Renewable Energy: Practicalities
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HOUSE OF LORDS Science and Technology Committee 4th Report of Session 2003-04 Renewable Energy: Practicalities Volume I: Report Ordered to be printed 28 June 2004 and published 15 July 2004 Published by the Authority of the House of Lords London : The Stationery Office Limited £18.50(inc VAT in UK) HL Paper 126-I Science and Technology Committee The Science and Technology Committee is appointed by the House of Lords in each session “to consider science and technology”. It normally appoints two Sub-Committees at any one time to conduct detailed inquiries. Current Membership The Members of the Science and Technology Committee are: Baroness Finlay of Llandaff Lord Lewis of Newnham Lord Mitchell Lord Oxburgh (Chairman) Lord Paul Baroness Perry of Southwark Baroness Platt of Writtle Baroness Sharp of Guildford Lord Soulsby of Swaffham Prior Lord Sutherland of Houndwood Lord Turnberg Baroness Walmsley Lord Winston Lord Young of Graffham For membership and declared interests of the Sub-Committee which conducted the inquiry, see Appendix 1. Information about the Committee and Publications Information about the Science and Technology Committee, including details of current inquiries, can be found on the internet at http://www.parliament.uk/hlscience/ Committee publications, including reports, press notices, transcripts of evidence and Government responses to reports, can be found at the same address. Committee reports are published by The Stationery Office by Order of the House. General Information General information about the House of Lords and its Committees, including guidance to witnesses, details of current inquiries and forthcoming meetings is on the internet at: http://www.parliament.uk/about_lords/about_lords.cfm Contacts for the Science and Technology Committee All correspondence should be addressed to: The Clerk of the Science and Technology Committee Committee Office House of Lords London SW1A 0PW The telephone number for general enquiries is 020 7219 5750. The Committee’s email address is [email protected] CONTENTS Paragraph Page Chapter 1: Executive Summary 1.1 5 Acknowledgements 1.18 8 Chapter 2: Introduction 2.1 9 The case for renewables 2.1 9 The energy policy framework 2.9 10 The Government’s targets: the scale of the challenge 2.19 12 The structure of the Report 2.26 14 Chapter 3: Technological Feasibility 3.1 16 Eligibility criteria for “renewables” 3.3 16 Eligible renewable technologies 3.13 18 Wind 3.13 18 Box 1: Wind speeds in western Europe 19 Box 2: Capacity Factors 20 Biomass 3.21 21 Box 3: The ARBRE plant 24 Marine 3.37 25 Solar 3.44 26 Hydro 3.49 27 Geothermal 3.53 27 The future—problems and opportunities 3.55 28 Figure 1: Spending on renewables R&D 29 Summary 3.64 30 Chapter 4: Practical Implementation 4.1 31 Wind 4.2 31 Box 4: The Mayflower Resolution 33 Biomass 4.14 33 Box 5: Chicken litter vs chicken feathers 35 Box 6: Energy crops in the United Kingdom 36 Table 1: CO2 equivalent emissions 36 Solar 4.33 38 Marine 4.37 39 How much will it cost? 4.41 40 Figure 2: Onshore wind turbine installation costs, 1982-2003 40 Chapter 5: Providing the Finance 5.1 43 Target or cap? 5.5 43 Box 7: The Renewables Obligation 44 Who pays for risk? 5.9 46 Box 8: An investor’s view of Government 46 Hidden subsidies 5.19 48 Box 9: The Non-Fossil Fuel Obligation 48 Box 10: The difficulties of small biomass development 49 Emerging technologies 5.27 50 Finance for small-scale developments 5.31 51 Chapter 6: Transmission and Distribution Networks 6.1 52 Grid infrastructure 6.1 52 Box 11: The National Grid infrastructure 52 Distribution networks 6.9 53 Grid codes 6.14 54 Trading arrangements for distributed generation 6.18 55 Box 12: The “balancing mechanism” 56 Chapter 7: Intermittency and Security of Supply 7.1 58 Reliability of supply 7.2 58 Box 13: The cost of intermittency 59 The “capacity margin” 7.8 59 Mitigating intermittency 7.18 61 Electricity storage 7.19 62 Diversity of supply 7.25 63 Chapter 8: Planning and Local Communities 8.1 65 Box 14: Planning in the South West 67 Box 15: The MoD’s policy on wind farms 69 Chapter 9: Envoi 9.1 70 Chapter 10: Summary of Conclusions and Recommendations10.1 73 Appendix 1: Members and declarations 82 Appendix 2: Witnesses 84 Appendix 3: Call for Evidence 87 Appendix 4: Visit to Denmark 88 Appendix 5: Seminar held at the Royal Academy of Engineering 94 Appendix 6: Visit to Elean and Thetford power Stations 100 Appendix 7: Visit to Woking 103 Appendix 8: Energy payback times 105 Appendix 9: Policy instruments affecting renewable energy 107 Appendix 10: The Renewables Obligation: target or ceiling? 108 Appendix 11: An Energy Internet? 