Good practice package for buildings in Singapore

Policy roadmap and targets for ultra-low energy buildings/retrofits

In 2006, the BCA issued the Green Building Masterplan (1st GBM). However, only with its revision in 2009 (2nd GBM), the remarkable goal was set up to green 80% of Singapore’s building stock by 2030. In Sinagore, a “green building” is defined by the Green Mark Scheme, a voluntary label consisting of four certification levels, Green Mark (GM) certified, GM gold, GM gold plus, and GM platinum (for detail, please refer to “Provision of information” under the Specific measures tab). The number of energy efficiency and other environmental friendly measures and technologies included in a building determines the rating (BCA 2009, p. 4ff.).
Estimates consider that EUR 600 million annually are achievable by increasing the green building stock (WGBC 2011). The 2nd GBM earned Singapore the Regional Leadership Award of the World Green Building Council in 2011. It includes six “strategic thrusts” (BCA 2009, p. 7f.).

• The public sector was identified to take the lead. The fact that all government buildings are required to receive a GM gold plus certificate by 2020, which is just one of several measures, stresses the significance of the public sector as a role model to the whole construction industry in Singapore. In addition, according to the Zero Carbon Compendium, further concrete goals for residential homes are to improve “the energy efficiency of public housing estates by 30% for older Housing and Development Board (HDB) estates and 20% for new estates” (ZEB 2011).
• Two incentive schemes primarily accelerate private sector investments in energy-efficient buildings. The Green Mark Incentive Scheme for existing buildings (GMIS EB) and the GMIS for new buildings (GMIS NB) offer financial support to investors. Through the Green Mark Gross Floor Area Scheme (GM GFA) investors are eligible for more floor space. The better the GMS label or, in other words, the more energy-efficient and environmental-friendly the buildings are, the better the incentives. Find more at “Incentives and financing” under the “Specific measures” tab.
• The development of green building technology is mainly promoted by the Research Fund for the Built Environment, which offers financial support to private and public research.
• Building industry capabilities is necessary to safeguard proper implementation of the GM label. 20,000 green building specialists (so called PMETs, Professional, Manager, Executive and Technician) are to be trained by 2020.
• Singapore is profiling itself as a hub for green built environment internationally. International conferences, regionally unique building projects, promotion of the GMS and co-operation with international research institutes contribute to that goal.
• Imposing minimum standards. This relates mainly to the building codes and their development, e.g. the addition of residential buildings backmin 2008. Currently, BCA investigates in the “feasibility of requiring energy consumption disclosure by building owners”.

In a nutshell, the roadmap provides a reliable planning framework for market actors through overall targets, minimum requirements, voluntary green labelling, incentives, capacity building measures and R&D promotion.

Energy-efficient spatial planning and urban district planning

Singapore has been promoting a “high density development” for residential and non-residential buildings. Commercial districts and residential areas, the latter are also referred to as “satellite towns”, are well connected to the public transport system contributing to energy conservation in Singapore.
Energy-efficient urban planning may be easier to some extend than in other contexts, because the government owns 90% of the land and public housing is highly popular in Singapore (80% of the population live in public accommodation) (Suzuki et al. 2010).

International co-operation

Singapore has profiled itself as an international player in the building and construction sector. It has exported the Green Mark Scheme to various countries in South-East Asia as well as Saudi Arabia and Tanzania. In order to foster the dialogue between research institutions, Singapore partners with the University of Nottingham, the University College of London (both UK), the University of Stuttgart (Germany) and the Carnegie Mellon University (USA). Moreover, various international Memoranda of Understanding were signed with actors responsible for construction sector of their respective region, e.g. in China and Bahrain (BCA 2011a, p. 34f.; p.44f.). The Green Building Conferences are also a means of international co-operation.

Energy agencies

Energy efficiency in Singapore does not rely on one agency in particular but is facilitated by the Energy Efficiency Programme Office (E2PO), a multi-agency committee. It consists of eleven actors such as the National Environment Agency (NEA) and the Energy Market Authority.
Energy efficiency in the building sector is administered by the Building and Construction Authority (BCA), which also part of the E2PO. The BCA has a wide range of responsibilities. It develops and reviews respective regulation, approves building plans and performs structural inspections (BCA 2009a). Apart from close co-operation with E2PO agencies, BCA collaborates with the National University of Singapore and it is subordinate to the Ministry of National Development (MND).
The Housing and Development Board (HDB) is Singapore’s public housing authority and another agency of the MND as well as part of the E2PO. It plans and develops public housing. As 90% of the population lives in public houses, co-operation between BCA and HDB is significant.
The overall direction toward a sustainable growth strategy is in the hands of the Inter-Ministerial Committee on Sustainable Development, which was also responsible for the Green Building Masterplan.

