[pic] | COMISSÃO DAS COMUNIDADES EUROPEIAS |

Bruxelas, 07.12.2005

COM(2005) 628 final

COMUNICAÇÃO DA COMISSÃO

Plano de acção Biomassa

{SEC(2005) 1573}

ÍNDICE

1. INTRODUÇÃO 4

1.1. Potencial da biomassa 5

1.2. Custos e benefícios 6

1.3. Utilização da biomassa nos sectores dos transportes, da electricidade e do aquecimento 7

2. UTILIZAÇÃO DA BIOMASSA PARA AQUECIMENTO 7

2.1. Legislação relativa à utilização das energias renováveis para aquecimento 7

2.2. A renovação do aquecimento urbano 8

3. PRODUÇÃO DE ELECTRICIDADE A PARTIR DA BIOMASSA 9

4. BIOCOMBUSTÍVEIS NO SECTOR DOS TRANSPORTES 10

4.1. Aplicação da Directiva Biocombustíveis 10

4.2. O mercado dos veículos a motor 11

4.3. Equilíbrio entre a produção interna e as importações 11

4.4. Normas 12

4.5. Eliminação das barreiras técnicas 12

4.6. Utilização de etanol para reduzir a procura de gasóleo 13

5. QUESTÕES TRANSVERSAIS 13

5.1. Abastecimento de biomassa 13

5.2. Apoios financeiros da UE para a energia obtida a partir da biomassa 15

5.3. Auxílios estatais 16

6. INVESTIGAÇÃO 16

7. CONCLUSÃO 17

ANNEX 1 – Biomass action plan: summary of measures 18

ANNEX 2 – EU biomass production potential 21

ANNEX 3 – A scenario to increase biomass energy using current technologies 23

ANNEX 4 – Environmental impacts 24

ANNEX 5 – Renewable energy and the directive on the energy performance of buildings 26

ANNEX 6 – Biomass for electricity generation 27

ANNEX 7 – Transport biofuels: background 28

ANNEX 8 – Biofuels: progress at national level 29

ANNEX 9 – Implementing the biofuels directive: fuel tax exemptions and biofuel obligations 30

ANNEX 10 – Trade in bioethanol 33

ANNEX 11 – Achieving the 5.75% biofuels target: the balance between domestic production and imports 38

ANNEX 12 – The Commission’s perspective on biomass and biofuel research 43

ANNEX 13 – Results of consultation 47

COMUNICAÇÃO DA COMISSÃO

Plano de acção Biomassa

1. INTRODUÇÃO

A energia é um elemento fundamental para a realização dos objectivos de crescimento, emprego e sustentabilidade da Europa. O aumento dos preços do petróleo trouxe à luz a crescente dependência da Europa em relação à energia importada.

A União precisa de dar uma resposta forte a este desafio. A importância central da política energética para ajudar a Europa a dar resposta aos desafios da globalização foi confirmada pelos Chefes de Estado e de Governo da União durante a Cimeira Informal de Hampton Court, em Outubro de 2005.

Nessa óptica, a Comissão está a proceder a uma revisão fundamental da sua política energética, que será objecto de um Livro Verde durante a Primavera de 2006, com três grandes objectivos – competitividade, sustentabilidade e segurança do abastecimento.

Os elementos fundamentais dessa política são, num contexto de crescimento económico cada vez mais forte, a necessidade de reduzir a procura de energia[1]; o aumento da utilização das fontes de energia renováveis, dado o seu potencial de produção interna e a sua sustentabilidade; a diversificação das fontes de energia e o aumento da cooperação internacional. Esses elementos poderão ajudar a Europa a reduzir a sua dependência das importações de energia, a aumentar a sustentabilidade e a estimular o crescimento e o emprego.

Para garantir o sucesso, será necessário gerir esses objectivos de forma coerente e de acordo com calendários apropriados. O processo incluirá mecanismos que irão envolver os Estados-Membros, representantes do Parlamento Europeu e outras partes interessadas[2].

É nesse contexto mais alargado de uma política energética integrada e coerente e, em particular, da promoção das fontes de energia renováveis, que a Comissão apresenta o seu plano de acção. O plano é apenas um componente das medidas necessárias para a realização dos objectivos acima definidos – mas um componente importante, já que a biomassa representa actualmente cerca de metade das energias renováveis utilizadas na UE[3].

Na sua comunicação de 2004 sobre a quota das energias renováveis na União Europeia, a Comissão Europeia assumiu o compromisso de apresentar um plano de acção para a biomassa, salientando a necessidade de uma abordagem coordenada da política da biomassa[4]. O Conselho da Primavera de 2004 concluiu que o aumento da utilização de energias renováveis é essencial por “razões ambientais e de competitividade”[5], enquanto que o Parlamento Europeu referiu recentemente que a biomassa apresenta muitas vantagens em relação às fontes de energia convencionais, bem como em relação a outras energias renováveis, em particular os seus custos relativamente baixos, a menor dependência em relação a variações climáticas de curto prazo, a promoção de estruturas económicas regionais e o facto de constituir uma fonte de rendimento alternativa para os agricultores[6].

O presente plano de acção define medidas destinadas a aumentar o desenvolvimento da produção de energia a partir de madeira, de resíduos e de culturas agrícolas, através da criação de incentivos de mercado para a sua utilização e da eliminação das barreiras ao desenvolvimento do mercado. Dessa forma, a Europa poderá diminuir a sua dependência dos combustíveis fósseis, as suas emissões de gases com efeito de estufa e estimular a actividade económica nas zonas rurais. Essas medidas são apresentadas no anexo 1.

O plano de acção representa um primeiro passo, um passo de coordenação Define medidas para a promoção da utilização da biomassa para aquecimento, para a produção de electricidade e nos transportes, acompanhadas de medidas transversais que afectam o abastecimento, o financiamento e a investigação no domínio da biomassa. É acompanhado de uma avaliação geral de impacto. Num segundo tempo, serão apresentadas medidas individuais sujeitas a avaliações do impacto específicas, de acordo com as regras da Comissão.

1.1. Potencial da biomassa

A UE cobre actualmente 4% das suas necessidades energéticas a partir da biomassa. Se utilizasse totalmente o seu potencial, poderia mais do que duplicar a utilização da biomassa até 2010 (de 69 mtep[7] em 2003 para cerca de 185 mtep em 2010) – sem deixar de respeitar as boas práticas agrícolas, de salvaguardar a produção sustentável de biomassa e não afectando de forma significativa a produção interna de produtos alimentares[8]. A adesão da Bulgária e da Roménia irá melhorar a situação da disponibilidade[9] e as possibilidades de importação oferecem um potencial ainda maior.

A Comissão considera que as medidas previstas no presente plano de acção poderão levar a um aumento da utilização de biomassa até cerca de 150 mtep em 2010 ou pouco depois disso[10]. Este valor é inferior ao potencial total, mas é conforme com os objectivos indicativos para as energias renováveis[11].

1.2. Custos e benefícios

Diversos estudos científicos e económicos permitem concluir que esse aumento da utilização da biomassa poderá trazer os seguintes benefícios, em 2010:

- diversificação do abastecimento energético da Europa, aumentando a quota das energias renováveis em 5% e diminuindo a dependência da energia importada de 48% para 42%[12];

- redução das emissões de gases com efeito de estufa em 209 milhões de toneladas de CO2eq por ano[13];

- 250 000 – 300 000 empregos directos, principalmente em zonas rurais. Os diferentes estudos apresentam valores muito variáveis[14];

- uma potencial pressão no sentido da diminuição dos preços do petróleo, devido à diminuição da procura.

Assumindo preços dos combustíveis fósseis 10% inferiores aos preços actuais, os custos directamente mensuráveis podem ser estimados em 9 000 milhões de euros por ano – 6 000 milhões de euros relacionados com a utilização de biocombustíveis nos transportes e 3 000 milhões de euros relacionados com a utilização da biomassa para a produção de electricidade (a utilização dabiomassa para aquecimento já é, em muitos casos, competitiva em termos de custos)[15]. Esse efeito seria equivalente a um aumento de cerca de 1,5 cêntimos por litro de gasolina ou de gasóleo e de 0,1 cêntimo por kWh de electricidade[16].

Outros benefícios poderão ainda ser conseguidos se a UE alargar a sua liderança tecnológica nestes sectores.

Esses benefícios poderão ser obtidos, em princípio, sem aumento da poluição ou de outros prejuízos para o ambiente[17].

A Comissão está a avaliar a contribuição que as energias renováveis poderão vir a dar para a produção de energia até 2020. O presente plano de acção poderá servir de base para um aumento da contribuição das energias renováveis até 2020.

1.3. Utilização da biomassa nos sectores dos transportes, da electricidade e do aquecimento

Os preços do petróleo triplicaram ao longo dos últimos quatro anos. O sector dos transportes é um sector económico fundamental; e quase toda a energia que utiliza vem do petróleo. Os biocombustíveis líquidos, enquanto único substituto directo do petróleo neste sector, apresentam, justificadamente, uma prioridade política elevada.

Acresce ainda que o crescente crescimento do sector dos transportes ainda não permitiu a estabilização das emissões de gases com efeito de estufa, apesar dos consideráveis esforços desenvolvidos pela indústria. Os biocombustíveis são uma forma cara de reduzir as emissões de gases com efeito de estufa, mas no sector dos transportes são um dos dois únicos tipos de medidas que teriam uma possibilidade razoável de o fazer numa escala significativa e num futuro próximo (o outro seria um acordo por parte dos fabricantes automóveis para reduzir as emissões de CO2 dos automóveis novos – ver a secção 4.2).

No início de 2006, a Comissão irá apresentar uma comunicação que tratará especificamente os biocombustíveis.

Embora a utilização de biocombustíveis nos transportes apresente a maior intensidade de emprego e os maiores benefícios em termos de segurança dos abastecimentos, a utilização da biomassa para a produção de electricidade apresenta os maiores benefícios em termos de emissões de gases com efeito de estufa e é a forma mais barata de aquecimento. A biomassa deve ser promovida nos três sectores. Pelo menos até 2010, não haverá grande concorrência para as matérias-primas: os biocombustíveis são produzidos fundamentalmente a partir de culturas agrícolas, enquanto que a produção de electricidade e o aquecimento se baseiam fundamentalmente na queima de madeira e de resíduos.

2. UTILIZAÇÃO DA BIOMASSA PARA AQUECIMENTO

A tecnologia de utilização da biomassa para o aquecimento das zonas residenciais e industriais é simples e barata. Existe uma forte tradição dessa utilização, e este é o sector que utiliza a maior quantidade de biomassa. Há novas técnicas que permitem transformar a madeira e os resíduos limpos em pellets normalizados, que são ambientalmente seguros e fáceis de manusear.

No entanto, o aquecimento é o sector em que o ritmo de crescimento da utilização de biomassa é mais lento.

