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REAP Module “Legal and Economic Instruments of Environmental Policy”
Winter Term 2014/2015
Prof. Dr. Martin Wickel, LL.M. / Dr. Cathrin Zengerling, LL.M.
Comparison between the Swedish and German Energy Policy
By: Troutman, Heather (60 28 60 1) and Adcock, Benedict (60 28 56 3)
Date submitted: 03.04.2015
II
Contents
1 Introduction.................................................................................................................................- 1 -
2 Electrical Energy in Sweden.........................................................................................................- 2 -
2.1 Green Electricity Certificate System....................................................................................- 4 -
2.1.1 How the electricity certificate market works..............................................................- 4 -
2.1.2 Advantages of a large certificate market compared to a small one ...........................- 5 -
2.1.3 Electrical power producers..........................................................................................- 6 -
2.1.4 Quotas and market participation................................................................................- 6 -
2.1.5 Trading.........................................................................................................................- 7 -
2.1.6 Quota obligation and cancellation..............................................................................- 7 -
2.1.7 Financing the electricity market..................................................................................- 8 -
2.1.8 Energy market inspectorates ......................................................................................- 8 -
2.2 Achievement of the electricity certificate market ..............................................................- 8 -
2.2.1 Distribution of electricity certificates..........................................................................- 8 -
2.2.2 Cancellation of electricity certificates.........................................................................- 9 -
2.2.3 Achievement of quota obligation................................................................................- 9 -
2.2.4 Surplus.........................................................................................................................- 9 -
2.2.5 Trading on the electricity certificate market.............................................................- 10 -
2.3 Summary of recommendations.........................................................................................- 10 -
2.3.1 Adjustment of quota curve .......................................................................................- 10 -
2.3.2 Access to projects and risk factors............................................................................- 11 -
2.3.3 Market improvement measures................................................................................- 11 -
2.4 The Program for Improving Energy Efficiency in Energy Intensive Industries (PFE).........- 11 -
2.4.1 Report after two years and five years in the program..............................................- 11 -
2.4.2 Target of PFE..............................................................................................................- 12 -
2.4.3 Energy management systems and procedures for purchasing and planning...........- 12 -
2.4.4 Energy review – in more detail..................................................................................- 12 -
2.4.5 Results of the first five years in PFE ..........................................................................- 13 -
3 Electrical Energy in Germany (Facts and Figures) .....................................................................- 14 -
3.1 EEG ....................................................................................................................................- 15 -
3.1.1 Fixed Tariffs ...............................................................................................................- 15 -
3.1.2 Priority Feed-In..........................................................................................................- 16 -
3.1.3 EEG Surcharge ...........................................................................................................- 16 -
3.1.4 Monitoring Performance...........................................................................................- 17 -
III
3.2 Outcomes ..........................................................................................................................- 18 -
3.2.1 Increase in Renewables.............................................................................................- 19 -
3.2.2 EEG Surcharge ...........................................................................................................- 19 -
3.3 EEG Reform........................................................................................................................- 20 -
3.3.1 EEG Reform in the European Context .......................................................................- 21 -
3.3.2 Special Equalization Scheme .....................................................................................- 21 -
3.3.3 Self-Supply.................................................................................................................- 21 -
3.3.4 Continued Expansion.................................................................................................- 22 -
3.3.5 Direct Marketing of Renewable Energy ....................................................................- 23 -
3.3.6 Pilot Auction..............................................................................................................- 23 -
3.4 Summary of Recommendations........................................................................................- 24 -
3.4.1 Emissions Trading......................................................................................................- 24 -
3.4.2 Grid Expansion...........................................................................................................- 25 -
3.4.3 Load Flexibility and Storage Capacity........................................................................- 26 -
3.4.4 Energy Efficiency .......................................................................................................- 26 -
4 Analysis of Sweden’s and Germany’s Different Instruments....................................................- 27 -
5 Summary of Result and Outlook ...............................................................................................- 27 -
6 References.................................................................................................................................- 29 -
- 1 -
1 Introduction
Germany and Sweden are both members of the European Union (EU). Several policy measures of
both countries are based on EU directives. The directive 2009/28/EC affects the renewable energy
development in both countries. Germany’s target for the share of energy from renewable sources in
gross final consumption of energy is about 18% by 2020 (Official Journal of the European Union,
2009). By 2020 Sweden is required to reach a renewable energy share of 49% (Swedish Energy
Agency, 2013).
In Sweden and Germany different instruments are used to reach the mandated goal for share of
renewables in the energy mix by 2020.
This document focuses on the electricity sector, analyzing the different approaches of both countries
to increase the share of renewable energy in their respective electricity sector. The German
Renewable Energy Act (Erneuerbare-Energien-Gesetz – EEG) is the main instrument to increase
renewables in Germany and is based on a government subsidy system (Germany, 2010, p. 6).
Sweden uses a market-based instrument (Green Electricity Certificate System), to increase the share
of renewable energy.
The development of electricity prices for households in Germany is very different compared to
Sweden. Could this be related to the different approaches of both countries to increase their share
of renewables?
According to the Energy Transformation Index (ETI), designed by the Frauenhofer Institut, Sweden is
top ranked (Frauenhofer ISE, 2013). Germany is in fourth place. Can this also be explained by the
use of the different instruments?
This report offers analysis of the above questions in reference to the chosen instruments of both
countries to increase the share of renewable energy, and to make each country more sustainable.
First, the Swedish electricity sector is explained, followed by a detailed description of the Swedish
Green Electricity Certificate System and a description of the program for Improving Energy Efficiency
in Energy Intensive Industries (PFE). Next, the German electricity sector and the EEG are explained.
Subsequently, both instruments are analyzed and evaluated. Finally, the obtained results will be
summarized and an outlook will be given.
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2 Electrical Energy in Sweden
Since the oil crisis of the 1970s, Sweden has invested in the search for alternative energy sources. In
1970, more than 75% of Swedish primary energy supplies came from oil; by 2012, the amount had
decreased to 21.5% (Government of Sweden, 2015).
Figure 1 Source: Energy Balances of OECD Countries, IEA/OECD Paris, 2012; submission by the Swedish government to
the IEA.
Sweden’s current electricity production is mainly divided into hydropower (48%, 2012) and nuclear
power (38%, 2012). Combined heat and power plants and wind power collectively generate about
14% of Sweden’s total electricity production in 2012 (see Figure 2).
Figure 2 Source: Energimyndigheten, Energiläget 2014
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Sweden defined its energy policy in 1997. The government wanted to stimulate “efficient and
sustainable energy use and a cost-effective energy supply” that would “facilitate the transition to an
ecologically sustainable society” (Government of Sweden, 2015).
In 2003, the Electricity Certificate System was introduced. Norway joined the Swedish Market for
Electricity Certificates in 2012. (Energimyndigheten, 2013)
In 2005, a program, Improving Energy Efficiency Act (2004: 1196) (PFE), designed to increase energy
efficiency in energy intensive industries, based on an EU directive, came into force (Swedish Energy
Agency 1, 2011).
The joint success of the Electricity Certificate System and the Program for Improving Energy
Efficiency in Energy Intensive Industries (PFE) were leading factors contributing to Sweden receiving
the top ranking of the Energy Transformation Index (Frauenhofer ISE, 2013).
Also, in reference to the IEA Indicator “Energy related CO2 emission per GDP,” Sweden is more
efficient than all the other countries considered by the IEA (see Figure 3). Therefore, a closer look
into both instruments, the Electricity Certificate System and the PFE, is necessary.
Figure 3 Source: CO 2 Emissions from Fuel Combustion, IEA/OECD Paris, 2012.
Compared to other countries in the EU, the Swedish development for electricity prices for
households is moderate. This is particularly noteworthy as Sweden was top ranked in reference to
energy transformation and for the low related CO2 emission per GDP, which is normaly associated
with high energy costs.
- 4 -
Electricity prices for houshold consumers, first half 2013 (Euro per kWh)
Figure 4 Source: Eurostat (online data code: nrg_pc_204)
2.1 Green Electricity Certificate System
The Green Electricity Certificate System, introduced in 2003, is the major political measure to
increase the share of renewable energy technologies in Sweden (Government of Sweden, 2015).
Since January 1st
, 2012, Norway is also part of the electricity certificate system (Energimyndigheten,
2013, p. 5).
2.1.1 How the electricity certificate market works
The system is market based. Electricity traders have to buy a proportion of “green electricity” as part
of their normal supply, while power producers are granted certificates proportionate to the amount
of renewable electricity they generate. The aim is to increase renewable electricity generation by 25
TWh from 2002 to 2020 (Government of Sweden, 2015).
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Figure 5 Source: The Norwegian-Swedish Electricity Certificate Market, Annual Report 2013
1. Electricity generators receive one certificate for each megawatt hour (MWh) of renewable
electricity produced, over a maximum 15 years.
2. The certificates are sold in a market where supply and demand regulates the price. With the
certificates, the producers have extra income additionally to the electricity price.
3. Demand for certificates arises because power suppliers and defined power customers are
obliged by law to buy certificates corresponding to a defined quota of their electricity trades
or usage.
4. The electricity end users – or rather, household consumers – pay for the renewable
electricity development because the price of the electricity certificates is included in the
electricity bill.
5. Market participants with quota commitments must annul electricity certificates with the
purpose of fulfilling their quota obligation every year (Energimyndigheten, 2013, p. 7).
2.1.2 Advantages of a large certificate market compared to a small one
In 2012, Norway connected itself to the Swedish electricity certificate market leading to a market
with greater size and more members than a national market would have had. The aim to boost
renewable electricity production can thereby be reached in a more cost-effective manner, because
investment will be focused to where conditions are most suitable for new renewable power plants
(Energimyndigheten, 2013, p. 8).
The common market approach is also defined in the EU2009/28/EC directive. The directive permits
cooperation on measures through so-called collaboration mechanisms. The Swedish - Norwegian
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certificate system is a model of a joint support system and is the first example within the EU in order
to reach the national goals in 2020 (Energimyndigheten, 2013, p. 8).
2.1.3 Electrical power producers
The electricity certificates market is managed by two agencies, also known as directorates, one in
Sweden and one in Norway. The power producers have to apply to their respective agency to take
part in the market. After the application is approved the electricity producer receives an electricity
certificate for each megawatt hour (MWh) they produce with renewable technology, over a
maximum of 15 years. The certificates are then sold for supplemental income on top of the sold
electricity. Electricity generated by the following sources is eligible for electricity certificates:
• Biofuel (combined heat and power plants in Sweden)
• Geothermal energy
• Solar energy
• Hydropower
• Wind power
• Wave power
(Energimyndigheten, 2013, p. 9)
2.1.4 Quotas and market participation
Electricity certificate market members with quota commitments are mostly power traders. There are
also a few electricity customers. Each year the electrical power traders and customers must buy
certificates equivalent to a certain share of their electricity deliveries or consumption. This is called
the “quota obligation.” The market participants with quota obligations must buy electricity
certificates according to the quota curve. The quota curve states the percentage of certificates
needed based on total electricity consumption (Energimyndigheten, 2013, p. 10).
The countries’ quotas are defined in legislation. An increase of quotas causes an increase demand of
electricity certificates. The Swedish and Norwegian quotas are defined until 2035, when the
electricity certificate system expires (see Figure 6).
The two countries intend to cancel 198 million electricity certificates each (corresponding to 198
TWh) by 2035. Each country finances 13.2 TWh of renewable power generation a year for 15 years
(15 years x 13.2 TWh = 198 TWh). According to this the quota curve was designed.
