Select Committee on European Union Written Evidence


Memorandum by the UK Business Council for Sustainable Energy

INTRODUCTION

  The UK Business Council for Sustainable Energy brings together the key players[16] in the energy sector to develop an effective dialogue with Government that can help strengthen the UK's strategic agenda for sustainable energy.

  The activities of the companies that support the Council collectively span generation, transmission and distribution, and supply of energy. As a result, Council members are well positioned to provide insights into the effective delivery of the EU renewable energy target in the UK.

  The Council believes that there is a crucial role for renewable energy in delivering secure and low-carbon energy supplies in the UK, and we welcome the Government's commitment to supporting the appropriate development of the UK's renewable energy resources.

  Energy companies are keen to play their part in delivering low carbon energy supplies, including renewables, and are committed to working with Government and others to ensure that the right support mechanisms are in place, and that key barriers are addressed.

  The purpose of this paper is to:

    —  present the Council's initial thinking about the implications of delivering a 15% renewable energy target in the UK by 2020, with a particular focus on renewable electricity,[17] including:

    —  the anticipated mix of renewable electricity technologies in 2020;

    —  wider implications of meeting the target on the electricity system;

    —  outline key "no-regrets" measures that should be implemented immediately to facilitate progress towards the target; and

    —  highlight a range of issues that the Council believes would benefit from further consideration in developing the Government's Renewable Energy Strategy.

KEY POINTS

  Importance of renewables: The Council believes that there is a crucial role for renewable energy in the UK in: delivering greenhouse gas emission reductions; reducing reliance on energy imports; and potentially reducing exposure to fuel price volatility. In addition, increased investment in renewable energy is anticipated to deliver expanded business opportunities along the renewable energy supply chain.

  Stable long-term policy framework: Action by Council members will underpin the bulk of delivery of the UK's renewable energy targets. We are therefore keen to work with Government to help develop a clear and stable policy framework that supports the efficient and cost-effective delivery of renewable energy in the UK.

  Timely action: Delivering the UK's share of the EU Renewable Energy target will be challenging, but we believe it is achievable, provided that the Government does act in a timely manner to ensure the right support mechanisms are in place, and that current barriers, such as planning and grid access, are fully and effectively addressed.

  Cost: Delivery of the renewable energy target will have significant cost implications for consumers. This is in the context of the Stern Review, which found that moving to a low carbon economy will require significant additional investment in low carbon energy supplies including renewables in order to avoid the costs associated with climate change. It is critical that these costs are understood, and communicated to consumers, and should form a significant part of the consultation on the Renewable Energy Strategy. Achieving a response that does not have a disproportionate impact on low-income households will be a crucial test for public policy in this area.

  Importance of energy efficiency: Energy Efficiency has a critical role to play in reducing the amount of renewable energy required to meet the target, and therefore the overall costs. Council members have a strong and important role to play in securing the uptake of energy efficiency measures, and we are currently working with Government to help inform key policies, such as the Supplier Obligation, as well as other areas such as the Zero Carbon Homes, and wider energy efficiency measures.

  Network implications: The Council's initial view is that by 2020 around two-thirds to three-quarters of the new renewable electricity generation capacity could come from offshore and onshore wind energy. This will have implications for the supporting infrastructure needed to maintain energy system stability, including securing sufficient generation capacity to manage intermittent supply from renewables.

  Network investment: There is a need for significant investment in the network infrastructure to manage the increased contribution from renewable energy, and to manage the associated peak capacity and operational and system stability issues. Innovative approaches to optimising use of present network assets as well as network expansion will need consideration, together with related regulatory questions.

  Microgeneration: The Council expects to see a significant increase in microgeneration capacity, particularly for heat-based technologies.

  Bioenergy: The extent to which bioenergy will contribute to the delivery of the target will depend on the availability, cost and sustainability of biomass resources.

  Trading: The Council believes there is a potential role for trading within Europe to encourage the cost-effective delivery of the renewable energy target. However, when looking at the detail of how trading might be implemented, it is important to note that a system that allows the UK to buy in a significant amount of renewable energy credits from other countries, may mean that the UK will not be in a position to realise the full benefits associated with meeting the renewable energy target, including increased independence from imported fuels and associated price volatility. Also, the current trading provisions in the draft directive are, at present, unlikely to deliver enough clarity for developers in sufficient time to enable significant trading before 2020.