Para além de continuar a acompanhar cuidadosamente a aplicação da legislação comunitária relativa à co-geração[18] – uma importante via de escoamento da biomassa – a Comissão irá agir nesse domínio através das seguintes medidas:

2.1. Legislação relativa à utilização das energias renováveis para aquecimento

Esta é a peça que falta no puzzle composto pelas directivas que abrangem a electricidade e os transportes. A Comissão irá preparar essa legislação em 2006. A abordagem a adoptar terá de ser diferente da adoptada nas anteriores directivas, já que os principais problemas estão relacionados com as atitudes e a confiança dos mercados e não com os custos. Os elementos a analisar incluirão:

- nova legislação específica sobre a utilização das energias renováveis para aquecimento, com base numa análise crítica da potencial contribuição:

- de medidas destinadas a garantir que os fornecedores de combustível disponibilizam combustíveis obtidos a partir da biomassa;

- da definição de critérios de eficiência para a biomassa e para as instalações em que irá ser utilizada;

- da rotulagem dos equipamentos, de forma a permitir que as pessoas possam adquirir aparelhos limpos e eficientes;

- de outras medidas técnicas;

- da eventual definição de objectivos, se for o caso;

- de acordos voluntários com a indústria;

- a alteração da directiva relativa ao desempenho energético dos edifícios, de forma a incentivar a utilização de energias renováveis[19].

- um estudo da forma como se poderá melhorar o desempenho e reduzir a poluição das caldeiras domésticas alimentadas a biomassa[20], com vista à definição de requisitos de concepção ecológica, a aplicar no contexto da directiva pertinente[21].

2.2. A renovação do aquecimento urbano

O aquecimento urbano (colectivo) permite uma melhor gestão da utilização dos combustíveis fósseis e a queima de diversos tipos de combustível, com menores emissões. É mais fácil desenvolver a utilização de biomassa no aquecimento urbano do que no aquecimento individual.

56 milhões de cidadãos da UE, 61% dos quais nos novos Estados-Membros, são servidos por sistemas de aquecimento urbano. A adesão da Bulgária e da Roménia irá aumentar esse número. O aquecimento urbano depara-se com problemas de concorrência com o aquecimento individual. Muitos sistemas de aquecimento urbano exigem instalações, infraestruturas e uma gestão modernas para melhorar as condições de utilização do combustível, a rentabilidade e a conveniência de utilização. Alguns sistemas terão de ser convertidos para permitirem a utilização de biomassa como combustível. A Comissão encoraja o desenvolvimento dos sistemas de aquecimento urbano nesse sentido.

A Comissão insta o Conselho a dar o seu acordo à proposta que fez no sentido de que o fornecimento de aquecimento urbano seja acrescentado à lista de bens e serviços a que os Estados-Membros poderão aplicar uma taxa reduzida de IVA[22], após o que recomendaria aos Estados-Membros que alargassem ao aquecimento urbano qualquer redução da taxa do IVA que já seja aplicável ao gás natural ou à electricidade.

A Comissão poderá igualmente apresentar uma proposta legislativa sobre as questões fiscais que afectam o aquecimento urbano e irá analisar a possibilidade de que sejam propostas simultaneamente outras medidas.

3. PRODUÇÃO DE ELECTRICIDADE A PARTIR DA BIOMASSA

Todos os tipos de biomassa podem ser utilizados para a produção de electricidade, utilizando diferentes tecnologias (ver o anexo 6). A Comissão encoraja os Estados-Membros a explorarem o potencial de todas as formas economicamente rentáveis de produção de electricidade a partir da biomassa.

A directiva relativa à promoção das energias renováveis na produção de electricidade constitui o enquadramento para a produção de electricidade a partir da biomassa[23]. Os Estados-Membros comprometeram-se em relação a objectivos quantificados de produção de electricidade a partir de energias renováveis. Na maior parte dos casos, afigura-se impossível conseguir alcançar esses objectivos sem uma maior utilização da biomassa[24]. A aplicação da directiva será portanto fundamental para o desenvolvimento da utilização de biomassa para a produção de electricidade. A Comissão continuará a dedicar toda a atenção a esta questão[25].

Quando utilizada em centrais de produção combinada de calor e de electricidade, a biomassa permite produzir calor e electricidade em simultâneo. A Comissão encoraja os Estados-Membros a tomarem em consideração essa dupla vantagem nos respectivos sistemas de apoio.

4. BIOCOMBUSTÍVEIS NO SECTOR DOS TRANSPORTES

4.1. Aplicação da Directiva Biocombustíveis

Tal como acontece com a produção de electricidade, existe um enquadramento criado pela legislação comunitária, a Directiva Biocombustíveis[26], que define como valores de referência 2% de quota de mercado para os biocombustíveis até 2005 e 5,75% até 2010[27].

O valor de referência para 2005 não irá ser atingido. Há uma variação substancial nos esforços desenvolvidos pelos diferentes Estados-Membros[28]; se todos os Estados-Membros alcançassem os objectivos que se tinham proposto, a quota dos biocombustíveis atingiria apenas os 1,4%.

Para fins da aplicação da directiva, muitos Estados-Membros estão a utilizar o mecanismo das isenções fiscais sobre os combustíveis[29]. Essas isenções estão sujeitas aos controlos aplicáveis aos auxílios estatais. Em conformidade com as orientações relativas aos auxílios estatais de carácter ambiental, a Comissão tem geralmente adoptado uma atitude positiva em relação às notificações recebidas. No entanto, surgiram uma série de problemas de ordem prática. Alguns Estados-Membros começaram recentemente a aplicar medidas de carácter obrigatório em relação aos biocombustíveis, exigindo que as empresas fornecedoras de combustíveis incorporem uma determinada proporção de biocombustíveis nos produtos que colocam no mercado. Para mais pormenores sobre as duas abordagens, ver o anexo 9. A obrigatoriedade de utilização de biocombustíveis parece ser uma via prometedora para ultrapassar as dificuldades constatadas em relação às isenções fiscais e para garantir o cumprimento dos objectivos fixados de forma economicamente rentável. Por outro lado, facilitam também a concessão de um tratamento favorável aos biocombustíveis de segunda geração, que a Comissão encoraja.

Em conformidade com a Directiva Biocombustíveis, a Comissão irá apresentar em 2006 um relatório sobre a respectiva aplicação, com vista à sua eventual revisão. Esse relatório irá contemplar as seguintes questões:

- objectivos nacionais para a quota de mercado dos biocombustíveis;

- obrigação de utilização de biocombustíveis;

- exigência no sentido de que, através de um sistema de certificados, só os biocombustíveis cujo cultivo cumpra determinadas normas mínimas de sustentabilidade possam ser contabilizados para efeitos da realização dos objectivos[30].

O sistema de certificados teria de ser aplicado de forma a não estabelecer nenhuma discriminação entre os biocombustíveis produzidos internamente e os biocombustíveis importados.

4.2. O mercado dos veículos a motor

A Comissão irá apresentar brevemente uma proposta legislativa para encorajar a aquisição, por parte das autoridades públicas, de veículos limpos, o que poderá incluir os veículos que utilizam misturas com alto teor de biocombustíveis[31].

A Comissão está a analisar a possibilidade de que a utilização de combustíveis alternativos, incluindo os biocombustíveis, possa ser contabilizada para efeitos dos objectivos de redução das emissões de CO2 dos veículos ligeiros de mercadorias, no contexto da sua revisão da forma como a Comunidade poderá tentar alcançar o seu objectivo de emissões médias de 120 g/km. A estratégia para o futuro, que deverá ser proposta em 2006, será baseada numa “abordagem integrada”. Isto significa que medidas como a utilização de biocombustíveis, os incentivos fiscais, a informação dos consumidores e o combate ao congestionamento do tráfego poderão ser tomadas em consideração, juntamente com os esforços realizados pelos fabricantes automóveis no que respeita às tecnologias utilizadas nos veículos a motor. Essa estratégia tomará em consideração a estratégia relativa ao futuro da indústria automóvel, que também deverá ser proposta em 2006.

4.3. Equilíbrio entre a produção interna e as importações

Os biocombustíveis e as matérias-primas que servem para os produzir são comercializados nos mercados mundiais. Não é possível nem desejável, para suprir as necessidades comunitárias, uma abordagem baseada na auto-suficiência. No entanto, a União dispõe de alguma margem de manobra no que respeita ao encorajamento a dar à produção doméstica ou às importações. O anexo 10 descreve a situação actual no que respeita ao comércio de bioetanol. O anexo 11 apresenta uma avaliação de três vias para a realização do objectivo de uma quota de mercado de 5,75% para os biocombustíveis:

- quota mínima de importações;

- quota máxima de importações;

- abordagem equilibrada.

A Comissão prefere a abordagem equilibrada. Assim, irá:

- propor a alteração da norma EN14214, de forma a facilitar a utilização de uma maior panóplia de óleos vegetais na produção de biodiesel, na medida em que tal seja viável sem causar efeitos negativos significativos sobre o desempenho do combustível;

- tratar a questão da alteração da Directiva Biocombustíveis, de forma a que só os biocombustíveis cujo cultivo cumpra normas mínimas de sustentabilidade possam ser contabilizados para efeitos da realização dos objectivos;

- manter condições de acesso aos mercados para o bioetanol importado que não sejam menos favoráveis do que as previstas pelos acordos de comércio actualmente em vigor;

- continuar a aplicar uma abordagem equilibrada nas negociações em curso sobre o livre comércio com os países/regiões produtores de etanol. A UE deve respeitar os interesses dos seus produtores e parceiros comerciais, num contexto de aumento da procura de biocombustíveis;

- apoiar os países em desenvolvimento que pretendam produzir biocombustíveis e desenvolver os respectivos mercados internos. Este elemento assume particular importância no contexto das reformas do sector do açúcar[32].

A Comissão irá avançar com estes objectivos no âmbito das negociações bilaterais (p.ex.: com o Mercosur) e multilaterais (p.ex.: na Ronda de Doha da Organização Mundial do Comércio e nas discussões sobre o comércio de bens ambientais).

4.4. Normas

A Directiva Qualidade dos Combustíveis[33] define limites para os teores de etanol, de éter e de outros compostos oxigenados no petróleo e limita a pressão de vapor das gasolinas. A norma EN590 determina que os gasóleos não devem conter mais de 5% de biodiesel em termos volúmicos (4,6% em termos energéticos). Esses limites restringem as possibilidades de aumento da utilização de biocombustíveis.

A Comissão está a proceder à revisão da Directiva Qualidade dos Combustíveis e irá avaliar o impacto das opções existentes para o tratamento das questões acima referidas. A Comissão está a ponderar uma variedade de factores, tomando em consideração os custos e benefícios para os sectores afectados. No âmbito da revisão dessas opções, a Comissão irá tomar em consideração, nomeadamente:

- os impactos na saúde e no ambiente (incluindo as emissões de poluentes e de gases com efeito de estufa);

- os impactos na realização dos objectivos da Directiva Biocombustíveis e os custos dessa realização.

