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DOE OSTI2025

Reported Energy and Cost Savings from the DOE ESPC IDIQ Program: FY 2024

Energy Savings Performance Contracts (ESPCs)are a contractual mechanism that allow a federal agency to procure energy savings and facility improvements without upfront capital costs to reduce costs and resiliency. ESPCs are covered under FAR Part 23.2, and 42 USC § 8287. Section 8287(a)(2)(A) of Title 42 of the U.S. Code requires that each energy savings performance contract (ESPC) undergo an annual energy audit, resulting in a separate audit report for every project. The objective of the present report is to compile and analyze all annual ESPC audit reports issued between October 1, 2023, and September 30, 2024, for projects awarded under Generations 1, 2, and 3 of DOE’s ESPC IDIQ contracts. During this period, 205 measurement and verification (M&V) reports were produced for 200 projects; the total number of reports exceeds the number of projects because some projects generated more than one report(for example, a few projects measure savings twice per year and produce two audit reports annually, each covering a different six-month period). By aggregating the results from these individual audits, the report determines the portfolio-wide realization rate of energy and cost savings for all active ESPC projects awarded under DOE’s IDIQ program. For all 205audit reports, sufficient information was available to compare project-level estimated, reported, and guaranteed cost savings. Reported cost savings accounted for ESCO verified savings per each project’s M&V plan. The total reported cost savings for the period addressed were $\$$647.8million,compared with the total guaranteed cost savings of $\$$601.6million. On average across the reported projects: •ESPC contractors guaranteed 92.8% of the estimated cost savings• projects reported achieving 100.0% of the estimated cost savings• projects reported achieving 107.7% of the guaranteed cost savings. The M&V performed for the period indicated adjustments for government operations and maintenance impacts to savings amount to$\$$43.9millionandcould be restored with the original operational parameters for impacted projects. Accounting for this potential cost savings impact, these projects still realized 100.4% of the guaranteed cost savings. The information on estimated and reported energy savings was collected and compared for all 205of the reports examined. Based on site energy, estimated savings totaled 14.88million MMBtu, and reported savings were 15.33million MMBtu; 3.1% greater than the estimated energy savings. All of the reports examined contained sufficient information to calculate source energy savings. Based on site-adjusted source energy, total estimated energy savings were 20.90 million MMBtu, and reported savings were 21.22million MMBtu, 101.5% of the estimated energy savings. For water savings, the estimated savings were 11,539,055 kGal and the reported savings were 13,315,930 kGal. This means 1,776,875 kGal more water was saved than estimated, which is about 15% higher than the estimate. These results indicate that, overall, the reported energy savings slightly exceeded the estimated values, while estimated water savings significantly exceeded estimated values, suggesting that the projects achieved greater cost savings than originally projected. The total annual expense for the ESCOs to perform annual M&V audits and reporting was $\$$10.02million. Through this effort, $\$$647.8 million in annual cost savings was verified. The M&V results indicated that $\$$43.9 million of these verified savings reflected adjustments due to government operations A-6and maintenance impacts, which could be restored under the original operational parameters for the affected projects. These findings show the value of M&V that only costs 1.7%of the guaranteed cost savings to ensure guarantees are met.

29 ENERGY PLANNING, POLICY, AND ECONOMY↗

DOE OSTI2025

Evaluating GHG Mitigation Potential from ESPC Projects [Slides]

This report explores the impact of implemented ESPC projects on the projected greenhouse gas (GHG) emissions reductions in the U.S. buildings sector, and the associated projected annual cost savings and marginal abatement costs. It is important to investigate the role that energy retrofits can play in achieving GHG emission reduction targets given the use of ESPC by public agencies to reduce emissions from energy use in addition to the historical use of ESPC to to achieve cost/energy savings and ancillary benefits (e.g., addressing deferred maintenance, aging infrastructure, etc.). The analysis draws from LBNL’s eProject Builder (ePB) database, which contains approximately 3,000 energy retrofit projects implemented by energy service companies (ESCOs), mostly energy savings performance contract (ESPC) projects. This is the first report to model GHG emission reductions from ongoing ESPC projects in the U.S public sector based on ePB project data. It is intended for policymakers, federal, state and local government officials and other potential ESPC customers, the ESCO industry, researchers, and other energy policy professionals.

