Combined Heat and Power
A Clean Energy Solution
August 2012
DEPARTMENT OF A rn« united States
B? Ilk II r™ Environmental Protection
CNCKUl VtrriAgency
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Contents
Executive Summary 3
Introduction 5
Combined Heat and Power as A Clean Energy Solution 7
The Current Status of CHP and Its Potential Future Role
in the United States 11
Emerging Drivers for CHP 15
Changing Outlook for Natural Gas Supply and Price 15
Growing State Policymaker Support 16
Changing Market Conditions for Power and Industrial Sectors 17
Barriers to Increased CHP Deployment 18
Unclear Utility Value Proposition 18
Limited CHP Supply Infrastructure 18
Market and Non-Market Uncertainties 18
End-User Awareness and Economic Decision-Making 18
Local Permitting and Siting Issues 19
Innovative Solutions for Increased CHP Deployment 20
Utility Partnerships to Advance CHP 20
State Policies to Capture Benefits Of CHP 20
Conclusion 22
Combined Heat and Power: A Clean Energy Solution
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Figures
1 Efficiency Benefits of CHP 7
2 Location of Existing CHP Capacity 7
3 CHP can be a Cost-Effective Source of
New Generation Capacity 9
4 Existing CHP Capacity 11
5 Henry Hub Natural Gas Prices 12
6 CHP Capacity Additions Since 2000 12
7 Technical Potential for Additional CHP at
Existing Industrial and Commercial Facilities 13
8 U.S. Natural Gas Supply 15
Tables
1 CHP Energy and C02 Savings Potential 8
Combined Heat and Power: A Clean Energy Solution
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Executive Summary
Combined heat and power (CHP) is an efficient and clean approach to generating
electric power and useful thermal energy from a single fuel source. Instead of
purchasing electricity from the distribution grid and burning fuel in an on-site
furnace or boiler to produce thermal energy, an industrial or commercial facility can
use CHP to provide both energy services in one energy-efficient step. The average
efficiency of power generation in the United States has remained at 34 percent since
the 1960s — the energy lost in wasted heat from power generation in the U.S. is
greater than the total energy use of Japan. CHP captures this waste energy and uses
it to provide heating and cooling to factories and businesses, saving them money
and improving the environment. CHP is a commercially available clean energy
solution that directly addresses a number of national priorities including improving
the competitiveness of U.S. manufacturing, increasing energy efficiency, reducing
emissions, enhancing our energy infrastructure, improving energy security and
growing our economy.
While CHP has been in use in the United States in some form or another for more
than 100 years, it remains an underutilized resource today. CHP currently represents
approximately 8 percent of U.S. generating capacity compared to over 30 percent
in countries such as Denmark, Finland and the Netherlands. Its use in the U.S.
has been limited, particularly in recent years, by a host of market and non-market
barriers. Nevertheless, the outlook for increased use of CHP is bright — policymakers
at the federal and state level are beginning to recognize the potential benefits of
CHP and the role it could play in providing clean, reliable, cost-effective energy
services to industry and businesses. A number of states have developed innovative
approaches to increase the deployment of CHP to the benefit of users, utilities and
ratepayers. CHP is being looked at as a productive investment by some companies
facing significant costs to upgrade outdated coal and oil-fired boilers. In addition,
CHP can provide a cost-effective source of highly-efficient new generating capacity.
Finally, the economics of CHP are improving as a result of the changing outlook in
the long-term supply and price of North American natural gas — a preferred fuel for
many CHP applications.
Recognizing the benefits of CHP and its current underutilization as an energy
resource in the United States, the Obama Administration is supporting a new
challenge to achieve 40 gigawatts (GW) of new, cost-effective CHP by 2020.
Achieving this goal would:
Increase total CHP capacity in the U.S. by 50 percent in less than a decade
• Save energy users $10 billion a year compared to current energy use
Save one quadrillion Btus (Quad) of energy — the equivalent of 1 percent of
all energy use in the U.S.
