In recent years Belgium tested the CO₂ Performance Ladder in public works contracts. With the pilot phase complete, the Ladder will now be structurally implemented.
Between 2019 and 2023, the CO2 Performance Ladder was tested in public works contracts across Belgium. The pilot aimed to give companies with a Ladder certificate, or those working towards one, an advantage in these tenders, as the Ladder is implemented in the Netherlands.
Over four years, 24 pilot tenders were launched, mostly in infrastructure and construction. The evaluation showed that contracting authorities and certified companies are positive about the tool and its potential to reduce climate impact. With the pilot phase complete, the CO2 Performance Ladder is being structurally implemented in Belgium.
“It is not overly complicated. That offers two advantages. First, the initial investment is easy to recoup. Secondly, you can spend more time on achieving the objective that the certificate aims at (namely carbon reduction), than you do on the administration of obtaining the certificate.”
– Jan Van Steirteghem, Chief operating officer (COO) of construction company BESIX
Our Belgian partner
The CO2 Performance Ladder in Belgium is coordinated by BENOR in collaboration with the Foundation for Climate Friendly Procurement and Business (in Dutch: SKAO).
Franky Van den Berghe and Dirk Christianen from Willemen Infra show us around at their asphalt plant in Belgium. How does Willemen Infra reduce its carbon emissions by using the CO2 Performance Ladder?
Franky Van den Berghe and Dirk Christianen from Willemen Infra show us around at their asphalt plant in Belgium. How does Willemen Infra reduce its carbon emissions by using the CO2 Performance Ladder?
Belgium was the first country after the Netherlands to use the CO2 Performance Ladder. Between 2019 and 2023, 24 pilot projects in three regions were launched implementing the Ladder. The results of the pilot are positive among both participating companies and contracting authorities, and can be read in the report on this successful pilot period. Now that it’s time to map out the further integration and scaling-up of the system in Belgium, the various actors came together for a roundtable discussion.
Step towards a more sustainable construction sector
Construction companies praise the Ladder’s clarity and simplicity. Jan Van Steirteghem, Chief operating officer (COO) of construction company BESIX: “It is not overly complicated. That offers two advantages. First, the initial investment is easy to recoup. Secondly, you can spend more time on achieving the objective that the certificate aims at (namely carbon reduction), than you do on the administration of obtaining the certificate. That’s important, especially for the younger generation who really want to make an impact.”
In addition, the Ladder puts the topic of CO2 reduction on the map within the construction sector and among companies. “The Ladder provides focus, unlike all the other things that are coming our way, like the CSRD”, Van Steirteghem says. “We started in the Netherlands at level 3 and a year later we reached level 5. On our major infrastructure works, experts enthusiastically search for CO2 reduction opportunities on the worksites. For Brice Duchêne, responsible for environment and sustainable development at Duchêne, the Ladder provides a framework to develop an action plan. Philippe Goblet, Chief executive officer (CEO) of Duchêne, jumps in: “We stepped into this to bring down our carbon footprint. This is the example we want to set as a bigger player. After all, it is still going to take a lot of effort to make our colleagues aware of the importance of CO2 reduction. But those who use the Ladder are very positive about its ease of use.”
“We stepped into this to bring down our carbon footprint. This is the example we want to set as a bigger player.” – Philippe Goblet, CEO at Duchêne
Unburdening of contracting authorities
Initially, there was some reluctance among contracting authorities, but during the pilot period, the popularity of the CO2 Performance Ladder grew, resulting in wider acceptance and application. Integration into public procurement involves little extra work.
Dirk van Troyen, road measurement engineer at the Agency for Roads and Traffic (AWV), notes that it is easy to integrate the CO2 Performance Ladder into tender documents. “The clauses can be found online. It is not an additional cost and creates little extra work for officials.” Alexander Lemmens, a lawyer at the Agency for Facility Operations, refers to the positive experience in the public contract for the renovation of buildings on the Martelaarsplein in Brussels: “The integration into the contract documents requires little extra effort. The checks and audits are done by accredited certification bodies, which, in case of a positive result, issue a certificate to the contractor. Thus, the contracting authority does not have to carry out detailed checks itself, but only checks that the contractor has a valid certificate at the appropriate level. This shifts the burden away from the contracting authorities, which is certainly also relevant for the lower levels. The CO2 Performance Ladder provides insight into the course of events and creates a clear framework for all involved.”