Government agencies and budget

In Singapore, funding for Green building and energy efficiency policies and programmes is provided by the government’s budget, and the agencies mentioned above implement the measures.
Only for some incentive schemes, budget information is available (UNESCAP/ ATI 2012; CCAP 2012).
Green Mark Incentive Scheme for New Buildings: EUR 12 million
Green Mark Incentive Scheme for Existing Buildings: EUR 61 million
Building Retrofit Energy Efficiency Financing Pilot Scheme: EUR 2.4 million
Green Mark Incentive Scheme for Design Prototype: EUR 2.4 million
Research Fund for the Built Environment: EUR 30 million
UNESCAP and ATI (2012) calculate the overall budget for these and other initiatives to be at around EUR 430 million, however extending over a number of years. In relation to the population of 5.46 million people living in Singapore, the financial support is over EUR 75 per Singaporean. By way of comparison, e.g. the German federal government currently spends around EUR 25 per inhabitant per year for energy efficiency financial incentive programmes.

Removal/reduction of subsidies on end-user energy prices and on energy supply

According to the government, Singapore has deliberately avoided subsidising energy consumption in order to “encourage households and businesses to use energy prudently” (NCCS 2012, p. 34).

Minimum energy performance standards (MEPS) for buildings & equipment

In 1979, Singapore launched its thermal performance standard for buildings, known as the Overall Thermal Transfer Value (OTTV). Though the performance standard was revised in 1989 and 1999, it was only mandatory for air-conditioned non-residential buildings. Moreover, only in 2000 it was found out that OTTV “did not reflect accurately the relative performance of the different elements in an envelope. Specifically, it underestimated the solar radiation gain component through the fenestration system and hence did not represent the full extent of heat gain through the envelope” (BCA 2004).
In 2000, the Envelope Thermal Transfer Value (ETTV), taking into account heat conduction through opaque walls, heat conduction through glass windows as well as solar radiation through glass windows, replaced the OTTV. Heat gained through the overall envelope area is considered by the ETTV “to give an ETTV that represents the thermal performance of the whole envelope” (BCA NA b, p. 7). The ETTV of air-conditioned non-residential buildings must not exceed 50W/m² of surface area.
Two more aspects are considered by the ETTV standard. First, it factors in the use of different building materials (including different fenestration materials). Second, the fact that the heat gain is dependent on the wall’s cardinal direction is considered by the ETTV calculation. For this reason, solar correction factors have been determined for eight primary orientations (North, North-East, East, and so on) (BCA NA b).
Since more and more residential buildings have started to install air-conditioning systems, ETTV has been introduced to residential buildings in 2008, as well. The calculation of the Residential Envelope Transmittance Value (RETV) is similar to that of the ETTV. However, the maximum permissible RETV must not exceed 25W/m², because in Singapore residential buildings are usually ventilated only during the night, when the heat gain is low.
While ETTV is applicable to non-residential buildings larger than 500 m², residential buildings with a gross floor area 2,000 m² or more must meet RETV-standards.
There are various compliance measures. One of those is the Building Energy Standards (BEST), software tool developed by the National University of Singapore. Since 2000, it can be used by those involved in the design and construction process of a building (e.g. architects). BEST is, among other things, capable of calculating the annual energy consumption of buildings or identifying energy saving options (Chou as found in Alliance to Save Energy 2009, p. 9f.).

Other legal requirements

From 2013 on, companies with an annual energy consumption of 15 GWh must appoint energy managers, submit energy consumption reports as well as energy efficiency improvement plans. As the government of Singapore has constantly tightened its legislation for public and private energy consuming organisations, it is likely that similar legal requirements will be launched for smaller energy consumers (E2Singapore 2013).
From the second half of 2013, several requirements for different kinds of buildings become effective.
First, hotels, retail malls as well as office building, which install or replace a ventilation system, must achieve the minimum Green Mark label equivalent to 50 green mark points. Among other regulation, the cooling system must not perform below system efficiency standards, which is necessary because in Singapore 30% to 50% of a buildings energy consumption is due to its cooling system. By this measures, Singapore starts “greening” existing buildings. Moreover, by combining ventilation system replacement with the GM-label, building owners are automatically confronted with other energy-efficiency measures which might be necessary to reach the 50 green mark points. Financial incentives may persuade the building owner to invest in above average energy efficiency and sustainable building measures.
Second, new commercial and public buildings as well as existing, retrofitted buildings are legislated to conduct an energy audit on cooling system every three years. This safeguards that the system “continues to operate efficiently and achieve the energy savings” (BCA NA c, p. 1).
Third, via the Building Energy Submission System building owners of all new and existing buildings must provide BCA with building information and energy consumption data every year. However, in the initial phase, only commercial buildings (offices, hotels and retail malls) are subject to that legislation.