29 ENERGY PLANNING, POLICY, AND ECONOMY↗

DOE OSTI2025

Reported Energy and Cost Savings from the DOE ESPC IDIQ Program: FY 2024

29 ENERGY PLANNING, POLICY, AND ECONOMY↗

DOE OSTI2024

Commissioning Guidance for Energy Savings Performance Contracts (ESPCs)

This Commissioning Guidance for Energy Savings Performance Contracts (ESPCs) is DOE’s official guidance for ordering agencies under the current DOE ESPC IDIQ contract. This guidance document explains how commissioning of energy conservation measures (ECMs) and water conservation measures (WCMs) is incorporated into the ESPC process, roles and responsibilities in project commissioning, and key elements of commissioning. This document updates the previous version, released in 2015. This guidance can also be used as applicable in the development of ESPC ENABLE and UESC performance assurance plans.

Walker, Christine↗

DOE OSTI2024

Reported Energy and Cost Savings from the DOE ESPC IDIQ Program: FY 2023

The objective of this work was to determine the realization rate of energy and cost savings from the U.S. Department of Energy’s (DOE’s) Energy Savings Performance Contract (ESPC) program based on information reported by the energy services companies (ESCOs) that are carrying out ESPC projects at federal sites. Information was extracted from 201 measurement and verification (M&V) reports covering 191 projects to determine reported, estimated, and guaranteed cost savings and the associated reported and estimated energy savings for the previous contract performance year. This report covers projects that had a performance year ending in fiscal year 2023, between October 1, 2022 and September 30, 2023, and had an M&V report issued. Additionally, the annual cost to perform M&V was extracted from the individual project Task Order (TO) Schedules.

29 ENERGY PLANNING, POLICY, AND ECONOMY↗

NASA NTRS2000

NASA Glenn Research Center Experience Using DOE Midwest Region Super ESPC

The energy crisis of 1973 prompted the Federal Government and private industry to look into alternative methods to save energy. At the same time the constant reduction of operations and maintenance funds during the last 5 years forced Glenn Research Center (GRC) to look for alternative funding sources to meet the mandate to reduce energy consumption. The Super Energy Savings Performance Contract (ESPC) was chosen as a viable source of facility improvement funding that can create larger project scope and help replace aging, inefficient equipment. This paper describes Glenn's participation in the Department of Energy (DOE) Super ESPC program. This program provided Glenn cost savings in the performance of energy audits, preparation of documents, evaluation of proposals, and selection of energy service company (ESCO).

Zala, Laszlo F.↗

DOE OSTI2024

Analysis of Ground Source Heat Pump ECMs: Implemented Under DOE ESPC IDIQ Contract

Several federal performance and decarbonization objectives are driving the U.S. government to transition to net-zero emissions across the federal building portfolio. The overarching purpose of this Federal Energy Management Program (FEMP)-Geothermal Technologies Office (GTO) work is to support federal facilities in accomplishing the administration’s federal building decarbonization goals. Creating awareness of existing geothermal (or ground-source) heat pump (GHP) systems deployed on federal property, implemented using performance contracts and evaluating the energy and environmental impacts of these systems, this work will assist federal facilities in considering inclusion of GHP technology energy conservation measures (ECMs) in future performance contracting project awards. This report summarizes analyses of data from GHP ECMs installed under the DOE ESPC IDIQ contract across various climate areas and geographic locations, agencies, and building use types. Through the analysis of proposed GHP ECMs and understanding key metrics on implemented GHP systems in a variety of applications, FEMP and GTO can further support federal agencies in meeting decarbonization and net-zero building goals by evaluating and incorporating GHP systems into performance contracts and communicate the benefits of this technology.

15 GEOTHERMAL ENERGY↗

DOE OSTI2024

How To Determine and Verify Operations and Maintenance Savings in Energy Savings Performance Contracts