4.5. Eliminação das barreiras técnicas

Há determinadas barreiras técnicas que se opõem à introdução dos biocombustíveis. A indústria argumentou, por exemplo, que:

- a gasolina misturada com etanol não pode ser transportada em oleodutos;

- a oferta de uma gasolina de base com menor pressão de vapor, adequada para a mistura directa com etanol, não constitui uma solução prática.

A Comissão irá pedir às indústrias em causa que lhe seja explicada a justificação técnica para essas barreiras e procurará igualmente obter opiniões de outras partes interessadas. Acompanhará o comportamento das indústrias relevantes, de forma a garantir que não haja nenhuma discriminação contra os biocombustíveis.

4.6. Utilização de etanol para reduzir a procura de gasóleo

A frota de veículos a motor da UE está preferencialmente orientada para os veículos a gasóleo. No entanto, a Europa tem uma capacidade de produção de bioetanol superior à de biodiesel, utilizando menos espaço e com maior margem para redução dos custos através de economias de escala. Há igualmente margem para aumentar as importações a partir de países terceiros.

A Comissão encorajará a utilização de etanol para reduzir a procura de gasóleo, nomeadamente através da utilização de misturas com 95% de etanol em motores diesel modificados. No âmbito da reanálise da norma EN14214, irá propor a avaliação de uma alteração que possa permitir que o metanol seja substituído pelo etanol na produção de biodiesel.

5. QUESTÕES TRANSVERSAIS

5.1. Abastecimento de biomassa

As medidas acima descritas dependem da disponibilidade de um abastecimento adequado de biomassa. A presente secção define medidas para promover essa disponibilidade.

Política Agrícola Comum (PAC)

A reforma da PAC de 2003 implica que o apoio ao rendimento dos agricultores deixou de estar ligado às culturas produzidas. Daí decorre que os agricultores podem responder livremente ao aumento da procura de culturas energéticas. A reforma introduziu igualmente um auxílio especial para “culturas energéticas”[34] e manteve a possibilidade de utilizar os terrenos em “pousio” obrigatório para cultura de produtos não-alimentares (incluindo culturas energéticas). EM 2006, a Comissão apresentará um relatório ao Conselho sobre a aplicação dos auxílios para as culturas energéticas, que será acompanhado, se necessário, de propostas que tomarão em consideração os objectivos da União para os biocombustíveis.

No passado, só algumas culturas energéticas podiam beneficiar de apoios, através do regime de pousio. A reforma abriu caminho para que os agricultores cultivem mais culturas energéticas, incluindo a talhadia em rotação curta e outras culturas perenes. As decisões sobre as culturas energéticas mais apropriadas para o cultivo devem ser tomadas a nível regional ou local. A Comissão financiará uma campanha de informação sobre as propriedades das culturas energéticas e sobre as oportunidades que oferecem[35]. As lenhosas de crescimento rápido, em particular, exigem uma abordagem diferente, já que os agricultores têm as suas terras ocupadas durante vários anos e são precisos pelo menos 4 anos antes da primeira colheita.

Silvicultura

Cerca de 35% da madeira que cresce anualmente nas florestas da UE não é utilizada[36]. Em muitos países, o mercado para os desbastes de menor tamanho, que podem ser utilizados para produzir calor e electricidade, é muito limitado. A maior parte desses recursos não utilizados encontram-se em pequenas explorações privadas, o que dificulta a sua mobilização. Alguns países atacaram este problema criando cadeias de abastecimento associadas às instalações já existentes e apoiando a organização de sistemas logísticos, a cooperação entre os proprietários florestais e os transportes. A Comissão tentará disseminar as lições retiradas dessas experiências e apoiará iniciativas semelhantes noutros países.

A Comissão está a preparar um plano de acção para as florestas, para adopção em 2006, que incluirá as utilizações energéticas da madeira.

A Comissão irá analisar o impacto da utilização de madeira e de resíduos de madeira para a produção de energia sobre as indústrias baseadas na silvicultura.

Resíduos

Os resíduos constituem um recurso energético sub-aproveitado. A Comissão está a desenvolver uma estratégia temática para a prevenção e a reciclagem dos resíduos, estando igualmente a preparar uma proposta de revisão da Directiva-Quadro Resíduos. As opções em análise incluem:

- a promoção de técnicas de gestão dos resíduos que reduzem o impacto ambiental da utilização dos resíduos como combustíveis;

- a adopção de uma abordagem de mercado para as actividades de reciclagem e de valorização;

- o desenvolvimento de normas técnicas que permitam que os materiais valorizados possam ser considerados como bens (facilitando a sua utilização para a produção de energia);

- o encorajamento dos investimentos em técnicas energeticamente eficientes para a utilização dos resíduos como combustíveis.

Subprodutos animais

Os subprodutos animais que não se destinam a consumo humano são, cada vez mais, valorizados para a produção de energia, especialmente sob a forma de biogás e de biodiesel. Os progressos tecnológicos e científicos têm levado ao contínuo desenvolvimento de novos processos de produção. A Comissão irá analisar o enquadramento regulamentar da autorização desse tipo de processos, de forma a que se possam abrir novas fontes de energia, garantindo ao mesmo tempo a manutenção de um elevado nível de protecção da saúde pública e da sanidade animal.

Normas

São necessárias normas europeias para os combustíveis sólidos produzidos a partir da biomassa, de forma a facilitar o seu comércio, desenvolver os mercados e aumentar a confiança dos consumidores. O Comité Europeu de Normalização (CEN) está a trabalhar nesse sentido. A Comissão encorajará o CEN a atribuir uma prioridade elevada a esses trabalhos.

Melhorar a cadeia de abastecimento

Foi lançada uma Bolsa Europeia para os pellets e aparas, com apoio do Programa comunitário Energia Inteligente para a Europa Os volumes são pouco elevados. A Comissão irá analisar as possibilidades de melhorar os resultados, com vista à criação de um sistema de comercialização alargado a toda a UE (se for técnica e economicamente viável).

Planos de acção nacionais para a biomassa

Os planos de acção nacionais para a biomassa poderão diminuir as incertezas para os investidores através da avaliação da disponibilidade física e económica de diferentes tipos de biomassa, incluindo a madeira e os resíduos de madeira, bem como os resíduos e as culturas agrícolas, identificando prioridades para os tipos de biomassa a utilizar e para as formas como se poderão desenvolver os recursos de biomassa, e indicando as medidas que deverão ser tomadas a nível nacional para promover esse processo. Os planos poderão também ser associados a campanhas de informação dos consumidores sobre os benefícios da biomassa. As regiões poderão também desempenhar um papel útil nesse contexto. A Comissão encoraja o desenvolvimento de planos de acção nacionais para a biomassa.

5.2. Apoios financeiros da UE para a energia obtida a partir da biomassa

Muitas das regiões que recebem assistência dos fundos estruturais e de coesão apresentam um elevado potencial de crescimento económico e de criação ou estabilização do emprego através da biomassa. Isto é particularmente verdade para as regiões rurais da Europa Central e Oriental. O baixo custo da mão-de-obra e a elevada disponibilidade dos recursos poderão dar a essas regiões vantagens competitivas na produção de biomassa. O apoio ao desenvolvimento de fontes renováveis e alternativas de energia, como é o caso da produção de biomassa, representa portanto um objectivo importante para os fundos estruturais e de coesão, tal como se afirma na proposta da Comissão para a definição de orientações estratégicas comunitárias para a coesão[37]. Esses fundos poderão dar apoio à reconversão dos agricultores; ao fornecimento de equipamentos aos produtores de biomassa; ao investimento em instalações de produção de biocombustíveis e de outros materiais; à passagem para a utilização de biomassa como combustível por parte dos produtores de electricidade e dos fornecedores de aquecimento colectivo.

A Comissão insta os Estados-Membros e as regiões a garantirem, na preparação dos seus quadros nacionais de referência estratégica e programas operacionais, que os potenciais benefícios da biomassa sejam tomados em consideração de forma aprofundada.

Os investimentos nas explorações ou perto das explorações, nomeadamente para a transformação da biomassa, poderão, tal como a mobilização da biomassa não utilizada pelos proprietários das florestas, receber apoio através da política de desenvolvimento rural A Comissão apresentou uma proposta de orientações estratégicas comunitárias para o desenvolvimento rural que dão saliência às energias renováveis em termos gerais e às cadeias de abastecimento de biomassa em particular[38]. A Comissão encoraja os Estados-Membros a aproveitarem estas oportunidades para o desenvolvimento e diversificação das suas economias rurais, através dos programas nacionais de desenvolvimento rural. A Comissão propõe a criação de um grupo ad hoc específico para analisar as oportunidades no sector da biomassa, no âmbito desses programas.

5.3. Auxílios estatais

Os apoios oficiais à produção e utilização da biomassa devem cumprir a política comunitária de auxílios estatais. A Comissão pode autorizar os auxílios ao investimento e os auxílios ao funcionamento com base no Enquadramento comunitário dos auxílios estatais a favor do ambiente[39]. As regras previstas nesse enquadramento tomam em consideração os efeitos benéficos da energia produzida a partir da biomassa, quando comparada com a produção de energia a partir dos combustíveis fósseis. Os auxílios ao investimento nas zonas assistidas poderão ser considerados compatíveis com o mercado comum, nos termos das Orientações relativas aos auxílios estatais com finalidade regional [40]. Não deverão ocorrer distorções indevidas da concorrência. Ver também o anexo 9.

6. INVESTIGAÇÃO

A proposta da Comissão para o Sétimo Programa-Quadro concede elevada prioridade à investigação no domínio da biomassa. Inclui diversas acções com uma componente ligada à biomassa.

- “Biomassa para os combustíveis, electricidade, aquecimento e arrefecimento”, com o objectivo de desenvolver e demonstrar uma carteira de tecnologias;

- “Redes energéticas inteligentes”, incluindo a integração das instalações de biomassa na rede eléctrica e o fornecimento de biogás e de gás sintético através da rede de gás natural;

- “Ciências da vida e biotecnologia para produtos e processos não-alimentares sustentáveis”, incluindo a utilização da biotecnologia para melhorar a produtividade, sustentabilidade e composição das matérias-primas obtidas a partir da biomassa e para desenvolver novos processos biológicos.

Algumas das áreas de trabalho mais importantes serão:

- o desenvolvimento de uma “plataforma tecnológica dos biocombustíveis”, liderada pela indústria;

- o conceito das “bio-refinarias”, para aproveitar ao máximo todas as partes das plantas;

- a investigação de biocombustíveis de segunda geração, onde se espera um aumento substancial do financiamento comunitário.

A Comissão analisará as melhores formas de conseguir fazer avançar a investigação sobre a optimização das culturas agrícolas e lenhosas para efeitos energéticos, bem como dos processos de transformação.

