance options available in these model energy codes include a prescriptive path, whole building performance paths – including IECC Total Building Performance (TBP), Standard 90.1 Energy Cost Budget (ECB) method and Performance Rating Method (PRM) – and system performance paths for envelope and heating, ventilation, and air-conditioning systems. Building performance standard (BPS) policies are an emerging policy tool used by jurisdictions to reduce the operational energy use or greenhouse gas (GHG) emissions of the existing commercial building stock. BPS policies vary widely between jurisdictions and are tailored to each location’s climate and energy goals. Intuitively, projects that met a recent edition of the energy code should comply with the BPS targets. However, some new buildings may struggle with meeting the BPS for the following reasons: 1. Energy codes focus on the design of the building and its projected ability to perform efficiently, while BPS compliance is dependent on the actual ongoing performance of the building, considering variables like occupancy, operation, and maintenance. 2. There are significant differences in the methodologies used to determine BPS compliance versus code compliance, including how each handles compliance metrics, handling of building amenities, and renewable energy generation. 3. The prescriptive compliance path in the energy code is based on performance of individual building components, as opposed to the performance compliance path which accounts for holistic building design strategies and interdependent building systems. This can result in a significant variability in post-occupancy performance for buildings built using the prescriptive path. Designs on the lower end of the permitted efficiency range may struggle with meeting the BPS.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

Building Performance Standards and Energy Code Alignment: Technical Brief

Building energy codes focus on building design, construction and renovation and have significantly increased building efficiency since the first national energy code was published in 1975. Most jurisdictions have energy codes based on ANSI/ASHRAE/IES Standard 90.1 (hereto referred to as Standard 90.1) and the International Energy Conservation Code (IECC). Compliance options available in these model energy codes include a prescriptive path, whole building performance paths – including IECC Total Building Performance (TBP), Standard 90.1 Energy Cost Budget (ECB) method and Performance Rating Method (PRM) – and system performance paths for envelope and heating, ventilation, and air-conditioning systems. Building performance standard (BPS) policies are an emerging policy tool used by jurisdictions to reduce the operational energy use or greenhouse gas (GHG) emissions of the existing commercial building stock. BPS policies vary widely between jurisdictions and are tailored to each location’s climate and energy goals. Intuitively, projects that met a recent edition of the energy code should comply with the BPS targets.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

Resilience Issues in Building Energy Codes

This report, prepared for the International Energy Agency’s Building Energy Codes Working Group (BECWG, part of the IEA Energy in Buildings and Communities Technical Collaboration Programme, or IEA EBC), focuses on the application of building energy codes to improve the ability of buildings to provide a minimum healthy level of thermal comfort and function during extreme events. It reviews the relationship of building energy codes to the other building resilience policies and strategies, such as other building life/safety codes, community planning or zoning to discourage rebuilding in areas most prone to climate disasters, and other resilience planning strategies. The report provides an overview of how different jurisdictions address resilience issues in building energy codes in countries that are part of the IEA EBC Building Energy Codes Working Group.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

The Alabama Energy Code Compliance Project

The U.S. Department of Energy (DOE) Building Energy Codes Program launched a series of research studies in 2014 across eight U.S. states (shown in Figure 1) to investigate typical energy efficiency practices in residential buildings and identify opportunities to reduce household utility bills. A primary goal of the study was to help document baseline practices for new single-family construction, target areas for improvement relative to the state energy code, and quantify the related savings potential. This information is intended to assist states in measuring compliance with their energy codes and to identify areas of focus for future education and training initiatives. Following the original baseline studies, project teams in each state conducted a series of education, training, and outreach activities aimed at improving compliance with the state residential energy code. A second baseline study was then implemented in each state with the objective of determining whether the investment in education, training, and outreach programs had produced a significant and measurable change in statewide residential energy use. Through the program, DOE planned to establish a sufficient data set to represent baseline construction trends across states and detect significant changes in energy use resulting from education and training activities. This report outlines the application of the study in the state of Alabama, which was led by the Institute for Market Transformation (IMT). Data gathered have been submitted to Pacific Northwest National Laboratory (PNNL) for analysis. Findings available to date are published as PNNL technical reports on the DOE Building Energy Codes Program website.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

