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EU Involvement in Electricity and Natural Gas Transmission Grid Tarification http://think.eui.eu Topic 6 EU Involvement in Electricity and Natural Gas Transmission Grid Tarification Final Report January 2012 Project Leader: Christian von Hirschhausen Research Team Leader: Sophia Ruester Research Team: Claudio Marcantonini Xian He Jonas Egerer Jean-Michel Glachant Project Advisers: Dörte Fouquet Nils-Henrik von der Fehr THINK is financially supported by the EU’s 7th framework programme This text may be downloaded only for personal research purposes. Any additional reproduction for other purposes, whether in hard copies or electronically, requires the consent of the authors. Source should be acknowledged. If cited or quoted, reference should be made to the full name of the authors, the title, the year and the publisher. ISBN: 978-92-9084-075-6 doi:10.2870/35561 © 2012, European University Institute © 2012, Sophia Ruester, Christian von Hirschhausen, Claudio Marcantonini, Xian He, Jonas Egerer and Jean-Michel Glachant EU Involvement in Electricity and Natural Gas Transmission Grid Tarification Contents Acknowledgements i Executive Summary iii 1. Introduction 1 2. Trans-regional coordination and the potential role of the EU: The case of transmission infrastructures 4 2.1 Economic rationale for EU involvement and harmonization 4 2.1.1 Is any trans-national involvement justified on the grounds of subsidiarity? 4 2.1.2 Is there any economic rationale for public involvement beyond the Member State level? 5 2.1.3 Decentral coordination and EU instruments 6 2.2 Choosing among different forms of EU involvement 7 3. Regulation of TSO revenues 8 3.1 Introduction 8 3.2 Current regulatory practice 9 3.2.1 General price control mechanisms and their implementation 10 3.2.2 Instruments to promote investments 12 3.3 Current EU involvement and harmonization 13 3.4 Recommendations regarding the future role of the EU 14 4. Transmission grid tarification in the electricity sector 19 4.1 Introduction 20 4.2 Current regulatory practice 21 4.3 Current EU involvement and harmonization 24 4.3.1 EU involvement regarding tariff structures 25 4.3.2 The inter-TSO compensation mechanism (ITC) 25 4.3.3 The proposed European Infrastructure Package 27 4.4 Recommendations regarding the future role of the EU 28 5. Transmission grid tarification in the natural gas sector 37 5.1 Introduction 37 5.2 Current regulatory practice 37 5.3 Current EU involvement and harmonization 40 5.4 Recommendations regarding the future role of the EU 41 6. Conclusions and recommendation 48 References 53 Annex 1: Supplementary information 60 Annex 2: Potential objectives of tarification and conflicts of interest 64 Annex 3: Conclusions of Industrial Council Meeting (based on report version “V0”, Sept. 2011) 66 Annex 5: Conclusions of Public Consultation (based on report version “V2”, Nov. 2011) 71 http://think.eui.eu 3 EU Involvement in Electricity and Natural Gas Transmission Grid Tarification Acknowledgements This work has been funded by the European Commission FP7 project THINK. The report has gone through the THINK project quality process (http://think.eui.eu). Conclusions and remaining errors are the full responsibil- ity of the authors. The authors acknowledge the contributions by the chairmen and participants of the two meetings where first results of the research and a draft of this report were discussed: • First, the Industrial Council Meeting, 1st September 2011 in Brussels, chaired by Ronnie Belmans, where the robustness of the preliminary results was tested (Annex 3), with special thanks to the expert panel consisting of the invited experts Inge Bernaerts, Isabel Apolinário and Benoît Esnault as well as project advisors Dörte Fouquet and Nils-Henrik von der Fehr. The authors also thank members of the Industrial Council that contributed to this meeting: José Arceluz, Bart Boesmans, Nicolas Beaulaton, Christophe Bonnery, Magnus Callavik, Federico D’Alberti, Peter De Laet, Olivier Despouys, Pascale Fonck, Uros Gabrijel, Georges Fabian, Eric Ghekiere, Fernando Lasheras, Carole Le-Henaff, Robert Maaskant, Geert Magerman, Manel Martinez, Francois Meslier, Guillano Monnitza, Christian Neus, Mats Nilsson, Marie- Anne Plagnet, Jozef Sannen, André Sarens, Friedrich Schwarzlaender, and Peter von Meirhaeghe. • Second, the Scientific Council Meeting, 19th October 2011 in Brussels, chaired by William D’haeseleer, where a first draft of the report was discussed (Annex 4). The authors thank members of the Scientific Council that contributed to this meeting: Ronnie Belmans, William D’haeseleer, Ottmar Edenhofer, Dörte Fouquet, Serge Galant, Jean-Michel Glachant, Peter Kaderjak, François Lévêque, Wladyslaw Mielczarski, Peter Mombaur, Eduardo de Oliveira Fernandes, Ignacio Pérez-Arriaga, Pippo Ranci, Nils-Henrik von