  Consultation: It is important that the consultation allows for consideration of priority areas to be addressed to enable delivery of the 15% renewable energy target, including:

    —  Longer-term development needs for supporting network infrastructure:

    —  Transmission.

    —  Distribution.

    —  Managing the impact of intermittent generation on the system:

    —  Peaking plant.

    —  Storage and demand side management.

    —  Ensuring the technology supply chain has the capacity to deliver.

    —  Ensuring sufficient skills.

    —  Addressing the public policy implications of a significant increase of renewables.

    —  Understanding and properly communicating the cost implications for energy consumers.

    —  Understanding the pathway to a low carbon energy supply to 2050, including the possible role of emerging technologies such as marine and use of low carbon electricity for heating.

IMPORTANCE OF TIMELY ACTION

  Delivery of the 2020 renewable energy target will require swift action to ensure that: the supporting infrastructure is in place; planning decisions are made in a timely manner; and that key issues such as technology supply chain constraints are addressed.

  The following table summarises the indicative times associated with the pre-planning, planning and delivery phases of new wind and transmission infrastructure projects.

Table 1

INDICATIVE TIMING OF NEW WIND AND TRANSMISSION INFRASTRUCTURE PROJECTS
Pre-planning Planning processDelivery
Onshore wind2 years 5 years2 years
Transmission3-4 years 5 years2-4 years


  As the following indicative timeline shows, new renewable projects, and the associated infrastructure, must be initiated in the next few years in order to make a significant contribution to the 2020 targets.

Figure 1

INDICATIVE TIMELINE OF NEW WIND PROJECTS AND TRANSMISSION INFRASTRUCTURE[18]



  This highlights the importance of making critical decisions expeditiously, and not revisiting through a further round of lengthy consultations those matters that are already in train. In particular, energy companies are keen that the Government, in parallel to the consultation on the Renewable Energy Strategy, maintains a sharp focus on implementing the important initiatives that are currently underway.

Network infrastructure

  In addition to planning and construction for renewable energy projects, there are also time implications of new network infrastructure, including identifying Offshore Transmission Owners, coordinating connection between offshore and onshore infrastructure, and then construction.

  It is therefore particularly important that investment in necessary network infrastructure is facilitated in a timely manner to ensure progress towards delivering the 2020 renewable energy target can be made.

Planning Reform

  The introduction of the Planning Reform Bill will be critical to facilitating the uptake of renewable energy projects and the associated transmission infrastructure in a timely manner.

  Under the current regime the planning process for a new onshore wind farm can take up to five years.

  It is important that planning solutions are also available in the Devolved Administrations.

Support mechanism

  The Government has a range of initiatives already in place that are effectively encouraging the uptake of renewable energy. For example, the Renewables Obligation has successfully underpinned renewable electricity development in the UK, and is expected to be a key support mechanism for onshore and offshore wind energy and biomass projects.

  The Council is also confident that a strong Government commitment to a higher target and an extended time period for support for renewable energy will continue to stimulate investment in renewable electricity to 2020 and beyond.

  We look forward to discussing with Government what other support measures would be appropriate, particularly at the household and smaller-scale level.

Beyond 2020

  In addition to the challenge of meeting the 2020 renewable energy target, the UK must also ensure the optimal delivery of the right infrastructure for a low carbon energy system to 2050. This will require a balance of implementing those "no-regrets" measures that can facilitate the uptake of renewable energy in the shorter-term to 2020, while ensuring that current activity doesn't compromise the broader vision for low carbon and renewable energy looking forward.

UK SHARE OF THE TARGET

  To meet its share of the EU renewable energy target, the UK will need to deliver 15% of its energy from renewable sources by 2020. An initial high-level assessment by the Council supports the developing view that this could translate to:

    —  10% of heat (an increase from less than 1% currently by almost 70 TWh).

    —  10% of land transport (an increase from less than 1% by over 45 TWh).

    —  Up to 40% of electricity from renewable sources (an increase from less than 5% currently by over 125 TWh).

Assumptions on future energy demand

  The 2020 projections for the amount of renewable energy to be delivered across each sector are highly sensitive to the assumptions made about demand growth.