A Comissão irá apoiar, através do Programa Energia Inteligente para a Europa, a disseminação das técnicas que tenham dado boas provas durante a fase de investigação.

O anexo 12 apresenta mais pormenores nesta matéria.

7. CONCLUSÃO

A Europa tem de sair da sua situação de dependência em relação aos combustíveis fósseis. A biomassa é uma das principais alternativas. Terão de ser desenvolvidas, a nível europeu, medidas economicamente rentáveis em favor da biomassa, de modo a:

- retirar as máximas vantagens da inovação nacional e local;

- apresentar claramente o caminho, organizado à escala europeia; que deverá ser seguido pelas principais indústrias.

- garantir a divisão equitativa dos encargos.

A presente comunicação estabelece um programa coordenado para a acção comunitária, incluindo medidas destinadas a aumentar a procura de biomassa; melhorar o abastecimento; ultrapassar as barreiras técnicas; e desenvolver a investigação.

O desenvolvimento do plano de acção demorou quase um ano. O plano baseia-se numa consulta alargada com as partes interessadas[41]. A resposta que deram à ideia de uma abordagem comunitária vigorosa nesta área foi em grande medida, e muitas vezes apaixonadamente, positiva. O próximo passo será a colocação em prática do programa. O Livro Verde sobre uma política energética europeia coerente, a lançar na próxima Primavera, tratará os progressos realizados e os desenvolvimentos futuros.

ANNEX 1 – Biomass action plan: summary of measures

Biomass for heating and electricity

The Commission will:

- work towards a proposal for Community legislation in 2006 to encourage the use of renewable energy, including biomass, for heating and cooling;

- examine how the directive on energy performance of buildings could be amended to increase incentives for the use of renewable energy;

- study how to improve the performance of household biomass boilers and reduce pollution, with a view to setting requirements in the framework of the eco-design directive;

- encourage district heating scheme owners to modernise them and convert them to biomass fuel;

- encourage Member States that apply a reduced VAT rate to gas and electricity to apply such a rate to district heating too;

- pay close attention to the implementation of the directive on electricity from renewable energy sources;

- encourage Member States to harness the potential of all cost-effective forms of biomass electricity generation;

- encourage Member States to take into account, in their support systems, the fact that, in combined heat and power plants, biomass can provide heat and electricity at the same time.

Transport biofuels

The Commission will:

- Bring forward a report in 2006 in view of a possible revision of the biofuels directive. This report will address the issues of:

- setting national targets for the share of biofuels;

- using biofuels obligations on fuel suppliers;

- ensuring, through certification schemes, that the biofuels used to meet the targets satisfy minimum sustainability requirements.

- Encourage Member States to give favourable treatment to second-generation biofuels in biofuels obligations.

- Bring forward a legislative proposal promoting public procurement of clean and efficient vehicles, including those using high blends of biofuels.

- Examine how biofuel use can count towards the CO2 emission reduction targets for car fleets.

- Pursue a balanced approach in ongoing free trade agreement negotiations with ethanol-producing countries/regions. The EU must respect the interests of domestic producers and EU trading partners, within the context of rising demand for biofuels.

- Propose amendments to the “biodiesel standard” to facilitate the use of a wider range of oils, including imported oils, to produce biodiesel, and allow ethanol to replace methanol in biodiesel production.

- Assess the impact of options to address the issues of limits on the content of ethanol, ether and other oxygenates in petrol; limits on the vapour content of petrol; and limits on the biodiesel content of diesel.

- Ask the relevant industries to explain the technical justification for practices that act as barriers to the introduction of biofuels and monitor the behaviour of these industries to ensure that there is no discrimination against biofuels.

- Support developing countries by helping them to produce biofuels and by maintaining market access conditions that are no less favourable than those provided by the trade agreements currently in force.

- Bring forward a communication dealing specifically with biofuels early in 2006.

Cross-cutting issues

The Commission will:

- Assess the implementation of the energy crop scheme.

- Finance a campaign to inform farmers and forest holders about the properties of energy crops and the opportunities they offer.

- Bring forward a forestry action plan in which energy use of forest material will play an important part.

- Review the impact of the energy use of wood and wood residues on forest based industries.

- Consider how the waste framework legislation could be amended to facilitate the use of clean wastes as fuel.

- Review how the animal by-products legislation could be amended in order to facilitate the authorisation and approval of alternative processes for the production of biogas and other biofuels

- Encourage the European Committee for Standardisation to speed up work on standards for the quality of biomass fuels.

- Explore how to develop a European spot market in pellets and chips.

- Encourage Member States to establish national biomass action plans.

Encourage Member States and regions to ensure that the benefits of biomass are taken into account when preparing their national reference frameworks and operational plans under the cohesion policy and the rural development policy.

Research

The Commission will:

- Continue to encourage the development of an industry-led “Biofuel technology platform”.

- Consider how best to take forward research into the optimisation of agricultural and woody crops for energy purposes, and biomass to energy conversion processes.

- Give a high priority to research into the “bio-refinery” concept, finding valuable uses for all parts of the plant.

- Give a high priority to research into second-generation biofuels, with an aim of improving their efficiency and cost-effectiveness; a substantial increase in Community funding is expected.

ANNEX 2 – EU biomass production potential

The table assesses the EU’s potential to produce biomass for energy use. These estimates are conservative because they are based on the following assumptions:

- no effect on domestic food production for domestic use;

- no increase in pressure on farmland and forest biodiversity;

- no increase in environmental pressure on soil and water resources;

- no ploughing of previously unploughed permanent grassland;

- a shift towards more environmentally friendly farming, with some areas set aside as ecological stepping stones;

- the rate of biomass extraction from forests adapted to local soil nutrient balance and erosion risks.

The first column of the table shows the quantities of EU-produced biomass used for energy purposes today. The following columns show the potential contribution in 2010, 2020 and 2030. The potential for 2010 is 2½ times the contribution today. The potential for 2020 is 3 to 3½ times the contribution today, and the potential for 2030 is 3½ to 4½ times that of today. Forests, wastes and agriculture all make a big contribution to this potential for growth. The increase from forestry comes from an increase both in fellings and in the use of residues. The increase from agriculture is driven by the reform of the common agricultural policy.

EU biomass production potential[42]

Mtoe | Biomass consumption, 2003 | Potential, 2010 | Potential, 2020 | Potential, 2030 |

Wood direct from forest (increment and residues) | 67[43] | 43 | 39-45 | 39-72 |

Organic wastes, wood industry residues, agricultural and food processing residues, manure | 100 | 100 | 102 |

Energy crops from agriculture | 2 | 43-46 | 76-94 | 102-142 |

TOTAL | 69 | 186-189 | 215-239 | 243-316 |

It should be underlined that due to lack of data, this table only covers the EU25. It does not include the contribution of Bulgaria and Romania. These countries will be EU members by 2010, and have high biomass production potential. Nor does the table include imports. Most regions of the world have higher potential to produce biomass, relative to their energy consumption, than the EU. Potential EU consumption is therefore significantly higher than these figures would suggest.

ANNEX 3 – A scenario to increase biomass energy using current technologies

mtoe | Current (2003) | Future (2010) | Difference |

Electricity | 20 | 55 | 35 |

Heat | 48 | 75 | 27 |

Transport | 1 | 19 | 18 |

TOTAL | 69 | 149 | 80 |

This scenario is drawn from the 2004 communication “The share of renewable energy”, expanded to the EU25. It is compatible with achievement of the Community’s targets of: a 12% overall share of renewable energy; a 21% share of renewable energy in electricity generation; and a 5.75% market share for biofuels.

The Commission believes this scenario can be achieved in the three sectors sectors – electricity, heat and transport – through the measures in this action plan – if not in 2010, the year for which these targets were set, then within a year or two of that date.

This is the scenario that serves as the basis for the impact assessment on this communication.

ANNEX 4 – Environmental impacts

Biomass has three main environmental impacts:

- Avoidance of greenhouse gas emissions

The Commission estimates that the scenario in Annex 3, if achieved, would reduce greenhouse gas emissions by 209 million tonnes of CO2-eq per year.

- Environmental impact of the production of raw materials

Agriculture can have significant effects on the environment, positive and negative. In general, the level of harmful effects varies with the intensity of the agriculture. This is true whether crops are used for food or energy purposes. It can be particularly harmful to bring previously uncultivated land (permanent grassland) into agricultural use.

On the other hand, using grass cuttings from such land for biomass production can help to prevent the decline of biodiversity on species-rich grasslands due to land abandonment.

Energy crop cultivation can help to improve the overall profitability of the farm business, contributing to the maintenance of farming in areas where this may be useful from an environmental (or wider sustainable development) perspective. This is important in a number of regions to improve soil stability and prevent irreversible landslide damage. Another potential positive aspect of energy crop production is its contribution to the establishment of new crop rotation systems that are more advantageous from a wider environmental point of view (for example, alternatives to the monoculture of maize).

If energy crops are grown on agricultural land that was previously used for food production, the change in environmental pressure depends on which biomass crops are cultivated.

The plantation of tree crops to enhance soil cover on degraded land can also have a globally positive impact. However this should not take place on steppic or mountain habitats that have a high biodiversity value.

The use of wastes and residues for energy purposes often gives an environmental bonus compared with other means of disposal. For forest residues, the environmental impact depends on the local soil nutrient balance and the risk of erosion, which may require a certain amount of the residues (especially foliage) to be left on site. In some regions, however, their extraction help to reduce the risk of fire.

- Environmental impact of the use of biomass

Like fossil fuels, biomass emits pollutants. Advanced emission control equipment can virtually eliminate this, however. Such equipment is already standard in transport and, increasingly, in electricity generation. The situation is less favourable with heating, particularly home heating.

This analysis points to two priorities:

- the need to guarantee that site-specific environmental requirements are observed when producing biomass – this will be addressed in the Commission’s 2006 report on the implementation of the biofuels directive

- improving the pollution performance of household biomass burning – this will be addressed as part of the measures proposed in this action plan to develop biomass heating.

The Commission will also take steps to improve understanding of the costs and environmental impacts of all transport fuels, including conventional biofuels.

ANNEX 5 – Renewable energy and the directive on the energy performance of buildings

The directive on the energy performance of buildings[44] requires Member States, when calculating the energy performance of buildings, to take into account the positive influence of "heating and electricity systems based on renewable energy sources". The relative importance attached to different kinds of renewable energy will be decided by the Member States in their transposition of the directive, allowing them, in principle, to attach substantial premia to the use of biomass in their calculation methods.

Moreover, for new buildings larger than 1000 square meters, Member States are required to carry out technical, environmental and economic feasibility studies on the use of decentralised energy supply systems based on renewable energy, on CHP and on district or block heating or cooling. This also gives Member States considerable leeway to promote biomass. In many Member States, biomass heating is one of the most practical and cost-effective options.

