Big Renewable-Energy Subsidies Backfire

New Jersey regulators are considering cutting off solar rebates after a flood of applications overwhelm the program, providing the latest example that too much success can be a bad thing.

You'd think big subsidies would be good for renewable energy, and they are. But could too much of a good thing be bad for the industry?

Take a look at New Jersey. According to The New York Times, state regulators are considering ending solar rebates - and replacing them with energy credits that would be traded on the open market - after applications have far outpaced the rebate money available.

The program has a backlog of more than 700 applications for the rebates, leading to long waits that have stretched from months into years in some cases, the newspaper reported.

It's one of the richest rebates in the country, said Ron Pernick, a principal at Clean Edge.

And therein lies the danger: Generous subsidies tend to be well used and end up costing more than expected.

Germany is a good example of the dangers of success.

The country offered a feed-in tariff that paid a higher rate for the generation of renewables, including solar power, making it cheaper to own solar power than to buy conventional electricity.

The high cost to the government led to a backlash, with politicians questioning why the solar industry still needed such high subsidies, and the tariff has declined faster than expected - although not as fast as many had feared (see Solar Prices Set in Germany).

"Germany really only needed to get [solar] to price parity, and it went over that," Pernick said. "The incentive has got to be there for the solar manufacturers and the value chain to drive down pricing. If a subsidy is too large, it has a reverse effect."

Spain has seen another case of successful-subsidy backlash.

In September, the country reached 344 of the 400 megawatts it had set as a cap on its solar subsidy, making it clear its program would reach the limit much earlier than originally expected in 2010 (see Is Spain Shining Too Brightly? and Spain Considers Adding a Solar Gigawatt). The country is considering expanding the cap, but reducing the tariff per kilowatt-hour.

Again in New Jersey, the rich rebate has jump-started solar activity, as intended. But it's cost the state a king's ransom.

The rebates, which have averaged $20,000 for residential projects and more than $1 million for large commercial installations, have cost the state $170 million so far, according to The New York Times. The Board of Public Utilities estimates the rebates would total $11 billion by 2020, if they aren't changed.

Under the new plan, most of the rebates would end this year, while some rebates for small residential projects would disappear over the next four years, the newspaper reported.

Pernick said he's not surprised about the amount. In a report earlier this month, Clean Edge forecast that it would cost up to $33 billion annually to make solar 10 percent of the country's electricity by 2025 (see When Will Solar Reach Significance?).

Setting a high incentive - such as the one in New Jersey - that doesn't decline as prices come down can leave governments with a large bill that only increases as the market develops, he said.

"You don't want an overly rich subsidy because it will break the bank and it won't result in lower pricing," he said. "Subsidies have to be very carefully structured to cover the difference between the prevailing rate of a competitive technology and that of the emerging technology, and building in a subsidy model ... that declines over time can be very important."

Pressure to reduce or eliminate successful subsidies is common, and not only in solar, he said.

Pernick pointed to the tax credits for hybrid vehicles in Oregon as an example. Some lawmakers and residents have questioned whether the credits are still needed, considering the high gas prices and the fact that the Portland metro area has more hybrids per capita than any other city in the country, according to Willamette Week.

"It's hard to know when a crossover has occurred," Pernick said. "The question of where to change or end a subsidy can be a difficult one and you certainly don't want to bankrupt a state because a subsidy is so successful."

In other words, the best subsidies are sustainable - not too high and not too low, so they can give the market some stability.

"You have to set it at the right level, so it's not overly rich - and some of these programs, such as in Germany, are overkill - but provides a long-term view of where the industry is going," Pernick said.

Still, Pernick said, in spite of strong growth, solar isn't yet cheap enough to remain competitive without government help.

"The solar industry is not at price parity yet, and incentives and tax credits are very important to getting to that place," he said. "Natural gas, oil and nuclear power all rely, to some extent, on subsidies and incentives. The oil industry doesn't have to apply for subsidies every year."

That argument might not be enough to keep the government cash coming.

New York, Colorado, Maryland and other states also are considering scaling back government subsidies, according to The New York Times.

The federal renewable-energy tax credits also are set to expire at the end of this year. The solar industry has repeatedly tried to extend the credits, but has been unable to get an extension past both houses of Congress (see Senate Blocks Renewable Incentives Bill). 

Meanwhile, Japan is countering the trend by trying to resurrect its solar subsidies, which ended in 2005 (see Japan Wants to Resurrect Solar Incentives and Japan's Wind-Power Problem).

Comments [4]

  • adam moritz 06/27/08 8:30 AM

    Even the most generous subsidies will look like a pittance in retrospect.  Everybody put your “$500/barrel oil goggles” on and your perspective might change a bit.  With renewable energy percentages pathetically low in this country, I see no reason to stop subsidizing.