  The extent to which energy efficiency policies are implemented in the UK will have a significant impact on the amount of renewable energy that will be needed to meet the target. It is worth noting that the biggest opportunity for energy efficiency is in reducing heat consumption, and is less likely to impact on future demand for electricity.

  For illustrative purposes, the Council has looked at a scenario where energy demand across heat, electricity and transport remains at 2006 levels. While this does not reflect current and future energy demand trends, or the impact of energy reduction policies, this approach does provide a useful indication of the likely scale of increase in renewable energy needed to meet the target, and also provides some important insights into the implications for the supporting infrastructure. The scenario that we have chosen could act as a sound base case for projections going forward.

  The Council can see that there could conceivably be an increased pressure on the electricity sector to deliver more than 40% of total electricity from renewable sources if:

    —  there is a significant increase in electricity demand; and/or

    —  the heat and transport sectors do not achieve their potential to use renewable energy.

  For example:

    —  It is possible that we will see an increase in demand for electricity in the UK if there is an increased use of electricity for heating and transport, which will increase the absolute volume of renewable electricity required.

    —  If policies to deliver renewables in the heat and transport sectors are not as successful as hoped, then this would also add pressure on the electricity sector to deliver the renewables target. For example, current discussions about the sustainability of biofuels could have an adverse outcome on the deliverable proportion of transport fuels from renewables.

Table 2

BREAKDOWN OF EXPECTED HEAT, ELECTRICITY AND TRANSPORT ENERGY CONSUMPTION BY 2020
Consumption (TWh) 2006 2020 (based on 2006 levels)
Electricity (conventional)375 248
Electricity (renewable)19 (4.8%) 145 (38%)
Total Electricity393 393
Heat (conventional)730 661
Heat (renewable)5 (0.6%) 74 (10%)
Total Heat735 735
Land Transport (conventional)478 432
Other Transport (conventional)173 173
Land transport (renewable) (% of all land transport) 2 (0.4%)48 (10%)
Total Transport653 653
Total Energy (conventional)1,755 1,514
Total Energy (renewable)25 (1.4%) 267 (15%)
Total Energy1,781 1,781




Expected renewable electricity mix

  To deliver the target, it is expected that the UK will need to generate a total of around 145 TWh of electricity from renewable sources by 2020 (8% of total energy), from less than 20 TWh generated in 2006.

  The Council has made a preliminary estimate of the expected technology mix that could make up the renewable electricity component if it is delivered entirely in the UK. The Council expects that the bulk of the new renewable electricity generation (over two-thirds) is likely to come from onshore and offshore wind.


  If Government believes that it is appropriate to create the conditions in which a Severn Barrage might be built, the Council does not anticipate that it could be delivered by 2020. However, we understand that demonstrable progress towards delivering the targets may be looked on favourably. We look forward to the outcomes of the Government study into the feasibility of a tidal power scheme in the Severn Estuary.

  This project raises a number of important questions, including its environmental impact, likely cost-effectiveness, the likely subsidy-levels required, the relative economics of other low-carbon investment. In reality, if the Severn Barrage (or a similar scale development) was not delivered it would inevitable increase the pressure to deliver more renewable electricity through other projects.

Table 3

EXPECTED RENEWABLE ENERGY MIX IN 2020: GENERATION AND INSTALLED CAPACITY
TechnologyGeneration (TWh) Total installed capacity (GW) Load factor[19]
Offshore wind62 250.28[20]
Onshore wind3514 0.27
Biomass235 0.57
Severn Barrage177 0.26
Hydro52 0.35
Marine21 0.30
Micro/Small-scale11 0.10
TOTAL145 55


  The load factors for offshore wind are based on BERR data from existing projects. It is expected that, over time, the load factor for offshore wind energy will improve as the technology develops. This does highlight the importance of stimulating research and development into better performing technologies that generate more power from the available resources.

  In developing this initial assessment of a possible renewable electricity technology mix, we have compared notes with other bodies such as the Renewables Advisory Board, and have found estimates to be broadly consistent.

  We welcomed the decision by Government to release the recent Poyry report on "Compliance Costs for Meeting the 20% Renewable Energy Target in 2020". However, a number of questions arise from this report including:

    —  the assumptions about the scale of biomass implementation which we believe do not fully reflect current concerns about the cost, availability and sustainability of biomass; and

    —  some of the conclusions in the report related to the outcomes of trading, which appear optimistic for 2020.