(Energimyndigheten, 2013, p. 10)
- 7 -
Figure 6 Source: Act (2011:1200) regarding electricity certificates; Act 24.06.2011 no. 39: Act regarding electricity
certificates.
The quota curves of Norway and Sweden are calculated and set based on assumptions of future
calculation-relevant electricity consumption. The end target of both countries is fixed (13.2 TWh
each year of renewable electrical energy) but each year the quota curve has to be adjusted, because
the electrical energy consumption is not 100 % predictable. (Energimyndigheten, 2013, p. 10)
Norwegian market members with quota obligations bought about 3 times less electricity certificates
of their calculation-relevant electricity consumption compared to Swedish members in 2013 (see
Figure 6). The main reason for this difference was that plants in the transition system had to be
financed. Another reason was that the calculation-relevant electricity consumption was higher in
Sweden compared to Norway (Energimyndigheten, 2013, p. 11).
2.1.5 Trading
The electricity certificates are traded on the electricity certificate market. The price changes
dependent on supply and demand. The trading occurs between power producers and market
participants with quota obligations, and brokers. Electricity certificates, when traded, are transferred
from the sellers to the buyers (Energimyndigheten, 2013, p. 11).
2.1.6 Quota obligation and cancellation
Once a year, market members with quota obligations must inform their respective directorate of the
amount of certificates they need to achieve their quota obligation. To fulfill the quota obligation, the
market members with quota obligations must have certificates equivalent to the proportion, in
percentage, of their calculation-relevant electricity consumptions. All existing certificates are
annulled on the 1st
of April and cannot be used again. This means that market members with quota
obligations must buy new electricity certificates to fulfill next year’s quota obligation. This ensures
that a constant demand for electricity certificates is created (Energimyndigheten, 2013, p. 12).
- 8 -
2.1.7 Financing the electricity market
The costs of electricity certificates are included in the customer’s electricity bill when the power
producer is a member of the market with a quota obligation. Electricity-intensive industries have an
electricity certificate cost connected to their electricity consumption that is not used in production
processes (Energimyndigheten, 2013, p. 13).
2.1.8 Energy market inspectorates
It is checked by the Energy Markets Inspectorate that energy companies follow the regulations. The
energy market inspectorate’s website provides analysis information and observations of the power
market, including power suppliers and electricity prices. The energy market inspectorate frequently
tests the market functions (Energimyndigheten, 2013, p. 16).
2.2 Achievement of the electricity certificate market
From 2012 on, a new renewable production capacity from 6.2 TWh has contributed to the electricity
supply due to the Norwegian-Swedish electricity certificate system. This fits exactly in the planned
extension of renewable energies with the target to have 26.4 TWh of new renewable power
production by the end of 2020 (see Figure 7) (Energimyndigheten, 2013, p. 16).
An average increase of 2.93 TWh of renewable power production must come into operation each
year, with the aim of 26.4 TWh by the end of 2020. However, there are no fixed targets for each
individual year. It is the market members, who invest and build plants, which decide how many
renewable power production plants are built each year (Energimyndigheten, 2013, p. 16).
Figure 7 Source: Swedish Energy Agency, NVE
2.2.1 Distribution of electricity certificates
16.3 million electricity certificates were given to power producer in 2013. The share of Sweden and
Norway and the dispersal between different energy sources in reference to the electricity certificates
market is shown in Figure 8 (Energimyndigheten, 2013, p. 20).
- 9 -
Figure 8 Source: Cesar, NECS
2.2.2 Cancellation of electricity certificates
16.2 million electricity certificates were annulled in 2013 (Energimyndigheten, 2013, p. 22).
The quota of electricity certificates is set by law, see Chapter 2.1.4 “Quotas and market
participation.” However, the calculation-relevant electricity consumption differs with temperature
and economic phases. For instance, hydropower electricity production changes from year to year,
because the amount of yearly rain has an influence on the amount of energy that can be generated
by a hydropower plant. Therefore, the number of annulled electricity certificates corresponds not
always with the annulment that is essential to reach the yearly goal. The quota curve is being
adjusted as part of the electricity certificate market (Energimyndigheten, 2013, p. 22).
2.2.3 Achievement of quota obligation
Most market members (99.96%), met their electricity certificates quota obligations in 2013. Market
participants who did not satisfy their electricity certificates quota obligation were charged with a fee
(Energimyndigheten, 2013, p. 23).
2.2.4 Surplus
The surplus is the difference between the number of electricity certificates that have been issued
and the number that have been annulled. The number of electricity certificates has to be high
enough to balance the market. An increase of surplus is caused when the demand is lower than the
production of electricity certificates. In 2013, there was an increase of surplus of about 0.1 million
certificates compared to 2012, which reflects a 0.645% surplus compared to the total number of
certificates issued in 2013 (see Figure 9) (Energimyndigheten, 2013, p. 27).
The surplus is an indicator for the pressure in the electricity certificate market. A high amount of
surplus, in relation to the amount of electricity certificates to be annulled, causes a negative price
pressure and a low amount of surplus has the opposite effect
- 10 -
Figure 9 Source: Svenska Kraftnät’s and Statnett’s account systems (respectively Cesar and NECS)
2.2.5 Trading on the electricity certificate market
Primarily, market members with quota obligations trade with market members with certificate
entitlement. In addition, there are also traders who have accounts in the electricity certificate
register. These traders have the goal to buy electricity certificates and sell them later at a profit.
They help to stabilize the market price. The average price from 2003 to 2013 is given in Figure 10.
Figure 10 Source: CleanWorld, ICAP and Svensk Kraftmäkling
2.3 Summary of recommendations
2.3.1 Adjustment of quota curve
Each year a summary report of recommendation is written by the respective directorate. It is mainly
about the adjustment of the quota curve. In 2013, for instance, the Swedish Energy Agency
recommended to adjust the quota curve of both countries in order to reach the 2020 target of 26,4
TWh of new renewable energy power plants. For Norway, the directorate recommended to adjust
the quota curve downwards to reach a reduction in demand for electricity certificates. For Sweden,
an upward rise of the quota curve was recommended (Energimyndigheten, 2013, p. 31).
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2.3.2 Access to projects and risk factors
Possible risks factors and the access to projects are also yearly evaluated by the respective
directorate. Mainly it is about the availability of investable projects and whether there is enough
potential capacity of building renewable energy plants (Energimyndigheten, 2013, p. 31).
2.3.3 Market improvement measures
The Swedish Energy Agency conducts an annual analysis of the market, concluding with a list of
recommendations. The main points of the 2013 report were:
• The relationship between the current electricity quotas and the factors, on which the
electricity certificates quotas are based, should be analyzed annually.
• A database of power production with entitlement to electricity certificates is needed.
Project specific information should be included, like the licenses to build, investment
decisions and plants under construction (Energimyndigheten, 2013, p. 32).
2.4 The Program for Improving Energy Efficiency in Energy Intensive
Industries (PFE)
The PFE (Act 2004:1196) came into force in 2005. It is in line with the EU’s Energy Tax Directive. In
this directive it is defined that energy intensive companies in production industry have the prospect
of being granted tax exemption on their electricity consumption if they take action to increase their
energy efficiency. Therefore, a program was designed by the Swedish government to increase the
energy efficiency in energy intensive industries. The membership in the program is voluntary
(Swedish Energy Agency 1, 2011).
Participation in the program takes five years. The years are divided into the following steps:
• In the first two years a standardized energy management system must be installed.
• A list of measures to improve energy efficiency is created based on the data of the energy
management system.
• In the remaining three years the company is to implement the list of measures.
PFE focuses on electricity-efficiency. Therefore, measures to increase the efficiency of electricity, is
the main target (Swedish Energy Agency 1, 2011).
2.4.1 Report after two years and five years in the program
After two years of participation in the PFE program the company must report an energy review, a
confirmation of the successfully installed energy management system and a list of measures. The
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final result report has to be submitted after five years. The final report describes and summarizes
the results of the measures to increase the energy efficiency (Swedish Energy Agency 1, 2011).
2.4.2 Target of PFE
The measures of PFE should increase electrical efficiency equivalent to those that would have been
realized if the companies had paid the sum of tax on electricity, which their membership in PFE
relieves them from paying. According to the Swedish Energy Agency, all measures should be carried
out with a return on investment of less than 3 years (Swedish Energy Agency 2, 2011).
2.4.3 Energy management systems and procedures for purchasing and planning
A national standard for energy management systems was first introduced in 2003. This was replaced
by the European standard EN16001 in 2009 (Swedish Energy Agency 3, 2011).
When a company takes part in the PFE a standardized energy management system has to be
implemented and it has to be certified in the first two years by an independent certification body.
After the first two years the company must constantly improve the energy management system
within the remaining three years (Swedish Energy Agency 3, 2011).
There are several independent control mechanism and documentation tools with the purpose of
seeing that the certifications and re-certifications continue according to plan. One of the control
bodies is the Swedish Board for Accreditation and Conformity Assessment (SWEDAC), which
cooperates with the Swedish Energy Agency (Swedish Energy Agency 3, 2011).
There are strict requirements for companies that take part in the PFE in reference to energy reviews,
buying of high-consumption electric apparatus, planning procedures, modifications and renovations
after the energy management systems had been introduced. The Life-cycle costing (LCC)
methodology is used for buying high-consumption electrical equipment. The highest efficiency class
must always be chosen when it comes to the purchasing of high consumption electrical motors
(Swedish Energy Agency 4, 2011).
The target is always to certify that the companies constantly choose energy efficient equipment
(Swedish Energy Agency 4, 2011).
The task of the certifying bodies is to check that the rules for buying and planning are followed and
that the energy management system is used (Swedish Energy Agency 4, 2011).
2.4.4 Energy review – in more detail
The in-depth review and analysis, focusing on electricity, must include the following requirements:
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1. The review has to be carried out from a systems perspective.
2. The review has to cover the short- and long-term measures.
3. Measures to improve electricity efficiency must always be included in the review (Swedish
Energy Agency 5, 2011).
The first point, “carrying out the energy review from a system perspective,” means that the
companies must evaluate the production process and how the energy efficiency can be improved. It
could also involve an analysis on how one measure affects the energy use in other parts of the plant
(Swedish Energy Agency 5, 2011).
The second point refers to the short- and long-term measures. The company must analyze possible
changes that could occur within the time period of a decade impacting energy use. These changes
have to be taken into consideration in relation to the short-term changes in energy use (Swedish
Energy Agency 5, 2011).
The last point is important in terms of suggestions for measures to increase electricity efficiency.
During the program period the company has to implement measures which have a return on
investment of less than three years (Swedish Energy Agency 5, 2011).
The energy review has to be reported to the Swedish Energy Agency (Swedish Energy Agency 5,
2011).
2.4.5 Results of the first five years in PFE
After the fifth year a final report from the PFE participants must be handed in to the Swedish Energy
Agency to demonstrate the energy efficiency results and how the program requirements have been
met (Swedish Energy Agency 6, 2011).
In 2009, about 100 companies submitted their final reports. During the five-year program, the 100
companies increased their collective energy efficiency by about 1,45 THh. This was accomplished by
investing 707 MSEK (approx. Euro 70 million) in 1,200 electricity efficiency measures. 350 other
measures to increase energy efficiency were, among others, the switch from fossil fuels to
renewables and increased surplus heat to external parties. All companies implemented and certified
the standardized energy management system (Swedish Energy Agency 6, 2011).