There are also positive signs on the Walloon side. Sylvie Loutz, Sustainable Development Project Manager at the Service public de Wallonie (SPW), argues that people see the usefulness of working with the Ladder. The targets are easy to verify. According to her, it is one of the tools that can help meet European climate targets.
Call for structural implementation
Now that it is time to map out the next steps, industry is asking for commitment from the government to get started with the CO2 Performance Ladder and implement it structurally in public procurement.
According to Philippe Goblet, the issue is starting to take hold in the market, but action is needed from the government. “Even though many see its benefit, they remain too hesitant. You can compare it to the introduction of the ISO9001 standard. It is there, but it takes years to implement and when it comes to sustainability, we don’t have that time. We need to take action together now. It is up to the government to take the lead, taking into account the resources and capabilities of all companies.”
“We need to take action together now. It is up to the government to take the lead, taking into account the resources and capabilities of all companies.” – Philippe Goblet, CEO at Duchêne
Need to support green premium
While companies are convinced of the added value of the Ladder, they want governments to pay attention to the costs involved. This is another reason why commitment from the government is needed. That way, the playing field is equal for all players.
Jan Van Steirteghem points out that green alternatives come at an additional cost. He questions who will pay ‘the Green Premium’: “In the Netherlands, subsidies are given for buying sustainable construction equipment. If you can show that you reduce CO2 emissions by 50 per cent and become 10 per cent more expensive, you can win the tender. In Belgium, this is unthinkable and governments still only focus on price. The CO2 Performance Ladder can be a catalyst to immediately lay down in the specifications which sustainable alternatives must be used.”
According to Alexander Lemmens, this awareness is growing among the government. He says the notional discounts for the Ladder are already shifting the focus towards quality.
Approach Flanders vs Wallonia
Several government agencies, such as the Public Waste Agency of Flanders (OVAM) and the Agency for Roads and Traffic and the Flemish Waterways, both linked to the Flemish department for mobility and public works (MOW), have already decided to implement the Ladder structurally, while others, such as SWDE and SOWAER in Wallonia, are positive towards further integration.
Sylvie Loutz argues that the differences between Wallonia and Flanders should be taken into account. There are currently consultations with colleagues on the integration of the Ladder but nothing has been decided yet. If Wallonia integrates a sustainability tool into public procurement, it will of course be the same as in neighbouring countries and Flanders. However, there is still a lot of work to convince companies in Wallonia.
The management of the Flemish MOW has already approved the implementation of the CO2 Performance Ladder. “We will include the Ladder in specifications for infra works from 1 January 2025 starting from five million euros and progressing gradually”, says Dirk van Troyen.
Finally, BESIX and Duchêne hope to raise awareness among subcontractors. Jan van Steirteghem: “We need to get them on board. We often need data to meet Ladder requirements, but it is sometimes difficult to obtain. Other sectors, such as concrete, steel and aluminium, also need to take responsibility. That’s where the biggest impact is. We need to cooperate across national borders and impose conditions. We need a Coalition of the Willing where governments take the lead.”
Belgium was the first country after the Netherlands to use the CO2 Performance Ladder. Between 2019 and 2023, 24 pilot projects in three regions were launched implementing the Ladder. The results of the pilot are positive among both participating companies and contracting authorities, and can be read in the report on this successful pilot period. Now that it’s time to map out the further integration and scaling-up of the system in Belgium, the various actors came together for a roundtable discussion.
Step towards a more sustainable construction sector
Construction companies praise the Ladder’s clarity and simplicity. Jan Van Steirteghem, Chief operating officer (COO) of construction company BESIX: “It is not overly complicated. That offers two advantages. First, the initial investment is easy to recoup. Secondly, you can spend more time on achieving the objective that the certificate aims at (namely carbon reduction), than you do on the administration of obtaining the certificate. That’s important, especially for the younger generation who really want to make an impact.”