IMPLICATIONS OF DELIVERING THE RENEWABLE ENERGY TARGET

Back-up plant and demand response

  By 2020, we will need significant changes to the energy system to ensure that it can manage the increased amount of intermittent renewable energy electricity generation. The Council believes that there will be a need for some form of backup for those times when renewable resources are not available. This could take the form of additional thermal supply capacity, or more innovative approaches such as demand side management, or storage.

  The UK currently requires around 72 GW of generating capacity to meet energy demand.[21] We currently have slightly more than that, with 76 GW of generating capacity currently installed.

  The Council estimates that at 2006 levels of energy demand, a total installed capacity of over 120 GW would be needed, compared to the 76 GW currently installed today. We estimate that the generation mix in 2020 would include:

    —  55 GW of renewable energy generating capacity;

    —  9 GW of nuclear plant,

    —  31 GW of thermal plant; plus

    —  a further 17 GW of capacity to manage intermittency at peak periods;[22] and

    —  a further 10 GW of plant to provide a 20% margin.



  Over the coming decade, as a result of the Large Combustion Plant Directive, and plants coming to the end of their life, over 22 GW of existing power stations are expected to close by 2020. Initial estimates indicate that this could result in a need for around 68 GW of new build by 2020.

  This also highlights the importance of considering the potential role that storage and greater demand side management could have in reducing the scale of investment in new supply needed.

  The location of the necessary backup plant, and the capacity of the network to allow connection will need further consideration.

  This highlights a range of issues that we believe will need consideration in the Renewable Energy Strategy, including:

    —  scale and location of back-up plant;

    —  capacity of the network to manage additional plant;

    —  ability of current market mechanisms to encourage sufficient and timely investment in back-up capacity;

    —  potential role of storage and greater demand side management, and the policies and mechanisms needed to encourage consideration of these alternative approaches;

    —  timeliness of investment for back-up facilities; and

    —  the additional costs associated with providing back-up services to the energy system.

Electricity transmission

  Electricity transmission infrastructure will be key to enabling the increased levels of renewable generation estimated above. The three GB electricity transmission licensees that are members the Council[23] provided a preliminary view of the capacity of the existing GB transmission system to accommodate new renewable generation without the construction of new overhead line routes. An initial view was provided with just the broadest of assumptions and without undertaking detailed system studies. The following is a summary of the indicative guidance from the three licensees.

  Figure 6 below is intended to give a general indication of the levels of renewable generation that could be accommodated on the GB transmission system by 2020. It assumes completion of transmission upgrades already in train (eg the Beauly-Denny rebuild and south west Scotland works) as well as completion of those works expected to be achieved without protracted planning issues, eg relatively uncontentious re-conductoring and re-insulation work on existing tower routes, and substation extensions.



Table 4

LEVELS OF ADDITIONAL ENERGY GENERATING CAPACITY THAT COULD BE ACCOMMODATED IN 2020 ABOVE EXISTING INSTALLED CAPACITY
RegionCapacity (GW)
Scotland8
England and Wales8
TOTAL16


  There may be scope for this to be higher subject to further examination of generation scenario assumptions in England and Wales. However, this preliminary assessment highlights a significant shortfall against the new renewable energy capacity needed to meet the target.

  The indicative numbers in Figure 5 are the result of a brief assessment by the transmission licensees based on the following high level assumptions and are not based on detailed study work.

Table 5

HIGH LEVEL ASSUMPTIONS USED IN ANALYSIS
1.  DemandSeven Year Statement user demand data extrapolated out to 2020.
2.  GenerationScotland: By 2020, no contribution from Hunterston or Cockenzie power stations. All other Scottish generation still contributing. England and Wales: All contracted generation proceeds and no closures (apart from Magnox nuclear and LCPD opted-out plant).
3.  Planning StandardApply current GB SQSS


  The intention is to give an indication of the potential for the EXISTING GB transmission system in 2020 (ie including upgrades that do not carry a high consenting risk) to accommodate additional renewable generation, and for that number (approximately 16 GW) to be set against the Council's estimate of the additional generating capacity that we anticipate will be needed to contribute to meeting the 15% overall target for renewable energy.

