Power from the People
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Power from the People Inquiry into distributed generation Final Report July 2012 © State of Victoria 2012 This final report is copyright. No part may be reproduced by any process except in accordance with the provisions of the Copyright Act 1968 (Cth), without prior written permission from the Victorian Competition and Efficiency Commission. ISBN 978-1-922045-14-0 (paperback) ISBN 978-1-922045-15-7 (PDF) Disclaimer The views expressed herein are those of the Victorian Competition and Efficiency Commission and do not purport to represent the position of the Victorian Government. The content of this final report is provided for information purposes only. Neither the Victorian Competition and Efficiency Commission nor the Victorian Government accepts any liability to any person for the information (or the use of such information) which is provided in this final report or incorporated into it by reference. The information in this final report is provided on the basis that all persons having access to this final report undertake responsibility for assessing the relevance and accuracy of its content. Victorian Competition and Efficiency Commission GPO Box 4379 MELBOURNE VICTORIA 3001 AUSTRALIA Telephone: (03) 9092 5800 Facsimile: (03) 9092 5845 Website: www.vcec.vic.gov.au An appropriate citation for this publication is: Victorian Competition and Efficiency Commission 2012, Power from the People: Inquiry into Distributed Generation, final report, July. About the Victorian Competition and Efficiency Commission The Victorian Competition and Efficiency Commission (VCEC), which is supported by a secretariat, provides the Victorian Government with independent advice on business regulation reform and opportunities for improving Victoria’s competitive position. VCEC has three core functions: • reviewing regulatory impact statements, measuring the administrative burden of regulation and business impact assessments of significant new legislation • undertaking inquiries referred to it by the Treasurer, and • operating Victoria’s Competitive Neutrality Unit. For more information on the Victorian Competition and Efficiency Commission, visit our website at: www.vcec.vic.gov.au Disclosure of interest The Commissioners have declared to the Victorian Government all personal interests that could have a bearing on current and future work. The Commissioners confirm their belief that they have no personal conflicts of interest in regard to this inquiry. 27 July 2012 Mr Kim Wells MP Treasurer of Victoria 1 Treasury Place MELBOURNE VIC 3002 Dear Treasurer VCEC Inquiry into Feed-in Tariff Arrangements and Barriers to Distributed Generation In accordance with the terms of reference received by the Commission on 13 January 2012, we have pleasure in submitting the Commission’s final report Power from the People. Yours sincerely Deborah Cope Dr Matthew Butlin Presiding Commissioner Chair Terms of reference Inquiry into Feed-in Tariff Arrangements and Barriers to Distributed Generation I, Kim Wells MP, Treasurer, pursuant to section 4 of the State Owned Enterprises (State Body – Victorian Competition and Efficiency Commission) Order (‘the Order’), in conjunction with Michael O’Brien MP, the Minister for Energy and Resources, hereby direct the Victorian Competition and Efficiency Commission (‘the Commission’) to conduct an inquiry into feed-in tariff arrangements and barriers to distributed generation. Background Victoria currently has in place a number of programs that are designed to reduce greenhouse gas emissions and facilitate an adjustment towards a low emissions economy. These programs include feed-in tariff schemes such as the standard feed-in tariff scheme for customers with installations up to 100kW capacity and the premium and transitional feed-in tariff schemes applying to eligible customers with solar inverter systems up to 5kW capacity. In the context of the implementation of a national carbon price, it is appropriate that the Commission undertakes a review of Victoria’s feed-in tariff schemes. Addressing any state and local regulatory or other barriers to the uptake of low emissions generation, including co-generation and tri-generation, is also important to ensure that any transition to low emissions generation occurs as smoothly and as cost-effectively as possible. Scope of the inquiry In this inquiry, the Commission is required to: (1) Assess the design, efficiency and effectiveness of feed-in tariff schemes, including market-based gross feed-in tariff schemes, in the context of a national carbon price. (2) Prove a recommendation as to whether existing feed-in tariff arrangements should be continued, phased-out or amended. Where phase-out of existing arrangements is proposed, the appraisal should