Operations and maintenance (O&M) savings frequently occur in energy savings performance contracts (ESPCs). During FY 2022, 37% of reported annual cost savings for projects awarded under the U.S. Department of Energy (DOE) ESPC indefinite delivery indefinite quantity (IDIQ) contracts and in the performance period were due to O&M or other energy- and/or water-related cost savings, with the balance (63%) from utility cost savings (i.e., energy or water cost savings). Sometimes the energy- and water-related cost savings are acknowledged and included in payments within ESPCs; other times, for various reasons, they are not. As presented in this guide, FEMP recommends including energy- and water-related cost savings that are O&M (including related repair and replacement) savings in the financial aspects of an ESPC, to the extent such savings can be documented. Inclusion of these savings will help augment project scopes and/or lower interest costs (by shortening financing terms). However, there is a burden of proof as to what constitutes acceptability in O&M savings that needs to be carefully considered and documented in individual projects. Beyond promoting a key tenet used in U.S. federal performance contracting—that savings must be from actual budgets and therefore based on the level of O&M that is actually occurring, not what should have been performed—FEMP also recommends good practice in establishing and documenting O&M baselines, formulating the rationale for baseline adjustments during the performance period, and conducting ongoing verification activities. This document concludes with five examples of how O&M savings may be handled, in situations ranging from the partial displacement of O&M contracts to consolidation and “virtualization” of servers in data centers. A key theme that permeates this guide is the importance of thoroughly documenting all conditions and assumptions used in the development of and accounting for O&M costs and savings throughout the ESPC life cycle, from baseline-setting to measurement and verification (M&V) of the savings during each year of the performance period. Doing so not only prevents internal claims of non-performance (especially in the case of staff turnover during the contract term), but also simplifies ordering agency and energy service company (ESCO) response in the event of scrutiny from oversight organizations, such as government audits. While this guide focuses on federal ESPCs, it may also be applicable when O&M savings are included in utility energy service contracts (UESCs) and non-federal ESPCs.

Voss, Phil↗

DOE OSTI2024

Recognizing and Assigning Risks and Responsibilities Using the Risk, Responsibility, and Performance (RRP) Matrix

The Risk, Responsibility, and Performance Matrix (RRP Matrix) is the energy savings performance contract (ESPC) document that focuses on 16 areas of risks and responsibilities in an ESPC project. The RRP Matrix summarizes and documents the contractor (energy service company, i.e., ESCO) and ordering agency’s agreements about allocating risks and responsibilities – to the ESCO, to the ordering agency, or shared. Ordering agencies and ESCOs should be mindful, however, that the ESCO remains responsible for achieving energy savings guaranteed under the ESPC, notwithstanding the allocations of risks, responsibilities, and performance.

Walker, Christine↗

NASA NTRS2020

Analyzing the Impact of CryoSat-2 Ice Thickness Initialization on Seasonal Arctic Sea Ice Prediction

Twin 5-month seasonal forecast experiments are performed to predict the September 2018 minimum ice extent using the fully coupled Navy Earth System Prediction Capability (ESPC). In the control run, ensemble forecasts are initialized from the operational US Navy Global Ocean Forecasting System (GOFS) 3.1 for the ocean and sea ice but do not assimilate ice thickness data. Another set of forecasts are initialized from the same GOFS 3.1 fields but with sea ice thickness derived from CryoSat-2 (CS2). The Navy ESPC ensemble mean September 2018 minimum sea ice extent initialized with GOFS 3.1 ice thickness was over-predicted by 0.68 M sq.km (5.27 M sq.km) versus the ensemble set of forecasts initialized with CS2 ice thickness that had an error of 0.40 M sq.km (4.99 M sq.km), a 56% reduction in error. The September mean Integrated Ice Edge Error (IIEE) shows a 19% improvement for the entire Arctic with the CS2 data versus the control run. Comparison against Upward Looking Sonar (ULS) ice thickness in the Beaufort Sea reveals a lower bias and RMSE with the CS2 forecasts at all three moorings. Ice concentration at these locations is also improved, but neither set of experiments show ice free conditions as observed at moorings A and D.

time-lagged ensembles↗

DOE OSTI2024

Best Practices for Smart Grid-Interactive Efficient Building Ready Performance Contracts

Grid-interactive efficient building (GEB) measures reduce costs and optimize energy use for additional grid services by coordinating building energy loads and providing continuous demand management. Incorporating GEB energy conservation measures (ECMs) in performance contracts is reliant upon multiple factors. These factors include site selection with utility tariffs and incentives favorable to GEB, the identification of GEB as a priority in the initial stages of the contracting process, integration of GEB within comprehensive performance contracts with multiple other ECMs, and careful consideration of GEB measurement and verification (M&V) for energy savings performance contracts (ESPCs) and performance assurance for utility energy service contracts (UESCs).

building energy loads↗

DOE OSTI2024

Case Studies in Leveraging Performance Contracts for Resilience Projects

The resilience of federal facilities has become increasingly important among lawmakers, agency leadership, and the American public as high impact natural hazards occur more frequently over time. Resilience is broadly defined as the ability of a federal facility to withstand, respond to, and recover rapidly from disruptions to maintain critical functions. The Department of Energy (DOE) Federal Energy Management Program (FEMP) was codified to facilitate the strengthening of federal energy and water efficiency and resilience. Performance contracting is one of the mechanisms through which federal agencies can finance projects at their facilities, but resilience improvement measures do not always result in utility cost savings, which are the primary driver behind performance contracts. This report provides example cases where performance contracts, specifically energy savings performance contracts (ESPC) or utility energy service contracts (UESCs), were used to implement a resilience measure at a federal facility.