During 2006, taking into account comments received on the energy efficiency Green Paper[45], the Commission will decide how it thinks the directive should be further developed. The possibilities it will consider could include:

- amending the annex to the directive to ensure that calculation procedures allow greater weight and more active promotion to be given to biomass heating and other forms of renewable energy;

- reducing the thresholds in the directive so that many more new buildings would have to be considered for renewable energy before construction starts, and many more renovation projects would need to meet minimum efficiency requirements based on energy performance calculations that include the positive influence of renewable energy sources, including biomass;

- setting EU-wide minimum energy performance standards and criteria that could also promote the use of biomass where it is technically feasible and economically interesting.

At the same time, the Commission will examine other options for development of the directive, including inter alia the use of energy-efficient building materials.

ANNEX 6 – Biomass for electricity generation

Electricity can be generated from all types of biomass. Several reliable technologies are available. These technologies can be used to “co-fire” biomass, by mixing it with coal or natural gas, or to run freestanding power stations.

Large centralised power plants, like those used to burn straw in Denmark or forest residues in Finland, offer the best economic performance, especially if they are also used for heat (combined heat and power, CHP). Co-firing biomass with coal is another good centralised option in existing large power plants.

It is more efficient, when electricity is generated from biomass, to make use of the heat that is produced as well. Member States can support this in the design of support schemes for electricity generated from renewable energy sources, or through CHP support schemes developed in accordance with the harmonised European efficiency reference values for CHP which will come into force in February 2006 in accordance with the CHP directive.[46]

Smaller decentralised plants burning solid biomass or biogas tend to cost more, but often have advantages for the environment and for rural development. The EU structural funds or its rural development programme can be used to study their optimal location in relation to biomass availability, transport infrastructure, grid connection possible and labour markets.

The Commission encourages Member States to harness the potential of all cost-effective forms of biomass electricity generation rather than focusing on one form alone.

ANNEX 7 – Transport biofuels: background

In 2001 the Commission adopted a communication on alternative fuels for road transport, identifying three fuels (biofuels, natural gas and hydrogen) that could play a big part.[47] It was accompanied by legislative proposals requiring Member States to promote biofuels and making it easier to use fuel tax exemptions to do this. These proposals were adopted, in amended form, in 2003.[48]

Since the adoption of the communication the market share of biofuels has increased from 0.2% in 2000 to 0.8% in 2004. About 90% of biofuel consumption is covered by domestic raw materials, 10% by imports. Out of the EU25’s total arable land of 97 million hectares, about 1.8 million hectares were used for producing raw materials for biofuels in 2005. As expected, there has been a shift towards low blends and away from the high blends or pure biofuels that prevailed in 2001. Biodiesel’s share of total biofuel consumption has stayed at 70 to 80%.

The rise in the oil price and a growing interest in new markets for agricultural products in the light of the reform of the common agricultural policy - and the sugar regime in particular - have led to a wider appreciation of biofuels’ advantages at European level and have provoked widespread discussion in Member States.

“Second-generation” biofuels from wood and wastes are currently more expensive than first-generation biofuels from agricultural crops and have not yet been fully demonstrated on a commercial scale. Once that has been achieved, they will widen the range of raw materials that can be used and could also further improve biofuels’ environmental profile. It should be underlined, however, that first-generation biofuels already offer significant benefits and that any significant contribution from second-generation biofuels will not materialise until after 2010. Therefore, the emphasis of this action plan is on first-generation biofuels.

ANNEX 8 – Biofuels: progress at national level

Member State | Market share 2003 | National indicative target for 2005 | Targeted increase, 2003-2005 |

AT | 0.06% | 2.5% | +2.44% |

BE | 0 | 2% | +2% |

CY | 0 | 1% | +1% |

CZ | 1.12% | 3.7% (2006) | + 1.72% (assuming linear path) |

DK | 0 | 0% | +0% |

EE | 0 | 2% | +2% |

FI | 0.1% | 0.1% | +0% |

FR | 0.68% | 2% | +1.32% |

DE | 1.18% | 2% | +0.82% |

GR | 0 | 0.7% | +0.7% |

HU | 0 | 0.4-0.6% | +0.4-0.6% |

IE | 0 | 0.06% | +0.06% |

IT | 0.5% | 1% | +0,5% |

LA | 0.21% | 2% | +1.79% |

LI | 0 (assumed) | 2% | +2% |

LU | 0 (assumed) | not yet reported, assume 0 | not yet reported |

MT | 0.02% | 0.3% | +0.28% |

NL | 0.03% | 2% (2006) | +0% (promotional measures will come into force from January 2006) |

PL | 0.49% | 0.5% | +0.01% |

PT | 0 | 2% | +2% |

SK | 0.14% | 2% | +1.86% |

SI | 0 (assumed) | 0.65% | +0.65% |

ES | 0.76% | 2% | +1.24% |

SV | 1.32% | 3% | +1.68% |

UK | 0.03% | 0.3% | +0.27% |

EU25 | 0.6% | 1.4% | +0.8% |

Sources

2003 : National reports under the biofuels directive except Belgium: Eurostat (figure for 2002) and Italy: EurObserv’Er

2005 : National reports under the biofuels directive.

National reports under the biofuels directive are available at http://europa.eu.int/comm/energy/res/legislation/biofuels_en.htm

ANNEX 9 – Implementing the biofuels directive: fuel tax exemptions and biofuel obligations

Member States are using two main tools to implement the Biofuels Directive: tax exemptions and biofuels obligations.

Tax exemptions

Member States make a good deal of use of fiscal policy to promote biofuels. The energy taxation directive establishes the framework for the consequent tax exemptions.

Under Article 16 of this directive, Member States can reduce taxes on biofuels or completely exempt them from taxes, without needing the Commission’s prior approval (on fiscal grounds), as long as they respect certain strict conditions.

The tax reduction or exemption cannot exceed the amount of tax which would otherwise be payable on the volume of biofuel present in the product that is eligible for the reduction. In addition, it should be emphasised that the tax reductions or exemptions introduced by Member States must be modified in line with changes in the price of raw materials, in order to ensure that the reductions do not lead to overcompensation of the additional costs of biofuel production. The fiscal advantage (exemption or reduction) granted to a fuel of renewable origin cannot exceed the difference between this fuel and an equivalent fossil fuel.

These fiscal measures no longer need the prior, unanimous approval of other Member States. However, they remain subject to state aid control. The Commission has taken a generally favourable attitude to the notifications received. The exemptions that have received state aid approval are listed in the table.

Table - Biofuel tax exemptions that have received state aid approval

Case | Biofuels concerned | reference |

C64/2000 FR | ETBE | OJ L 94 of 10.4.03, p.1 |

N461/01 IT | Biodiesel | OJ C 146 of 19.6.02,p.6 |

N480/02 SE | All CO2-neutral fuels | OJ C 33 of 6.2.2004, p.7 |

N804/01 UK | Biodiesel | OJ C 238 of 3.10.02, p.10 |

N512/02 SE | Biofuel pilot projects | OJ C 75 of 27.3.03, p.2 |

N685/02 DE | Bioethanol, biodiesel and vegetable oils | OJ C 86 of 6.4.04, p.15 |

N717/02 IT | Bioethanol and ETBE | OJ C 16 of 22.1.04, p.22 |

N407/03 UK | Bioethanol | OJ C 193 of 28.4.05, p.17 |

NN43/04 AT | Bioethanol, biodiesel and vegetable oils | Not published yet |

N187/04 SE | Biofuel pilot projects | Not published yet |

N206/04 CZ | Biodiesel | Not published yet |

N427/04 HU | Biodiesel and ETBE | OJ C133 of 31.5.05, p.2 |

N582/04 IT | Biodiesel (prolongation of N461/01) | Not published yet |

N599/04 IRL | Biodiesel, bioethanol and vegetable oils | OJ C 98 of 22.4.05, p.10 |

N44/05 LT | Biodiesel, bioethanol, vegetable oils and ETBE | Not published yet |

N223/05 CZ | Biodiesel | Not published yet |

N314/05 EE | Bioethanol, biodiesel and vegetable oils | Not published yet |

All decisions not to raise objections can be found on the Commission’s website: http://europa.eu.int/comm/secretariat_general/sgb/droit_com/index_en.htm#aides

However, the Commission is aware that the system of tax exemptions, as implemented, is giving rise to three problems:

1) The risk of unnecessarily high cost to the state and unnecessarily high payments to undertakings . Biofuels producers have different costs but, under the tax exemption system, all receive the same level of compensation. If the level of compensation is enough to bring high-cost producers into the market, there is a risk that it overcompensates lower-cost producers. The risk of overcompensation appears to be widespread, both within the Community and internationally. The services of the Commission are presently looking into several possibilities, including the limitation of detaxation to undenatured bioethanol (which is subject to the highest import duty) and/or making the rate of detaxation depend on the raw material used.

2) Insufficient investor certainty . The Energy Taxation Directive limits the duration of tax exemptions to six years. Among the schemes adopted to date, only the French scheme lasts as long as this. In general, Member States could consider taking coordinated measures to create a stable investment climate, in particular by making full use of the possibility under Community law to adopt six-year tax reliefs and to arrange for their extension well before the term has expired. However, stakeholder consultation has clarified that even this period of certainty is less than needed for some investments, particularly in second-generation biofuels but also in first-generation ethanol plants.

3) While some Member States use open aid schemes, available to all, others have opted for a quota-based approach , limiting the quantity of biofuel that will qualify for the tax exemption and setting up a process to choose the firms that will benefit from it. The Commission sees risks of non-transparency, arbitrary allocation and increased market concentration in quota-based schemes.

Biofuels obligations

At present there is increasing interest among Member States in the use of biofuel obligations , requiring fuel supply companies to incorporate a given percentage of biofuels in the fuel they place on the national market or face a penalty.[49] Obligations are in force in France and Austria and will come into force in Slovenia in 2006 and in the Czech Republic and the Netherlands in 2007. The UK and Germany have recently said that they will introduce them. Schemes vary in relation to: the point in the distribution chain where the obligation is placed; whether individual types of biofuel are distinguished; how compliance is monitored; whether they are implemented through a system of tradable certificates; and whether they coexist with fuel tax exemptions.

Obligations have a number of advantages. They place responsibility for addressing the problem of excessive oil dependence on the sector where it originates – while implying only a negligible increase in the cost of fuel. They give fuel supply companies an incentive to push down the cost of biofuels – and it follows that they are more cost-efficient. They can include a premium for second-generation biofuels. Unlike state aids, they are not subject to a time limit and so could be a good way to establish the stable framework that investors want.

Compatibility between obligations and exemptions

It is important to point out that Article 16.6 of the energy taxation directive states that if Community law requires Member States to comply with legally binding obligations requiring them to place a minimum proportion of biofuels, the option for Member States to reduce excise duties under fiscal control (that is, without needing specific authorisation from the Council under unanimity) would disappear.