    If states and municipalities are concerned about “losing” billions of dollars, maybe they ought to take advantage of the fact that solar and wind are actually very low risk investments with an incredible ROI (unless you think grid prices will stay flat for 40 years).  The status quo is to subsidize private investments in renewable energy—the government thereby forfeits any return on the money they dole out—and then they complain about losing money.  If they used that money to actually purchase and retain ownership of renewable energy installations, they could sell the power at or below market rates with PPAs, covering operation, maintenance and administration costs.  It could be net revenue neutral or even slightly revenue positive to fund future development.  Just look at the bond method that Berkeley has introduced—property owners request solar installations, the city finances the full cost of the systems with low-interest bonds and the property owners slowly pay back that money plus administration costs and bond interest through small property tax increases.  Whether or not these methods get solar and wind to grid parity remains to be seen but you can be damn sure it’s cheaper than millions of people financing and installing renewables separately.

    There is no lack of money or lack of need for government subsidies.  There is however, a lack of imagination and foresight.

    Reply
  • Hans Ehrbar 06/29/08 8:28 AM

    The fossil fuel industries do not want renewable energy to be more
    than a minor player, perhaps taking up some of the growth in energy
    demand but not cutting into fossil fuels themselves.  That is why they
    squirm about the cost of subsidies when renewable energy grows too
    much.  The following quote by Pernick in Jennifer Kho’s article shows the insincerity of this anti-subsidy argument:

    > “Natural gas, oil and nuclear power all rely, to some extent, on
    > subsidies and incentives. The oil industry doesn’t have to apply for
    > subsidies every year.”

    But Jennifer writes in her next sentence:

    > “That argument might not be enough to keep the government cash
    > coming.”

    Jennifer says here more than she probably intended: the whole bullaboo
    is not about rationally arguing the economics of renewable energy, but
    about finding a pretext to maintain subsidies, sales and profits for
    fossil fuel industries.  Also the word “backfire” in the title is
    telling.  It was never the purpose of renewable energy subsidies to
    seriously promote renewable energy.  It was only tolerated as a
    smokescreen, and when the subsidies are indeed successful this is
    perceived as “backfiring.”

    And the problems which Jennifer cites from Germany are not that
    renewable energy is bad for the economy, it isn’t, but the “backlash”
    in Germany: Fossil fuel industries have the gall to complain even in
    Germany, the poster child of successful renewable energy policies,
    about the cost.  If anything, Germany and the rest of the EU
    need a carbon tariff on imports from countries with cheap and dirty
    energy, but of course the WTO will not allow that, therefore this
    is unmentionable.

    It is true that one has to be careful how subsidies should be
    formulated; this is the truth in Jennifer’s article which makes the
    distortions and inconsistencies easier to swallow.

    Reply
  • Tony Jones 06/30/08 5:00 PM

    The subsidies should die now. And it has absolutely NOTHING to do with fossil fuels in any shape or form. The fact is the solar companies are now profitable. The subsidies are being used for sales, marketing and installation which is what the subsidies were never intended for.

    Furthermore, if you look carefully at the fine print on where the subsidy comes from (California $3bn program) you will see that even the poor and renters are paying into the funding pool. They will never have solar nor were they ever asked if they would like to opt out because they were renters or under a income threshold. The most egregious part is that a wealthy homeowner uses the subsidies, increases the resale value on his home and then works to zero his monthly bill because of net metering. The knock on effect here is that the wealthy are taking from the disadvantaged in many forms. When the wealthy homeowner zeros his utility bill with PG&E that doesn’t really reduce the capital costs and maintenance costs to maintain the utility—the utility just is bringing less revenue now which also “backfires” on the disadvantaged because their rates will go up to make up for the shortfall in revenue to the utility.

    The subsidies are being gamed by the solar industry when all we need is a cursory review of the 10k/q of companies like SPWR which are quite profitable.

    If we end the subsidies, the solar companies will be forced to compete as their brethren in the semiconductor industry (Intel, AMD, nvidia etc) are forced to do. This in turn would cause the price per installed watt to collapse creating true scale—without subsidy. This in turn would quickly “Darwinize” other energy production technologies such as nuclear, coal etc.

    The solar revolution is being purposely held back by a bunch of get rich quick types that refuse to get off the subsidy crack pipe. A real scandalous and sleazy shame…

    Reply
  • Mar Kelly 07/10/08 12:08 PM

    The solar business is the furthest thing from a shame. I owned an installation firm in NJ for 4 years and found it akin to running a business on quicksand because it is a nacent industry. In a mature industry you can find trained people, in solar you had to home grow each engineer, BDO, manager, worker etc. For permits and approvals, it was a crap shoot if the town was familiar with the technology and open to learn or an renewable energy obstacle enemy.
    In regard to equipment, the availability was random and pricing spiked everytime another contry passed a solar tarrif.
    But the most destabalizing factor was the State Agency that paid for the subsidies. This perfect storm of instability made it impossible to form economies of scale or cost cutting measures.
    So there is no shame here, just an industry trying to get off the ground. Grid-Tied PV is 11 years old. NJ should form some stability for the industry. The truth is the adjustment should have been increasing the amount of Solar in the Renewable Portfolio Standards, not destabablizing the industry due to their own political problems.

    Reply
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