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3 Electrical Energy in Germany (Facts and Figures)
Similar to the Swedish situation described in chapter two, Germany’s energy mix first began a
notable shift following the oil crisis of 1976. Prior to this event, petroleum accounted for 47% of
primary energy consumption (PEC) and fossil fuels as a whole accounted for 97% of PEC. The
following two decades had little development in renewable energies, but there was a transition away
from petroleum in PEC in substitution for predominately natural gas, as well as an increase in nuclear
energy in gross electricity production (GEP) (Deutsche Bank AG, 2014)
Figure 11 Source: Deutsche Bank Research Figure 12 Source: Deutsche Bank Research
Renewable energies in Germany began to emerge following the 1998 elections of the first Social
Democratic Party (SPD)/Greens coalition whose agenda contained two fundamental items in the
context of renewable energy, (1) the gradual phasing-out of nuclear energy in Germany, and (2) the
rapid deployment and integration of renewable energies (Deutsche Bank AG, 2014).
In 1991, the German government adopted its first Grid Feed-In Law (Stromeinspeisungsgesetz –
StromEinspG), which suffered from numerous disputes and was eventual annulled in response to the
Preussen Elektra decision of the European Court of Justice in 2001 for over-stepping the definition of
State aid and for violating the principle of European free movement of goods (Lang & Lang, 2014).
The German government has relentlessly maintained its commitment to increasing the share of
renewable technologies in its energy mix and has consistently met most of its energy and emissions
targets. It should be noted, the National Renewable Energy Action Plan, developed in accordance
with directive 2009/28/EC, of which the EEG is a founding pillar, is robust far beyond the scope of
- 15 -
this paper and set decadal targets in 13 categories for five decades. Since the release of the 2009
Renewable Energy Action Plan even more targets have been set. Tellingly, it should be acceptable
that some of these targets where not perfectly achieved as the overall agenda has been upheld
(Federal Republic of Germany, 2009).
Figure 13 Source: BMWi, 2014
3.1 EEG
The Renewable Energy Sources Act (Erneuerbare-Energien-Gesetz, EEG) entered into effect in 2000
with the goal of expanding renewable energy to make the “power supply more environmentally
sound and climate-friendly [keeping Germany] self-sufficient in the face of the world’s diminishing
reserves of fossil fuels” while maintaining affordability and reliability of the energy supply (BMWi ,
2015).
3.1.1 Fixed Tariffs
Feed-in tariffs (FIT) are legally defined prices established for the compensation of renewable
electricity for a defined period of time, often 20 years. Once established, FIT rates are, most usually,
guaranteed for the entire defined period, meaning that adjustments to FIT pricing have mostly
occurred for new installations established after FIT pricing revisions.
FITs are independent of the market price of electricity, which provides them with an investment
security as the annual return from a renewable energy (RE) technology can be simply and accurately
estimated based on the technologies’ capacity and historical weather data (such as wind velocity and
- 16 -
hours of solar radiation). This feature enabled financing of renewable technology installations, more-
or-less, and independent of the installer’s financial history or capacity. Such a provision opened an
opportunity for secured income for most landowners in German, especially farmers, and ultimately
resulted in rapid deployment of RE installations (Finadvice, 2014).
3.1.2 Priority Feed-In
All electricity produced from renewable energy sources (RES) is guaranteed to be fed into the grid,
regardless if the additional capacity is needed. RES electricity, by legal mandate, must always receive
preference from grid operators over electricity produced from conventional sources (fossil fuels).
This mandate does not concern itself with the differentiated production costs of various electricity
generation sources. Certified RES electricity power plants – all of them – always receive preference.
3.1.3 EEG Surcharge
The costs of the EEG are equally spread to all energy consumers in an EEG Surcharge “following the
principles of solidarity“ (BMWi , 2015). The equalization scheme goes through five steps:
1. Renewable energy generator (wind farm, solar park, ect.)
2. Distribution system operator
3. Transmission system operator
4. Electricity supply undertaking
5. Consumer
On the first level, the RES electricity generators have two options. They can sell their RES electricity
directly to a distribution system operator (DSO) at a fixed price determined by the feed-in tariff, or
sell their RES electricity directly to market for a market premium, which is also set by law. Under
both scenarios, the DSO is required to compensate the RES electricity generator for the full value of
either the feed-in tariff or the market premium.
At the second level, DSOs are then required to transfer the EEG electricity to a Transmission System
Operator (TSO). There are four TSO in Germany. The TSO must compensate the DSO for the full cost
of both the feed-in tariffs and the market premiums.
At the third level, the four TSOs average the marginal costs of all EEG electricity over the costs of
total electricity consumption resulting in a differential price per kWh that is then divided by each
individual TSO’s percentage of the full market share in the previous year.
The TSOs then sell the EEG electricity on the European Energy Exchange spot market (EEX-SPOT).
The collective differential cost between the computed cost per kWh (detailed above) and the actual
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compensation of the spot market is then averaged, per kWh, over the total electricity production in
Germany. The resulting value is the EEG surcharge.
The TSOs pass the EEG surcharge back to all electricity suppliers, proportionate to the quantity of
electricity supplied such that each electricity producer compensates the same amount per kWh.
These costs are calculated based on estimates and must be paid by the electricity producers one
month in advance. The calculation is based on the forecasted costs of feed-in tariffs and market
premiums, the forecasted revenue from electricity sales on the spot market and forecasted
electricity consumption.
This forecasted marginal cost, the EEG surcharge, is then equally distributed over every kWh of
electricity consumed in Germany, paid by the consumer. This is the fifth level. In the event that the
EEG surcharge is under-calculated for the following year, the differential cost is then included into
the per kWh EEG surcharge computed for the following year. Similarly, if the EEG surcharge is over-
calculated, then the surplus is equally distributed as a reduction to the following year’s EEG
surcharge (European Commission, 2014).
3.1.4 Monitoring Performance
The “Energy of the Future” monitoring process has been developed to measure the effectiveness of
the EEG and to summarize the results into meaningful statistics. This report is to be published every
three years and will include an extensive review of the performance of individual policy elements. A
committee comprised of “four renowned energy experts” has been charged with managing the
monitoring and reporting process. Additionally, a variety of “high-level specialist panels”
representing business and industry, State and local-level government officials, society and the
scientific community have been formed. A non-exhaustive sample of such focus groups follows.
• “Future-oriented-Grids” platform, the
• Power Plant Forum inter alia with the
• “Strategic Reserve” expert dialogue, the
• “Renewable Energies” platform, the
• “Energy Efficiency” dialogue forum, the
• “New Energy Technologies” coordinated platform, the
• “Energiewende” research platform and the
• “Dialogue on the Renewable Energy Sources Act” (BMWi, 2014).
- 18 -
3.2 Outcomes
The success the EEG to meet the RES electricity goals, which were quite aggressive, is undeniable
(refer to Figures 15 and 16). Further, the EEG achieved unprecedented success in the rapid market
integration and cost reduction of, namely, two once expensive technologies, solar photovoltaic (PV)
and wind turbines. All of this expansion trickled down the German economy resulting in rapid job
growth in “future-proof jobs” as the BMWi has hallmarked (2014).
Figure 14 Source: Finadvice, 2014
- 19 -
3.2.1 Increase in Renewables
Figure 15 Source: BMWi, 2015
Figure 15 Source: BMWi, 2015
3.2.2 EEG Surcharge
The FIT program tallied to 317 billion euros between 2008 and 2013. The costs for 2014 alone are
estimated to be 24 billion euro. Peter Altmaier, the former German Minister of the Environment, has
estimated that the FIT program may amount to 680 billion euro, paid by the German citizens, by
- 20 -
2022. Some estimates suggest that Germany suffered from 52 billion euro in net export losses
between 2008 and 2013 (Finadvice, 2014).
Household consumer electricity prices have climbed from 14 cent/kWh in 2000 to 29 cent/kWh in
2013. In comparison, the average cost for electricity in the U.S., which ranges greatly between
states, has remained relatively stable at 10 cent/kWh over the past decade. North Carolina, the state
with the cheapest electricity prices, has averaged around 4 cent/kWh over the past decade, in euros
(Finadvice, 2014).
Figure 16 Source: BMWi, 2015
3.3 EEG Reform
The EEG has a long and complex history of reform. After introduction in 2000, the first major
amendment occurred in 2004 redefining the legal status of renewable power plant operators and
modifying the feed-in tariffs. Another major revision occurred in 2009 and was subsequently revised
seven times before being revised, yet again, in 2012. The main objective of the 2012 reform was to
encourage the direct marketing of renewable energy by allowing renewable energy producers the
option to directly market their renewable energy without receiving the fixed feed-in tariffs
- 21 -
traditionally provided by the EEG. Instead, they were offered a market premium additional to the
revenue they received from the sale of the renewable energy (Lang & Lang, 2014).
The most recent rendition of the EEG, referred to as EEG 2.0, went into effect August 1st
, 2014 and
will be explained in more depth here.
3.3.1 EEG Reform in the European Context
The EEG has been under scrutiny from the European Commission from the beginning. Really, since
before the beginning as the EEG’s predecessor, Grid Feed-In Law (Stromeinspeisungsgesetz –
StromEinspG), was also subject to continuous complaint for “illegally” imposing taxes under the guise
of State aid. The 2014 amendments to the EEG were drafted with “intensive deliberations conducted
at the European level to ensure in conjunction with the European Commission that it is compatible
with EU State aid rules” (BMWi , 2015).
Part of these European-level deliberations concerned free trade amongst EU members, known as the
“green electricity privilege” withheld from other EU members, particularly those bordering, and
therefore capable of trading “green electricity”, with Germany. This problem was resolved by a
payment of the German government of 50 million euro for an EU infrastructure project. Beginning in
2015, 5% of all new installed capacity must be made available in international markets.
3.3.2 Special Equalization Scheme
The Special Equalization Scheme for energy-intensive industries was one of the main concerns at the
European level. Going forward there are more stringent requirements to be met for exemption
status, which will decrease the number of companies not contributing to the burden of the EEG
surcharge.
Under the revised scheme, beneficiaries of the Special Equalization Scheme will “pay the full EEG
surcharge for the first gigawatt hour and then 15% of the EEG surcharge for every kilowatt hour of
electricity they consume above and beyond this. This burden is limited to a maximum of 4% of the
respective enterprise’s gross added value or, in the case of enterprises with an electricity-cost
intensity of 20% or more, a maximum of 0.5% (cap / super-cap in the EU’s Guidelines on State aid for
the environmental protection and energy)” (BMWi , 2015).
3.3.3 Self-Supply
One of the most profound changes made in the 2014 EEG reform, in context to the scope of changes
that have been made in the myriad previous reforms and revisions, concerns self-suppliers. A self-
supplier is defined as energy producers that directly consume the energy produced for their own
means. Throughout the history of the EEG, all self-suppliers were exempt from the EEG surcharge.
- 22 -
Beginning in 2015, all new non-renewable installations built for self-supply will be charged the EEG
surcharge per kWh of conventional electricity consumed (BMWi , 2015).
“Self-suppliers who use new renewable energy installations or new, highly-efficient heat-power
cogeneration systems have to pay only a reduced EEG surcharge. The reduced surcharge rate will
initially be 30% through 2015 and then raise to 35% for 2016” and then raise to 40% from 2017 on”
(BMWi , 2015).
3.3.4 Continued Expansion
Going forward, the expansion of renewables is to become more manageable by developing
“deployment corridors” for the annual increases in capacity, differentiated by technology type. This
reorganization should help rein in continued increasing EEG surcharge values by capping the volume
of new RES installments that will receive FITs in advance. The “deployment corridors” have been
designed, and are subject to regular adjustment as needed, to increase the RE share to 40 to 45% by
2025 and then rise to 55 to 60% by 2035. The initial “deployment corridors” have been set as
following.