Reduce emissions by 150 million metric tons of C02 annually — equivalent
to the emissions from over 25 million cars
Combined Heat and Power: A Clean Energy Solution
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Result in $40-$80 billion in new capital investment in manufacturing and
other U.S. facilities over the next decade
This goal can be achieved through the promotion of utility partnerships with the
CHP industry to reduce risk to potential users, the encouragement of effective and
innovative CHP policies and financing, as well as encouraging highly efficient CHP
to be used in areas where new generation capacity is needed. The U.S. Department of
Energy (DOE) will be convening a series of workshops to foster a national dialogue
on developing and implementing state best practice policies and investment
models that address the multiple barriers to greater investment in industrial energy
efficiency and CHP.
This paper provides a foundation for national discussions on effective ways to reach
the 40 GW target, and includes an overview of the key issues currently impacting
CHP deployment and the factors that need to be considered by stakeholders
participating in the dialogue.
Combined Heat and Power: A Clean Energy Solution
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Introduction
Combined Heat and Power (CHP) represents a proven, effective, and underutilized
near-term energy solution to help the United States enhance energy efficiency,
improve environmental quality, promote economic growth, and maintain a robust
energy infrastructure. The U.S. currently has an installed capacity of 82 GW of CHP,
with 87 percent in manufacturing plants around the country1. CHP, or cogeneration,
has been around in one form or another for more than 100 years — it is a proven
commercial technology. Despite this track record, CHP remains underutilized in the
U.S., even though it is one of the most compelling sources of efficient generation
that could, with even modest investments, move the nation quickly toward greater
energy security and a cleaner environment.
As an efficiency technology, CHP helps makes businesses more competitive by
lowering their energy costs, reducing demand on the electricity delivery system,
reducing strain on the electric grid, and reducing greenhouse gas (GHG) and other
harmful emissions. Already used by many industrial facilities and a growing number
of commercial and institutional entities, CHP is a commercially available clean
energy resource that is immediately deployable, and that can help address current
and future U.S. energy needs.
Cost-effective, clean CHP can provide a suite of benefits to both the user
and to the nation:
Benefits of CHP for U.S. businesses
• Reduces energy costs for the user
Reduces risk of electric grid disruptions and enhances energy reliability
Provides stability in the face of uncertain electricity prices
Benefits of CHP for the Nation
Improves U.S. manufacturing competitiveness
• Offers a low-cost approach to new electricity generation capacity
Provides an immediate path to lower GHG emissions through increased
energy efficiency
Lessens the need for new transmission and distribution (T&D)
infrastructure and enhances power grid security
Uses abundant clean domestic energy sources
Uses highly skilled American labor and American technology
Installing an additional 40 GW of CHP (about 50 percent more than the current
levels of U.S. CHP capacity) would save approximately one Quadrillion Btus (Quad)
of energy annually2 and eliminate over 150 million metric tons of C02 emissions
each year (equivalent to the emissions of over 25 million cars). The additional CHP
capacity would save energy users $10 billion a year relative to their existing energy
Combined Heat and Power: A Clean Energy Solution
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sources3. Achieving this goal would also result in $40-80 billion in new capital
investment in manufacturing and other U.S. facilities over the next decade.
1 CHP Installation Database developed by ICF International for Oak Ridge National Laboratory and the U.S. DOE; 2012.
Available at http://www.eea-inc.com/chpdata/index.html.
2 One Quad equals 1015 Btus and is equivalent to 1 percent of total annual energy consumption in the U.S.
3 $40-80 billion is the investment amount required to deliver the 40 GW based on a range of costs from $1,000 to
$2,000/kW.
Combined Heat and Power: A Clean Energy Solution
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Combined Heat and Power as a Clean Energy Solution
Combined heat and power is an efficient and clean approach to generating power
and thermal energy from a single fuel source. CHP is used either to replace or
supplement conventional separate heat and power (SHP). Instead of purchasing
electricity from the local utility and burning fuel in an on-site furnace or boiler
to produce needed steam or hot water, an
industrial or commercial user can use CHP to
provide both energy services in one energy-
efficient step (Figure 1). Every CHP application
involves the recovery of thermal energy
that would otherwise be wasted to produce
additional power or useful thermal energy;
as such, CHP can provide significant energy
efficiency and environmental advantages over
separate heat and power. It is reasonable to
expect CHP applications to operate at 65-75
percent efficiency, a large improvement over
the national average of 45 percent for these
services when separately provided.
