Belgian Energy Communities: Key Challenges and Opportunities
Chadi Mahfoud
1
, Rebecca Guglielmino
2
, Gabriele Sapienza
2
, Mohammed Qasem
1
,
Jon Teres-Zubiaga
3
and Sesil Koutra
1
1
Faculty of Architecture and Urban Planning, University of Mons, Havré St. 88, Mons, Belgium
2
University of Catania, St. Tomaselli n 31, Italy
3
University of the Basque Country, Department of Energy Engineering (ENEDI Research Group), Spain
Keywords: Energy Communities, Challenges, Renewable, Belgium.
Abstract: Being a ‘zoon politikon’, humankind develops its first ‘communities’ to harvest food, build shelter, and have
socio-political interactions. Nowadays, the term has been configured as a challenging and promising concept
for climate change mitigation and adaptation and advocates for the incorporation of various solutions within
urban settings. In this contribution, a targeted and comprehensive understanding of the patterns of the ‘energy
community’ (renewable/citizen) phenomenon is provided to provide clear observations unveiling the research
gap. The work explores the spectrum of the energy community’ according to the literature, as well as
motivations and contextual factors in the Belgian context from different perspectives highlighting the
necessity for sustainable development that harmonizes human activities with natural ecosystems. What is
finally the energy community and what motivates its actions? What are the key factors that insight into the
successful stories of energy communities in Belgium? What are the differences in the three areas of the
Belgian territories? Building on this overview, this paper highlights the current research gap and provides
insight into how the communities are emerging in three areas, the opportunities, and challenges they pose,
and how their diffusion might be further facilitated despite their complexity and multi-dimensional nature.
1 INTRODUCTION
Energy transition encompasses multiple challenges to
counter severe global issues englobing the pressing
challenges of climate change and rapid urbanization.
Unusual global energy demands due to the pandemic
and the recent Ukrainian war aggravated the situation
and influenced power generation, distribution, and
consumption. As a counter to this multiple
polarization, the European Union set up energy
engagements for its members with collective actions
involving active citizen participation to empower
equitable energy production.
Over the past years, the concepts of “energy
communities” have gained traction. (Gianaroli et al.,
2024) and concretized in the EU Clean Energy
Package for all Europeans” (CEP) framework in 2016
(European Parliament, 2019). Two years later, the
officialization of the concepts came up within two
European Directives: 1) the EU Renewable Energy
Directive 2018/2001 (RED II) (European Parliament,
2021) and the EU Internal Electricity Market
Directive 2019/944 (European Parliament, 2019b).
Since these moments, the need for a comprehensive
understanding has gained rising interest. What is
finally the energy community and what motivates its
actions? Building on this overview, this work
highlights the current research gap and provides
insights into how the communities are emerging, the
opportunities and challenges they pose, and how their
diffusion might be further facilitated despite their
complexity and multi-dimensional nature.
The work explores the spectrum of the ‘energy
community’ according to the literature, and their
main configurations, as well as motivations and
contextual factors in the Belgian context from
different perspectives highlighting the necessity for
sustainable development that harmonizes human
activities with natural ecosystems by recognizing the
dynamic relationships between built environments
and landscapes. Overall, this study investigates the
diversity in Key Performance Indicators that enhance
energy performance in Belgian building typologies.
Drawing on data from the Tabula tool, this research
122
Mahfoud, C., Guglielmino, R., Sapienza, G., Qasem, M., Teres-Zubiaga, J. and Koutra, S.
Belgian Energy Communities: Key Challenges and Opportunities.
DOI: 10.5220/0013354600003953
Paper published under CC license (CC BY-NC-ND 4.0)
In Proceedings of the 14th International Conference on Smart Cities and Green ICT Systems (SMARTGREENS 2025), pages 122-129
ISBN: 978-989-758-751-1; ISSN: 2184-4968
Proceedings Copyright © 2025 by SCITEPRESS Science and Technology Publications, Lda.
offers a comprehensive assessment of the role of
architectural design in promoting energy efficiency in
buildings and renewable energy integration within
Renewable Energy Communities.