• Solar energy: annual increase of 2.5 gigawatts (gross),
• Onshore wind energy: annual increase of 2.5 gigawatts (net),
• Biomass: annual increase of approx. 100 megawatts (gross),
• Offshore wind energy: installation of 6.5 gigawatts until 2020 and 15 gigawatts until 2030
(BMWi , 2015).
- 23 -
Figure 17 Source: BMWi, 2015
3.3.5 Direct Marketing of Renewable Energy
According to the BMWi, on of the “core objectives” of EEG 2.0, in accordance with insistence of the
EC, is the improved integration of RE exchange in the European electricity market. Going forward, RE
generators of a defined capacity will be required to directly market their RES electricity on the EEX-
SPOT. This transition will happen in stages.
• “Since 1 August 2014: al new installations with a capacity of 500 kilowatts or more.
• Starting 1 January 2016: all new installations with a capacity of 100 kilowatts or more”
(BMWi , 2015).
3.3.6 Pilot Auction
Germany will be testing the potential of a tender market for RES with the installation of a 400 MW
solar park to gain experience with tender models and designs and evaluate the potential of achieving
the targets of the Energiewende in a possibly more cost-effective way. “By 2017, at latest, the
financial support for renewables and the level thereof is to be determined completely by means of
technology-specific tenders” (BMWi, 2014).
- 24 -
3.4 Summary of Recommendations
It is the opinion of this author that the original approach of the EEG is sufficient, and possibly even
desirable for extrapolation to other cases assuming that the governments in question have an equal
capacity for aid, which is rare, as a launching point for a rapid expansion of renewable electricity
production capacity and reductions in renewable electricity costs and proficiency. However, the
continuously rising cost of electricity compensated by consumers, the constant revision of the act
throughout its short history and the increasing burden to the entire electricity grid system points to a
need for innovation of the current system.
All of the literatures published by the BMWi, including the 2014 EEG amendments, acknowledge the
need to move to a natural, market-based approach in the future (BMWi, 2014; Bundestag, 2014;
BMWi, 2014; BMWi, 2014; BMWi, 2014). It can be concluded, especially relevant to the Swedish
example detailed in chapter 2 of this report, that the government can and should proactively aid
energy transitions by creating a market demand through policy instruments, such as a RES electricity
quota met through a certification system.
Going forward, Germany faces many challenges in the transition of its energy transition from a state-
run, publicly subsidized system to a system that more equitable competes on the entire European
market. Key recommendations for addressing these understood challenges are:
1. Lobby for enhanced emissions trading schemes, which incorporate the transportation sector.
2. Grid expansions so that renewable energy potential can meet energy demand.
3. Load flexibility, a key component for an intermittent, renewable-based electricity system.
4. Storage capacity to enable expanded load flexibility.
5. Energy efficiency, as it is still Germany’s weakest link.
3.4.1 Emissions Trading
Germany’s most immediate action should be the development of an effective, market-based demand
for renewable electricity. One possible approach is to place a price on environmentally damaging
external costs of conventional electricity production, such as the European Union Emissions Trading
Scheme (EU ETS), of which Germany is already an obliged member. This approach is substantiated
under the current administrations proclamations. According to Section 1 paragraph 1 of the EEG
2014, “the purpose of the law is to facilitate the sustainable development of energy supply,
particularly for the sake of protecting the climate and the environment, to reduce the costs of energy
supply to the national economy also by incorporating external long-term effects [emphasis added
by the author], to conserve fossil fuels and to promote the further development of technologies for
the generation of electricity from renewable energy sources.“ One feasible approach could be to
- 25 -
lobby the EU for more effective reform of the EU ETS, or to create an internal market that is more
competitive than the European market, while maintaining compliance with the EU directive and
competitiveness with the EU and global manufacturing atmosphere. This possibility, admittedly,
would be challenging but, never the less, is plausible and reasonable for discussion.
It should be noted that the current EU ETS only accounts for around 50% of German greenhouse gas
emissions (BMWi, 2014). The author of this report is in agreement with a suggestion offered by the
Deutsch Bank Research Group (2014) that inclusion of the transportation sector in the emissions
trading scheme would likely result in an increase in emissions certificate value, which would result in
a reduction of emissions. The Deutsch Bank Research Group suggests that this will occur with the
increased adoption of natural gas for vehicles. The author of this report agree that this is a likely
outcome, but also foresees a future policy development requiring large fleets, especially public
fleets, to meet pre-defined quotas of electric vehicles (EVs), with a required percentage of that
electricity coming from renewable sources. Initially, parties obligated to comply with this proposed
legislation could receive subsidies for the purchase of EVs, or the conversion adjustments from an
internal combustion engine (ICE) to an electric engine. Affected parties could also be given EEG
surcharge tax breaks if they are self-producers of the renewable energy that they consume to power
their fleet. A few possible approaches for government initiated market-based demand for EVs:
• Subsidies for the purchase of EVs or the conversion from ICE to EV.
• Subsidies for the installation of RET to power EVs.
• Tax credits on new EV purchases and/or EV registration.
• Reduction in EEG surcharge commensurate with quantity of electricity consumed for
powering EVs.
• Waiver and/or reduction of EEG surcharge for self-supplied RE consumed for powering EVs.
Additionally, especially in the case of energy-intensive industries with large fleets, increased
utilization of EVs would directly influence grid flexibility. Voluminous parked fleets could be used as
storage during times of RE production surplus, for example during nights with high wind speeds, and
then also be used as back-up power supplies in the event of an electricity shortage. Enterprises with
such a capacity could hold special contracts with utility providers for their guaranteed flexibility and
cooperation, and, in return, receive special pricing that increased the investment potential of EV fleet
conversion.
3.4.2 Grid Expansion
In a discussion paper recently published by the BMWi, “An Electricity Market For Germany’s Energy
Transition“ (2014) the Federal Ministry explores the current constraints of the existing electricity
system and suggests approaches that the ministry is and will continue to adopt in the future.
- 26 -
Chapter three is titled “Flexibility is the answer.” This response has been determined in
consideration of the predominate strain to the current German electricity grid, bottlenecks. A
bottleneck occurs when there is an over-production of electricity in one location that is unable to
reach a destination of desire because the electricity infrastructure is not equipped for such a
movement.
The Rocky Mountain Institute (2014) an authoritative think-thank for market-based expansion of the
RES electricity grid, calls for a grid expanded to respond to temporal, environmental, locational and
existing grid pressures and needs. Electricity pricing should reflect its cost and/or value relative to
the time and place it was generated and consumed.
Most importantly, grid expansion unlocks the potential of the remaining recommendations, load
flexibility, storage capacity and energy efficiency, which are all dependent upon grid flexibility for
optimal performance.
An expanded grid should be responsive to grid constraints. It should be able to communicate
production and consumption needs real-time, and determine the most effective routes for
immediate electricity transfer. Further, it should be able to communicate to both electricity
producers and consumers with price signals to allow better control (less strain) of the electricity
system based on a basic supply-demand curve (RMI, 2014).
3.4.3 Load Flexibility and Storage Capacity
RES electricity is characterized by intermittency. As discussed in the previously mentioned Green
Paper of the BMWi (2014), an electricity market balanced on forecasts does not ensure an actual
balance in the physical world. Possible over-shoots, while manageable by “blowing off” extra
capacity, are clearly undesirable as this relates to unnecessary costs and wasted resources,
renewable or otherwise. The worrisome scenario, however, is the threat of a shortcoming in actual
supply resulting in a brownout, or a short-term loss of access to electricity for some consumers.
Future electricity pricing should incentivize customers with the capacity to absorb excess electricity
(at a minimal rate) or to decline their consumption during times of shortage (for an increased,
courtesy rate). Such customers, ideally, would have special contracts that made the arrangement
economically attractive for them. In return, the grid can save unnecessary costs of maintaining
reserve capacity conventional electricity power plants. Ultimately resulting in saved electricity costs
for the end consumer (BMWi, 2014).
3.4.4 Energy Efficiency
A key component to reduced strain on the transitioning electricity grid is an absolutely efficient use
of energy, reducing overall demand and therefore reducing the need for base-line electricity
- 27 -
generation from conventional sources. This is one of the greatest areas of improvement in the
German context that is receiving thorough attention in the continued development of Germany’s
energy policy (BMWi, 2014).
4 Analysis of Sweden’s and Germany’s Different Instruments
The Swedish market is very different compared to the German electricity market, because the share
of energy sources is very different. Figure 2, page 5 shows the electricity production by energy types
in Sweden and Figure 11, page 14 shows the German counterpart. Almost half of Sweden’s
electricity is produced by clean and relatively low-cost hydropower. The amount of hydropower is
dependent on natural water resources and height differences of landscape. In 2010, the average use
of hydropower in Germany was about 20.9 TWh compared to 68 TWh produced in Sweden that same
year. In 2010, the technical potential for Germany’s hydropower was estimated between 33.2 to
42.1 TWh (IB Floecksmühle, University Stuttgart, Fichtner GmbH & Co. KG, 2010, p. 22). This shows
clearly that there are limitations in the volume of certain renewable energy plants in reference to the
countries environment. Therefore, a direct comparison with numbers of renewable energy plants, of
both countries, is not possible. This may also lead to different political instruments that a country
needs to increase the share of renewables or to make the electricity sector more sustainable.
However, it is possible to see tendencies, based on the different instruments both countries used to
increase the share of renewable energies and to make the electricity sector more sustainable by, for
instance, increasing the electrical energy efficiency. These tendencies can be interpreted by how
successful or useful a certain instrument is. It is explained in the following chapter.
5 Summary of Result and Outlook
The German EEG and the Swedish Electricity Certificate Systems are totally different political
instruments, with the same target, to increase the share of renewables in the electricity sector. Both
instruments have advantages and disadvantages. For example, the solar power subsidies in
Germany, based on the EEG, have led to a mass market of solar panels with a constant decrease of
production price. The solar subsidies could be seen as a start-up financing of a technology, which
were, at first, not economical. Since 2006, a price decrease of 66% for solar panels occurred on the
solar market (Heinrich Böll Foundation, 2012, p. 18). The same is true for wind turbines. Renewables
are becoming increasingly competitive in the conventional electricity market. One kWh of electricty
generated by an onshore wind power plant is almost competitive with the German fossil and nuclear
power mix (Heinrich Böll Foundation, 2012, p. 2). These developments in the renewable energy
- 28 -
market were probably only possible because of subsidies, based on the German EEG. However,
another result of the high subsidies has been a drastic increase of electricity price for households.
The electricity price in Germany is the second highest in Europe (see Figure 4). This leads to the main
advantage of the Swedish Electricity Certificate Systems. The Swedish Certificate System does not
subsidize a specific renewable energy technology. Instead, every MWh generated by any renewable
energy source is subsidized. It is up to the free market to decide which technology is used and where
to build it. The free economy is always interested in maximizing profit. Therefore, only the
“cheapest” renewable energy sources are used. This trend is visible when analyzing Figure 8. Mostly
wind power electricity certificates were issued in 2013 on the electricity market because wind power
is so far one of the “cheapest” renewable energy sources (Heinrich Böll Foundation, 2012, p. 2).
The Swedish PFE program seems very progressive and effective (see Figure 3) to make electricity
intensive industries more energy efficient. It helps to save energy and leads to a faster energy
transition. Therefore, other countries with energy intensive industry should adopt similar programs.