CHP can be configured either as a topping or bottoming cycle. In a topping cycle,
fuel is combusted in a prime mover such as a gas turbine or reciprocating engine,
generating electricity or mechanical power. Energy normally lost in the prime
mover's hot exhaust and/or cooling systems is recovered to provide process heat, hot
water, or space heating/cooling for the site4. In a bottoming cycle, also referred to
as waste heat to power, fuel is combusted to provide thermal input to a furnace or
other industrial process and some of the heat rejected from the process is then used
for power production. For optimal efficiency, CHP systems are typically designed
and sized to meet a facility's baseload thermal demand.
CHP is a distributed energy resource that is,
by definition, strategically located at or near
the point of energy use (Figure 2)5. While 87
percent of existing U.S. CHP capacity is located
at industrial facilities, CHP can also be an
attractive resource for commercial or institutional
facilities such as schools and hospitals, in district
energy systems, and in military installations.
Such on-site generation avoids the transmission
and distribution (T&D) losses associated with
electricity purchased via the grid from central
stations and defers or eliminates the need for new
T&D investment. CHP's inherent higher efficiency
and elimination of transmission and distribution
losses from the central station generator results
in reduced primary energy use and lower GHG
emissions.
FIGURE 1 I Efficiency Benefits of CHP
Traditional System CHP System
Efficiency
Efficiency
Boiler
Power Plant
Electricity
"
75%
CHP
FIGURE 2 I Location of Existing CHP Capacity
o<*o
5W
'a,, ® «""?• 4fj>
* 0
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The increase in fuel use efficiency of CHP combined with the use of lower carbon
fuels such as natural gas generally translates into reductions in GHG and criteria
emissions compared to separate heat and power. Table 1 compares the annual
energy and C02 savings of a 10 MW natural gas-fired CHP system over separate
heat and power with the energy and C02 savings from utility-scale renewable
TABLE 1 I CHP Energy and C02 Savings Potential
Category
10 MW CHP
10 MW PV
10 MW Wind
Combined Cycle
(10 MV Portion)
Annual Capacity Factor
85%
22%
34%
70%
Annual Electricity
74,446 MWh
19,272 MWh
29,784 MWh
61,320 MWh
Annual Useful Heat
103,417 MWh,
None
None
None
Footprint Required
6,000 sq ft
1,740,000 sq ft
76,000 sq ft
N/A
Capital Cost
$20 million
$60.5 million
$24.4 million
$10 million
Annual Energy Savings
308,100 MMBtu
196,462 MMBtu
303,623 MMBtu
154,649 MMBtu
Annual C02 Savings
42,751 Tons
17,887 Tons
27,644 Tons
28,172 Tons
Annual NOx Savings
59.4 Tons
16.2 Tons
24.9 Tons
39.3 Tons
The values in TABLE 1 are based on:
• 10 MW Gas Turbine CHP — 28% electric efficiency, 68% total CHP efficiency,
15 ppm NOx emissions
• Capacity factors and capital costs for PV and Wind based on utility systems in DOE's Advanced Energy Outlook 2011
• Capital cost and efficiency for natural gas combined cycle system based on Advanced Energy Outlook 2011 (540 MW
system proportioned to 10 MW of output), NGCC 48% electric efficiency, NOx emissions 9 ppm
• CHP, PV, Wind and NGCC electricity displaces National All Fossil Average Generation resources (eGRID 2012) — 9,572
Btu/kWh, 1,743 lbs C02/MWh, 1.5708 lbs NOx/MWh, 6.5% T&D losses; CHP thermal output displaces 80% efficient
on-site natural gas boiler with 0.1 Ib/MMBtu NOx emissions
Combined Heat and Power: A Clean Energy Solution
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technologies and natural gas combined cycle (NGCC) systems producing power
only This shows that CHP can provide overall energy and C02 savings on par with
comparably sized solar photovoltaics (PV), wind, NGCC, and at a capital cost that is
lower than solar and wind and on par with NGCC.