  While there is considerable capability in the potentially achievable 2020 transmission system there is still nevertheless a substantial shortfall compared with what would be consistent with the 15% renewable energy target.

  Our initial analysis indicates that we will need around 50 GW of additional energy generating capacity to meet the renewable energy target, in various sizes and locations.

  Overall, with around 16 GW of existing capacity, it is expected that around 34 GW of additional transmission capacity will be needed to manage the increase in renewable generating capacity and associated back-up.

  Detailed and coordinated study work by the three transmission licensees is required to identify appropriate reinforcements to deliver a transmission system capable of accommodating the total 55 GW of renewable generation we expect will be needed in 2020. In particular, this work would quantify the costs and benefits of various transmission options (see indicative unit costs below).

Table 6

COSTS OF TRANSMISSION OPTIONS
TechnologyCost (£ per MW of rating per km)
Onshore 400kV AC overhead line 200
Sub-sea HVDC cable1,000
Onshore 400kV AC underground cable2,700


  The Council is aware of previous coordinated studies (Renewable Energy Transmission Studies (RETS) I and II[24]) undertaken by the three transmission licensees prior to 2005 with sponsorship by DTI (at the time).

  The Council believes that a similar approach is again appropriate now. The Council therefore supports the initiative by National Grid Electricity Transmission (NGET) and the Scottish transmission licensees to re-establish a RETS group with appropriate sponsorship by BERR that also brings together other interested parties, especially generators to determine optimum reinforcements for future requirements where options would include new onshore and offshore circuits. The Council is happy to facilitate cross-industry work in this area.

  The Council has provided its estimates for how new wind generation, in addition to that already installed, will be distributed around the UK for inclusion in the background for such a study.

Table 7

INITIAL VIEWS ABOUT THE LOCATION OF ADDITIONAL WIND ENERGY GENERATING CAPACITY BY 2020
Offshore windNewcapacity (GW) Onshore windNew capacity (GW)
Scotland E3 Scotland7
North E3Wales 2
North W3Northern Ireland 1
Central E4England 3
Wales2TOTAL 13
South East3
South West5
South2
TOTAL25



  The Council also made the following observations on the indicative guidance provided by the three transmission licensees.

    —  The consenting and completion of the Beauly-Denny transmission rebuild is essential to releasing the upgrade potential of the existing Scottish transmission system. By rebuilding the weakest leg of a north of Scotland transmission ring it allows the other elements of that ring to be re- conductored and re-insulated (ie no new overhead line routes) to increase the capability for renewable generation in the north to some 6.4 GW (around 2.2 GW already connected). The reinforced ring facilitates collection of the output from onshore developments and the sub-sea island links are planned for connection onto the reinforced transmission ring.

    —  Scottish Power Transmission (SPT) and NGET have programmes of reinforcements including re-conductoring and the use of innovative transmission devices to maximise the capability of existing Anglo-Scottish circuits and those further south.

    —  Indications are that with appropriate funding mechanisms to enable the transmission works to progress, especially pre-application, environmental studies and design, as well as with appropriate access and charging arrangements to ensure they are fully utilised, the transmission works in hand should be capable of accommodating some 16 GW of renewable generation in 2020. Independently of longer-term review of transmission arrangements, it is essential that these shorter-term measures are initiated and completed swiftly otherwise delivery of sufficient infrastructure capacity to support the 2020 target will be unachievable.

LOOKING FORWARD

  In this submission we have outlined initial thinking about renewable energy potential to 2020 for the UK.

  Clearly, targeted policy intervention will be needed to deliver the 2020 target.

Maintaining momentum

  In the immediate term, we believe that there are a number of measures in train that are critical to delivery of the target, and it is important that the Government maintains a focus on implementing these, such as the current planning reforms, and the new arrangements for the Renewables Obligation.

