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Transcript of Juho Lipponen - CCS incentive policies: lessons and strategies - Presentation at the Global CCS...
Incentive policies for Incentive policies for
Carbon Capture and Storage:Carbon Capture and Storage:Lessons and StrategiesLessons and Strategies
© OECD/IEA 2010
Lessons and StrategiesLessons and Strategies
5 October 20115 October 2011
Juho LipponenJuho Lipponen
Head of Unit, Carbon Capture and StorageHead of Unit, Carbon Capture and Storage
International Energy AgencyInternational Energy Agency
International Energy Agency
IEA countries
OECD countries, but not IEA members
© OECD/IEA 2010
� Inter-governmental body founded in 1973, currently 28 Member Countries
� Policy advice and energy security coordination
� Whole energy policy spectrum and all energy technologies
� Key publications: World Energy Outlook and Energy Technology Perspectives
� Host to more than 40 technology-specific networks (“Implementing
Agreements”)
� Operated independently with their own membership and financing
� Includes IEAGHG, IEA Clean Coal Centre etc.
� Active in CCS since 2000; dedicated CCS unit created in 2010
� Provides policy advice
� Supports broader IEA cross-technology analysis
CCS @ IEA:
WORK PROGRAMME
CCS Strategy & Policy Technical & Economic
© OECD/IEA 2010
Legal & RegulatoryCapacity-Building &
Collaboration
Global Policy Fora
CCS in Industrial Applications:� 4Gt of reductions potential in 2050
© IEA/UNIDO 2011
POLICY IS CRITICAL FOR CCS
1. Enabling CCS as part of energy portfolio
2. Making CCS a legal activity & clarifying
responsibilities
3. Ensuring safety and environmental
© OECD/IEA 2010
3. Ensuring safety and environmental
viability of operations
4. Providing incentives for demonstration
and deployment
� Business models & financing of projects
5. Contributing to public acceptance
INCENTIVES?
FINANCING?
INCENTIVE
Policy push or market pull mechanism
that provides an earning logic for CCS
© OECD/IEA 2010
that provides an earning logic for CCS
projects (”ensures bankability”)
FINANCING
Becomes possible when the earning
logic or bankability is established
Business
© OECD/IEA 2010
Government
WHY DO WE TALK ABOUT INCENTIVES?
1. LEVEL OF ECONOMY / SOCIETY:
To meet the IEA CCS Roadmap ambitions, almost USD 5 trillion will need to be invested in CCS installations.
0
500
1,000
1,500
2,000
2,500
$b
n
© OECD/IEA 2010
02010-2020 2020-2030 2030-2040 2040-2050
Other OECD USA China India Other Non-OECD
Fuel Coal
(similar for all capture routes;
relative to a pulverized coal
baseline)
Natural gas (post-
combustion)
Efficiency
penalty 10 %-points 8 %-points
Capital
costs
3 800 USD/kW
(74% increase)
1 700 USD/kW
(82% increase)
Cost of CO2
avoided55 USD/tCO2 80 USD/tCO2
2. PROJECT / COMPANY LEVEL:
Investment in early CCS facilities represents prohibitive capital cost and decreases efficiency leading to increased operating cost.
WHY DO WE TALK ABOUT INCENTIVES? (2)
© OECD/IEA 2010
Source: EU
Zero-Emissions
Platform
ECONOMIC CHARACTERISTICS OF CCS
TECHNOLOGY WILL EVOLVE
CCS Costs/
carbon
price
The cost of most applications of CCS is currently significantly above carbon prices/penalties (where they exist); by 2050 it is expected that this will reverse.
© OECD/IEA 2010
Carbon price or
tax
CCS unit costs
Early stageMiddle stage Late stage
Time
ARE POLICY OBJECTIVES CLEAR?
� Reducing emissions
� Ensuring technology learning
Ensuring access to capital markets
© OECD/IEA 2010
� Ensuring access to capital markets
CCS POLICY OBJECTIVES WILL EVOLVE
Policy objective Example policies Importance over time
� Short to mid term focus on learning and access to
capital
� Long term focus shifts towards emissions cuts
� Different objectives – different policy tools
© OECD/IEA 2010
Emissions reductionCarbon tax, emissions trading
Technology learning Feed-in tariff
Access to capital market
Provision of debt, equity, insurance
Optimised Infrastructure
Regulation
POLICIES TO ADDRESS DIFFERENT
OBJECTIVES
Reducing emissions
Technology learning
Access to capital markets
Cap and trade Capital grant Co-investment
equity
Carbon tax Production
subsidy
Provision of debt
Baseline and Investment tax Credit guarantees
© OECD/IEA 2010
Baseline and
credit
Investment tax
credit
Credit guarantees
Feebate Production tax
credit
Insurance
products
Emissions
performance
Standard
Feed-in tariff
CO2 purchase
contract
Premium feed-in
tariff
Portfolio standard
TOWARDS A POLICY STRATEGY
INCENTIVE POLICY ARCHITECTURE
Long-term framework of how different
policies are employed
POLICY TOOLS
© OECD/IEA 2010
POLICY TOOLS
Individual policy tools responding to
relevant objectives
POLICY GATEWAYS
Breakpoints in time/development when
policy moves from one stage to next
� CCS a challenging area for policy-makers
� Ability to adapt and modify policy as technology changes
or new information comes to light...
� ...but the (perception of) changing policy may damage
investment
� “Policy gateways” might help overcome this
challenge:
POLICY “GATEWAYS”
© OECD/IEA 2010
challenge:
� policies employed in each stage
� Criteria defining when or if policy will move to next stage
� an outline of the reaction if gateways are missed
� Can lower government risk from imposing
poor value for money
� Can lower policy risk for investors
POLICY ARCHITECTURE AND GATEWAYS
Carbon
price
CCS Cost/
carbon price
Technical
demonstrationSector-specific deployment Wide-scale deployment
Long-term policy architecture can enhance credibility and effectiveness
© OECD/IEA 2010
‒ Quantity support
mechanism
price
CCS unit
costs
‒ Carbon price
Time
‒ Capital grants
‒ Operating
subsidies
‒ Loan
guarantees
First Gateway Second Gateway
‒ Technical feasibility
‒ First cost threshold
‒ Availability of firm
storage capacity
‒ Further cost reductions
‒ Infrastructure development
‒ Availability of firm storage
capacity
EXAMPLES OF CURRENT INCENTIVE POLICIES
US: Demo funding
EU: NER300, EEPR
AUS: Flagship pr.
UK: CCS competition
NO: Mongstad
Etc..
UK: 2011
Electricity
Market Reform
NO: Carbon tax
US: EOR projects
© OECD/IEA 2010
‒ Quantity support
mechanism
Carbon
price
CCS unit
costs
CCS Cost/
carbon price
‒ Carbon price
Time
‒ Capital grants
‒ Operating
subsidies
‒ Loan
guarantees
Technical
demonstrationSector-specific deployment Wide-scale deployment
FURTHER ANALYSIS
� Incentives suited for industry-CCS
� Quantifying the value of
transferring long-term liability
� Extra incentives for biomass-CCS
© OECD/IEA 2010
� Extra incentives for biomass-CCS
(”valuing a ton removed vs.
reduced”)
� Innovative solutions esp. for
developing countries
CONCLUSION:
”Generic policy advice”
1. Be clear about policy objectives
2. Suit incentive policy to technical
maturity
© OECD/IEA 2010
maturity
3. Plan incentive strategy long-term
4. Plan for a coherent mix of
incentives, not just one
5. Create certainty!