2 ‘ENERGY’ AND
‘COMMUNITY’. STATING THE
ART
2.1 Defining the Energy Community
The concepts are gaining public acceptance as a
promise to contribute to energy justice being
mushrooming all over the world counting down more
than 9,000 sites worldwide. (European Commission,
2022), since their birth back in the 70s (Denmark) to
promote community-owned wind energy projects and
the incorporation of new technological achievements
for the heating requirements connected to grids
(Capellan-Pérez, et al., 2018). Onwards, from the 90s,
Great Britain and the Netherlands promoted
renewable installations through national funds for
electricity RES production. (Mutani et al., 2020) with
the multiplication of the initiatives in the United
Kingdom (Seyfang et al., 2013), Spain (Kunze and
Becker, 2015)
and France (Nadai and Van der Horst,
2010).
The setup of energy community understanding is
still somewhat vague with wide scope and contexts.
(Hicks & Ison, 2018). Several studies have developed
statements on energy communities and similar or
different viewpoints. Being an appealing policy
instrument for citizen-centered oriented actions to
promote the energy mix (Pons-Seres de Brauwer and
Cohen, 2020), the phenomena of the ‘Renewable’ and
‘Citizen’ Energy Community are explored. Bauwens
et al. (Bauwens et al., 2022) analyzed more than 180
related terms (e.g. “renewable energy community”,
“energy sustainable communities”, “energy
cooperatives”, “citizen energy community”,
“integrated energy system”, or ‘local energy
communities, basically considered as an extensive
approach to generation closer to local consumption
(Manso-Burgos et al., 2022).
Unveiling the confusion of researchers due to
overlapping and mismatches of the concepts, De São
José et al. state a wide spectrum of understandings
and ambiguities (De São José et al., 2021).
2.2 Unveiling Definitions’ Ambiguities
In line with its formalized definitions in European
legislation the Renewable Energy Community is
defined as a legal entity in which (European
Parliament, 2018): ‘ […] an open and voluntary
participation is developed effectively controlled by
the community members (‘prosumers’), who are
located in the proximity of renewable energy
potential and are owned of the legal entity having as
a principle goal to provide multiple benefits (social,
economic, environmental) to its users’.
Later on, the revised Electricity Market Directive
(2019/944) (European Parliament, 2019b) proposes
the definition of the Citizen Energy as a legal entity
in which:
‘ […] a voluntary, open, and effective
participation of its members is generated aiming to
provide multiple benefits (social, economic,
environmental) (rather than financial) and to engage
them in the generation from RES and all the
subsequent steps to provide the required energy
services to the users’.
Other studies address operational particularities
of the concepts, such as the renewable energy trends
with the emergence of the ‘Thermal ECs’ (e.g.
(Ceglia et al., 2022; Trivedi et al., 2022), while others
focus on the governance systems and the people-
oriented approaches (e.g. (Busch et al., 2021);
(Leonhardt et al., 2022); (Sousa et al., 2019)) Or the
business models of the related synergies developed
(Busch et al., 2021).
In addition to technical design, decision-making
processes, and social empowerment are determinants
for the ECs’ setup, as the socio-psychological factors
(e.g. age, educational level, etc.) (e.g. (Koirala et al.,
2018).
3 MULTIPLE CHALLENGES OF
RENEWABLE ENERGY
COMMUNITIES IN BELGIUM
Looking specifically at energy-community barriers,
the analysis for the Belgian frame identifies a lack of
experience and expertise in the community models at
social, cultural, and organizational levels.
The challenges are multiple, starting with
transparency and trust by the prosumers, the
complicated legal and funding supporting schemes
and the lack of previous knowledge.
In this work, the authors raise the question of
circumventing these challenges in Belgian cases
Belgian Energy Communities: Key Challenges and Opportunities
123
through a benchmarking viewpoint and spark their
interest to find the favorable settings and bottlenecks
to develop decentralization of the energy systems.
The most important incentive for this roadmap is
the average age of existing buildings and the share of
old buildings in the age of total stock (Zangheri et al.,
2020). Analyzing the situation in Belgium, based on
data from the European Census we map more than
50% of Belgian’s building stock from 1946 to 1990.