ANNEX 10 – Trade in bioethanol

1. Current trade in bioethanol

There is currently no specific customs classification for bioethanol for biofuel production. This product is traded under code 22 07 which covers both denatured (CN 22 07 20) and undenatured alcohol (CN 22 07 10). Both denatured and undenatured alcohol can then be used for biofuel production. It is not possible to establish from trade data whether or not imported alcohol is used in the fuel ethanol sector in the EU.

An import duty of €19.2/hl is levied on undenatured alcohol, while an import duty of €10.2/hl applies to denatured alcohol.

Table I

Imports under code 2207 (in hl) |

Av. 1999-2001 | Av. 2002-04 | % of total (02-04) |

Undenatured alcohol | 1 167 935 | 2 383 239 | 93% |

Denatured alcohol | 279 904 | 180 988 | 7% |

Total | 1 447 839 | 2 564 226 | 100% |

Overall imports of alcohol under code 2207 averaged 2 564 226 hl over the 2002-04 period, up from 1 447 839 hl over 1999-2001. Over 93% of them came under code 22 07 10 (undenatured alcohol).

The principal trade trends are summarised in Table II:

Table II

Total imports of alcohol under code 22 07 (in hl) by type of duty |

2002 | 2003 | 2004 | Av. 2002-04 | % of total |

Reduced duty | 227 285 | 182 940 | 288 364 | 232 863 | 9% |

Duty-free | 980 693 | 2 027 632 | 1 709 282 | 1 572 536 | 61% |

MFN | 657 011 | 494 771 | 1 124 699 | 758 827 | 30% |

TOTAL | 1 864 989 | 2 705 344 | 3 122 345 | 2 564 226 | 100% |

a) average imports of bioethanol increased by 77% over 2002-2004 compared to the previous three-year period (1999-2001) when they totalled 1 447 839 hl;

b) over that period 70% of these imports were traded under preferential conditions, out of which almost 61% were duty-free, while 9% benefited from some type of duty reduction;

c) 30% of EU trade under code 22 07 takes place under MFN (most favoured nation) conditions.

With respect to the largest exporting countries:

a) over the 2002-2004 period, Pakistan was the largest duty-free exporter with an average of 501 745 hl followed, at a distance, by Guatemala with 223 782 hl;

b) Brazil is the only country capable of exporting large quantities as MFN with an average of 649 640 hl over the same period, with the second MFN exporter, the USA, on only 20 109 hl;

c) one country - Ukraine - accounts for the vast majority of imports at reduced duty with 107 711 hl over the 2002-04 period. Egypt came second with over 43 000 hl.

2. Preferential imports of bioethanol into the EU

The EU’s preferential trade basically comes under two regimes: the Generalised System of Preferences (including, among others, the Everything But Arms (EBA) initiative) and the Cotonou Agreement. The main preferences accorded by each of them are summarised in Table III and described in detail in the following sections.

Table III

Import conditions under code 22 07 under EU’s main preferential agreements |

GSP normal | GSP+ | EBA | Cotonou |

Duty reduction | 15% up to 31.12.2005 | 0% as of 1.1.2006 | 100% | 100% | 100% |

Quantitative restrictions | NO | NO | NO | NO |

Beneficiaries | All GSP beneficiaries if not graduated. | Bolivia, Colombia, Costa Rica, Ecuador, Guatemala, Honduras, Panama, Peru, El Salvador, Venezuela, Georgia, Sri Lanka and Mongolia | LDCs | ACPs |

2.1. GSP

The current Council Regulation (Regulation (EC) 2501/2001), in force until 31 December 2005, classifies denatured and undenatured alcohol under code 22 07 as a sensitive product, According to article 7.4 of the regulation, imports of this alcohol from all GSP beneficiary countries qualify for a 15% reduction of the MFN duty.[50]

Under the special drugs regime envisaged by Council Regulation (EC) 2501/2001, which was in force from the early nineties until repealed on - 30 June 2005, exports from a number of countries (Bolivia, Colombia, Costa Rica, Ecuador, Guatemala, Honduras, Nicaragua, Panama, Peru, Pakistan, El Salvador and Venezuela) qualified for duty-free access under code 22 07.

The new GSP Regulation (Council Regulation (EC) No 980/2005 of 27.06.2005), which will apply from 1 January 2006 to 31 December 2008, no longer envisages any tariff reduction for either denatured or undenatured alcohol under code 22 07 (still classified as a sensitive product). This Regulation put in place a special incentive arrangement for sustainable development and good governance (the new GSP + incentive scheme) which has been applying on a provisional basis since 1 July 2005 and will apply on a permanent basis from 1 January 2006 to 31 December 2008. This new incentive arrangement grants unlimited and duty free access (suspension of Common Customs Tariff duties) to denatured or undenatured alcohol under code 2207. It includes all the countries which already benefited from the previous drugs scheme, with the exception of Pakistan which is subject to the full MFN duty.

The new incentive arrangement now also includes Georgia, Sri Lanka and Mongolia, which have not so far exported bioethanol to the EU.

Moreover, a special arrangement for least developed countries (the EBA initiative) provided for by the new GSP Regulation offers an unlimited duty-free access to denatured or undenatured alcohol under code 2207.

2.2. Cotonou Agreement

Under the Cotonou Agreement, ACP countries qualify for duty-free access for denatured and undenatured alcohol under code 22 07 with the sole exception of South Africa. According to Regulation (EC) 2501/2001, South Africa enjoys a 15% reduction in customs duties. From 1 January 2006 it will therefore have to pay full MFN duty. During the ongoing European Partnership Agreement (EPA) negotiations with ACP countries, the customs duties of alcohol under code 22 07 will need to be negotiated.

2.3. Other countries with preferential arrangements

Egypt currently has unlimited duty-free access to the EU under the Euro-Mediterranean Agreement. Before that, it qualified for a 15% reduction under the GSP scheme.

Norway, which ranks among the top ten exporters with a total of 89 375 hl under code 22 07 in 2004, has been granted duty-free access to the EU within the framework of tariff rate quotas (TRQs) since the mid-nineties. In 2005 the TRQ will total 164 000 hl for exports under code 22 07 10 (up from 134 000 hl the previous year) and 14 340 hl under code 22 07 20, up from 3 340 hl.

3. Trade analysis

Table IV sums up trade under the various preferential arrangements.

Table IV

Imports under preferential conditions 2002 – 2004 (in hl) |

2002 | 2003 | 2004 | Av. 2002-04 | % of total trade 2002-04 |

GSP normal | 227 285 | 182 940 | 288 364 | 232 863 | 9% |

GSP + | 553 156 | 1 569 005 | 1 412 896 | 1 178 352 | 47.5% |

ACP | 291 055 | 268 784 | 154 663 | 238 167 | 9% |

EBA | 30 018 | 86 247 | 18 956 | 45 074 | 1.5% |

Others | 106 464 | 103 597 | 122 768 | 110 943 | 4% |

Total preferential | 1 207 978 | 2 210 573 | 1 997 646 | 1 805 399 | 70% |

Total MFN | 657 011 | 494 771 | 1 124 699 | 758 827 | 30% |

Grand total | 1 864 989 | 2 705 344 | 3 122 345 | 2 564 226 | 100% |

3.1. GSP

Trade data for 2001–2004 show a dramatic increase in bioethanol exports from the countries benefiting from the special drugs regime in previous years. Although these countries have benefited from the same regime since the 1990s, the unlimited duty-free access enjoyed under it at a moment of rising demand for alcohol under code 22 07 can be considered the single most important factor underlying the doubling of bioethanol exports from these countries to the EU. All major exporters under code 22 07 over the last three years benefit from such a scheme: Pakistan, Guatemala, Peru, Bolivia, Ecuador, Nicaragua and Panama.

Altogether, exports of ethanol from the GSP plus beneficiaries totalled 1 412 896 hl in 2004: practically all duty-free exports to the EU and 46% of all exports under code 22 07 to the EU over the 2002-2004 period.

Thanks to its lower production costs, Pakistan took a big lead over the other GSP beneficiaries with 1 008 656 hl in 2004 (the second largest exporter in the world) followed, at a distance, by Guatemala with over 250 000 hl.

Under the new GSP an exclusion of Pakistan from the list of countries having unlimited duty-free access to the EU market, will remove from the market one of the most aggressive and competitive producers. All old direct competitors under the GSP drugs regime will continue to enjoy duty-free access to the EU market and might be expected to fill the gap left by Pakistan as they have relatively low production costs too.

Nevertheless, at US$14.52/hl, Pakistan has production costs closer to Brazil’s which, with production costs of US$13.55/hl, manages to export substantial quantities to the EU paying the full MFN duty. Pakistan might therefore be expected to continue to be able to export significant quantities of ethanol to the EU, albeit not at the same pace as before, thus utilising the increased production capacity built over the last couple of years.

By contrast, the 15% reduction offered by the normal GSP regime opened access for approximately 9% of exports of the same product to the EU market. Unlike the obvious favourable impact of the GSP drugs regime, the impact of the 15% duty reduction is more difficult to assess. The two largest exporting countries benefiting from such a reduction are Ukraine and South Africa. In the case of Ukraine, the introduction of the 15% reduction coincided with a dramatic increase in exports over the 2002-2004 period. For South Africa, on the other hand, the last two years showed exports stable on approximately 50 000 hl, with a dramatic decrease over the 2000-2001 period. Under these conditions, it is difficult to predict the impact of removal of the 15% import duty reduction although it seems fair to say that even such a small reduction seemed to provide a competitive advantage over the countries paying full duty.

3.2. EBA

So far, exports of bioethanol from countries benefiting from the special arrangement for the least developed countries (the EBA initiative) under the GSP (EC) Regulation 980/2005 to the EU have been negligible and have primarily come from one country - the Democratic Republic of Congo - which already qualified for duty-free access as an ACP country. At the moment, the Democratic Republic of Congo is the only LDC with sizeable, though erratic, exports of alcohol to the EU under code 22 07 since 1999. In 2004 exports totalled 18 956 hl after peaking at 86 246 hl the year before.

It is fair to recognise, however, that EBA dates back to only 2001 and that some of the countries which did not have duty-free access under other earlier regimes (notably Bangladesh, Laos, Cambodia, Afghanistan and Nepal) might find new ways of access to the EU in the medium or longer term.

New opportunities might emerge in these countries - which generally do not produce (or are not very competitive at producing) sugar cane or any other raw material for bioethanol production from their own resources – in the form of processing molasses imported from their competitive, sugar-producing neighbours. This might be the case with Cambodia which could use raw material from Thailand, or with Bangladesh and Nepal which might process raw material from India. At the moment it is difficult to quantify future potential production from these countries but investments are known to have been made in some of them, like Bangladesh.