In conclusion, it seems that the Germans EEG subsidies were necessary to create a mass market for
renewables. The EEG can be seen as a start-up financing, but, in terms of long-term economic
efficiency, the Swedish Certificate System is superior. A good Indicator for that is the price of
electricity for households. Therefore, the Swedish Certificate System should be introduced
throughout Europe with the effect that electricity generation can be reached in a more cost-effective
manner because investment will be focused to where conditions are most suitable for new
renewable power plants. This could lead to a boost of solar energy production in the south of
Europe and perhaps to a boost of wind power in the north of Europe. It seems, based on the
Electricity Certificate market, that the whole energy transition in Europe could be accelerated.
- 29 -
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Comparison between the Energy Policies of Sweden and German

  • 1. REAP Module “Legal and Economic Instruments of Environmental Policy” Winter Term 2014/2015 Prof. Dr. Martin Wickel, LL.M. / Dr. Cathrin Zengerling, LL.M. Comparison between the Swedish and German Energy Policy By: Troutman, Heather (60 28 60 1) and Adcock, Benedict (60 28 56 3) Date submitted: 03.04.2015
  • 2. II Contents 1 Introduction.................................................................................................................................- 1 - 2 Electrical Energy in Sweden.........................................................................................................- 2 - 2.1 Green Electricity Certificate System....................................................................................- 4 - 2.1.1 How the electricity certificate market works..............................................................- 4 - 2.1.2 Advantages of a large certificate market compared to a small one ...........................- 5 - 2.1.3 Electrical power producers..........................................................................................- 6 - 2.1.4 Quotas and market participation................................................................................- 6 - 2.1.5 Trading.........................................................................................................................- 7 - 2.1.6 Quota obligation and cancellation..............................................................................- 7 - 2.1.7 Financing the electricity market..................................................................................- 8 - 2.1.8 Energy market inspectorates ......................................................................................- 8 - 2.2 Achievement of the electricity certificate market ..............................................................- 8 - 2.2.1 Distribution of electricity certificates..........................................................................- 8 - 2.2.2 Cancellation of electricity certificates.........................................................................- 9 - 2.2.3 Achievement of quota obligation................................................................................- 9 - 2.2.4 Surplus.........................................................................................................................- 9 - 2.2.5 Trading on the electricity certificate market.............................................................- 10 - 2.3 Summary of recommendations.........................................................................................- 10 - 2.3.1 Adjustment of quota curve .......................................................................................- 10 - 2.3.2 Access to projects and risk factors............................................................................- 11 - 2.3.3 Market improvement measures................................................................................- 11 - 2.4 The Program for Improving Energy Efficiency in Energy Intensive Industries (PFE).........- 11 - 2.4.1 Report after two years and five years in the program..............................................- 11 - 2.4.2 Target of PFE..............................................................................................................- 12 - 2.4.3 Energy management systems and procedures for purchasing and planning...........- 12 - 2.4.4 Energy review – in more detail..................................................................................- 12 - 2.4.5 Results of the first five years in PFE ..........................................................................- 13 - 3 Electrical Energy in Germany (Facts and Figures) .....................................................................- 14 - 3.1 EEG ....................................................................................................................................- 15 - 3.1.1 Fixed Tariffs ...............................................................................................................- 15 - 3.1.2 Priority Feed-In..........................................................................................................- 16 - 3.1.3 EEG Surcharge ...........................................................................................................- 16 - 3.1.4 Monitoring Performance...........................................................................................- 17 -
  • 3. III 3.2 Outcomes ..........................................................................................................................- 18 - 3.2.1 Increase in Renewables.............................................................................................- 19 - 3.2.2 EEG Surcharge ...........................................................................................................- 19 - 3.3 EEG Reform........................................................................................................................- 20 - 3.3.1 EEG Reform in the European Context .......................................................................- 21 - 3.3.2 Special Equalization Scheme .....................................................................................- 21 - 3.3.3 Self-Supply.................................................................................................................- 21 - 3.3.4 Continued Expansion.................................................................................................- 22 - 3.3.5 Direct Marketing of Renewable Energy ....................................................................- 23 - 3.3.6 Pilot Auction..............................................................................................................- 23 - 3.4 Summary of Recommendations........................................................................................- 24 - 3.4.1 Emissions Trading......................................................................................................- 24 - 3.4.2 Grid Expansion...........................................................................................................- 25 - 3.4.3 Load Flexibility and Storage Capacity........................................................................- 26 - 3.4.4 Energy Efficiency .......................................................................................................- 26 - 4 Analysis of Sweden’s and Germany’s Different Instruments....................................................- 27 - 5 Summary of Result and Outlook ...............................................................................................- 27 - 6 References.................................................................................................................................- 29 -
  • 4. - 1 - 1 Introduction Germany and Sweden are both members of the European Union (EU). Several policy measures of both countries are based on EU directives. The directive 2009/28/EC affects the renewable energy development in both countries. Germany’s target for the share of energy from renewable sources in gross final consumption of energy is about 18% by 2020 (Official Journal of the European Union, 2009). By 2020 Sweden is required to reach a renewable energy share of 49% (Swedish Energy Agency, 2013). In Sweden and Germany different instruments are used to reach the mandated goal for share of renewables in the energy mix by 2020. This document focuses on the electricity sector, analyzing the different approaches of both countries to increase the share of renewable energy in their respective electricity sector. The German Renewable Energy Act (Erneuerbare-Energien-Gesetz – EEG) is the main instrument to increase renewables in Germany and is based on a government subsidy system (Germany, 2010, p. 6). Sweden uses a market-based instrument (Green Electricity Certificate System), to increase the share of renewable energy. The development of electricity prices for households in Germany is very different compared to Sweden. Could this be related to the different approaches of both countries to increase their share of renewables? According to the Energy Transformation Index (ETI), designed by the Frauenhofer Institut, Sweden is top ranked (Frauenhofer ISE, 2013). Germany is in fourth place. Can this also be explained by the use of the different instruments? This report offers analysis of the above questions in reference to the chosen instruments of both countries to increase the share of renewable energy, and to make each country more sustainable. First, the Swedish electricity sector is explained, followed by a detailed description of the Swedish Green Electricity Certificate System and a description of the program for Improving Energy Efficiency in Energy Intensive Industries (PFE). Next, the German electricity sector and the EEG are explained. Subsequently, both instruments are analyzed and evaluated. Finally, the obtained results will be summarized and an outlook will be given.
  • 5. - 2 - 2 Electrical Energy in Sweden Since the oil crisis of the 1970s, Sweden has invested in the search for alternative energy sources. In 1970, more than 75% of Swedish primary energy supplies came from oil; by 2012, the amount had decreased to 21.5% (Government of Sweden, 2015). Figure 1 Source: Energy Balances of OECD Countries, IEA/OECD Paris, 2012; submission by the Swedish government to the IEA. Sweden’s current electricity production is mainly divided into hydropower (48%, 2012) and nuclear power (38%, 2012). Combined heat and power plants and wind power collectively generate about 14% of Sweden’s total electricity production in 2012 (see Figure 2). Figure 2 Source: Energimyndigheten, Energiläget 2014
  • 6. - 3 - Sweden defined its energy policy in 1997. The government wanted to stimulate “efficient and sustainable energy use and a cost-effective energy supply” that would “facilitate the transition to an ecologically sustainable society” (Government of Sweden, 2015). In 2003, the Electricity Certificate System was introduced. Norway joined the Swedish Market for Electricity Certificates in 2012. (Energimyndigheten, 2013) In 2005, a program, Improving Energy Efficiency Act (2004: 1196) (PFE), designed to increase energy efficiency in energy intensive industries, based on an EU directive, came into force (Swedish Energy Agency 1, 2011). The joint success of the Electricity Certificate System and the Program for Improving Energy Efficiency in Energy Intensive Industries (PFE) were leading factors contributing to Sweden receiving the top ranking of the Energy Transformation Index (Frauenhofer ISE, 2013). Also, in reference to the IEA Indicator “Energy related CO2 emission per GDP,” Sweden is more efficient than all the other countries considered by the IEA (see Figure 3). Therefore, a closer look into both instruments, the Electricity Certificate System and the PFE, is necessary. Figure 3 Source: CO 2 Emissions from Fuel Combustion, IEA/OECD Paris, 2012. Compared to other countries in the EU, the Swedish development for electricity prices for households is moderate. This is particularly noteworthy as Sweden was top ranked in reference to energy transformation and for the low related CO2 emission per GDP, which is normaly associated with high energy costs.
  • 7. - 4 - Electricity prices for houshold consumers, first half 2013 (Euro per kWh) Figure 4 Source: Eurostat (online data code: nrg_pc_204) 2.1 Green Electricity Certificate System The Green Electricity Certificate System, introduced in 2003, is the major political measure to increase the share of renewable energy technologies in Sweden (Government of Sweden, 2015). Since January 1st , 2012, Norway is also part of the electricity certificate system (Energimyndigheten, 2013, p. 5). 2.1.1 How the electricity certificate market works The system is market based. Electricity traders have to buy a proportion of “green electricity” as part of their normal supply, while power producers are granted certificates proportionate to the amount of renewable electricity they generate. The aim is to increase renewable electricity generation by 25 TWh from 2002 to 2020 (Government of Sweden, 2015).
  • 8. - 5 - Figure 5 Source: The Norwegian-Swedish Electricity Certificate Market, Annual Report 2013 1. Electricity generators receive one certificate for each megawatt hour (MWh) of renewable electricity produced, over a maximum 15 years. 2. The certificates are sold in a market where supply and demand regulates the price. With the certificates, the producers have extra income additionally to the electricity price. 3. Demand for certificates arises because power suppliers and defined power customers are obliged by law to buy certificates corresponding to a defined quota of their electricity trades or usage. 4. The electricity end users – or rather, household consumers – pay for the renewable electricity development because the price of the electricity certificates is included in the electricity bill. 5. Market participants with quota commitments must annul electricity certificates with the purpose of fulfilling their quota obligation every year (Energimyndigheten, 2013, p. 7). 2.1.2 Advantages of a large certificate market compared to a small one In 2012, Norway connected itself to the Swedish electricity certificate market leading to a market with greater size and more members than a national market would have had. The aim to boost renewable electricity production can thereby be reached in a more cost-effective manner, because investment will be focused to where conditions are most suitable for new renewable power plants (Energimyndigheten, 2013, p. 8). The common market approach is also defined in the EU2009/28/EC directive. The directive permits cooperation on measures through so-called collaboration mechanisms. The Swedish - Norwegian
  • 9. - 6 - certificate system is a model of a joint support system and is the first example within the EU in order to reach the national goals in 2020 (Energimyndigheten, 2013, p. 8). 2.1.3 Electrical power producers The electricity certificates market is managed by two agencies, also known as directorates, one in Sweden and one in Norway. The power producers have to apply to their respective agency to take part in the market. After the application is approved the electricity producer receives an electricity certificate for each megawatt hour (MWh) they produce with renewable technology, over a maximum of 15 years. The certificates are then sold for supplemental income on top of the sold electricity. Electricity generated by the following sources is eligible for electricity certificates: • Biofuel (combined heat and power plants in Sweden) • Geothermal energy • Solar energy • Hydropower • Wind power • Wave power (Energimyndigheten, 2013, p. 9) 2.1.4 Quotas and market participation Electricity certificate market members with quota commitments are mostly power traders. There are also a few electricity customers. Each year the electrical power traders and customers must buy certificates equivalent to a certain share of their electricity deliveries or consumption. This is called the “quota obligation.” The market participants with quota obligations must buy electricity certificates according to the quota curve. The quota curve states the percentage of certificates needed based on total electricity consumption (Energimyndigheten, 2013, p. 10). The countries’ quotas are defined in legislation. An increase of quotas causes an increase demand of electricity certificates. The Swedish and Norwegian quotas are defined until 2035, when the electricity certificate system expires (see Figure 6). The two countries intend to cancel 198 million electricity certificates each (corresponding to 198 TWh) by 2035. Each country finances 13.2 TWh of renewable power generation a year for 15 years (15 years x 13.2 TWh = 198 TWh). According to this the quota curve was designed. (Energimyndigheten, 2013, p. 10)
  • 10. - 7 - Figure 6 Source: Act (2011:1200) regarding electricity certificates; Act 24.06.2011 no. 39: Act regarding electricity certificates. The quota curves of Norway and Sweden are calculated and set based on assumptions of future calculation-relevant electricity consumption. The end target of both countries is fixed (13.2 TWh each year of renewable electrical energy) but each year the quota curve has to be adjusted, because the electrical energy consumption is not 100 % predictable. (Energimyndigheten, 2013, p. 10) Norwegian market members with quota obligations bought about 3 times less electricity certificates of their calculation-relevant electricity consumption compared to Swedish members in 2013 (see Figure 6). The main reason for this difference was that plants in the transition system had to be financed. Another reason was that the calculation-relevant electricity consumption was higher in Sweden compared to Norway (Energimyndigheten, 2013, p. 11). 2.1.5 Trading The electricity certificates are traded on the electricity certificate market. The price changes dependent on supply and demand. The trading occurs between power producers and market participants with quota obligations, and brokers. Electricity certificates, when traded, are transferred from the sellers to the buyers (Energimyndigheten, 2013, p. 11). 2.1.6 Quota obligation and cancellation Once a year, market members with quota obligations must inform their respective directorate of the amount of certificates they need to achieve their quota obligation. To fulfill the quota obligation, the market members with quota obligations must have certificates equivalent to the proportion, in percentage, of their calculation-relevant electricity consumptions. All existing certificates are annulled on the 1st of April and cannot be used again. This means that market members with quota obligations must buy new electricity certificates to fulfill next year’s quota obligation. This ensures that a constant demand for electricity certificates is created (Energimyndigheten, 2013, p. 12).
