Carbon Capture and Storage inquiry
Closed
What the inquiry looked at
“Carbon Capture Storage (CCS) is a process to avoid the release of carbon dioxide (CO2) into the atmosphere. CCS has the potential to help the UK achieve its ambitious targets to reduce CO2 emissions, if it is used in the power and industrial sectors. However, the Department for Business, Energy & Industrial Strategy has not achieved value for money for its £100 million spend on the second competition for government financial support for carbon capture storage, according to the National Audit Office. The Department also spent £68 million on the first competition on support for CCS, which it cancelled in 2011. The NAO report found that the Department’s plan to use a second competition to develop and deploy carbon capture and storage was ambitious, but ultimately, unsuccessful. Achieving this goal was challenging because the untried nature of the technology meant the costs and benefits of the proposed projects were inherently uncertain. Given the level of challenge, it was an achievement for the Department to sustain negotiations with the preferred bidders to the point where it gained valuable technical and commercial knowledge about how to deploy the competition projects. But any value that could be gained is contingent on the Department applying the lessons it and the sector has learnt as a result of the competition. The NAO found the Department began the competition without agreeing with HM Treasury on the amount of financial support available over the lifetime of the projects. This ultimately contributed to HM Treasury’s decision to withdraw £1 billion of funding from the competition, leading to its cancellation, as it was concerned about future costs to consumers. The Department had, however, designed the competition so it could withdraw from supporting its preferred bidders without incurring cancellation costs. The terms of the competition contributed to one of the two shortlisted projects being unlikely to reach the construction phase. The Department funded two developers to undertake work that would reduce the commercial and technical risks surrounding the construction of the first CCS plant. One of the two shortlisted projects, backed by a consortium, was not able to present a proposal compliant with the Department’s risk allocation as it was struggling to allocate risks between the parties involved. The other competition was more commercially viable but would have had fewer benefits for reducing the costs of subsequent CCS projects. Many stakeholders think the government needs to carry more risk if it is to enable CCS to be deployed affordably to consumers. The Department’s approach to allocating risk was in line with wider energy policy. But following the competition, many stakeholders think the government should bear more risks, particularly over stored CO2. Government taking a greater share of the risk could reduce delivery costs but would expose taxpayers to losses in the event of risks materialising. The NAO found that flaws in the Department's design and implementation of its Levy Control Framework, which caps the costs of certain consumer-funded policies, also impacted on CCS investors' confidence.”
The committee's words, from the inquiry page on parliament.uk ↗.
What it found
Despite spending £168 million, the Department for Business, Energy and Industrial Strategy has failed to support the construction of the UK’s first large-scale carbon capture and storage (CCS) projects. After its first competition for support ended in 2011, the Department launched its second competition without being clear with HM Treasury on the support that would be available to successful CCS projects through bill payer-funded contracts for difference once they were up and running, or ensuring that its proposed risk allocation was viable for developers. These design weaknesses contributed to the Treasury’s decision, as part of the 2015 Spending Review, to bring the competition to an early end by withdrawing the £1 billion capital grant it had previously made available to contribute to the projects’ construction costs. This was the latest in a series of decisions that indicate the Treasury is having undue influence on the government’s energy policy.
Halting CCS’s deployment means that the UK will have to pay billions of pounds more to meet its decarbonisation targets, has missed opportunities to be at the forefront of a growing global industry, and has damaged investors’ confidence in working with the government on CCS in the future. There is now a major gap in the government’s decarbonisation plans, and we urge the Department to set out as soon as possible how this gap will be filled.
What the government said
No government response is linked to this report.
How the inquiry ran
Each dot is a dated item listed on this page, from the inquiry's opening on 21 February 2017 to its close on 4 January 2018.
- Oral evidence 30 Mar 2017
- Report 28 Apr 2017
- Correspondence 6 Dec 2017
What it recommended 2 recommendations · 22 conclusions
1After two competitions costing taxpayers £168 million, the UK is no closer to establishing CCS.
2It is now highly likely the UK will have to pay billions of pounds more...
3Without CCS, there is a gap in the government’s plans for achieving decarbonisation at least...
4Once again, the Department did not allocate the risks appropriately between the government and developers,...
5Establishing CCS is now likely to cost taxpayers or billpayers more in the future because...
6The Treasury seems to be determining energy policy, often with detrimental impacts on the government’s...
7In its first competition, the Department did not articulate the commercial risks involved in deploying...
8The Department told us that at the outset it discussed with developers how to allocate...
9There are additional risks to deploying CCS in the UK compared to other countries, which...
10The failure to understand what private investors can feasibly deliver, for both competitions, suggests a...
11The Department began the competition without agreeing with HM Treasury on the amount of financial...
12The lack of agreement between the Department and HM Treasury on a limit to the...
13The Treasury told us that the decision, as part of the 2015 Spending Review, to...
14We asked the Department and the Treasury whether this demonstrated they had different bases for...
15We noted that there had been several other instances in recent years where Treasury decisions...
16CCS has a central role to play across the UK economy to achieve this country’s...
17The Department’s own analysis during the 2015 Spending Review showed that it would cost £30...
18Neither the Department nor HM Treasury calculated the financial impact of the delay to CCS’s...
19CCS was a key part of the government’s plans for decarbonising the economy.
20The Department’s long-term aim was to enable investment in CCS projects in the early 2020s...
21The cancellation of the competition means there is now a significant gap in the Department’s...
22The decision to cancel the competition has had a negative impact on investors’ confidence to...
23The decision is the latest in a series of decisions on energy policies that have...
24The negative impacts on CCS investors’ confidence could increase costs or risks for taxpayers or...
Evidence
Oral evidence sessions 1
- 30 Mar 2017No witnesses recordedparliament.uk ↗