A Review of the Evaluation of Building Energy Code Compliance in the United States

Building energy codes are essential tools for achieving energy efficiency in buildings. However, the full energy savings potential of these codes can only be realized if buildings are constructed in compliance with them. Therefore, evaluating building energy code compliance is crucial in bridging the gap between the energy efficiency requirements set by energy codes and the actualized energy savings achieved. An energy code compliance evaluation serves as a mechanism to assess construction practices, evaluate the effectiveness of code enforcement, identify gaps in compliance, and guide strategies for improvement through training and education. Conducting code compliance evaluation activities involves field studies that require careful design and significant resources. Historically, more emphasis has been placed on developing and adopting building energy codes, while efforts to evaluate compliance have been relatively limited and lacking consistent approaches. The passage of the 2009 American Recovery and Reinvestment Act (ARRA), which mandated that states create plans for achieving 90% compliance within eight years, stimulated the need for an energy code compliance evaluation. As a result, federal, state, and local governments, and utilities have invested in the development of methodologies and tools for code compliance evaluation studies. This paper reviews the code compliance evaluation studies conducted in the United States over the past three decades. It describes and compares the methodologies and metrics used to assess building energy code compliance, summarizes the general elements and steps involved in the evaluation process, and discusses common issues in these studies. Over time, code compliance evaluation methodologies have evolved from isolated development within individual states, regions, and utilities, to widely accepted protocols applicable across different states and local jurisdictions. There has been a transition in compliance metrics, shifting from historical compliance rates to energy-consumption-oriented approaches.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

Impacts of Model Building Energy Codes – Interim Update

The U.S. Department of Energy (DOE) Building Energy Codes Program (BECP) periodically evaluates state and national impacts associated with energy codes in residential and commercial buildings. Pacific Northwest National Laboratory (PNNL), funded by DOE, assessed the prospective impacts of national model building energy codes from 2010 through 2040. The model codes of interest in this report are the International Energy Conservation Code (IECC) for residential buildings and ASHRAE Standard 90.1 for commercial buildings. This report describes the methodology used for the assessment and presents the impacts in terms of energy savings, consumer cost savings, and reduced CO 2 emissions at the state and national levels.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

Implementation of Energy Code Controls Requirements in New Commercial Buildings

Most state energy codes in the United States are based on one of two national model codes; ANSI/ASHRAE/IES 90.1 (Standard 90.1) or the International Code Council (ICC) International Energy Conservation Code (IECC). Since 2004, covering the last four cycles of Standard 90.1 updates, about 30% of all new requirements have been related to building controls. These requirements can be difficult to implement and verification is beyond the expertise of most building code officials, yet the assumption in studies that measure the savings from energy codes is that they are implemented and working correctly. The objective of the current research is to evaluate the degree to which high impact controls requirements included in commercial energy codes are properly designed, commissioned and implemented in new buildings. This study also evaluates the degree to which these control requirements are realizing their savings potential. This was done using a three-step process. The first step involved interviewing commissioning agents to get a better understanding of their activities as they relate to energy code required controls measures. The second involved field audits of a sample of commercial buildings to determine whether the code required control measures are being designed, commissioned and correctly implemented and functioning in new buildings. The third step includes compilation and analysis of the information gather during the first two steps. Information gathered during these activities could be valuable to code developers, energy planners, designers, building owners, and building officials.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