  • 11. - 8 - 2.1.7 Financing the electricity market The costs of electricity certificates are included in the customer’s electricity bill when the power producer is a member of the market with a quota obligation. Electricity-intensive industries have an electricity certificate cost connected to their electricity consumption that is not used in production processes (Energimyndigheten, 2013, p. 13). 2.1.8 Energy market inspectorates It is checked by the Energy Markets Inspectorate that energy companies follow the regulations. The energy market inspectorate’s website provides analysis information and observations of the power market, including power suppliers and electricity prices. The energy market inspectorate frequently tests the market functions (Energimyndigheten, 2013, p. 16). 2.2 Achievement of the electricity certificate market From 2012 on, a new renewable production capacity from 6.2 TWh has contributed to the electricity supply due to the Norwegian-Swedish electricity certificate system. This fits exactly in the planned extension of renewable energies with the target to have 26.4 TWh of new renewable power production by the end of 2020 (see Figure 7) (Energimyndigheten, 2013, p. 16). An average increase of 2.93 TWh of renewable power production must come into operation each year, with the aim of 26.4 TWh by the end of 2020. However, there are no fixed targets for each individual year. It is the market members, who invest and build plants, which decide how many renewable power production plants are built each year (Energimyndigheten, 2013, p. 16). Figure 7 Source: Swedish Energy Agency, NVE 2.2.1 Distribution of electricity certificates 16.3 million electricity certificates were given to power producer in 2013. The share of Sweden and Norway and the dispersal between different energy sources in reference to the electricity certificates market is shown in Figure 8 (Energimyndigheten, 2013, p. 20).
  • 12. - 9 - Figure 8 Source: Cesar, NECS 2.2.2 Cancellation of electricity certificates 16.2 million electricity certificates were annulled in 2013 (Energimyndigheten, 2013, p. 22). The quota of electricity certificates is set by law, see Chapter 2.1.4 “Quotas and market participation.” However, the calculation-relevant electricity consumption differs with temperature and economic phases. For instance, hydropower electricity production changes from year to year, because the amount of yearly rain has an influence on the amount of energy that can be generated by a hydropower plant. Therefore, the number of annulled electricity certificates corresponds not always with the annulment that is essential to reach the yearly goal. The quota curve is being adjusted as part of the electricity certificate market (Energimyndigheten, 2013, p. 22). 2.2.3 Achievement of quota obligation Most market members (99.96%), met their electricity certificates quota obligations in 2013. Market participants who did not satisfy their electricity certificates quota obligation were charged with a fee (Energimyndigheten, 2013, p. 23). 2.2.4 Surplus The surplus is the difference between the number of electricity certificates that have been issued and the number that have been annulled. The number of electricity certificates has to be high enough to balance the market. An increase of surplus is caused when the demand is lower than the production of electricity certificates. In 2013, there was an increase of surplus of about 0.1 million certificates compared to 2012, which reflects a 0.645% surplus compared to the total number of certificates issued in 2013 (see Figure 9) (Energimyndigheten, 2013, p. 27). The surplus is an indicator for the pressure in the electricity certificate market. A high amount of surplus, in relation to the amount of electricity certificates to be annulled, causes a negative price pressure and a low amount of surplus has the opposite effect
  • 13. - 10 - Figure 9 Source: Svenska Kraftnät’s and Statnett’s account systems (respectively Cesar and NECS) 2.2.5 Trading on the electricity certificate market Primarily, market members with quota obligations trade with market members with certificate entitlement. In addition, there are also traders who have accounts in the electricity certificate register. These traders have the goal to buy electricity certificates and sell them later at a profit. They help to stabilize the market price. The average price from 2003 to 2013 is given in Figure 10. Figure 10 Source: CleanWorld, ICAP and Svensk Kraftmäkling 2.3 Summary of recommendations 2.3.1 Adjustment of quota curve Each year a summary report of recommendation is written by the respective directorate. It is mainly about the adjustment of the quota curve. In 2013, for instance, the Swedish Energy Agency recommended to adjust the quota curve of both countries in order to reach the 2020 target of 26,4 TWh of new renewable energy power plants. For Norway, the directorate recommended to adjust the quota curve downwards to reach a reduction in demand for electricity certificates. For Sweden, an upward rise of the quota curve was recommended (Energimyndigheten, 2013, p. 31).
  • 14. - 11 - 2.3.2 Access to projects and risk factors Possible risks factors and the access to projects are also yearly evaluated by the respective directorate. Mainly it is about the availability of investable projects and whether there is enough potential capacity of building renewable energy plants (Energimyndigheten, 2013, p. 31). 2.3.3 Market improvement measures The Swedish Energy Agency conducts an annual analysis of the market, concluding with a list of recommendations. The main points of the 2013 report were: • The relationship between the current electricity quotas and the factors, on which the electricity certificates quotas are based, should be analyzed annually. • A database of power production with entitlement to electricity certificates is needed. Project specific information should be included, like the licenses to build, investment decisions and plants under construction (Energimyndigheten, 2013, p. 32). 2.4 The Program for Improving Energy Efficiency in Energy Intensive Industries (PFE) The PFE (Act 2004:1196) came into force in 2005. It is in line with the EU’s Energy Tax Directive. In this directive it is defined that energy intensive companies in production industry have the prospect of being granted tax exemption on their electricity consumption if they take action to increase their energy efficiency. Therefore, a program was designed by the Swedish government to increase the energy efficiency in energy intensive industries. The membership in the program is voluntary (Swedish Energy Agency 1, 2011). Participation in the program takes five years. The years are divided into the following steps: • In the first two years a standardized energy management system must be installed. • A list of measures to improve energy efficiency is created based on the data of the energy management system. • In the remaining three years the company is to implement the list of measures. PFE focuses on electricity-efficiency. Therefore, measures to increase the efficiency of electricity, is the main target (Swedish Energy Agency 1, 2011). 2.4.1 Report after two years and five years in the program After two years of participation in the PFE program the company must report an energy review, a confirmation of the successfully installed energy management system and a list of measures. The
  • 15. - 12 - final result report has to be submitted after five years. The final report describes and summarizes the results of the measures to increase the energy efficiency (Swedish Energy Agency 1, 2011). 2.4.2 Target of PFE The measures of PFE should increase electrical efficiency equivalent to those that would have been realized if the companies had paid the sum of tax on electricity, which their membership in PFE relieves them from paying. According to the Swedish Energy Agency, all measures should be carried out with a return on investment of less than 3 years (Swedish Energy Agency 2, 2011). 2.4.3 Energy management systems and procedures for purchasing and planning A national standard for energy management systems was first introduced in 2003. This was replaced by the European standard EN16001 in 2009 (Swedish Energy Agency 3, 2011). When a company takes part in the PFE a standardized energy management system has to be implemented and it has to be certified in the first two years by an independent certification body. After the first two years the company must constantly improve the energy management system within the remaining three years (Swedish Energy Agency 3, 2011). There are several independent control mechanism and documentation tools with the purpose of seeing that the certifications and re-certifications continue according to plan. One of the control bodies is the Swedish Board for Accreditation and Conformity Assessment (SWEDAC), which cooperates with the Swedish Energy Agency (Swedish Energy Agency 3, 2011). There are strict requirements for companies that take part in the PFE in reference to energy reviews, buying of high-consumption electric apparatus, planning procedures, modifications and renovations after the energy management systems had been introduced. The Life-cycle costing (LCC) methodology is used for buying high-consumption electrical equipment. The highest efficiency class must always be chosen when it comes to the purchasing of high consumption electrical motors (Swedish Energy Agency 4, 2011). The target is always to certify that the companies constantly choose energy efficient equipment (Swedish Energy Agency 4, 2011). The task of the certifying bodies is to check that the rules for buying and planning are followed and that the energy management system is used (Swedish Energy Agency 4, 2011). 2.4.4 Energy review – in more detail The in-depth review and analysis, focusing on electricity, must include the following requirements:
  • 16. - 13 - 1. The review has to be carried out from a systems perspective. 2. The review has to cover the short- and long-term measures. 3. Measures to improve electricity efficiency must always be included in the review (Swedish Energy Agency 5, 2011). The first point, “carrying out the energy review from a system perspective,” means that the companies must evaluate the production process and how the energy efficiency can be improved. It could also involve an analysis on how one measure affects the energy use in other parts of the plant (Swedish Energy Agency 5, 2011). The second point refers to the short- and long-term measures. The company must analyze possible changes that could occur within the time period of a decade impacting energy use. These changes have to be taken into consideration in relation to the short-term changes in energy use (Swedish Energy Agency 5, 2011). The last point is important in terms of suggestions for measures to increase electricity efficiency. During the program period the company has to implement measures which have a return on investment of less than three years (Swedish Energy Agency 5, 2011). The energy review has to be reported to the Swedish Energy Agency (Swedish Energy Agency 5, 2011). 2.4.5 Results of the first five years in PFE After the fifth year a final report from the PFE participants must be handed in to the Swedish Energy Agency to demonstrate the energy efficiency results and how the program requirements have been met (Swedish Energy Agency 6, 2011). In 2009, about 100 companies submitted their final reports. During the five-year program, the 100 companies increased their collective energy efficiency by about 1,45 THh. This was accomplished by investing 707 MSEK (approx. Euro 70 million) in 1,200 electricity efficiency measures. 350 other measures to increase energy efficiency were, among others, the switch from fossil fuels to renewables and increased surplus heat to external parties. All companies implemented and certified the standardized energy management system (Swedish Energy Agency 6, 2011).