In addition, the Ladder puts the topic of CO2 reduction on the map within the construction sector and among companies. “The Ladder provides focus, unlike all the other things that are coming our way, like the CSRD”, Van Steirteghem says. “We started in the Netherlands at level 3 and a year later we reached level 5. On our major infrastructure works, experts enthusiastically search for CO2 reduction opportunities on the worksites. For Brice Duchêne, responsible for environment and sustainable development at Duchêne, the Ladder provides a framework to develop an action plan. Philippe Goblet, Chief executive officer (CEO) of Duchêne, jumps in: “We stepped into this to bring down our carbon footprint. This is the example we want to set as a bigger player. After all, it is still going to take a lot of effort to make our colleagues aware of the importance of CO2 reduction. But those who use the Ladder are very positive about its ease of use.”
“We stepped into this to bring down our carbon footprint. This is the example we want to set as a bigger player.” – Philippe Goblet, CEO at Duchêne
Unburdening of contracting authorities
Initially, there was some reluctance among contracting authorities, but during the pilot period, the popularity of the CO2 Performance Ladder grew, resulting in wider acceptance and application. Integration into public procurement involves little extra work.
Dirk van Troyen, road measurement engineer at the Agency for Roads and Traffic (AWV), notes that it is easy to integrate the CO2 Performance Ladder into tender documents. “The clauses can be found online. It is not an additional cost and creates little extra work for officials.” Alexander Lemmens, a lawyer at the Agency for Facility Operations, refers to the positive experience in the public contract for the renovation of buildings on the Martelaarsplein in Brussels: “The integration into the contract documents requires little extra effort. The checks and audits are done by accredited certification bodies, which, in case of a positive result, issue a certificate to the contractor. Thus, the contracting authority does not have to carry out detailed checks itself, but only checks that the contractor has a valid certificate at the appropriate level. This shifts the burden away from the contracting authorities, which is certainly also relevant for the lower levels. The CO2 Performance Ladder provides insight into the course of events and creates a clear framework for all involved.”
There are also positive signs on the Walloon side. Sylvie Loutz, Sustainable Development Project Manager at the Service public de Wallonie (SPW), argues that people see the usefulness of working with the Ladder. The targets are easy to verify. According to her, it is one of the tools that can help meet European climate targets.
Call for structural implementation
Now that it is time to map out the next steps, industry is asking for commitment from the government to get started with the CO2 Performance Ladder and implement it structurally in public procurement.
According to Philippe Goblet, the issue is starting to take hold in the market, but action is needed from the government. “Even though many see its benefit, they remain too hesitant. You can compare it to the introduction of the ISO9001 standard. It is there, but it takes years to implement and when it comes to sustainability, we don’t have that time. We need to take action together now. It is up to the government to take the lead, taking into account the resources and capabilities of all companies.”
“We need to take action together now. It is up to the government to take the lead, taking into account the resources and capabilities of all companies.” – Philippe Goblet, CEO at Duchêne
Need to support green premium
While companies are convinced of the added value of the Ladder, they want governments to pay attention to the costs involved. This is another reason why commitment from the government is needed. That way, the playing field is equal for all players.
Jan Van Steirteghem points out that green alternatives come at an additional cost. He questions who will pay ‘the Green Premium’: “In the Netherlands, subsidies are given for buying sustainable construction equipment. If you can show that you reduce CO2 emissions by 50 per cent and become 10 per cent more expensive, you can win the tender. In Belgium, this is unthinkable and governments still only focus on price. The CO2 Performance Ladder can be a catalyst to immediately lay down in the specifications which sustainable alternatives must be used.”
According to Alexander Lemmens, this awareness is growing among the government. He says the notional discounts for the Ladder are already shifting the focus towards quality.
Approach Flanders vs Wallonia
Several government agencies, such as the Public Waste Agency of Flanders (OVAM) and the Agency for Roads and Traffic and the Flemish Waterways, both linked to the Flemish department for mobility and public works (MOW), have already decided to implement the Ladder structurally, while others, such as SWDE and SOWAER in Wallonia, are positive towards further integration.
Sylvie Loutz argues that the differences between Wallonia and Flanders should be taken into account. There are currently consultations with colleagues on the integration of the Ladder but nothing has been decided yet. If Wallonia integrates a sustainability tool into public procurement, it will of course be the same as in neighbouring countries and Flanders. However, there is still a lot of work to convince companies in Wallonia.
The management of the Flemish MOW has already approved the implementation of the CO2 Performance Ladder. “We will include the Ladder in specifications for infra works from 1 January 2025 starting from five million euros and progressing gradually”, says Dirk van Troyen.