99 GENERAL AND MISCELLANEOUS↗

DOE OSTI2026

Performance contracting centers of expertise: a framework for federal implementation

This report examines the establishment and operation of Energy Performance Contracting (EPC) Centers of Expertise (COEs) within the federal government. EPCs, including Energy Savings Performance Contracts (ESPCs) and Utility Energy Service Contracts (UESCs), are critical mechanisms for advancing energy efficiency, resilience, and infrastructure modernization without the need for significant upfront appropriations. However, EPCs require specialized knowledge in project development, contracting, financing, legal parameters and technical project oversight. Currently federal agencies have varying levels of expertise and institutionalized policy to effectively and consistently use congressionally authorized EPCs which have decades of proven and impactful use. To address these challenges, several federal agencies have created COEs to centralize expertise, standardize practices, and streamline implementation. This report reviews statutory and policy drivers, highlights the benefits and challenges and presents case studies from the General Services Administration (GSA), the Department of Veterans Affairs (VA) and the U.S. Army Engineering and Support Center Huntsville (HNC). Recommendations are also provided for agencies considering the establishment of EPC COEs, which will bring much needed structure, consistency and lead to implementation of these energy and infrastructure building projects to save costs for U.S. taxpayers.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI↗

DOE OSTI2026

Partial Support for the Federal Committee for Meteorological Services and Supporting Research

An interagency collaboration initiated between Navy, Air Force and NOAA and expanded to DOE, NASA, and NSF in 2012, for coordination of research to operations of a National earth system analysis and prediction capability. The goal of ESPC is to meet broad but specific agency requirements for an earth system analysis and prediction framework to support one-day to decadal global prediction at appropriate horizontal and vertical resolution; including the atmosphere, ocean, land, cryosphere, and space.

54 ENVIRONMENTAL SCIENCES↗

NASA NTRS2006

The Long-Term Performance of Small-Cell Batteries Without Cell-Balancing Electronics

Tests approx.8 yrs ago showed Sony HC do not imbalance. AEA developed a theory (ESPC 2002): a) Self-discharge (SD) decreases with state-of-charge (SOC); b) Cells diverge to a state of dynamic equilibrium; c) Equilibrium spread depends on cell SD uniformity. Balancing model verified against test data. Short-term measures of SD difficult in Sony cells and very small values, depends on technique. Long-term evidence supports lower SD at low SD. Battery testing best proof of performance, typically mission specific tests.

Pearson, C.↗

DOE OSTI2025

Determining Price Reasonableness in Energy Performance Contracts

Report provides recommendations and best practices concerning fair and reasonable price determination in federal energy performance contracts (EPCs), which include energy savings performance contracts (ESPCs) and utility energy service contracts (UESCs). It reflects the experiences, lessons learned, and best practices of agencies implementing EPCs, and is consistent with FEMP’s training on this subject. This is an update to the 2015 revision.

Dominy, Russ [Boston Government Services (BGS)]↗

DOE OSTI2024

Lessons Learned from the Clean Energy to Communities (C2C) Peer-Learning Cohort Evaluating and Prioritizing Municipal Buildings for Energy Efficiency and Decarbonization Investment

The National Renewable Energy Laboratory (NREL), with support from World Resources Institute (WRI), designed and led a six-month peer-learning cohort from January through July 2024 on "Enhancing Resilience at Critical Facilities through Solar, Storage, and Microgrids" as part of the U.S Department of Energy's Clean Energy to Communities (nrel.gov/c2c) (C2C) program. Representatives from 15 municipalities, municipal utilities, colleges, and Tribes from across the United States participated in monthly workshops covering best practices for planning and deploying local resilience projects. This document shares key takeaways, lessons learned, and resources from the cohort.

buildings↗