低碳和可再生氢能政策工具箱（英文版）--国际氢能委员会.pdf

Policy review Policy Toolbox for Low Carbon and Renewable Hydrogen Enabling low carbon and renewable hydrogen globally November 2021Published in November 2021 by the Hydrogen Council. Copies of this document are available upon request or can be downloaded from our website: www.hydrogencouncil.com. This report was authored by the Hydrogen Council. The report has been compiled both from public sources and proprietary data of the Hydrogen Council. Its messages have been acknowledged by an Observatory Group, that consists of representatives from government agencies and academia, as well as associations and companies active in sectors like regenerative electricity generation, electricity grid equipment manufacturing, electric vehicle charging, fleet management. The authors of the report confirm that: a. There are no recommendations and/or any measures and/or trajectories within the report that could be interpreted as standards or as any other form of (suggested) coordination between the participants of the study referred to within the report that would infringe EU competition law; and b. It is not their intention that any such form of coordination will be adopted. Whilst the contents of the Report and its abstract implications for the industry generally can be discussed once they have been prepared, individual strategies remain proprietary, confidential and the responsibility of each participant. Participants are reminded that, as part of the invariable practice of the Hydrogen Council and the EU competition law obligations to which membership activities are subject, such strategic and confidential information must not be shared or coordinated – including as part of this Report.TABLE OF CONTENTS Executive summary Introduction and approach Policy assessment and packages Enabling policies Country archetypes Societal value and values Appendix – detailed policy assessment results and quantification methodology 4 18 26 36 44 54 56 3 Policy Toolbox for Low Carbon and Renewable Hydrogen Hydrogen CouncilExecutive summary 4 Policy Toolbox for Low Carbon and Renewable Hydrogen Hydrogen Council The recent surge in interest by policymakers for low carbon and renewable hydrogen 1 reflects a growing recognition of its important role in decarbonizing the energy system. Hydrogen will play a key role in enabling greater and faster integration of renewable energy in the system and fostering greater resilience, cost-efficiency, and optimization at the system level. Going hand-in-hand with electrification, the development of the hydrogen economy is set to enable deep decarbonization worldwide in an effective manner, allowing countries to meet their climate goals, boost green growth, and create sustainable jobs. Over 30 countries have already introduced hydrogen strategies, while industry has announced more than 520 large-scale low carbon and renewable hydrogen projects. While rapid technological learning brings cost competitiveness within reach for some applications, unlocking the full potential of low carbon and renewable hydrogen (defined in the Appendix) requires further policy development. Notwithstanding a very large volume of projects and funding announcements, there remains a significant gap to realize global climate change mitigation ambitions. The full potential of hydrogen requires direct investment of around USD 700bn by 2030. Projects and government support worth USD 160bn have been announced already, leaving a gap of nearly USD 540bn 2 . For these investments to take place, the industry needs a clear policy and regulatory framework, and support for scaling up hydrogen solutions, especially during the early market building phase. Coordinating policy and regulatory activity on the one hand with projects and investment activity on the other is key for industry and governments to jointly deliver on the shared climate objectives as soon as possible. Countries in Europe and in Asia have been at the forefront of hydrogen economy development. In the EU, dedicated hydrogen support instruments such as Contracts for Differences (CfDs) and Carbon Contracts for Difference (CCfDs), designed to provide a ‘push’ for supply and a ‘pull’ for demand respectively, are already under development. Retrofitting and repurposing the existing gas infrastructure and building new dedicated transmission and storage systems for hydrogen constitutes another priority for the industry and policymakers. In Europe, for example, a plan for the development of a Hydrogen Backbone connecting large-scale production of hydrogen with demand clusters has been put forward. At the same time, many other regions have set their low carbon and renewable hydrogen ambitions and are looking at developing the legislative frameworks that would enable their achievement. Against this backdrop, this report, provides a practical guide to the full policy toolbox. It is directed at policymakers and legislators who can use it as a menu of policy tools to deploy when designing or implementing hydrogen policy and regulatory frameworks. The study is based on an assessment of the performance of hydrogen policies in different stages of market maturity (e.g., before and after the technology is commercially viable) and segments of the value chain (e.g., hydrogen production, mid-stream hydrogen infrastructure and hydrogen use). 48 policies were shortlisted based on their economic efficiency and effectiveness and mapped to barriers across the value chain and over time. These policies were subsequently clustered into policy packages for three country archetypes: a self-sufficient hydrogen producer, an importer, and an exporter of hydrogen. Last but not least, we explored the societal value that can be unlocked by countries thanks to the development of the hydrogen economy, looking at it through the lens of Sustainable Development Goals (SDGs). Six key principles for effective hydrogen policy and regulatory frameworks emerged from this analysis. It should be noted that all six pillars are equally important and the sequence at which they appear does not reflect any particular hierarchy. 