Finally, BESIX and Duchêne hope to raise awareness among subcontractors. Jan van Steirteghem: “We need to get them on board. We often need data to meet Ladder requirements, but it is sometimes difficult to obtain. Other sectors, such as concrete, steel and aluminium, also need to take responsibility. That’s where the biggest impact is. We need to cooperate across national borders and impose conditions. We need a Coalition of the Willing where governments take the lead.”
(The article below is about the pilot phase in Belgium. This phase has now been successfully completed and the CO2 Performance Ladder is being implemented structurally in the country)
In Belgium busy experimentation with the CO2 Performance Ladder is underway, in as many as 25+ pilot projects. A major reason for that success is the efforts of industry association ADEB-VBA, which actively promoted the procurement tool in Belgium. ADEB-VBA CEO Didier Cartage talks about that journey, the challenges involved and what is required to fulfill that leadership role.
When ADEB-VBA first came across the CO2 Performance Ladder, the industry association saw it as an opportunity. An opportunity to make the construction sector more sustainable in all three regions of Belgium: Brussels, Flanders and Wallonia. This is far from self-evident, Cartage explains: “In Belgium, it still sometimes happens that each region puts its own instrument or system on the market. That happened with the energy performance of buildings, for example. That is a shame. Because if everyone uses the same tools and systems, you can make a much greater and faster impact. Because the CO2 Performance Ladder had been working in the Netherlands for years, we saw it as a tool that could be embraced by all regions.”
“We saw the CO2 Performance Ladder as a fantastic tool to bring sustainability into tenders”
Making the construction sector more sustainable
ADEB-VBA represents Belgium’s 65 largest construction companies, which together account for 15 per cent of the total turnover of the Belgian construction sector. Thus, ADEB-VBA was at the forefront of the Belgian Alliance for Sustainable Construction, a network of partners across the construction sector value chain. The alliance is engaged in integrating sustainability into the sector at both micro and macro level (and across all regions), and ensuring that the entire sector uses the same standards and systems.
Support for the CO2 Performance Ladder
The industry association was first introduced to the CO2 Performance Ladder in 2014. “At that time, we were already looking for tools that could ensure CO2 reduction in the construction sector. We were therefore immediately interested,” says Cartage.
In 2016, it commissioned environmental consultancy firm CO2Logic to organise a meeting with various Belgian stakeholders, on the CO2 Performance Ladder. It included representatives from the three Belgian regions, several cities and Embuild (the trade association for the entire Belgian construction sector). The aim of that meeting? To raise awareness about the CO2 Performance Ladder and sound out whether there was support for it. There certainly was. After detailed presentations on how the Ladder works, a testimonial from Dutch ProRail and discussions on the legal aspects, all three regions granted subsidies for a pilot phase with the Ladder, which started in 2019.
Sustainability up front
ADEB-VBA took a leadership role during that entire process and was the pioneer of the CO2 Performance Ladder in Belgium. For instance, the industry association financed the initial assignment to CO2Logic to investigate whether there was support for the Ladder. It also held numerous talks with stakeholders, to convince them of the added value of the procurement tool. Cartage: “We felt it was important to actively promote the CO2 Performance Ladder.”
“It is a powerful tool that allows governments to include sustainability in their tenders from the start”
“That is important, because it removes the reluctance of contractors to start working with sustainability. After all, this way it is already part of the contract.” In addition, the CO2 Performance Ladder can also be used for other sectors, governments can get themselves certified and the procurement tool has been working in the Netherlands for years. “The fact that the operation and benefits of the CO2 Performance Ladder were already proven was a particularly important advantage for us,” says Cartage. “It helped us to win over other stakeholders.”
Convincing dozens of governments
But there were challenges in that regard, too. In Belgium, for example, there is a huge difference from the Netherlands when it comes to the number of governments involved in a decision, Cartage explains: “In the Netherlands, if a decision is taken by Rijkswaterstaat and/or Prorail, it applies immediately to a (large) part of the sector. In Belgium, you’re talking about dozens of authorities, all of which have to be convinced of a new system or instrument. That can make its implementation a lot more difficult.”
