evaluating the uk policy framework for bio-energy r. slade (*), c. panoutsou and a. bauen the policy...
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![Page 1: Evaluating the UK policy framework for Bio-energy R. Slade (*), C. Panoutsou and A. Bauen The policy context The UK energy system is evolving rapidly;](https://reader037.vdocuments.us/reader037/viewer/2022110406/56649f0c5503460f94c1f59e/html5/thumbnails/1.jpg)
Evaluating the UK policy frameworkfor Bio-energyR. Slade (*), C. Panoutsou and A. Bauen
The policy context
The UK energy system is evolving rapidly; drivers for change include:
Climate changeMarket liberalisationResource depletionInfrastructure replacement
Nevertheless, high level policy objectives have remained remarkably consistent:
“UK policy aims to ensure secure,
diverse and sustainable energy
supplies at competitive prices1”
Bio-energy has the potential to address
multiple policy objectives
Rural development
policy
Renewable energypolicy
Waste management
policy
Biomass
Rural development
policy
Renewable energypolicy
Waste management
policy
Biomass
Bio-energy Group, Imperial Centre for Energy Policy and Technology, Imperial College, Mechanical Engineering building 3rd floor, Exhibition Road, London, SW7 2AZ; www.imperial.ac.uk/icept; (*) email: [email protected].
Initial conclusions
In 2003 the UK Government introduced the reduction of CO2 emissions as a core objective of UK energy policy. Increased use of bio-energy is expected to make a significant* contribution to meeting this objective. An extensive framework of targets, incentives, economic and regulatory instruments is in place to drive
the development of the sector; nevertheless, progress is slow. This paper reviews the UK policy framework for bio-energy, proposes criteria by which policy effectiveness may be evaluated and draws initial conclusions.
The UK energy sector had been subject to a large number of policy initiatives, originating both domestically and via the EU.
Bio-energy policy
A basis for evaluation
Introduction
External constraints are surmountable
Objectives are unambiguous and agreed
A direct relationship exists between cause and effect
Outcomes are quantifiable; compliance reporting is reliable
Preliminary results
Notes and references: *The Carbon Trust: Biomass sector review, 2005. estimates that the proportion of UK energy supplied by biomass could increase from 1.5% to 3% in the short term and up to ~5% in the long term ;1Runci, P.J., Energy R&D in the United Kingdom. 2000, Pacific Northwest National Laboratory Battelle Memorial Institute ; 2Adapted from McCormick, J., Environmental policy in the European Union, p142-14, PALGRAVE.
Acknowledgements: We gratefully acknowledge the support provided for this work by the joint research councils through their sponsorship of the TSEC-BIOSYS project: Natural Environment Research Council (NERC), Engineering and Physical Sciences Research Council (EPSRC) and the Biotechnology and Biological Sciences Research Council (BBSRC).
Incentive schemes target all stages of the supply chain and innovation chain.
Multiple organisations are responsible for administration
The bio-energy policy arena is crowded: there is an extensive legislative framework, multiple initiatives, and multiple actors.
With the exception of heat, the coverage of Incentive schemes is comprehensive, but not necessarily optimal from a cost, land use or energy perspective.
Anticipated policy outcomes are poorly quantified: assessing policy effectiveness is thus a major challenge.
Evaluating whether the existing policy mix is sufficient to meet high level objectives requires a whole-systems approach.
A wide range of legislation impacts the development of UK biomass sector both driving it forward as well as restricting its development. Policy interactions are complex, subject to rapid change and frequently perceived as giving rise to perverse incentives. Aspects of plant development including: location, biomass production, transport and visual impacts may all be restricted by planning permission. The Pollution Prevention and Control regime, which restricts emissions to air, water and land on a site by site basis may also apply to large conversion plants. Over 17 incentive schemes exist that can be considered to promote bio-energy; regional variations also exist.
A basis for assessing policy effectiveness can be developed from studying past successes and failures. Effective policy initiatives are likely to embody the following principles2:
Resource extraction DistributionConversion
R&D
Knowledge transfer
Commercialisation
Supply chain
Innovationchain
17 incentive schemes identified3 including:
• Energy Crops Scheme
• Bioenergyinfrastructure scheme
• DTI technology programme
• Community energy
• ROCs
• Community renewablesinitiative
In addition to the legislation and consultative processes affecting the whole of the renewable energy sector, a number of recent high-profile policy reports have sought specifically to inform and influence the bio-energy policy debate in the UK. These reports include:
Royal Commission: ‘Biomass as a Renewable Energy Source’ UK Government: ‘Non-food Crops Strategy (& progress report)’ Biomass Task Force: ‘Report to Government’ UK Government: ‘response to the Biomass Task Force’ The Carbon Trust; ‘Biomass Sector Review’
Effective co-operation / minimal interdependence between implementing agencies
Adequate time and resources are available
A mechanism exists for enforcing compliance
Implementation should be considered at the same time as policy formation
If future UK bio-energy policy is to be effective, evidence of these principles should be manifest in existing policies and the current policy debate.
Pre-conditions for successful policy implementation
Recent policy reports fail to address all pre-conditions for effective implementation
2000
2001
2002
2003
2005
2004
EU ETS starts
Climate Change Programme Review Launched
Stern Review on Economics of Climate Change
Energy white paper published
UK Emissions Trading Scheme (ETS) Launched
Renewable Obligation on electricity suppliers introduced
Climate Change Levy introduced
Royal Commission for Environmental pollution recommends 60% CO2 reduction by 2050
Climate Change Programme sets framework for emission reduction (Kyoto-12.5% GHG by 2012; domestic -20% CO2 by 2010)
2006Renewable Transport Fuel Obligation (RTFO) announced
EU landfill of waste directive [99/31/EC] restricts landfill of biodegradable waste
Disposal of cooked meat waste to landfill banned from December 2005
EU Animal By-Products Regulation bans the disposal of raw meat wastes to landfill
EU strategy on biofuels published [COM(2006)34]
EU biomass action plan published [COM(2005) 628]
Utilities Act 2000 provides legal basis for Climate Change Levy and Renewable Obligation
EU Biofuels directive sets indicative targets for bio-fuels sales [2003/30]
Year Policy
TSEC BiosysTSEC Biosys
TSEC BiosysTSEC Biosys
RCEP: ‘Biomass as a Renewable Energy Source’
Non-food Crops Strategy
Biomass Task Force
UK Govt’: ‘response to the Biomass Task Force’
The Carbon Trust: ‘Biomass Sector Review’
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