CHP can provide lower energy costs for the user by displacing higher priced
purchased electricity and boiler fuel with lower cost self-generated power and
recovered thermal energy. The amount of savings that CHP represents depends on
the difference in costs between displaced electricity purchases and fuel used by the
CHP system. To be cost-effective, the savings in power and fuel costs need to be
compared to the added capital, fuel and other operating and maintenance costs
associated with operating a combined heat and power system.
In many parts of the country, CHP provides not only operating savings for the user,
but also represents a cost-effective supply of new power generation capacity. As an
example, Figure 3 compares the cost of electricity generated from small, medium,
and large sized CHP projects with delivered electricity costs in New Jersey and the
cost of electricity from new central power generation6. The light shaded area at
the top of the CHP bars shows the savings in the costs of displaced on-site boiler
fuel from capturing and using the waste heat from CHP at the site. The net cost
of power from large and medium CHP systems are below the large and medium
electric customer delivered retail electricity rates respectively indicating that CHP
can generate savings for the end-user. The net costs of large and medium CHP power
FIGURE 3 I CHP can be a Cost-Effective Source of New Generation Capacity
Cost of Delivered Electricity — New Jersey
I
I
| 14
121 I
r 10
ill
Thermal Credit | T&D | Fuel O&M | Capital
Combined Heat and Power: A Clean Energy Solution
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are also at or below the delivered costs of new coal and natural gas central station
generation as well as utility-based renewable options, indicating that CHP represents
a cost-effective source of new generation capacity for the state as a whole. The
New Jersey results are indicative of current conditions in most Northeast and Mid-
Atlantic states and also in California and Texas. This type of comparison can be done
throughout the country using state and utility-specific information.
4 In another version of a topping cycle, fuel is burned in a boiler to produce high pressure steam. That steam is fed
to a steam turbine, generating mechanical power or electricity, before exiting the turbine at lower pressure and
temperature and used for process or heating applications at the site.
5 CHP Installation Database developed by ICF International for Oak Ridge National Laboratory and the U.S. DOE; 2012.
Available at http://www.eea-inc.com/chpdata/index.html.
6 Capital and 0&M costs for coal, NGCC, wind and PV and annual capacity factors for wind and PV based on EIA AEO
2011; annual capacity factors for coal and NGCC based on 2009 national averages (64 and 42%); Utility coal and
natural gas prices $4.40/MMBtu and $5.50/MMEStu respectively, CHP based on 100 kW engine system and $7.50/
MMEStu natural gas (small CHP), 1 MW engine system and $6.25 natural gas (medium CHP), 25 MW gas turbine and
$6.25 natural gas (large CHP); cost of capital 12% for CHP and 8% for central station systems.
Combined Heat and Power: A Clean Energy Solution
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The Current Status of CHP and Its Potential Future Role
in the United States
CHP is already an important resource for the U.S. — the existing 82 GW of CHP
capacity at over 3,700 industrial and commercial facilities represents approximately
8 percent of current U.S. generating capacity and over 12 percent of total MWh
generated annually7. CHP can be utilized in a variety of applications that have
significant and coincident, power and thermal loads. Figure 4 shows the sectors
currently using CHP — 87 percent of existing CHP capacity is found in industrial
applications, providing power and steam to
energy intensive industries such as chemicals,
paper, refining, food processing, and metals
manufacturing. CHP in commercial and
institutional applications is currently 13
percent of existing capacity, providing power,
heating and cooling to hospitals, schools,
university campuses, hotels, nursing homes,
office buildings and apartment complexes;
district energy CHP systems in cities and
university campuses represent approximately
5 GW of installed CHP8.
Current CHP installations in the United
States use a diverse set of fuels, although natural gas is by far the most common
fuel at 72 percent of installed CHP capacity. Biomass, process wastes and coal make
up the remaining CHP fuel mix. Compared to the average fossil-based electricity
generation, the entire existing base of CHP saves 1.8 Quads of energy annually and
eliminates 240 million metric tons of C02 emissions each year (equivalent to the
emissions of over 40 million cars).
There is a long history of using CHP in the U.S. Decentralized CHP systems located
at industrial and municipal sites were the foundation of the early electric power
industry in the United States. However, as power generation technologies advanced,
the power industry began to build larger central station facilities to take advantage
of increasing economies of scale. CHP became a limited practice primarily utilized
by a handful of industries (paper, chemicals, refining and steel) which had high and
relatively constant steam and electric demands and access to low-cost fuels. Utilities
had little incentive to encourage customer-sited generation, including CHP. Various
market and non-market barriers at the state and federal level served to further
discourage broad CHP development9.