give consideration to whether any transitional arrangements may be necessary. Any changes to existing arrangements would not be applied retrospectively. (3) Identify and State and/or local regulatory and other barriers to the development of a network of distributed renewable and low emission generation in Victoria, including co-generation and tri-generation. TERMS OF REFERENCE VII In conducting this inquiry, the Commission should have regard to: • recent reports by the Australian Energy Market Commission on planning and connection arrangements for distributed energy generation; • reviews currently being undertaken by the Victorian Government; and • relevant reports by Commonwealth forums and bodies such as the Productivity Commission. Inquiry Process In undertaking this inquiry, the Commission is to have regard to the objectives and operating principles of the Commission, as set out in section 3 of the Order. The Commission must also conduct the inquiry in accordance with section 4 of the Order. The Commission is to consult with key interest groups and affected parties, including representatives of end-use electricity consumers, and may hold public hearings. The Commission should also draw on the knowledge and expertise of relevant Victorian Government departments and agencies. The Commission is required to produce a draft report for public consultation, ahead of a final report to the Government within 6 months of receipt of this reference. KIM WELLS MP Treasurer Received: 13 January 2012 VIII POWER FROM THE PEOPLE: INQUIRY INTO DISTRIBUTED GEENRATION Contents Terms of reference VII Contents IX Abbreviations XIII Glossary XV Key Messages XIX Summary report XXI Recommendations XLI 1 Introduction 1 1.1 Background to the inquiry 1 1.1.1 What is distributed generation? 2 1.1.2 What are feed-in tariffs? 2 1.2 Context and why this inquiry is important 3 1.3 The Commission’s approach 4 1.4 Inquiry process 5 2 Distributed generation in Victoria 7 2.1 The Victorian electricity industry 7 2.1.1 Market for distributed energy 8 2.2 Regulation of distributed generation in Victoria 14 2.2.1 Regulation of the NEM 15 2.2.2 Delay of the NECF in Victoria 17 2.2.3 Connecting to the distribution network 19 2.2.4 Selling exported electricity 25 2.2.5 What do these arrangements mean for the inquiry? 29 2.3 Policies for distributed generation and renewable energy 35 2.3.1 Commonwealth policies 35 2.3.1 State policies 37 2.4 Future trends 38 2.4.1 Cost trends 38 2.4.2 Improved metering technology 41 2.5 Conclusions 42 3 Issues raised by participants 43 3.1 Introduction 43 3.1.1 Issues raised in response to the draft report 44 3.1.2 Connecting to the network 44 3.1.3 Selling electricity 51 4 Commission’s framework 57 4.1 Introduction 57 4.2 The value of distributed generation 58 4.2.1 Output value 58 4.2.2 Network value 62 4.3 Realising the value of distributed generation 64 4.3.1 Role of the market 64 4.4 Improving the efficiency of transactions 69 4.5 Equity considerations 70 4.6 Addressing terms of reference 71 5 Network value 72 5.1 Introduction 72 5.2 How material is network value? CONTENTS IX 5.3 Market power concerns 74 5.3.1 Better information 75 5.4 Network reinforcement costs 80 5.4.1 Information and transparency 80 5.4.2 Sharing costs 81 5.4.3 Who benefits from reinforcement 81 5.4.4 The Commission’s view 82 5.5 Regulatory incentives 83 5.6 Recovering network value 85 6 Connecting generators to the distribution network 87 6.1 Context 88 6.2 Benefits of medium-scale distributed generation 91 6.3 Barriers to medium-scale distributed generation 91 6.4 Right to connect and export 94 6.5 Process: cost, timelines and uncertainty 101 6.6 Cost savings from improved medium-scale connection process 110 7 Facilitating connection of household-scale distributed generation 111 7.1 Barriers to household-scale connection raised by stakeholders 112 7.1.1 Specific connection barriers 114 7.2 Timeliness of household-scale connection 117 7.2.1 Connection process timeframes mandated by regulation 118 7.2.2 Stakeholder feedback on the timeliness of connection 121 7.3 Why does the Victorian connection process work the way it does? 122 7.3.1 The Victorian electrical safety system 122 7.3.2 Rationale for a retail feed-in tariff contract 123 7.4 Opportunities for improvement raised by stakeholders 123 7.4.1 One connection process for all Victorian DNSPs 124 7.4.2 No requirement for connection approval by the DNSP 124 7.4.3 Removing the obligation that distributed generation customers enter into a separate FiT contract 125 7.4.4 Introducing meter contestability 126 7.4.5 Remove the retailer from the installation, connection and metering process 126 7.4.6 Online connection process 127 7.4.7 Improving information 128 7.5 The Commission’s view 129 7.5.1 Process improvement 1: remove retailer