Model Energy Codes End-Use Opportunity Analysis

Model energy codes (ASHRAE Standard 90.1 and IECC) has significantly impacted programs and policies aimed at improving energy efficiency both in United States and across the globe. Standard 90.1, first published in 1975 (originally referred to as Standard 90) provides minimum energy efficiency guidelines for designing, constructing, operating, and maintaining new construction and renovated buildings. It is updated continuously, with new editions published every 3 years. Pacific Northwest National Laboratory (PNNL) conducts simulated energy and cost savings analysis of model energy codes to determine their expected impact and to track progress toward net-zero goals and efficiency targets. Additionally, the simulation outputs are examined to assess how energy is used across primary systems within prominent U.S. commercial building types to understand how energy is used in each building type at the end-use level and to identify areas for improvements in future code cycles. This end-use opportunity analysis of model energy codes provides ASHRAE technical committees and other interested parties a better understanding of how the Standard affects various building systems and end uses, specifically, those in the Standard that most prominently influence energy efficiency. Additionally, findings provide industry stakeholders guidance in identifying building types and end-uses with the most potential for energy efficiency improvements through energy codes and those that may require beyond code measures to meet energy use reduction targets. This paper summarizes features and functionalities of a webtool created by PNNL to explore and visualize the End-Use opportunity analysis.

ASHRAE 90.1, Energy Codes, Tableau↗

Let the Good Times Roll – Energy Code Savings into the Future

Long term benefits of energy codes provide valuable information for setting policies, for state adoption, and in evaluating the cost-benefits of energy codes. Pacific Northwest National Laboratory (PNNL) evaluated the long-term impacts associated with energy codes in residential and commercial buildings from 2010 through 2040. The analysis developed and implemented a new methodology that relied on available data and market trends. The study was heavily vetted with key stakeholders including, DOE, Regional Energy Efficiency Organization network (REEOs), ACEEE and others. Several complex streams of information were combined in the analysis, including results from hundreds of simulation models, codes field study data from DOE, floor space data from EIA's Annual Energy Outlook, and data on projected technology improvements from DOE’s Technology Roadmaps. This paper describes the methodology used for the assessment and presents the energy and economic impacts in terms of site energy savings, consumer energy cost savings, and reduced CO2 emissions at the state level and at aggregated national level. The assessment concluded that model energy codes will save $126 billion for consumers on their utility bills, reduce carbon emissions by 841 metric-million tons, and save 12.82 quads of primary energy on a cumulative basis from 2010 through 2040. The results are being used by DOE to underline their role in improving building energy efficiency, by REEOs and states for promoting state code adoption, and by ACEEE and others to perform their own analyses related to energy codes.

buidling energy codes, Impacts of Energy Codes↗

Commercial Building Energy Code Field Study: Data Collection Methodology and Protocol

In support of the U.S. Department of Energy’s Commercial Buildings Energy Code Field Study, this data collection methodology and protocol provides guidance on all aspects of undertaking a compliance study, from development of a sampling plan to recruitment to code requirements and compliance checks for each energy code measure specified to be collected. The protocol also includes a data collection form that captures all key information needed for analysis of commercial energy code compliance. This methodology was developed by the Institute for Market Transformation in coordination with Pacific Northwest National Laboratory (PNNL) and the U.S. Department of Energy Building Energy Codes Program with the objective of assisting states, jurisdictions, utilities and others as they seek to measure and demonstrate compliance rates with energy codes in commercial buildings, as well as to target areas for improvement through increased energy code compliance and broader energy-efficiency programs. It is also intended to facilitate a consistent and replicable approach to research studies of this type and establish a transparent data set representing baseline construction practices across the U.S.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

Commercial Building Energy Code Field Study: Data Collection Methodology and Protocol

In support of the U.S. Department of Energy’s Commercial Buildings Energy Code Field Study, this data collection methodology and protocol provides guidance on all aspects of undertaking a compliance study, from development of a sampling plan to recruitment to code requirements and compliance checks for each energy code measure specified to be collected. The protocol also includes a data collection form that captures all key information needed for analysis of commercial energy code compliance. This methodology was developed by the Institute for Market Transformation in coordination with Pacific Northwest National Laboratory (PNNL) and the U.S. Department of Energy Building Energy Codes Program with the objective of assisting states, jurisdictions, utilities and others as they seek to measure and demonstrate compliance rates with energy codes in commercial buildings, as well as to target areas for improvement through increased energy code compliance and broader energy-efficiency programs. It is also intended to facilitate a consistent and replicable approach to research studies of this type and establish a transparent data set representing baseline construction practices across the U.S.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