110 Appendix 12: Electricity Storage 112 Appendix 13: Review of the written evidence 116 Appendix 14: Acronyms and Glossary 124 Note: The Report of the Committee is published in Volume I(HL Paper 126-I); the evidence is published in Volume II (HL Paper 126-II). References in the text of the report are as follows: (Q) refers to a question in the oral evidence (p) refers to a page of written evidence Renewable Energy: Practicalities CHAPTER 1: EXECUTIVE SUMMARY 1.1. The Energy White Paper Our energy future—creating a low carbon economy, published in 2003, set out an energy policy that aims both to ensure security of electricity supply and to meet ambitious targets for reducing greenhouse gas emissions.1 The Government wish to achieve this by market mechanisms while keeping electricity “affordable”. The development of renewable energy sources is put forward as a key means to achieving these policy goals, and the Government have set a target that ten percent of the United Kingdom’s electricity should be generated from such sources by 2010, and an “aspiration” of 20 percent for 2020. 1.2. In conventional terms, virtually no renewable source is economically competitive at present unless, notionally or through taxation, a substantial pollution cost is added to the cost of generation from fossil fuels. This means that market mechanisms must be supplemented by subsidies or other means of support for electricity generation from renewable sources. 1.3. By 2020 the Government’s plan envisages a substantial change in patterns of generation. The changes roughly correspond quantitatively to replacing current nuclear generation with energy from renewable sources (20 percent), and generation from coal and oil by combined cycle gas turbines. A significant reduction in overall national electricity consumption is also implied. 1.4. Our study addresses the practicalities of meeting the Government’s targets for renewables and some of their wider implications. We have found that unless some key problems are addressed within the next two years2 the targets will not be achieved and the broader strategy on renewables seriously jeopardised. In particular: x The current means of subsidising renewable sources must be modified to give longer term stability to the market; x Planning processes must be co-ordinated at several levels and various means used to achieve more local acceptance of renewable developments; x National electricity transmission and distribution arrangements may need serious attention to allow proper access and management of distributed and intermittent electricity generation; x The Government must show that they are taking energy supply seriously both through ministerial commitment and commitment of resources to R&D. 1.5. To a large extent making use of renewable resources involves applying new technologies to take advantage of the special features of particular areas—for 1 Our energy future—creating a low carbon economy, presented to Parliament in February 2003 (Cm 5761). Hereafter referred to as “the White Paper”. 2 The planned review of the Renewables Obligation (see Box 7 below) in 2006 provides an opportunity for effecting some of the major changes recommended in our report. 6 RENEWABLE ENERGY: PRACTICALITIES example north-west Scotland is one of the windiest places in Europe, and the coastal waters have substantial waves. Other parts of the United Kingdom have exceptionally high tides. On the other hand technologies such as those that depend on sunlight may be more attractive in more southerly parts of Europe. There are different opportunities in different places. 1.6. Internationally, wind is the renewable energy source that has received the most attention and is in many ways the technology that is best understood (apart from some kinds of hydro). New installations on land can be assembled in a matter of days once planning and access provision are complete. Costs have declined steadily over the last twenty years although development has taken place almost exclusively outside the United Kingdom. 1.7. In the United Kingdom onshore wind turbines have not been universally welcomed on amenity and environmental grounds, and there can be interference with radar and aircraft. For these and other reasons the Government are encouraging the development of offshore wind farms. Installing turbines under these conditions is considerably more expensive than on land and servicing them may not be easy. However, better wind conditions and larger turbines in larger groups may offset these disadvantages. There is, however, no long-term experience of operating such offshore developments. 1.8. Another exceptional natural resource of the United Kingdom is the energy contained in waves and tides. These have received much less attention internationally and, in part because Government support for energy related R&D has been low by international standards, the technology largely remains too immature to attract substantial commercial interest. Some demonstration projects are now underway. Simple systems based on the rise and fall of tides do not require new technology and are in use (notably in France) but commonly attract objections because of their significant environmental impacts on river estuaries.