In this respect it is important to stress that under Council Regulation (EC) 2501/2001, imports are subject to the GSP rules of origin plus regional cumulation. The Commission is currently examining a proposal for a new regulation which would introduce the principle of determination of the preferential rules of origin based on the value-added method. Distillation should continue to be considered an operation with sufficient added value to confer origin on the finished product.

3.3. Cotonou Agreement

- On the whole, ACP exports to the EU under code 22 07 have so far been limited. Over the last couple of years they have, however, been fairly stable at 238 167 hl despite a low of 154 663 hl in 2004 (excluding South Africa: 48 728 hl) .

- Swaziland and Zimbabwe are by far the leading exporters with an average of 85 562 hl and 120 261 hl respectively over the 2002-04 period. A number of ACP countries are likely to consider bioethanol production as an alternative to sugar production as part of the restructuring resulting from the EU sugar reform. However, bioethanol production from sugar cane might remain relatively low and limited only to countries where sugar production is competitive, such as Swaziland and Zimbabwe, which have production costs close to Brazil’s and India’s and which are already exporting substantial quantities to the EU under code 22 07.

ANNEX 11 – Achieving the 5.75% biofuels target: the balance between domestic production and imports

One of the key variables in biofuel policy is the balance between domestic production and imports. Biofuels and their raw materials are traded on world markets. An autarkic approach to meeting the EU’s needs is neither possible nor desirable. But the Union still has a degree of discretion about how far to encourage domestic production and/or imports. The purpose of this annex is to set out the facts and assess the pros and cons of different options.

Tools for shifting the balance between domestic production and imports

The starting point is to understand the tools that can be used to shift the balance between domestic production and imports.

In the case of bioethanol , the main tool for shifting the balance is the duty paid. EU-produced bioethanol can be expected to cost about €900/toe by 2010 (costs are currently higher because most production plants are rather small). The cheapest imported bioethanol (from Brazil) can be bought in Europe at around €680/toe. Bioethanol imports are subject to duties ranging from zero (for imports from certain countries and/or under certain conditions) to about €376/toe (for undenatured ethanol imported at the maximum tariff). Consequently, imported bioethanol is cheaper than European if no import duty is paid, and more expensive if the maximum tariff is paid. If all tariffs on bioethanol were removed, it would be difficult for domestic producers to stay in the market.

In Germany, only fuel containing undenatured ethanol is eligible for fuel tax exemption. Even imported bioethanol needs the exemption in order to be price-competitive with petrol (currently around €457/toe[51]).

More details on trade arrangements affecting bioethanol are given in Annex 10.

Imports of biodiesel or of the vegetable oils used to make it are subject to low or zero tariffs.

Biodiesel can be made from most types of vegetable oil, notably rape oil, soya oil and palm oil.

EU rape oil competes at the world market price. Imported soya oil and palm oil are cheaper. However, biodiesel made predominantly from one or another of these oils does not comply with the “biodiesel” or “FAME” standard, EN14214 – and it needs to comply with this standard if it is to be sold for use in unadapted vehicles. Biodiesel made predominantly from rape oil does comply with the standard, even if blended with a small amount – around 25% – of one of the other oils.

The Commission believes that the limits in standard EN14214 could be adapted to allow a higher proportion of other oils – perhaps 50% – to be used in biodiesel.

Scenarios for assessment

Three theoretical models must be assessed:

1) Minimum share for imports;

2) Maximum share for imports;

3) Balanced approach.

Scenario 1: Minimum share for imports

The first point to assess is the technical feasibility of this option and, in particular, whether sufficient land is available to produce the necessary crops.

The Commission estimates that in order to meet the biofuel directive’s objective of a 5.75% share of the petrol and diesel market in 2010, 18.6 mtoe of biofuels will be needed. Most domestic biofuel production will come from three crops: sugarbeet and cereals (for bioethanol, replacing petrol) and rape (for biodiesel, replacing diesel). Average biofuel yields per hectare vary widely, depending on the characteristics of the crops, the soil and the climate. The following averages have been assumed:

Sugarbeet | 2.9 toe/ha |

Cereals | 0.9 toe/ha |

Rape | 1.1 toe/ha |

On the basis of this it can be estimated that about 17 million hectares of EU agricultural land would be needed to meet the directive’s objective entirely from domestic production.

This can be compared with total EU arable land of 97 million hectares.

In the present context where crop production per hectare is rising steadily and the reform of the sugar regime will release resources currently used for food production, this appears to be technically feasible in principle. The Union is technically capable of meeting its biofuels targets for 2010 from domestic production, although it should be noted that there are agronomic limits on the cultivation of individual crops (e.g. the frequency with which rape can be included in crop rotation cycles)..

However, it should be pointed out that: existing trade arrangements and World Trade Organisation commitments do not permit the EU to close the door to imports of biofuels and biofuel raw materials; these materials are already being imported today; and there is no proposal to increase tariff protection for these goods. Therefore, the scenario of 100% domestic production is a theoretical one and would not be possible in practice.

Even interpreted as “minimum imports” rather than “no imports”, this scenario would have two disadvantages.

First, it would expose the EU food and biofuels sectors to excessive increases in the price of raw materials. By creating a new market that could be served only by domestically produced crops, the biofuels policy would drive up their prices, particularly for cereals and rape which are currently traded at world market prices.

Second, it would do nothing to encourage the production of biofuels elsewhere in the world where the creation of new biofuels industries – partly serving foreign customers like the EU, partly domestic needs – can bring benefits to developing countries. In addition, to the extent that increased consumption of biofuels is a tool to exercise downward pressure on the oil price, this is a global phenomenon – and the EU therefore has an interest in promoting biofuel production globally.

Scenario 2: Maximum share for imports

By encouraging amendment of the biodiesel standard, the EU would ensure that the maximum proportion of its biodiesel consumption is met from imports. The Commission believes that, with an appropriate amendment, imported vegetable oils would capture about 50% of the biodiesel market. However, much of the processing is likely to continue to take place in the Union.

By removing all tariffs on bioethanol, the EU would ensure that the maximum share of its bioethanol consumption is met from imports. The Commission believes that bioethanol made from agricultural crops in Europe will not be able to compete on price with bioethanol made from sugar cane from tropical countries. Therefore, the result of this policy would be that 100% of EU bioethanol consumption would be covered by imports. There would be no domestic bioethanol industry.

On the hypothesis that 56% of biofuel consumption will be biodiesel (in line with diesel’s current share of the petrol and diesel market), these steps would lead to imported biofuels (or their raw materials) taking about 70% of the EU biofuel market.

For biodiesel, this approach has merit. It would enable both EU producers and developing countries to benefit, in a balanced way, from the growth of biofuel consumption in the EU. It is an appropriate response to the limits on expansion of rape production in the EU. An EU industry would continue to exist.

But this strategy would not address the serious concerns that the present expansion of vegetable oil production – such as palm oil and soya – in developing countries could be responsible for destruction of natural habitats and deforestation and that increased demand from the EU could translate into an increased rate of deforestation. If this is true, it would be an important factor to set against the greenhouse gas emission reductions that the increased use of biofuels would deliver. If such doubts cannot be removed, public support for biofuels will be undermined. Therefore, it would be wrong to maximise the import of biofuels/raw materials for biofuels without paying attention to the environmental impact of their cultivation.

For bioethanol, this is not a good approach for the EU to follow. If the EU obtains its bioethanol from imports rather than domestic production, the cost will be about 25% lower and the global greenhouse gas benefits will be greater. However, there will be no rural development benefits for Europe. And the security of supply benefits will be less, because Europe will not have the advantage of developing a new domestic fuel source. From a practical point of view, it must be remembered that implementation of the Union’s biofuel policy depends on the efforts of Member States. If there is no prospect of domestic involvement in the production of bioethanol, it is likely that many of them will focus their efforts on biodiesel instead – eroding the market into which developing countries hope to sell. Finally, if the least developed countries are not able to compete on price on the world sugar market, there is no reason to believe that they will be able to do so on the world bioethanol market if trade is made completely free.

Environmental concerns are also raised about the cultivation of sugar cane for bioethanol. Against this, it is argued that most bioethanol comes and will continue to come from land that has been under cultivation for a long time.

Scenario 3 –Balanced approach

The Commission believes that an intermediate approach would avoid the disadvantages of the first two options.

This approach should have five elements:

i) Amendment of standard EN14214 to facilitate the use of a wider range of vegetable oils for biodiesel, to the extent feasible without significant ill effects on fuel performance;

ii) Maintain market access conditions for imported bioethanol that are no less favourable than those provided by trade agreements currently in force;[52]

iii) Pursue a balanced approach in ongoing free trade agreement negotiations with ethanol-producing countries/regions. The EU must respect the interests of domestic producers and EU trading partners, within the context of rising demand for biofuels; [53]

iv) Address the issue of amending the biofuels directive so that only biofuels whose cultivation complies with minimum sustainability standards count towards its targets;

v) Support developing countries in the production of biofuels.

The system of certificates would need to apply in a non-discriminatory way to domestically produced biofuels and imports. In particular, it would need to be non-discriminatory in relation to the requirements of the World Trade Organisation. It would need to be developed in line with other initiatives for certification of agricultural and forestry produce and could require EU support in its introduction. The potential impact on developing countries would be taken into consideration before any system of certification is introduced.

The Commission estimates that under this approach:

- price increases for agricultural crops could be kept in an acceptable range;

- a sufficient share of the market for biodiesel raw materials, a majority of the market for biodiesel production, and a majority of the market for bioethanol would remain domestic;

- least-developed countries, including those for whom the reform of the EU sugar regime is a particular challenge and whose bioethanol is not subject to tariffs, would gain a share of the EU biofuel market;

- the promotion of biofuels would not cause deforestation and habitat destruction.

Notes on the production of biofuels in developing countries

Support for developing countries in the production of biofuels is in the EU’s interest both for development policy reasons and to maximise downward pressure on the oil price. It could contribute in specific countries, as in the EU but often in more critical situations, to greater energy security and access to energy, improved foreign exchange and trade balances, economic development and employment in rural regions, and environmental benefits. To the extent that the development of biofuel consumption will exert downward pressure on the global oil price, consumption in developing countries will contribute in the same way that European consumption does. EU development policy, as well as other EU policies such as research and energy and the clean development mechanism under the Kyoto Protocol, offers a number of instruments that can be used.

The positive and negative impacts of cash crops for biofuels on food production and food security have been the subject of extensive discussion. The costs and benefits depend on the site, the way the crop is produced and how it is integrated in the local production system. There is no general rule. Sugar cane has almost always been cultivated as a cash crop in developing countries, and a switch in the end-product from sugar to ethanol should not affect the food supply of the region. Some biofuel raw materials like jatropha could allow the sustainable use of low-value land and, in the process, contribute (via earnings) to an improvement in food security.