Short-term "No-Regrets" measures

  The Council also believes that there are potentially a number of "no-regrets" measures that Government could implement immediately to facilitate progress towards the target, including:

    —  demonstrating commitment across all Departments to delivering the 2020 target;

    —  demonstrating Government commitment to continue its policies and measures designed to support renewable energy in order to ensure investor confidence is maintained;

    —  ensuring that in any revision of the existing statutory social and environmental guidance to Ofgem, Government gives a clear indication of the importance of Ofgem's role in facilitating sustainable energy development;

    —  swift resolution of shorter-term transmission access reforms to enable full use of existing transmission infrastructure, and use of new transmission infrastructure as it is established; and

    —  early resolution of the Government's and EC's position on the use of biomass and biofuels across heating, electricity and transport.

  A key area of focus must be realising opportunities to encourage timely new investment in the relevant transmission infrastructure.

  We have seen a new process of strategic planning for renewable energy in Scotland which has brought together input from industry, regulators and planning to inform the National Planning Framework for Scotland (see Figure 7). This could be usefully extended through the anticipated new system of National Policy Statements—in particular those for Infrastructure and Renewables. At a very generalised level, this would identify the likely renewable energy input, possible locations, and potential transmission upgrade requirements.

Emerging issues for further consideration

  This paper provides a very high level assessment of the implications of delivering the renewable energy target in the UK. We have identified priority areas basic to delivery of the 15% renewable energy target, and on this basis we would hope to see the consultation on the Renewable Energy Strategy give full consideration to the following areas:

    —  Longer-term development needs for supporting network infrastructure:

    —  Transmission.

    —  Distribution.

    —  Ensuring the supply chain can deliver.

    —  Ensuring sufficient skills.

    —  Managing and communicating public acceptance of a significant increase of renewables.

    —  The technology, scale and location of peaking plant.

    —  The role of demand side management and storage to balance an increased proportion of intermittent generation.

    —  The extent to which trading between Member States will be facilitated.

    —  The use of renewable electricity for heat and transport.

    —  The materiality of the of cost of implementing the renewable energy target for consumers.

    —  The uncertainties around the cost, availability and sustainability of biofuels, and how any shortfall in the biofuels area would be made up across the other sectors.

    —  The range of energy demand projection scenarios looking forward, and the implications for the renewable energy targets, including possible trends for an increased use of electricity for heating and transport.

CONCLUSION

  The Council welcomes the Government's commitment to increasing the uptake of renewable energy in the UK, and we look forward to participating in the upcoming consultation on the Renewable Energy Strategy.

  The 2020 renewable energy target is challenging. Delivering this target will require clear, effective and decisive action by Government to ensure a stable and supportive investment climate for renewable energy.

  To give the UK the best opportunity to deliver the 2020 target, we believe that the Government should:

    —  drive the initiatives currently underway, including delivering the new arrangements for the Renewables Obligation and maintaining momentum on planning reform. Development and effective implementation of the National Policy Statements for Renewables and for Infrastructure will also prove central;

    —  quickly implement the "no-regrets" measures that do not require significant further consultation, such as strategic planning for the transmission infrastructure; and

    —  ensure that the consultation for the Renewable Energy Strategy is prioritised to focus on areas that require further examination.

  The Council looks forward to continued dialogue with the Government, Devolved Administrations and others.

1 May 2008



16   Members of the Council include Centrica, EDF Energy, E.ON UK, National Grid, RWE npower, Scottish and Southern Energy, Scottish Power, and United Utilities. Back

17   The Council has separate but related work streams on energy efficiency and demand reduction, as well as the progressive decarbonisation of the UK heat market. Back

18   This timeline is indicative, and clearly different projects will have different commencement and completion dates. Back

19   From BERR Energy Statistics, Capacity of, and electricity generated from, renewable sources-2006 figures used. Back

20   This reflects the load factor of current offshore wind farms that are in the commissioning phase. In the longer-term, we expect the load factor for off-shore wind energy to be higher, which means that delivering the target would require a lower installed capacity of offshore wind energy than our initial assessment (based on our assumptions about demand for the purposes of this paper). Back

21   This includes an additional 20% capacity of the total thermal capacity that would be needed to deliver the electricity demand. Back

22   This calculation assumes that the 55 GW of renewable energy will deliver 10% firm capacity. Back

23   Scottish Hydro Electric Transmission Limited (SHETL), SP Transmission Limited (SPT), and National Grid Electricity Transmission Limited (NGET). Back

24   Studies included: Connecting Renewables to the Grid-A Report by the Transmission Working Group of the Department of Trade & Industry, November 2005. Back


 
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