Spurred by the oil crisis, in 1978, Congress passed the Public Utilities Regulatory
Policies Act (PURPA) to encourage greater energy efficiency. PURPA provisions
encouraged energy efficient CHP and small power production from renewables
by requiring electric utilities to interconnect with "qualified facilities" (QFs). CHP
facilities had to meet minimum fuel-specific efficiency standards10 in order to
become a QF. PURPA required utilities to provide QFs with reasonable standby and
Combined Heat and Power: A Clean Energy Solution
FIGURE 4 I Existing CHP Capacity
13% Commercial/Institutional
29% Chemicals
6% Other Industrial
5% Metals
18% Refining
14% Paper
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back-up charges, and to purchase excess
electricity from these facilities at the utilities'
avoided costs11. PURPA also exempted QFs
from regulatory oversight under the Public
Utilities Holding Company Act and from
constraints on natural gas use imposed by
the Fuel Use Act. Shortly after enacting
PURPA, Congress also provided tax credits
for investments in cogeneration equipment
under the Energy Tax Act of 1978 (PL. 95-
618; 96-223) and the Crude Oil Windfall
Profits Tax Act of 1980 (PL. 96-223; 96-471).
The Energy Tax Act included a 10 percent
tax credit on waste-heat boilers and related
equipment, and the Windfall Profits Tax Act
extended the 10 percent credit to remaining
CHP equipment for qualified projects12. The Windfall Profits Act limited the amount
of oil or natural gas that a qualifying facility could use13. The implementation
of PURPA and the tax incentives were successful in dramatically expanding CHP
development; installed capacity increased from about 12,000 MW in 1980 to over
66,000 MW in 200014.
The environment for CHP changed again in the early 2000s with the advent of
restructured wholesale markets for electricity in several regions of the country.
Independent power producers could now sell directly to the market without the
need for QF status. The movement toward restructuring (deregulation) of power
markets in individual states also caused market uncertainty, resulting in delayed
energy investments. As a result, CHP development slowed. As shown in Figure
515, these changes also coincided with rising and increasingly volatile natural gas
FIGURE 6
7
6
S" 5
C£_
CO
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5 4
<
6
0
1 3 H
I
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2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010
Year
Combined Heat and Power: A Clean Energy Solution
FIGURE 5 Henry Hub Natural Gas Prices
$14
$12 -
I $10
S4
$2
SO
rW rW rW rSi rSi rSi rSi rSi rSi rSi rft rSi rSi (V Cv CV*
CHP Capacity Additions Since 2000
Annual Capacity Additions (GW)
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prices as the supply demand balance in the U.S. tightened. This further dampened
the market for CHP development.
As Figure 6 shows, investment in new CHP capacity slowed precipitously in the
2004/2005 timeframe16. At that point, a combination of highly volatile natural gas
prices, continuing market barriers and an uncertain economic outlook led to a steep
decline in CHP installations that persists through today.
While recent investment in CHP has declined, CHP's potential role as a clean energy
source for the future is much greater than recent market trends would indicate. Like
other forms of energy efficiency, efficient on-site CHP represents a largely untapped
resource that exists in a variety of energy-intensive industries and businesses (Figure
7). Recent estimates indicate the technical potential17 for additional CHP at existing
industrial facilities is just under 65 GW, with the corresponding technical potential
for CHP at commercial and institutional facilities at just over 65 GW18, for a total
of about 130 GW. A 2009 study by McKinsey and Company estimated that 50
GW of CHP in industrial and large commercial/institutional applications could be
deployable at reasonable returns with then current equipment and energy prices19.
The economic potential is likely greater today given the improving outlook in
natural gas supply and prices.