The energy performance of the buildings presents
another hurdle in the advancement of ECs as much of
the housing stock was built between 1946 and 1990
in a time when optimizing the energy efficiency of the
building was not a strategic priority. So far, the
renovation wave across Belgium is at 0.5%, which is
less than the 1% current average EU building
renovation rate yearly. (European Commission, 2019;
Renovate Europe, 2023).
All the current constraints diverged the same
concerns related to the geographical scope and the
proximity to resources (physical boundaries) to
minimize energy distribution losses, the activities
performed (e.g. generation, distribution consumption,
electromobility, etc.) or the membership rules and
their business models (e.g. (Bolton & Hannon, 2016;
Steinberger et al., 2009) and funding schemes that
either focus solely on the participants or involve
commercially relevant activities.
As key human-oriented players in the clean
energy transition, RECs engage citizen participation
and contribute to energy democratization (e.g.
(Heldeweg & Saintier, 2020; Szulecki & Overland,
2020) However, in this light, diverse questions are
emerging, such as the broader benefits of RECs to
contribute to low-carbon societies. Considerations are
usually revealed regarding the embodied carbon
infrastructure, as well as the lifecycle impacts of
renewable energy technologies, but also the spatial
requirements for energy generation. (Van Zalk &
Behrens, 2018).
On the other side, and apart from the technical
barriers, concerning potential economic and social
benefits, RECs should enhance local job
opportunities and alleviate energy poverty for
vulnerable social groups. A lack of initiative from
local stakeholders and supporting mechanisms and
associated institutional and legal constraints are
associated with structural obstacles to energy
community applications.
Nonetheless, probably the most important
challenge in Belgium remains the regional
government structure with a heterogeneous legal
framework foreseeing diverse directives for the three
federations: Wallonia, Flanders, and Brussels Capital
Region. Indeed, Belgian Renewable Energy
Communities (RECs) could face a series of
challenges when it comes to their integration into the
main grid; the first burden is adhering to the
obligations of an energy supplier, for that, a
distinction is made between electricity produced and
consumed in EC as collective self-consumption or as
supply, another consideration is whether the
electricity is sold within the boundaries of an EC or
sold outside (supply) (European Commission, 2021;
ROLECS, 2021).
In particular, in the case of Wallonia, the adoption
of the REDII (Renewable Energy Directive)
(European Parliament, 2001) defines the RECs
purpose in the production, consumption, and storage
for the public benefits with further balances of
consumption and production flows within a local
perimeter of energy-sharing, in which every natural
person, local authority, or company can participate in
the process (Service Public Justice Fédéral, 2023)
From its side, the Flemish government draws the
concept in the areas of production, distribution,
consumption, supply, storage, and electromobility by
introducing the idea of active consumer, while for
the case of Brussels capital, the concept of self-
consumption is primordial. (Frieden et al., 2020).
4 METHODOLOGICAL
APPROACH
The methodological approach performs a systematic
review among the major relevant research branches
of energy communities with a particular focus on the
Figure 1: Roadmap of methodological approach.
SMARTGREENS 2025 - 14th International Conference on Smart Cities and Green ICT Systems
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Belgian context to develop a detailed overview of the
studied factors in qualitative content analysis for the
comprehension of their dynamics and interpret the
content analysis for reporting the successful stories
and their key strategies.
In the workflow, the crucial step of the study of
the energy communities’ projects is the definition of
the successful factors of the (R)ECs projects. In this
step, the work is in progress and the majority of the
cases analyzed are ongoing. However, the authors
unveiled as key indicators the following categories:
Architectural, including passive standards, and
geometrical criteria (e.g. orientation, roof
inclination, glazing, etc.);
Technical/Technological, concerning the
maturity of technological systems setup;
Membership structure;
Business model;
Legal status (e.g. cooperative, association,
etc.);
Social (e.g. energy poverty), etc.
5 BELGIUM CASE ANALYSIS
Belgium can showcase interesting pilot projects with
the overarching goal of energy-community-driven
initiatives. Energy Communities in Belgium are
region-specific matters, in essence, every region (i.e.