der Fehr, and Jorge Vasconcelos. The authors also thank Serge Galant for organizing the Public Consultation (November 01-25, 2011), and ac- knowledge the contributions by consultation respondents (Annex 5). Special thanks go to Ignacio Pérez-Arriaga, who took time out of the pressing agenda to read several drafts of our report, to answer our requests, and to discuss various issues. We are deeply indebted to his unreserved sup- port all along the project. Finally, the authors have benefited from comments by Tanja Held, Matti Supponen, Andras Hujber, Christophe Gence-Creux, Uros Gabrijel, Min Zhu, Jan-Peter Sasse, Johannes Heidelberger, Markus Krug, Sven Kaiser, Charlotte Ramsay, Martin Crouch, Alain Taccoen, Jean-Pierre Gerard, Carole Le Henaff, Luis Olmos, Jacques de Jong, Leonie Meulman, Patrik Buijs, Richard Cowart, Mike Hogan, Phil Baker, Meg Gottstein, Karsten Neu- hoff, Leonardo Meeus, Marcelo Saguan, and Isabel Azevedo. http://think.eui.eu i EU Involvement in Electricity and Natural Gas Transmission Grid Tarification Executive Summary amine policy measures going beyond the national level. Three questions are to be answered: First, The current EU involvement in the regulation of TSO whether EU involvement is justified on the grounds revenues and transmission grid tarification is limited of subsidiarity, considering that the higher European and mainly addresses issues related to interconnec- level of decision-making shall avoid pre-empting any tion and supply security as well as the definition of area of legitimate Member State involvement. Second, underlying principles for third party grid access and whether the achievement of policy targets is hindered capacity pricing. Heterogeneity among national, or by profound and permanent market failures. And fi- even local, transmission tariffs might be an obstacle nally, whether the necessary regulatory actions could for functioning competition and adequate invest- be decentralized among various local players and ob- ments into the grids. Even though transmission tar- jectives be achieved based on voluntary regional co- iffs account for only a small share of final industrial operation instead of being the result of a top-down, consumer electricity and natural gas prices, both centralized decision as to get a workable implementa- their level and structure can have a strong impact on tion process. infrastructure investments and on how commodities are traded within and between countries. Chapter 3 addresses the regulation of TSO revenues. The observed heterogeneity in general price control We investigate whether the current challenges in mechanisms and instruments used to promote new the energy sector, accompanying the move towards investments probably does not hamper adequate “2014”, “2020”, and “2050”, warrant a stronger har- investments in national infrastructures without a monization in transmission tarification and, if yes, strong cross-border impact. Key parameters deter- what form this should take and what the potential mining investment incentives such as an adequate role of the EU could be in this process. To discover risk-reward ratio, regulatory stability and transpar- the need for further EU involvement and harmoniza- ency, are all issues national regulators can properly tion, we ask (1) whether the existing heterogeneities address. Cross-country comparability, however, has in regulatory practice might hamper adequate invest- shown to be problematic which could make it diffi- ments or impede efficient competition and, if yes, cult to attract funds from external investors needed (2) whether new EU legislation in place and new EU to meet the substantial financing needs in the coming instruments notably from the Third Package – once decades. Moreover, differing methodologies used to enforced – provide an efficient solution. Increased calculate the allowed revenue could actually hamper trans-national involvement may have benefits, such adequate investments regarding projects that have a as the better functioning of markets and the facilita- regional (i.e. cross-border) impact. tion of infrastructure development, but it also comes at a cost, such as increased information asymmetry We recommend for future EU involvement: between individual decision makers and higher-level coordinating or regulating institutions. Both have to First, we do see neither the need nor the justification be weighted carefully. Practical and political imple- for an EU-wide harmonization of the regulation of mentability of the proposed solutions (both in the TSO revenues. Nevertheless, we recommend that de- near- and long-term) is one of our key concerns. cisions regarding the projects with a pan-European impact might be taken on the EU level instead of be- Chapter 2 provides the analytical framework to ex- ing the result of
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