Mandatory energy performance certificates & equipment labels

The Green Mark Scheme (for more details, please refer to “Provision of information” below) is originally a voluntary building label. However, from the second half of 2013, hotels, retail malls and office buildings, that install or replace a ventilation system, are required to score at least 50 Green Mark points equivalent to the minimum GM certification. As Singapore has been tightening building legislation with regard to energy efficiency issues, it is likely that more building categories must fulfil GM-standards in the coming years turning the Green Mark Scheme, de facto, into a mandatory performance certificate.
Energy advice & assistance during design and construction
BCA certifies buildings specialists that are capable in supporting the construction sector with implementing the Green Mark label (2012 a). Lists of adequate specialists are available on: http://www.bca.gov.sg/GreenMark/gm_manager.html.
Moreover, energy advice and assistance during the design stage is funded through the Design for Efficiency Scheme (DFE). It financially supports costs for energy-efficiency consultants. However, only investors in new industrial facilities can apply with the Design for Efficiency scheme (DFE), administered by the National Environmental Agency. The rationale behind the DFE is that several “system design synergies are only available early in the design process“ (e2singapore 2013a). Investors can apply for EUR 370,000 or 50% of the costs to conduct design workshops with building experts which will develop a tailor-made energy-efficient building design.

Provision of information

In 2005, Singapore introduced the voluntary Green Mark Scheme (GMS), basically a voluntary building label in order to increase awareness for sustainable buildings. The different GMS certificates (GM certified, gold, gold plus and platinum) show varying degrees in sustainability performance.
Labels are available for various building categories (infrastructure categories such as new and existing residential buildings, non-residential buildings, new and existing parks, existing schools, restaurants, supermarkets, etc.). Each category comprises different assessment criteria.
For new and existing residential buildings, assessment criteria are energy efficiency, water efficiency, sustainable operation and management, community and well being, and other green features/ requirements. Each of these sections consists of further sub-categories.
A building can receive points for each subcategory as seen below.

The table (applicable to existing residential buildings only) already suggests that there are minimum requirements to be reached in some categories and also in some sub-categories. The bottom line shows that there are 137 points, so called Green Mark Points in total, achievable. However, to receive any GM certification, it is mandatory to score, at least, 30 points under the energy efficiency criteria and 20 points in the other areas making energy efficiency the most critical component of the scheme.
Moreover, BCA specifies further minimum performance scores as for example that buildings must reach 15 points in the sub-category Energy Efficiency Index (EEI). To achieve that, either a building’s EEI must not be over 40 kWh/m²/year or it must demonstrate 10% energy savings from its own historical baseline (BCA 2011 c, p. 5).
Of course, for receiving a better GM rating, more points are necessary:
GM certified: 50 to < 75
GM gold: 75 to < 85
GM gold plus: 85 to < 90
GM platinum: 90 to 137
The assessment for new residential buildings is slightly different. For example, the RETV is the primary energy efficiency assessment indicator, not the EEI. Moreover, the assessment system is much more flexible. There are no minimum requirements stipulated for the sub-categories. One reason for allowing a more flexible system to builders might be to increase the uptake rate for the GMS in new buildings, in particular. For more information, compare the GMS assessment guide for existing buildings (BCA 2011c) with the one for new buildings (BCA 2013a).
In general, it is necessary for investors to pursue GMS certification in order to be eligible to access various incentive schemes such as the Green Mark Gross Floor Area Scheme, which is also applicable for residential buildings. In order to support the construction sector with fulfilling GMS requirements and to safeguard the overall process, BCA and BCA Academy certify building specialists.

Annually, BCA rewards residential and other buildings with the Green Mark Award. Winners are displayed online including important figures such as estimated energy savings. Moreover, the names of architects, engineers and others are included (BCA 2012b).

Moreover, in order for building owners to compare the energy consumption of their buildings with others of the same category, BCA has established an Energy Efficiency Index for buildings with a “sizeable air-conditioning load”. Buildings performing below the average could be easily identified and refurbished in order to compete with other buildings that perform better and, thus, are more likely to be bought or rented (BCA-NSU Building Energy & Research Information Centre NA).