Flanders, Brussels Capital Region, and Wallonia) has
established its regulatory framework and legislative
bodies to manage these dynamics. This study focuses
on the ECs that target the inclusion of citizen
participation as cooperatives and investors in energy
generation via renewable energy projects relying on
unique investments from the prosumers based on
renewable energy investments, keeping the energy
prices fair and avoiding focusing on excessive profits,
all shareholders are eligible to annual dividends.
In reality, energy communities organized within
this model (cooperative) are by far the most in
Europe. (Caramizaru and Uihlein, 2020) (more than
1000 cases) organized in citizen-based processes in
the hands of shareholders and bottom-up approaches.
5.1 Flanders
While Flanders is the Belgian frontrunner in fostering
the most advanced energy cooperatives (such as
Ecopower (a cooperative founded in 1991 for
renewable energy investments of 67.000 members
with 20 wind turbines, one hydropower installation,
one district heating network, and 250 decentralized
PV panels) (Friends of the Earth Europe, 2020) there
is still of lack of local legal frameworks and tariffing
structures that facilitate the economic feasibility of
ECs.
A study done by Felice et al. (Felice et al., 2021)
suggests that the inclusion of various flexible energy
sources is the primary solution for making RECs
feasible economically in Flanders, the best case in his
study highlighted a 17% cost reduction compared to
the Business-As-Usual (BAU) case due to the
capacity tariff that these technologies possess that can
take advantage of the peak shaves.
ZuidtrAnt (local energy cooperative in Antwerp
with multiple projects towards low-carbon incentives,
e.g. Tandems, solar roofs, hydrogen storage, shared
cargo bikes, etc.) is another example of a citizen-led
energy cooperative dedicated to advancing the
renewable energy transition through community
involvement. (Proka et al., 2019).
Figure 2: Ecopower Cooperative (Friends of the Earth
Europe, 2020).
The cooperative aims to provide affordable,
sustainable energy by leveraging investments from
shares purchased by citizens. These investments fund
projects focused on renewable energy solutions, with
a multidisciplinary team of experts contributing
specialized knowledge to realize these initiatives.
Operating in and around Antwerp, ZuidtrAnt
emphasizes maximizing energy efficiency across
various projects to accelerate the shift to renewable
energy (
Table 1).
Belgian Energy Communities: Key Challenges and Opportunities
125
Table 1: Projects of ZuidtrAnt Energy Community
(ZuidtrAnt Energy Community, 2023).
Projects Year Progress
Projects sun 2023
9 new solar roofs, with a
Capacity of 644 kWp
28 solar roofs with a full capacity
1656 MWh to supply 382
household
Annual saving of 272 tons of
CO
2
SharedSun
project
2023
Combined solar roofs with
electric shared mobility
Seven solar roofs, nine charging
stations and nine shared cars
TANDEMS N/A Synergies of ECs with local
actors
RE-FLEX 2023-
Scalable and modular charging
plaza concept
Renewable energy production
with energy storage in both
stationery and EV batteries
KlimaatWerf 2023
154 solar installations
90 energy renovations
In conjunction with the Cooperative Business
model, RESCoop project emerge as Energy
Cooperatives, that are formally acknowledged in the
EU’s Clean Energy Package as both ‘citizen’ and
‘renewable’ energy communities.
At the same project, a variety of services is
presented (such as community coaching, tailored
advocacy services for policymakers, financing
projects, etc..) for those interested in engaging in
energy community projects, be it individuals,
enterprises, or local governing bodies, whether
members of the cooperative or non-members.
In Belgium, REScoop.eu, the central coalition of
all REScoops in Europe, was first established as a
non-profit organization in 2013, with 11 members.
Today, RESCoop.eu is operating at a scale of 2500
Energy Communities in Europe, and representing
nearly 2 million citizens. (RESCoop.eu)
5.2 Wallonia
In Wallonia, the concept of “energy community” was
initially brought to attention through business parks,
in order to highlight their potential, the region isn’t as
advanced in establishing Renewable energy
cooperatives as Flanders (European Commission,
2021).