  • 17. - 14 - 3 Electrical Energy in Germany (Facts and Figures) Similar to the Swedish situation described in chapter two, Germany’s energy mix first began a notable shift following the oil crisis of 1976. Prior to this event, petroleum accounted for 47% of primary energy consumption (PEC) and fossil fuels as a whole accounted for 97% of PEC. The following two decades had little development in renewable energies, but there was a transition away from petroleum in PEC in substitution for predominately natural gas, as well as an increase in nuclear energy in gross electricity production (GEP) (Deutsche Bank AG, 2014) Figure 11 Source: Deutsche Bank Research Figure 12 Source: Deutsche Bank Research Renewable energies in Germany began to emerge following the 1998 elections of the first Social Democratic Party (SPD)/Greens coalition whose agenda contained two fundamental items in the context of renewable energy, (1) the gradual phasing-out of nuclear energy in Germany, and (2) the rapid deployment and integration of renewable energies (Deutsche Bank AG, 2014). In 1991, the German government adopted its first Grid Feed-In Law (Stromeinspeisungsgesetz – StromEinspG), which suffered from numerous disputes and was eventual annulled in response to the Preussen Elektra decision of the European Court of Justice in 2001 for over-stepping the definition of State aid and for violating the principle of European free movement of goods (Lang & Lang, 2014). The German government has relentlessly maintained its commitment to increasing the share of renewable technologies in its energy mix and has consistently met most of its energy and emissions targets. It should be noted, the National Renewable Energy Action Plan, developed in accordance with directive 2009/28/EC, of which the EEG is a founding pillar, is robust far beyond the scope of
  • 18. - 15 - this paper and set decadal targets in 13 categories for five decades. Since the release of the 2009 Renewable Energy Action Plan even more targets have been set. Tellingly, it should be acceptable that some of these targets where not perfectly achieved as the overall agenda has been upheld (Federal Republic of Germany, 2009). Figure 13 Source: BMWi, 2014 3.1 EEG The Renewable Energy Sources Act (Erneuerbare-Energien-Gesetz, EEG) entered into effect in 2000 with the goal of expanding renewable energy to make the “power supply more environmentally sound and climate-friendly [keeping Germany] self-sufficient in the face of the world’s diminishing reserves of fossil fuels” while maintaining affordability and reliability of the energy supply (BMWi , 2015). 3.1.1 Fixed Tariffs Feed-in tariffs (FIT) are legally defined prices established for the compensation of renewable electricity for a defined period of time, often 20 years. Once established, FIT rates are, most usually, guaranteed for the entire defined period, meaning that adjustments to FIT pricing have mostly occurred for new installations established after FIT pricing revisions. FITs are independent of the market price of electricity, which provides them with an investment security as the annual return from a renewable energy (RE) technology can be simply and accurately estimated based on the technologies’ capacity and historical weather data (such as wind velocity and
  • 19. - 16 - hours of solar radiation). This feature enabled financing of renewable technology installations, more- or-less, and independent of the installer’s financial history or capacity. Such a provision opened an opportunity for secured income for most landowners in German, especially farmers, and ultimately resulted in rapid deployment of RE installations (Finadvice, 2014). 3.1.2 Priority Feed-In All electricity produced from renewable energy sources (RES) is guaranteed to be fed into the grid, regardless if the additional capacity is needed. RES electricity, by legal mandate, must always receive preference from grid operators over electricity produced from conventional sources (fossil fuels). This mandate does not concern itself with the differentiated production costs of various electricity generation sources. Certified RES electricity power plants – all of them – always receive preference. 3.1.3 EEG Surcharge The costs of the EEG are equally spread to all energy consumers in an EEG Surcharge “following the principles of solidarity“ (BMWi , 2015). The equalization scheme goes through five steps: 1. Renewable energy generator (wind farm, solar park, ect.) 2. Distribution system operator 3. Transmission system operator 4. Electricity supply undertaking 5. Consumer On the first level, the RES electricity generators have two options. They can sell their RES electricity directly to a distribution system operator (DSO) at a fixed price determined by the feed-in tariff, or sell their RES electricity directly to market for a market premium, which is also set by law. Under both scenarios, the DSO is required to compensate the RES electricity generator for the full value of either the feed-in tariff or the market premium. At the second level, DSOs are then required to transfer the EEG electricity to a Transmission System Operator (TSO). There are four TSO in Germany. The TSO must compensate the DSO for the full cost of both the feed-in tariffs and the market premiums. At the third level, the four TSOs average the marginal costs of all EEG electricity over the costs of total electricity consumption resulting in a differential price per kWh that is then divided by each individual TSO’s percentage of the full market share in the previous year. The TSOs then sell the EEG electricity on the European Energy Exchange spot market (EEX-SPOT). The collective differential cost between the computed cost per kWh (detailed above) and the actual
  • 20. - 17 - compensation of the spot market is then averaged, per kWh, over the total electricity production in Germany. The resulting value is the EEG surcharge. The TSOs pass the EEG surcharge back to all electricity suppliers, proportionate to the quantity of electricity supplied such that each electricity producer compensates the same amount per kWh. These costs are calculated based on estimates and must be paid by the electricity producers one month in advance. The calculation is based on the forecasted costs of feed-in tariffs and market premiums, the forecasted revenue from electricity sales on the spot market and forecasted electricity consumption. This forecasted marginal cost, the EEG surcharge, is then equally distributed over every kWh of electricity consumed in Germany, paid by the consumer. This is the fifth level. In the event that the EEG surcharge is under-calculated for the following year, the differential cost is then included into the per kWh EEG surcharge computed for the following year. Similarly, if the EEG surcharge is over- calculated, then the surplus is equally distributed as a reduction to the following year’s EEG surcharge (European Commission, 2014). 3.1.4 Monitoring Performance The “Energy of the Future” monitoring process has been developed to measure the effectiveness of the EEG and to summarize the results into meaningful statistics. This report is to be published every three years and will include an extensive review of the performance of individual policy elements. A committee comprised of “four renowned energy experts” has been charged with managing the monitoring and reporting process. Additionally, a variety of “high-level specialist panels” representing business and industry, State and local-level government officials, society and the scientific community have been formed. A non-exhaustive sample of such focus groups follows. • “Future-oriented-Grids” platform, the • Power Plant Forum inter alia with the • “Strategic Reserve” expert dialogue, the • “Renewable Energies” platform, the • “Energy Efficiency” dialogue forum, the • “New Energy Technologies” coordinated platform, the • “Energiewende” research platform and the • “Dialogue on the Renewable Energy Sources Act” (BMWi, 2014).
  • 21. - 18 - 3.2 Outcomes The success the EEG to meet the RES electricity goals, which were quite aggressive, is undeniable (refer to Figures 15 and 16). Further, the EEG achieved unprecedented success in the rapid market integration and cost reduction of, namely, two once expensive technologies, solar photovoltaic (PV) and wind turbines. All of this expansion trickled down the German economy resulting in rapid job growth in “future-proof jobs” as the BMWi has hallmarked (2014). Figure 14 Source: Finadvice, 2014
  • 22. - 19 - 3.2.1 Increase in Renewables Figure 15 Source: BMWi, 2015 Figure 15 Source: BMWi, 2015 3.2.2 EEG Surcharge The FIT program tallied to 317 billion euros between 2008 and 2013. The costs for 2014 alone are estimated to be 24 billion euro. Peter Altmaier, the former German Minister of the Environment, has estimated that the FIT program may amount to 680 billion euro, paid by the German citizens, by
  • 23. - 20 - 2022. Some estimates suggest that Germany suffered from 52 billion euro in net export losses between 2008 and 2013 (Finadvice, 2014). Household consumer electricity prices have climbed from 14 cent/kWh in 2000 to 29 cent/kWh in 2013. In comparison, the average cost for electricity in the U.S., which ranges greatly between states, has remained relatively stable at 10 cent/kWh over the past decade. North Carolina, the state with the cheapest electricity prices, has averaged around 4 cent/kWh over the past decade, in euros (Finadvice, 2014). Figure 16 Source: BMWi, 2015 3.3 EEG Reform The EEG has a long and complex history of reform. After introduction in 2000, the first major amendment occurred in 2004 redefining the legal status of renewable power plant operators and modifying the feed-in tariffs. Another major revision occurred in 2009 and was subsequently revised seven times before being revised, yet again, in 2012. The main objective of the 2012 reform was to encourage the direct marketing of renewable energy by allowing renewable energy producers the option to directly market their renewable energy without receiving the fixed feed-in tariffs
  • 24. - 21 - traditionally provided by the EEG. Instead, they were offered a market premium additional to the revenue they received from the sale of the renewable energy (Lang & Lang, 2014). The most recent rendition of the EEG, referred to as EEG 2.0, went into effect August 1st , 2014 and will be explained in more depth here. 3.3.1 EEG Reform in the European Context The EEG has been under scrutiny from the European Commission from the beginning. Really, since before the beginning as the EEG’s predecessor, Grid Feed-In Law (Stromeinspeisungsgesetz – StromEinspG), was also subject to continuous complaint for “illegally” imposing taxes under the guise of State aid. The 2014 amendments to the EEG were drafted with “intensive deliberations conducted at the European level to ensure in conjunction with the European Commission that it is compatible with EU State aid rules” (BMWi , 2015). Part of these European-level deliberations concerned free trade amongst EU members, known as the “green electricity privilege” withheld from other EU members, particularly those bordering, and therefore capable of trading “green electricity”, with Germany. This problem was resolved by a payment of the German government of 50 million euro for an EU infrastructure project. Beginning in 2015, 5% of all new installed capacity must be made available in international markets. 3.3.2 Special Equalization Scheme The Special Equalization Scheme for energy-intensive industries was one of the main concerns at the European level. Going forward there are more stringent requirements to be met for exemption status, which will decrease the number of companies not contributing to the burden of the EEG surcharge. Under the revised scheme, beneficiaries of the Special Equalization Scheme will “pay the full EEG surcharge for the first gigawatt hour and then 15% of the EEG surcharge for every kilowatt hour of electricity they consume above and beyond this. This burden is limited to a maximum of 4% of the respective enterprise’s gross added value or, in the case of enterprises with an electricity-cost intensity of 20% or more, a maximum of 0.5% (cap / super-cap in the EU’s Guidelines on State aid for the environmental protection and energy)” (BMWi , 2015). 3.3.3 Self-Supply One of the most profound changes made in the 2014 EEG reform, in context to the scope of changes that have been made in the myriad previous reforms and revisions, concerns self-suppliers. A self- supplier is defined as energy producers that directly consume the energy produced for their own means. Throughout the history of the EEG, all self-suppliers were exempt from the EEG surcharge.
  • 25. - 22 - Beginning in 2015, all new non-renewable installations built for self-supply will be charged the EEG surcharge per kWh of conventional electricity consumed (BMWi , 2015). “Self-suppliers who use new renewable energy installations or new, highly-efficient heat-power cogeneration systems have to pay only a reduced EEG surcharge. The reduced surcharge rate will initially be 30% through 2015 and then raise to 35% for 2016” and then raise to 40% from 2017 on” (BMWi , 2015). 3.3.4 Continued Expansion Going forward, the expansion of renewables is to become more manageable by developing “deployment corridors” for the annual increases in capacity, differentiated by technology type. This reorganization should help rein in continued increasing EEG surcharge values by capping the volume of new RES installments that will receive FITs in advance. The “deployment corridors” have been designed, and are subject to regular adjustment as needed, to increase the RE share to 40 to 45% by 2025 and then rise to 55 to 60% by 2035. The initial “deployment corridors” have been set as following. • Solar energy: annual increase of 2.5 gigawatts (gross), • Onshore wind energy: annual increase of 2.5 gigawatts (net), • Biomass: annual increase of approx. 100 megawatts (gross), • Offshore wind energy: installation of 6.5 gigawatts until 2020 and 15 gigawatts until 2030 (BMWi , 2015).