In 2009, the Built Environment Leadership Award (BELA) was given for the first time to “recognise outstanding industry firms such as developers, consultants […] and builders that have demonstrated excellence and leadership in shaping a safe, high quality, sustainable and friendly built environment in Singapore” (BCA 2011). The most important prize is the Built Environment Leadership Platinum Award. Only buildings can be awarded that are already certified with the Green Mark Scheme.
Moreover, the Green Mark Awards lists GM certified buildings, including residential buildings, on BCA’s homepage. Architects, engineers and other important contributors are named. Estimated annual energy savings are listed, as well.

Last but not least, the website of E2PO, www.e2singapore.gov.sg, offers comprehensive and easily-accessible information to stakeholder interested in energy efficiency.

Feedback and measures on behaviour

In the south-western part of Singapore, the Eco-living campaign provided information to the public via two measures: on-site counselling and leaflets. It was funded by a district government authority and implemented by the Hong Kah North Residential Council.
An evaluation found that the “leafleat-group” “recorded the highest average reduction in consumption” as opposed to the “counselled group” (He/ Kua 2013, p. 112).

Financial incentives for approaching ULEB /exceeding MEPS

In the Green Mark Incentive Scheme for New Buildings the total sum EUR 12 million was available for green buildings that achieved at least the Green Mark Gold certification. The fact that this fund has been fully utilised since its introduction in 2005 can be interpreted as a success.

Existing non-residential buildings (gross floor area > 2,000m²) are able to access the Green Mark Incentive Scheme for Existing Buildings (GMIS EB). In total, EUR 60 million were available. Investors can make use of these funds for two purposes:
1. Either funds can be used for co-funding (50%, capped at EUR 1.8 million) retrofit works
2. An energy audit can be co-financed
If investors opt for the first option, it is mandatory to replace the chiller. For both, the building owner must apply for GM certification.

In order to incentivise companies in the manufacturing and building sector to conduct energy consumption analysis, the National Environment Agency offers benefits of up to EUR 125,000 via the Energy Efficiency Improvement Assistance Scheme (EASe). An Energy Service Company (ESCO) accredited under the ESCO Accreditation Scheme must carry out the assessment. Various success stories are available at www.e2singapore.gov.sg. One of such examples is the Singapore Post Centre, which annually saves 5,000 MWh and EUR 750,000. The payback period for investing in an improved chiller plant system is only 1.7 years.

Investors in residential buildings, however, can only access the GM Gross Floor Area Scheme (GM GFA). Note that non-residential building investors have also access to this scheme.
Under the GM GFA, buildings must achieve a GM gold plus or platinum rating (discussed above) in order to be granted additional floor area (which is restricted to particular regulation). Both, existing and new residential buildings can apply for this incentive.
In order to increase the incentive to achieve the platinum rating, BCA grants 2% of additional gross floor area while a gold plus rating results only in 1% of additional gross floor area (BCA 2013b).
In order to also realise GMS Platinum buildings, BCA introduced the Green Mark Incentive Scheme Design Prototype (GMIS DP) in 2005. Consultation with and workshops of building designers and building-related simulation studies are financed through the fund, that is equipped with € 3 mio. Every building category (commercial, residential, mixed-usage, institutional etc.), existing or new, can apply for funding. However, the building gross floor area must meet or exceed 2,000 m².

Financing

The Building Retrofit Energy Efficiency Financing Scheme (BREEF) was introduced as a pilot in 2011 to provide loans for commercial building owners to undertake energy efficiency retrofits under an Energy Performance Contract (EPC) arrangement. BCA is co-operating with the banks issuing the loans, by sharing 50% loan default risk, for five ongoing projects. (BCA 2013 d, p. 52)

Education & training

According to Anggadjaja (2009, p. 4) the governments intents to train 20,000 PMETs (short for Professional, Manager, Executive, Technician) or “green specialists” in the fields of building development, design, construction, operation and maintenance in order to continue the path of a sustainable built environment by 2020 and beyond. Based on data of the annual Next Level Report of 2010/11, 13,422 PMETs had been trained. In order to realise this goal, E2PO offers a training grant under the Singapore Certified Energy Manager (SCEM) programme. Three degrees can be reached: associate level, professional level and executive level for which different skills and qualifications are needed and which can take over different tasks. However, grants are only available for the professional level, so that programme participants need to pay only roundabout €550.
The core component of this capacity building mission is the BCA Academy established in 1984. BCA Academy integrates a research arm, the Centre for Building Research, and, moreover, two schools (BCA Academy NA):

• The School of Building and Development offering industry training for workers and students at trade skills level and diploma level.
• The School of Graduate and Management Development providing post-diploma and professional level training to practitioners in the industry.