FIGURE 7 I Technical Potential for Additional CHP at Existing
Industrial and Commercial Facilities20
60,000
50,000
40,000
s
E
f 30,000
CO
a.
o
20,000
10,000
0
Existing CHP | CHP Potential
The 65 GW of industrial technical potential outlined above represents efficient
CHP systems sized to the baseload thermal demand of the site and does not include
the potential for producing electricity for export to the grid beyond the facility's
on-site demand. This export capacity from many industrials represents another
Combined Heat and Power: A Clean Energy Solution
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significant resource base of clean, efficient CHP. The technical potential in industrial
applications more than doubles to 130 GW if systems are sized to the thermal
demand without a cap in power output, and excess electricity generated but not
used on site could be easily exported to the grid or sold to adjacent users21.
7 CHP Installation Database developed by ICF International for Oak Ridge National Laboratory and the U.S. DOE; 2012.
Available at http://www.eea-inc.com/chpdata/index.html.
8 International District Energy Association.
9 "Combined Heat and Power: Effective Energy Solutions for a Sustainable Future", Oak Ridge National Laboratory,
ORNL/TM-2008/224, December 2008.
10 Efficiency hurdles were higher for natural gas CHP.
11 Avoided cost is the cost an electric utility would otherwise incur to generate power if it did not purchase electricity
from another source.
12 "Energy Tax Policy: Historical Perspectives on the Current Status of Energy Tax Expenditures", Congressional
Research Service, May 2011.
13 Gary Fowler, Albert Baugher and Steven Jansen, "Cogeneration", Illinois Issues, Northern Illinois University,
December 1981.
14 CHP Installation Database developed by ICF International for Oak Ridge National Laboratory and the U.S. DOE; 2012.
Available at http://www.eea-inc.com/chpdata/index.html.
15 Platts Gas Daily historical data.
16 CHP Installation Database developed by ICF International for Oak Ridge National Laboratory and the U.S. DOE; 2012.
Available at http://www.eea-inc.com/chpdata/index.html.
17 The technical market potential is an estimation of market size constrained only by technological limits — the
ability of CHP technologies to fit existing customer energy needs. The technical potential includes sites that have
the energy consumption characteristics that could apply CHP. The technical market potential does not consider
screening for other factors such as ability to retrofit, owner interest in applying CHP, capital availability, fuel
availability, and variation of energy consumption within customer application/size classes. All of these factors affect
the feasibility, cost and ultimate acceptance of CHP at a site and are critical in the actual economic implementation
of CHP.
18 Based on ICF International internal estimates as detailed in "Effect of a 30 Percent Investment Tax Credit on the
Economic Market Potential for Combined Heat and Power", report prepared for WADE and USCHPA, October 2010.
These estimates are on the same order as recent estimates developed by McKinsey and Company in "Unlocking
Energy Efficiency in the U.S. Economy", July 2009.
19 McKinsey and Company, "Unlocking Energy Efficiency in the U.S. Economy", July 2009.
20 Internal estimates by ICF International and CHP Installation Database developed by ICF International for Oak Ridge
National Laboratory and the U.S. DOE; 2012. Available at http://www.eea-inc.com/chpdata/index.html.
21 Internal estimates from ICF International.
Combined Heat and Power: A Clean Energy Solution
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Emerging Drivers for CHP
While investment in CHP has remained low since 2005, recent market
activity suggests the time is right for a rebound in CHP development powered
by four critical drivers:
Changing Outlook for Natural Gas Supply and Price
The United States is in the midst of a shale gas revolution that has been described
as a "game changer" in terms of the near- and long-term supply outlook for natural
gas. The revolution in recovering natural gas from shale formations is the result of
large-scale application of horizontal drilling and hydraulic fracturing techniques in
the shale development that began in the early 2000s.
The Barnett shale formation in Texas was one of the first to be tapped. Other large
shale formations include the Haynesville shale in Louisiana, the Fayetteville shale in
Arkansas, and (perhaps the largest) the Marcellus shale that extends southward from
New York State, through Pennsylvania and into the Appalachian Mountains. As
shown in Figure 8, the amount of shale gas supplied to the U.S. market has grown
by a factor of 14 since 2005, displacing imports and more than offsetting declines in
other North American production resources22.