In convincing governments about the use of the CO2 Performance Ladder, several concerns surfaced: “Especially about the possible costs that could be involved. And about competition: would enough businesses sign up for a tender with the CO2 Performance Ladder?” said Cartage.
Concerns about small businesses
There were also initial doubts and uncertainties about the Ladder on the contractor side, especially about small and medium-sized companies and whether they would be disadvantaged. After all, it is easier for large companies to be certified on the CO2 Performance Ladder. Small businesses have significantly less time and resources to do so. For this reason, in the pilot phase the CO2 Performance Ladder was only used in projects with a value of €5.5 million or higher. In other words, projects that are only of interest to large construction companies.
Another challenge Cartage sees on the contractor side: the amount of tools and systems around sustainability that are on the market today. “It is difficult for companies to find their way in them. Because what actually serves which end? And what added value does it provide? The fact that the CO2 Performance Ladder has worked for years in the Netherlands helps with this. In addition, we established the Belgian Alliance for Sustainable Construction in June 2022 to further address this topic (among others).”
Creating clarity and involving stakeholders
So how did ADEB-VBA manage to convince both procurers and contractors that the CO2 Performance Ladder should have a place in Belgian construction? “It’s about creating clarity,” says Cartage. “What is the CO2 Performance Ladder? And what exactly is it not? What goals does it serve? What is its added value? How easy is it to use? And so on. It really is something that needs to be sold, both to clients and contractors.”
“Collect the questions from the market, put the answers clearly on paper and, above all, make sure you really understand the tool yourself”
That way you limit the doubts and ambiguities that can arise.” It is also important to involve as many stakeholders as possible in the plans from the early stages. That is the most important advice Cartage has for other countries that may also want to get started with the procurement tool: “Investigate thoroughly whether and where there is support for the Ladder and include as many stakeholders as possible in your plans. If you forget to include important players in the initial phase, it is a missed opportunity. After all, you very much need them to succeed.”
In Belgium, a good start has now been made with the pilot phase, Cartage concludes, “Now we must push on and convince as many Belgian governments as possible of the usefulness of the CO2 Performance Ladder as soon as we can.”
This article is about the pilot phase in Belgium. This phase has now been successfully completed and the CO2 Performance Ladder is being implemented structurally in the country. Want to read more about the results of the pilot phase? You can do so here.
(The article below is about the pilot phase in Belgium. This phase has now been successfully completed and the CO2 Performance Ladder is being implemented structurally in the country)
In Belgium busy experimentation with the CO2 Performance Ladder is underway, in as many as 25+ pilot projects. A major reason for that success is the efforts of industry association ADEB-VBA, which actively promoted the procurement tool in Belgium. ADEB-VBA CEO Didier Cartage talks about that journey, the challenges involved and what is required to fulfill that leadership role.
When ADEB-VBA first came across the CO2 Performance Ladder, the industry association saw it as an opportunity. An opportunity to make the construction sector more sustainable in all three regions of Belgium: Brussels, Flanders and Wallonia. This is far from self-evident, Cartage explains: “In Belgium, it still sometimes happens that each region puts its own instrument or system on the market. That happened with the energy performance of buildings, for example. That is a shame. Because if everyone uses the same tools and systems, you can make a much greater and faster impact. Because the CO2 Performance Ladder had been working in the Netherlands for years, we saw it as a tool that could be embraced by all regions.”
“We saw the CO2 Performance Ladder as a fantastic tool to bring sustainability into tenders”
Making the construction sector more sustainable
ADEB-VBA represents Belgium’s 65 largest construction companies, which together account for 15 per cent of the total turnover of the Belgian construction sector. Thus, ADEB-VBA was at the forefront of the Belgian Alliance for Sustainable Construction, a network of partners across the construction sector value chain. The alliance is engaged in integrating sustainability into the sector at both micro and macro level (and across all regions), and ensuring that the entire sector uses the same standards and systems.
Support for the CO2 Performance Ladder
The industry association was first introduced to the CO2 Performance Ladder in 2014. “At that time, we were already looking for tools that could ensure CO2 reduction in the construction sector. We were therefore immediately interested,” says Cartage.