Certification of qualified actors

The BCA offers intensive training programmes, which are necessary for building experts to become either a Green Mark Manager (GMF), a Green Mark Professional (GMP) or a Green Mark Facilities Manager (GMFM). Certification offers those planning to build an environment-friendly building the opportunity to identify state-certified and, thus, trustworthy building experts.
According to BCA (2012, p. 3) the three certificates can be differentiated as follows:

Energy efficiency clusters / networks

In Singapore, an energy efficiency network exists for investors in non-residential buildings.
The Energy Efficiency National Partnership (EENP), launched by the National Environmental Agency, the Economic Development Board and the Energy Market Authority, was introduced as a voluntary programme for business companies that wish to reduce their energy consumption. The EENP can be regarded as a platform to exchange ideas regarding energy savings. Members can access best practices information, toolkits and case studies. Only platform participants can benefit from various incentive schemes (e.g. from the Energy Efficiency Improvement Assistance Scheme (EASe), the Grant for Energy Efficient Technologies (GREET) and the Design for Efficiency).
Moreover, “partners will be encouraged to adopt an Energy Management System at the organisational level so that the measurement and management of energy consumption, as well as the identification of energy efficiency improvements, can be undertaken systematically“ (E2Singapore 2013).
The EENP can be seen as a crucial to business companies because in 2013 energy management requirements become effective for users of more than 15 GWh. From then onwards, it is mandatory to employ an energy manager, to report energy use and to submit energy efficiency improvement plans. Thus, EENP prepare those organisations for this legislation.
As of February 2013, 135 members have joined the programme.

Promotion of third-party financing

Compared to other countries, energy performance contracting is rather new in Singapore and focused on retrofitting public buildings. However, the BCA regards performance contracting as an interesting energy-saving measure and, thus, developed Guaranteed Energy Saving Performance Contracts (GESP). The Energy Service Company (ESCO) guarantees energy savings and respective returns. Shor_TFAlls must be covered by the ESCO (NCCS 2012a).

Funding for research, development and demonstration (RD&D) projects

Furthermore, Singapore is home to the first newly built “carbon-neutral” building and the first retrofitted zero-energy building (ZEB) in the region. The former, the Tampines Concourse office building, accomplished in 2009, makes use of, an energy-efficient building envelope, sustainable building materials and a day-light-facilitating design, which have earned it the Green Mark Gold Plus certificate. Due to its energy-efficient design and technologies included the building complex, with roundabout 10,000 square meters, is estimated to save 620,000 KWh annually. Carbon emissions released during the construction phase (5,243 tCO₂) and the first operation year (1,507 tCO₂) were offset by the purchase of carbon credits (Tay 2009).
In October 2009, the BCA opened the first retrofitted zero-energy building in South-East Asia on the Campus of the BCA Academy. ZEB includes environment-friendly building technology, design, ventilation and lighting systems as well as solar energy. Basically, ZEB serves two functions:

• To serve as a test bed for integration of Green Building Technologies (GBT) in existing buildings
• To be a hub for practitioners and students in the study of energy efficiency and green buildings

(BCA NA a)

Compared to typical office buildings in Singapore, the 4,500 square meter building saves more than €50,000 each year. In late June 2012, ZEB “recorded a cumulative surplus of 37 megawatt hours” since its opening (Ling 2012).
Demonstration buildings are a key tool showing feasibility of energy-efficient construction and, in the case of Singapore, are also in line with the guideline of “profiling Singapore as the regional hub for green building technologies” signalling leadership in green building design to an international audience (BCA 2011a, p. 35).
Moreover, Singapore hosts the Green Building Week including the International Green Building Conference, both of which can be regarded as government initiatives to foster exchange between Singapore’s and foreign building sector experts.
Public sector programmes
The Housing and Development Board (HDB) plans to improve energy efficiency by 30% in its older estates and by 20% in new estates (ZEB 2011). The HDB is the main actor in the residential building sector administering public housing, where around 90% of Singaporeans live in. This mirrors public leadership in order to achieve a green building stock by 2030.

Competitions & Awards

In 2009, the Built Environment Leadership Award (BELA) was given for the first time to “recognise outstanding industry firms such as developers, consultants […] and builders that have demonstrated excellence and leadership in shaping a safe, high quality, sustainable and friendly built environment in Singapore” (BCA 2011). The most important prize is the Built Environment Leadership Platinum Award. Only buildings can be awarded that are already certified with the Green Mark Scheme.
Moreover, the Green Mark Awards lists GM certified buildings, including residential buildings, on BCA’s homepage. Architects, engineers and other important contributors are named. Estimated annual energy savings are listed, as well.