  • 26. - 23 - Figure 17 Source: BMWi, 2015 3.3.5 Direct Marketing of Renewable Energy According to the BMWi, on of the “core objectives” of EEG 2.0, in accordance with insistence of the EC, is the improved integration of RE exchange in the European electricity market. Going forward, RE generators of a defined capacity will be required to directly market their RES electricity on the EEX- SPOT. This transition will happen in stages. • “Since 1 August 2014: al new installations with a capacity of 500 kilowatts or more. • Starting 1 January 2016: all new installations with a capacity of 100 kilowatts or more” (BMWi , 2015). 3.3.6 Pilot Auction Germany will be testing the potential of a tender market for RES with the installation of a 400 MW solar park to gain experience with tender models and designs and evaluate the potential of achieving the targets of the Energiewende in a possibly more cost-effective way. “By 2017, at latest, the financial support for renewables and the level thereof is to be determined completely by means of technology-specific tenders” (BMWi, 2014).
  • 27. - 24 - 3.4 Summary of Recommendations It is the opinion of this author that the original approach of the EEG is sufficient, and possibly even desirable for extrapolation to other cases assuming that the governments in question have an equal capacity for aid, which is rare, as a launching point for a rapid expansion of renewable electricity production capacity and reductions in renewable electricity costs and proficiency. However, the continuously rising cost of electricity compensated by consumers, the constant revision of the act throughout its short history and the increasing burden to the entire electricity grid system points to a need for innovation of the current system. All of the literatures published by the BMWi, including the 2014 EEG amendments, acknowledge the need to move to a natural, market-based approach in the future (BMWi, 2014; Bundestag, 2014; BMWi, 2014; BMWi, 2014; BMWi, 2014). It can be concluded, especially relevant to the Swedish example detailed in chapter 2 of this report, that the government can and should proactively aid energy transitions by creating a market demand through policy instruments, such as a RES electricity quota met through a certification system. Going forward, Germany faces many challenges in the transition of its energy transition from a state- run, publicly subsidized system to a system that more equitable competes on the entire European market. Key recommendations for addressing these understood challenges are: 1. Lobby for enhanced emissions trading schemes, which incorporate the transportation sector. 2. Grid expansions so that renewable energy potential can meet energy demand. 3. Load flexibility, a key component for an intermittent, renewable-based electricity system. 4. Storage capacity to enable expanded load flexibility. 5. Energy efficiency, as it is still Germany’s weakest link. 3.4.1 Emissions Trading Germany’s most immediate action should be the development of an effective, market-based demand for renewable electricity. One possible approach is to place a price on environmentally damaging external costs of conventional electricity production, such as the European Union Emissions Trading Scheme (EU ETS), of which Germany is already an obliged member. This approach is substantiated under the current administrations proclamations. According to Section 1 paragraph 1 of the EEG 2014, “the purpose of the law is to facilitate the sustainable development of energy supply, particularly for the sake of protecting the climate and the environment, to reduce the costs of energy supply to the national economy also by incorporating external long-term effects [emphasis added by the author], to conserve fossil fuels and to promote the further development of technologies for the generation of electricity from renewable energy sources.“ One feasible approach could be to
  • 28. - 25 - lobby the EU for more effective reform of the EU ETS, or to create an internal market that is more competitive than the European market, while maintaining compliance with the EU directive and competitiveness with the EU and global manufacturing atmosphere. This possibility, admittedly, would be challenging but, never the less, is plausible and reasonable for discussion. It should be noted that the current EU ETS only accounts for around 50% of German greenhouse gas emissions (BMWi, 2014). The author of this report is in agreement with a suggestion offered by the Deutsch Bank Research Group (2014) that inclusion of the transportation sector in the emissions trading scheme would likely result in an increase in emissions certificate value, which would result in a reduction of emissions. The Deutsch Bank Research Group suggests that this will occur with the increased adoption of natural gas for vehicles. The author of this report agree that this is a likely outcome, but also foresees a future policy development requiring large fleets, especially public fleets, to meet pre-defined quotas of electric vehicles (EVs), with a required percentage of that electricity coming from renewable sources. Initially, parties obligated to comply with this proposed legislation could receive subsidies for the purchase of EVs, or the conversion adjustments from an internal combustion engine (ICE) to an electric engine. Affected parties could also be given EEG surcharge tax breaks if they are self-producers of the renewable energy that they consume to power their fleet. A few possible approaches for government initiated market-based demand for EVs: • Subsidies for the purchase of EVs or the conversion from ICE to EV. • Subsidies for the installation of RET to power EVs. • Tax credits on new EV purchases and/or EV registration. • Reduction in EEG surcharge commensurate with quantity of electricity consumed for powering EVs. • Waiver and/or reduction of EEG surcharge for self-supplied RE consumed for powering EVs. Additionally, especially in the case of energy-intensive industries with large fleets, increased utilization of EVs would directly influence grid flexibility. Voluminous parked fleets could be used as storage during times of RE production surplus, for example during nights with high wind speeds, and then also be used as back-up power supplies in the event of an electricity shortage. Enterprises with such a capacity could hold special contracts with utility providers for their guaranteed flexibility and cooperation, and, in return, receive special pricing that increased the investment potential of EV fleet conversion. 3.4.2 Grid Expansion In a discussion paper recently published by the BMWi, “An Electricity Market For Germany’s Energy Transition“ (2014) the Federal Ministry explores the current constraints of the existing electricity system and suggests approaches that the ministry is and will continue to adopt in the future.
  • 29. - 26 - Chapter three is titled “Flexibility is the answer.” This response has been determined in consideration of the predominate strain to the current German electricity grid, bottlenecks. A bottleneck occurs when there is an over-production of electricity in one location that is unable to reach a destination of desire because the electricity infrastructure is not equipped for such a movement. The Rocky Mountain Institute (2014) an authoritative think-thank for market-based expansion of the RES electricity grid, calls for a grid expanded to respond to temporal, environmental, locational and existing grid pressures and needs. Electricity pricing should reflect its cost and/or value relative to the time and place it was generated and consumed. Most importantly, grid expansion unlocks the potential of the remaining recommendations, load flexibility, storage capacity and energy efficiency, which are all dependent upon grid flexibility for optimal performance. An expanded grid should be responsive to grid constraints. It should be able to communicate production and consumption needs real-time, and determine the most effective routes for immediate electricity transfer. Further, it should be able to communicate to both electricity producers and consumers with price signals to allow better control (less strain) of the electricity system based on a basic supply-demand curve (RMI, 2014). 3.4.3 Load Flexibility and Storage Capacity RES electricity is characterized by intermittency. As discussed in the previously mentioned Green Paper of the BMWi (2014), an electricity market balanced on forecasts does not ensure an actual balance in the physical world. Possible over-shoots, while manageable by “blowing off” extra capacity, are clearly undesirable as this relates to unnecessary costs and wasted resources, renewable or otherwise. The worrisome scenario, however, is the threat of a shortcoming in actual supply resulting in a brownout, or a short-term loss of access to electricity for some consumers. Future electricity pricing should incentivize customers with the capacity to absorb excess electricity (at a minimal rate) or to decline their consumption during times of shortage (for an increased, courtesy rate). Such customers, ideally, would have special contracts that made the arrangement economically attractive for them. In return, the grid can save unnecessary costs of maintaining reserve capacity conventional electricity power plants. Ultimately resulting in saved electricity costs for the end consumer (BMWi, 2014). 3.4.4 Energy Efficiency A key component to reduced strain on the transitioning electricity grid is an absolutely efficient use of energy, reducing overall demand and therefore reducing the need for base-line electricity
  • 30. - 27 - generation from conventional sources. This is one of the greatest areas of improvement in the German context that is receiving thorough attention in the continued development of Germany’s energy policy (BMWi, 2014). 4 Analysis of Sweden’s and Germany’s Different Instruments The Swedish market is very different compared to the German electricity market, because the share of energy sources is very different. Figure 2, page 5 shows the electricity production by energy types in Sweden and Figure 11, page 14 shows the German counterpart. Almost half of Sweden’s electricity is produced by clean and relatively low-cost hydropower. The amount of hydropower is dependent on natural water resources and height differences of landscape. In 2010, the average use of hydropower in Germany was about 20.9 TWh compared to 68 TWh produced in Sweden that same year. In 2010, the technical potential for Germany’s hydropower was estimated between 33.2 to 42.1 TWh (IB Floecksmühle, University Stuttgart, Fichtner GmbH & Co. KG, 2010, p. 22). This shows clearly that there are limitations in the volume of certain renewable energy plants in reference to the countries environment. Therefore, a direct comparison with numbers of renewable energy plants, of both countries, is not possible. This may also lead to different political instruments that a country needs to increase the share of renewables or to make the electricity sector more sustainable. However, it is possible to see tendencies, based on the different instruments both countries used to increase the share of renewable energies and to make the electricity sector more sustainable by, for instance, increasing the electrical energy efficiency. These tendencies can be interpreted by how successful or useful a certain instrument is. It is explained in the following chapter. 5 Summary of Result and Outlook The German EEG and the Swedish Electricity Certificate Systems are totally different political instruments, with the same target, to increase the share of renewables in the electricity sector. Both instruments have advantages and disadvantages. For example, the solar power subsidies in Germany, based on the EEG, have led to a mass market of solar panels with a constant decrease of production price. The solar subsidies could be seen as a start-up financing of a technology, which were, at first, not economical. Since 2006, a price decrease of 66% for solar panels occurred on the solar market (Heinrich Böll Foundation, 2012, p. 18). The same is true for wind turbines. Renewables are becoming increasingly competitive in the conventional electricity market. One kWh of electricty generated by an onshore wind power plant is almost competitive with the German fossil and nuclear power mix (Heinrich Böll Foundation, 2012, p. 2). These developments in the renewable energy
  • 31. - 28 - market were probably only possible because of subsidies, based on the German EEG. However, another result of the high subsidies has been a drastic increase of electricity price for households. The electricity price in Germany is the second highest in Europe (see Figure 4). This leads to the main advantage of the Swedish Electricity Certificate Systems. The Swedish Certificate System does not subsidize a specific renewable energy technology. Instead, every MWh generated by any renewable energy source is subsidized. It is up to the free market to decide which technology is used and where to build it. The free economy is always interested in maximizing profit. Therefore, only the “cheapest” renewable energy sources are used. This trend is visible when analyzing Figure 8. Mostly wind power electricity certificates were issued in 2013 on the electricity market because wind power is so far one of the “cheapest” renewable energy sources (Heinrich Böll Foundation, 2012, p. 2). The Swedish PFE program seems very progressive and effective (see Figure 3) to make electricity intensive industries more energy efficient. It helps to save energy and leads to a faster energy transition. Therefore, other countries with energy intensive industry should adopt similar programs. In conclusion, it seems that the Germans EEG subsidies were necessary to create a mass market for renewables. The EEG can be seen as a start-up financing, but, in terms of long-term economic efficiency, the Swedish Certificate System is superior. A good Indicator for that is the price of electricity for households. Therefore, the Swedish Certificate System should be introduced throughout Europe with the effect that electricity generation can be reached in a more cost-effective manner because investment will be focused to where conditions are most suitable for new renewable power plants. This could lead to a boost of solar energy production in the south of Europe and perhaps to a boost of wind power in the north of Europe. It seems, based on the Electricity Certificate market, that the whole energy transition in Europe could be accelerated.
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