Albeit Wallonia marked its very first pilot REC,
under the name of “HospiGREEN” led by IDETA
and tested in the Tournai-Ouest Economic Activity
Zone. The project was conducted for a period of two
years (2021-2023), and focused on organizing
collective self-consumption among its participants to
test a protocol for data exchange between the
community and the distribution system operator for
the optimization of consumption with production and
monitoring processes. Beyond the diverse positive
dynamics, the project deploys renewable energy
production and strengthens the security of local
production (IDETA, 2024).
The project associated two large energy-
consuming hospitals, and producers of energy from
wind and PV. This has resulted in 92% direct energy
self-consumption by REC, with CHwapi being its
biggest beneficiary bringing it together with the
Regional Psychiatric Center Les Marronniers, the
Nursing Home of the CPAS of Tournai Moulin à
Cailloux and IDETA (headquarters and Negundo
business center).
Figure 3: View of “HospiGREEN” Energy Community
Project (IDETA, 2024).
5.3 Brussels
The Region of Brussels is on the roadmap to finalize
the provisions of the energy community framework,
with no specific legal forms yet. The current oversight
in the area defines the self-consumption. Some
examples are also found in the Brussels area, such as
the pilot project at Tour & Taxis aimed at offering the
production surplus of solar panels installed in
neighboring buildings to consumers considering the
principles of self-consumption. The project aims at
large-scale electricity sharing on grid management
(Nextensa, 2023)
Other studied projects included in the ongoing
benchmarking study are provided in Figure 4 of the
Appendix.
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6 CONCLUSIONS
The study has reviewed the state-of-the-art analysis
of energy communities unveiling the specific
challenges in the complex context of Belgian
territories in a multidimensional spectrum. The
methodological roadmap proposed identified
different steps in ongoing research of rising scientific
interest.
In a benchmarking study of the three regions of
Belgium, the authors gathered data to evaluate the
progress of reported projects on renewable energy
cooperatives concluding on the significant potential
for integrating renewable energy technologies in local
heat networks using large-scale or residential-scale
heat pumps, as developed already in Flanders with
positive outcomes.
Based on the reviewed cases combined with
extensive literature, the study discussed in a wide
context the different challenges for successful REC
projects emphasizing technical, financial, societal,
and other relevant factors. A delicate balance between
the goals and impacts of the communities, the
conflicting (or cooperative) interests of the
stakeholders, and the funding schemes for sharing
benefits is considered for the next steps with the
consideration of complementary projects of the field.
In this line, it is recommended to verify and
evaluate any regulatory frameworks and legislations
for RECs in short to medium terms, with the objective
of ensuring the former remains relevant and without
any unforeseen consequences as the concept of RECs
is in an ongoing advancement and the governing
policies must synchronize with its trajectory.
Comprehensive energy policies and legislative
frameworks (e.g. the adoption of the Clean Energy for
All Europeans Package) would encourage strong
commitments and officialize the legal structures to
foster the implementation of RECs.
ACKNOWLEDGEMENTS
This research is funded by the ILES (Integrated Local
Energy Systems) FEDER-FTJ (Une Wallonie
orientée vers la transition juste) project.
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APPENDIX
Figure 4: Other ECs cooperative projects studied in
Wallonia and Flanders.
KPIs COCITER HesbEnergie Courant d'Air ECOPOWER ZuidtrAnt BeauVent Wase Wind
Technical/Technological
Supply of
renewable
electricity
produced by
member
cooperatives.
Wind and
hydroelectric
projects
Renewable
energy
production
projects
(30,000
MWh/year).
Production and
supply of green
electricity from
wind, solar,
and
hydroelectric
source
Investment in
renewable
energy projects
Invests in wind
turbines, solar
panels, and
bioenergy
projects.
Installed
electrical power
Production of
renewable
energy via
wind turbines.
Membership
15
Coo
p
eratives
1.654 4.850 68.238 651 8.835 3.000
Scale of Projects
Aggregates
production
from various
local projects.
Wind,
hydroelectric,
biomass
Wind farm (5
wind turbines),
2 wind turbines
are owned by
courant d'air,
4 PVs on
schools
248 projects,
including wind
turbines and
solar
installations.
29 projects,
including 28
solar roofs and
1 district
heating
network.
- 244
Installations
Various
renewable
energy
installations.
Four wind
farms in the
Waasland
region.
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