ANNEX 12 – The Commission’s perspective on biomass and biofuel research

1. Introduction

Research, technological development and demonstration have potential to support the use of biomass. The Commission intends to capitalise on this. Its proposal for the Seventh Framework Programme – Specific Programmes, adopted in September 2005, gives a high priority to biomass.

An industry-led European biofuel technology platform is under development.[54] This is intended to develop and implement a European vision and strategy for the production of biofuels, in particular for transport. Once the technology platform is established, the EC will explore the need to propose a possible joint technology initiative in this area.[55]

Other technology platforms will also play an important role – for example, those dealing with “Industrial biotechnology”, “Plants for the future”, “Road transport” and “Forest-basedsectors”. Under the framework of the Seventh Framework Programme, there is a need for increased coverage of the following topics: biomass availability and logistics ; energy crops for the production of biomass;[56] and combustion, gasification and pyrolysis of biomass covering co-firing, recovered fuels and combined heat and power.

This research and development activity under the Seventh RTD Framework Programme will be complemented by non-research action in the “Intelligent Energy – Europe” programme. The main focus here is to support soft measures and to remove non-technological barriers to the widespread market deployment of already demonstrated biomass and biofuel technologies.

2. Research priorities – biomass in general

The following actions related to biomass, with their corresponding objectives, are included in the Seventh Framework Programme.

- Biomass for electricity, heating and cooling

The objective is to develop and demonstrate a portfolio of technologies for electricity, heating and cooling from biomass, including the biodegradable fraction of waste. This research aims at increasing overall conversion efficiency, achieving cost reductions, further reducing the environmental impact and optimising the technologies in different regional conditions. A broad range of research topics are considered including biomass availability and logistics; conversion technologies, such as combustion, co-firing and gasification; emission abatement; and land use.

The Commission will propose to the “Zero Emission Power Generation” technology platform that co-firing be included in its scope.

- Smart energy networks

To facilitate the transition to a more sustainable energy system, a wide-ranging R&D effort is required on the EU electricity and gas systems and networks. Research aims at effective integration of biomass installations into electricity grids and feeding biogas and synthetic natural gas into the natural gas grid.

- Life sciences and biotechnology for sustainable non-food products and processes

The objective is to strengthen the knowledge base and develop advanced technologies for terrestrial or marine biomass production for energy and industry. Biotechnology will be applied to improve the productivity, sustainability and composition of biomass raw materials and to develop new bio-processes.

The Commission also attaches high importance to the “biorefinery” concept to maximise the value derived from biomass feedstocks by making full use of their components. Biorefineries could be built up by adding further fractionation and conversion steps to current biomass processing facilities (sugar, grain, pulp mills, oil refineries, etc.) to obtain a broad range of products such as food, feed, sustainable polymers, chemicals, fuels, and heat and power. Improving the cost-efficiency of biofuels through the biorefinery concept will be an important element of the biofuel technology platform.

3. Second-generation biofuels: state of play

Producing bioethanol from cellulose delivers a gasoline substitute which is identical to bioethanol produced from sugar or cereals. Synthetic enzymes provide the key to unlock the cellulose molecules and break them down into simpler substances, which are subsequently fermented to ethanol and purified (distilled) the same way as conventional bioethanol. It is hoped that energy balances and, hence, CO2 emission reductions will be largely enhanced.

The first demonstration plant was taken in operation by Iogen (4 million litres per year in Canada) and this was followed by ETEK (150 thousand litres per year pilot plant in Sweden) which was supported by EU regional funds. A third facility is under construction by Abengoa (5 million litres per year in Spain) and this plant is supported by the Fifth Framework Programme. Enzymatic hydrolysis is expected to become competitive in the medium term due to the decreasing price of the enzymes and low cost of the raw material (such as straw or even wood); being one of the most critical parameters in the overall cost of the biofuel.

Second-generation biodiesel is chemically different from vegetable-oil-based biodiesel. Gasification of biomass (anything works, but the drier the better) produces a “synthesis gas” consisting mainly of carbon monoxide (CO) and hydrogen. Exposing this gas to a suitable catalyst converts it into hydrocarbons (Fischer Tropsch synthesis), which will subsequently be treated to deliver a mixture of gasoline, jet fuel and diesel. Because of the high price of jet fuel, the excellent quality of the diesel fraction and the low quality of the gasoline fraction (low octane number), the process is normally optimised towards the production of jet fuel/diesel.

The different steps in the process have all been demonstrated to work commercially for Fischer Tropsch synthesis gas derived from coal or natural gas. Optimisation still remains to be done on gasification of biomass from different raw materials and gas purification to synthesis gas quality. A large-scale pilot plant (15 000 t/year) is being constructed in Freiberg (Germany) by the company Choren. In addition, Choren and Shell are in the process of developing a full-size prototype commercial plant with a capacity of 200 000 t/year which optimistically, depending on the experience with the pilot plant, could be operational in 2009/10. In parallel to the experience to be gained from this “biomass-to-liquid” (BTL) process, a number of large-scale “gas-to-liquid” projects, several in Qatar, will deliver technology experience on the second stage (Fischer Tropsch) of the process in the years ahead.

Alternatively the synthesis gas can be converted to bio-dimethylether (DME), which can also be used to replace diesel in modified diesel engines. DME, a gaseous fuel under ambient conditions, can be of particular relevance in heavy-duty applications.

The advantage of second-generation biodiesel is partly that the basic treatment of the raw material (gasification) allows virtually any organic material to be used and partly that it delivers a premium-quality diesel fuel, whether to be used in its own right or as a blending component in petroleum-based diesel. Its CO2 emission profile depends on whether the energy source for conversion is biomass only or whether an external energy source is used, and whether the biomass is a waste product (e.g. straw) or an energy crop. This also affects the cost. Here too, significant CO2 gains and energy balance improvements are hoped for.

Hybrids between first- and second-generation biofuels are also in preparation. Fortum (Finland) is planning to expand its Porvoo refinery to use vegetable oil and animal fat as a raw material in a conventional hydrogenation process. This delivers the same high-quality diesel as BTL with lower investment, but higher raw material costs (close to conventional biodiesel).

4. Research priorities - transport biofuels

The main area of research is second-generation biofuels made from various biomass resources and wastes, e.g. bioethanol, biodiesel, DME. The technical feasibility of converting cellulose material (straw/wood) and organic wastes into bioethanol and biodiesel has been demonstrated. But costs need to be brought down and technology needs to be further developed and demonstrated for commercial-scale production (over 150 000 tonnes a year). If this can be done, second-generation biofuels should offer three major advantages:

- they will secure a higher market share for biofuels by allowing the use of a wider range of raw material;

- the cultivation process (if any) could be less environmentally intensive than for ordinary agricultural crops;

- this lower intensity will be reflected in lower greenhouse gas emissions from cultivation.

Second-generation biodiesel production has a fourth advantage: the fuel is of better quality than conventional diesel.[57]

The price of these fuels will depend on technical developments and the price at which the raw material can be obtained. At this stage there is no reason to assume that they will be substantially cheaper than first-generation biofuels.

The Commission plans to substantially increase its support for the development of second-generation biofuels through its research budgets.

ANNEX 13 – Results of consultation

This communication and the impact assessment published alongside it take into account the results of extensive consultations. These began with the Commission’s analysis of the various policies affecting biomass and an extensive public consultation campaign using all possible means, such as a public questionnaire via the Internet, numerous meetings with stakeholders, and bilateral meetings with Member States that have developed national Biomass Action Plans and with biomass experts.

The main conclusion drawn from the consultations was that the Commission should push strongly on all fronts, at EU level and national level, in order to overcome the non-technical barriers facing biomass.

Several more specific conclusions can be drawn from the consultation process:

- Sufficient biomass resources are available in the Union to meet the needs for an additional 80 mtoe per year by 2010 without major effects on forest products industries and food production. Energy crops can make a significant contribution while providing a new market outlet for agriculture and contributing to rural development. Any shortfalls can be addressed by imports.

- There are competitive, reliable and efficient European technologies to convert biomass resources into energy vectors (electricity, heating or cooling and biofuels for transport). Nevertheless, RTD work on biomass (supported by appropriate national and EC funds) has to be intensified in order to meet new challenges.

- European (as well as international) solid and liquid biofuels markets are in their infancy and have to be developed further to commodity level. In order to develop them successfully, work on standards and norms has to be accelerated.

- Biomass is generally more expensive than comparable fossil fuel energy. However, in some areas (such as household heating by pellets and industrial CHP based on residues) biomass is already competitive.

- There is an urgent need to start a professionally managed campaign to inform European citizens more fully about the benefits of biomass. This information barrier, as well as the absence of more effective representation of biomass at all levels, is also due to the lack of a strong European biomass association with industrial involvement.

- The main problem that appears to be holding back the penetration of biomass on the energy markets is the lack of demand. The only way to increase demand is through appropriate policies implemented at national level.

- Biomass is the only renewable energy source that does not suffer from intermittency problems and can potentially provide energy for heat, power and transport from the same installation.

- Biomass in the form of solid, liquid or gaseous biofuels is the only renewable energy source that can directly replace solid, liquid and gaseous fossil fuels, either fully or in blends of various percentages, in which case often there is no need for equipment modifications.

- Biomass is the only renewable energy source that cannot be found free; it necessitates a long chain of activities such as planting, growing, harvesting, pre-treatment (storage and drying) and upgrading to a fuel and, finally, mechanical, thermochemical or biological conversion into an energy carrier (power, heat or biofuels for transport). Therefore, biofuels (with the exception of untreated municipal waste) always have an associated cost that has to be borne by the final user.

- Since land availability is limited there could come a point in the future when biomass for energy will have to compete with food, materials, bio-chemicals and carbon sinks. However, this point in time is beyond 2020, and if international trade in biomass fuels becomes effective could lie beyond 2050.

- Environmental concerns must also be addressed whenever biomass is grown for food, products or fuels. This has to be done by taking an overall systems approach and by comparisons with other alternatives and not in isolation.[pic][pic][pic][pic][pic][pic]

[1] Assunto que foi tratado no recente Livro Verde sobre a eficiência energética ou “Fazer mais com menos”, COM (2005) 265.

[2] Esses mecanismos incluem o Fórum da Energia e dos Transportes, o “Fórum de Amesterdão” sobre a energia sustentável, o “Fórum de Berlim” sobre os combustíveis fósseis, o “Fórum de Florença” sobre a regulação da electricidade e o “Fórum de Madrid” sobre a regulação do gás. Por outro lado, a Comissão decidiu recentemente criar um grupo de alto nível para a competitividade, energia e ambiente.

[3] 44%, de acordo com a “abordagem de substituição”, 65% de acordo com a “abordagem clássica” – ver a avaliação de impacto, secção 2.

[4] “A quota das energias renováveis na UE”, COM (2004) 366, secção 4.3.1.

[5] Conselho Europeu de Bruxelas, 25 e 26 de Março de 2