In 2016, it commissioned environmental consultancy firm CO2Logic to organise a meeting with various Belgian stakeholders, on the CO2 Performance Ladder. It included representatives from the three Belgian regions, several cities and Embuild (the trade association for the entire Belgian construction sector). The aim of that meeting? To raise awareness about the CO2 Performance Ladder and sound out whether there was support for it. There certainly was. After detailed presentations on how the Ladder works, a testimonial from Dutch ProRail and discussions on the legal aspects, all three regions granted subsidies for a pilot phase with the Ladder, which started in 2019.
Sustainability up front
ADEB-VBA took a leadership role during that entire process and was the pioneer of the CO2 Performance Ladder in Belgium. For instance, the industry association financed the initial assignment to CO2Logic to investigate whether there was support for the Ladder. It also held numerous talks with stakeholders, to convince them of the added value of the procurement tool. Cartage: “We felt it was important to actively promote the CO2 Performance Ladder.”
“It is a powerful tool that allows governments to include sustainability in their tenders from the start”
“That is important, because it removes the reluctance of contractors to start working with sustainability. After all, this way it is already part of the contract.” In addition, the CO2 Performance Ladder can also be used for other sectors, governments can get themselves certified and the procurement tool has been working in the Netherlands for years. “The fact that the operation and benefits of the CO2 Performance Ladder were already proven was a particularly important advantage for us,” says Cartage. “It helped us to win over other stakeholders.”
Convincing dozens of governments
But there were challenges in that regard, too. In Belgium, for example, there is a huge difference from the Netherlands when it comes to the number of governments involved in a decision, Cartage explains: “In the Netherlands, if a decision is taken by Rijkswaterstaat and/or Prorail, it applies immediately to a (large) part of the sector. In Belgium, you’re talking about dozens of authorities, all of which have to be convinced of a new system or instrument. That can make its implementation a lot more difficult.”
In convincing governments about the use of the CO2 Performance Ladder, several concerns surfaced: “Especially about the possible costs that could be involved. And about competition: would enough businesses sign up for a tender with the CO2 Performance Ladder?” said Cartage.
Concerns about small businesses
There were also initial doubts and uncertainties about the Ladder on the contractor side, especially about small and medium-sized companies and whether they would be disadvantaged. After all, it is easier for large companies to be certified on the CO2 Performance Ladder. Small businesses have significantly less time and resources to do so. For this reason, in the pilot phase the CO2 Performance Ladder was only used in projects with a value of €5.5 million or higher. In other words, projects that are only of interest to large construction companies.
Another challenge Cartage sees on the contractor side: the amount of tools and systems around sustainability that are on the market today. “It is difficult for companies to find their way in them. Because what actually serves which end? And what added value does it provide? The fact that the CO2 Performance Ladder has worked for years in the Netherlands helps with this. In addition, we established the Belgian Alliance for Sustainable Construction in June 2022 to further address this topic (among others).”
Creating clarity and involving stakeholders
So how did ADEB-VBA manage to convince both procurers and contractors that the CO2 Performance Ladder should have a place in Belgian construction? “It’s about creating clarity,” says Cartage. “What is the CO2 Performance Ladder? And what exactly is it not? What goals does it serve? What is its added value? How easy is it to use? And so on. It really is something that needs to be sold, both to clients and contractors.”
“Collect the questions from the market, put the answers clearly on paper and, above all, make sure you really understand the tool yourself”
That way you limit the doubts and ambiguities that can arise.” It is also important to involve as many stakeholders as possible in the plans from the early stages. That is the most important advice Cartage has for other countries that may also want to get started with the procurement tool: “Investigate thoroughly whether and where there is support for the Ladder and include as many stakeholders as possible in your plans. If you forget to include important players in the initial phase, it is a missed opportunity. After all, you very much need them to succeed.”
In Belgium, a good start has now been made with the pilot phase, Cartage concludes, “Now we must push on and convince as many Belgian governments as possible of the usefulness of the CO2 Performance Ladder as soon as we can.”
This article is about the pilot phase in Belgium. This phase has now been successfully completed and the CO2 Performance Ladder is being implemented structurally in the country. Want to read more about the results of the pilot phase? You can do so here.
The arrival of the Ladder in Belgium. ‘We were immediately interested’
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Franky Van den Berghe and Dirk Christianen from Willemen Infra show us around at their asphalt plant in Belgium. How does Willemen Infra reduce its carbon emissions by using the CO2 Performance Ladder?