1 See Appendix section Defining low carbon and renewable hydrogen 2 Appendix 2.1 5 Policy Toolbox for Low Carbon and Renewable Hydrogen Hydrogen Council6 pillars of efficient policy design for low carbon and renewable hydrogen Make use of local strengths existing gas infrastructure and prospects for repurposing or retrofitting it to transport or store hydrogen, as well as synergies with CO 2 infrastructure) (see Box 1) • Local institutional and regulatory frameworks where the energy industry currently operates (while in some jurisdictions the energy sector is fully liberalized, in others it may be vertically integrated) Most commonly, these starting conditions are factored into policy design at the outset. Based on these premises, we identify three archetypal country groups: • Self-sufficient countries aiming at producing and consuming hydrogen within their respective jurisdictions. These countries would need to create the entire value chain: upstream supply, midstream transmission and storage, distribution, and downstream demand. • Exporters would focus on developing export infrastructure and optimizing project locations to create export hubs in a manner that contributes to the development of the local hydrogen economy. • Importers would focus on developing import infrastructure, work with exporters to ensure they get access to affordable low carbon and/ or renewable hydrogen and develop downstream applications, ensuring they have control over where hydrogen is used. At the same time, countries and regions can reap the benefits brought by international cooperation and optimization of cross-border infrastructure. In many cases, cross-border integration can maximize infrastructure use and improve the overall system efficiency by linking greater production capacity with larger demand centers. International trade in hydrogen will play a key role in efficiently matching lower cost supply locations and major demand pools across geographies. Leveraging local strengths is an important starting point in policy design, which should be complemented by cross-border cooperation and trade to unlock efficiency gains. 1 7 Policy Toolbox for Low Carbon and Renewable Hydrogen Hydrogen CouncilJurisdictions seeking to unlock their low carbon hydrogen potential can use dedicated policy tools to incentivize carbon capture and retrofit existing carbon-intensive hydrogen production. For example, in the UK, private law contracts, similar to CfDs, will be introduced to provide the emitter with a payment per ton of captured CO 2. In addition, many jurisdictions are already considering policy instruments to support CO 2 pipeline network and port infrastructure development (e.g., the EU proposal for TEN-E revision of Dec 2020). Provision of CAPEX support for multimodal transportation of CO 2 can also help avoid stranded assets in the long term (by way of enabling a switch to transporting hydrogen or ammonia) and unlock access for CO 2 storage in locations where there is no business case for hydrogen pipeline network development. The UK’s Carbon Capture Readiness Directive, introduced in 2009, states all planned combustion plants above 300 MW need to be constructed with space allocated for CCS facilities and infrastructure. In July 2021, there were calls for this to be expanded to include combustion plants below the current 300 MW generation threshold. 3 3 UK Government, Decarbonisation readiness: call for evidence on the expansion of the 2009 Carbon Capture Readiness requirements, 2021. https://www.gov.uk/government/consultations/decarbonisation-readiness-call-for-evidence-on-the- expansion-of-the-2009-carbon-capture-readiness-requirements Low carbon hydrogen production: synergies with CO 2 infrastructure Box 1 8 Policy Toolbox for Low Carbon and Renewable Hydrogen Hydrogen CouncilTo drive down cost and attract investment, governments can create certainty through legislation, reducing policy risks and market uncertainty. 2 Reducing risk is a vital component of delivering hydrogen at scale, given the high capital cost of many applications and uncertain investment environment. High policy risk can make investment difficult or raise the cost of capital. De-risking effectively lowers the cost of capital for hydrogen projects, which both reduces hydrogen costs and hence drives uptake. This not only means decarbonization targets are more likely to be achieved, but also that the overall transition will be delivered at lower total costs. Policy risk can be reduced through a package of targets, roadmaps, and reshaped domestic policy to underpin national delivery: • Targets for decarbonization of the economy and national hydrogen strategies or roadmaps. Policymakers can reduce policy-related risk through a combination of long-term goals and short-term targets. Long-term decarbonization goals, clear roadmaps, and enabling legislation coupled with binding short-term targets for hydrogen deployment, quantified CO 2 reduction targets, quotas and standards incentivizing low carbon and renewable hydrogen in end-use sectors can pave the way for the hydrogen economy. These policy tools help provide direction and market foresight to the industry. For example, as part of the implementation of the EU Hydrogen Strategy, the European Commission recently announced its proposal for an EU-wide 2030 target for a 50% share of renewable hydrogen consumption in industry. 4 • Commitment to a schedule of budgets for hydrogen. Where project delivery depends on subsidies, it is important to provide visibility, ideally for 5-10 years in advance, over the likely subsidization regime. This could be through a schedule of budgets, commitment of a minimum volume of projects and clear decision rules about how subsidization may change over time in response to technological developments. Given the multi-year lead times for the development of many hydrogen projects, this visibility is crucial to reducing risk and making projects financeable. • Correcting market distortions that disincentivize low carbon and renewable technology adoption. For example, removing subsidies for fossil fuels can make clean technologies, including low carbon and renewable hydrogen, more competitive. • Streamlining policy and removing excessive regulatory barriers, including simplifying licensing and permitting processes and removing undue legislative barriers for renewable and low carbon hydrogen production (see Box 2). 4 This target is proposed in the framework of the European Commission proposal for the revision of RED II (recast Renewable Energy Directive) published on 14 July 2021 9 Policy Toolbox for Low Carbon and Renewable Hydrogen Hydrogen CouncilMarket risks, such as uncertainty over prices for hydrogen in the market can be reduced by providing revenue stabilization through government-backed contracts such as CfDs and CCfDs (see CCfD deep-dive). These revenue stabilization schemes– which provide a ‘push’ for supply and a ‘pull’ for demand respectively – are increasingly recognized and adopted as part of a holistic policy framework for decarbonization encompassing a hydrogen strategy. Examples of these schemes are already being enacted. For instance, the German government is setting up the H2Global 5 initiative featuring a CfD scheme that enables temporary compensation for the difference between the purchase price (production plus transport costs) and the sales price (currently the market price for fossil hydrogen) of renewable hydrogen and derived products. It is due to be applied to imported renewable hydrogen specifically in the initial phase, and it may be expanded to incentivize renewable hydrogen production at the national level. Downstream, several countries are considering introducing carbon contracts for the difference (CCfDs) for hydrogen covering industrial sectors initially, aiming to expand it to other end-use sectors in the future. 5 H2 Global, https://h2-global.de/ 10 Policy Toolbox for Low Carbon and Renewable Hydrogen Hydrogen Council