FIGURE 8 I U.S. Natural Gas Supply
80
All Other Production B Net Imports ^ Shale Production
The development of shale gas has had a significant moderating effect on natural gas
prices. Prices in the five years prior to the recession averaged about $7.50/MMBtu;
since 2008, gas prices have averaged about $4/MMBtu23. Continuing advancements
Combined Heat and Power: A Clean Energy Solution
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in technology are driving reassessments of long term gas outlook as analysts
project more and more shale gas is economically recoverable at prices below $5
per MMBtu. Estimates of the natural gas resource base in North America that can
be technically recovered using current exploration and production technologies
now range from 2,000 to over 4,000 trillion cubic feet (Tcf) — enough natural gas
to supply the United States and Canada for 100 to 150 years at current levels of
consumption24. Henry Hub gas prices remain in the $4 to $7 range through 2030
in current EI A projections25; sufficient to support the levels of supply development
in the projection, but not high enough to discourage market growth. Continuing
moderate, and less volatile, gas prices will be a strong incentive for CHP market
development. As detailed above, 72 percent of existing CHP capacity is fueled by
natural gas, and the clean burning and low carbon aspects of natural gas will make
it a preferred fuel for future CHP growth.
Growing State Policymaker Support
Policymakers at the state level are increasingly recognizing the benefits that
CHP offers in terms of energy efficiency, reduced emissions, and economic
growth, and are adopting supportive policies. These policies include recognizing
CHP in state energy portfolio standards (renewable, clean energy, and energy
efficiency) and addressing utility regulatory policies that unduly discourage new
CHP project development.
Twenty-three states recognize CHP in one form or another as part of their Renewable
Portfolio Standards or Energy Efficiency Resource Standards. A number of states,
including California, New York, Massachusetts, New Jersey, and North Carolina,
have initiated specific incentive programs for CHP. Examples include:
Massachusetts Green Communities Act — The Green Communities Act
includes a rebate incentive for efficient CHP systems ($750/kW up to 50
percent of total installed costs). The incentive value is determined on a
case-by-case basis considering the value of CHP in the participating utility's
overall energy efficiency portfolio, the project's benefit to cost ratio, the
project's contribution to energy efficiency, project risk, and customer
investment threshold. All of the kilowatt-hours from CHP installed under
the program are credited to the servicing utility's energy efficiency goals.
California Feed-in Tariff for CHP below 20 MW — California has targeted up
to 6,500 MW of new CHP capacity by 2030 as a critical element in meeting
its GHG reduction goals; this goal was established under Governor Brown's
Clean Energy Jobs Plan released in 2010. To help stimulate CHP deployment,
the state has initiated a feed-in-tariff (FIT) for CHP systems less than 20
MW and with excess power (per AB 1613). The CHP system must be sized
to thermal load and operate at greater than 62% efficiency. The FIT price
is tied to natural gas prices adjusted by the time of day and season (Market
Price Referent (MPR)). California's FIT is not preempted by FERC as long as
Combined Heat and Power: A Clean Energy Solution
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the CHP generators are qualified facilities and the rate does not exceed the
avoided cost. FERC approved California's FIT design that included multi-
tiered rates (higher rates for greater efficiency) and adders for transmission
constraints and environmental externalities.
Changing Market Conditions For Power And Industrial Sectors
There are a number of factors that are affecting the market for producing electricity.
These changing factors include significantly reduced prices for natural gas and
expectations that prices will remain low for several years, moderately climbing prices
for coal, reduced projections for electricity demand growth, an aging fleet of coal-
fired power plants, and the U.S. Environmental Protection Agency's (EPA) recently
finalized power sector air regulations which will require investments in pollution
control technology at fossil-fired plants that currently lack modern controls. A
variety of power plant owners in the U.S. have announced a number of plant
retirements over the past two years26.
While there is a fair amount of excess power generating capacity currently, in some
regions the increase in announced power plant retirements is resulting in the need
for new generation capacity sooner than would otherwise be required in order to
maintain targeted reserve margins within regional electricity planning authorities.
In addition, the retirement of individual units can require the need to assess
more localized impacts on the grid in order to ensure continued maintenance of
established reliability standards. These factors create the need for new generation
within regions most impacted by retirements, as well as to provide localized
resources to ensure reliability over the coming years. This creates a significant
opportunity for the development of new CHP to meet these needs.
Similarly, industrial facilities may need to invest to improve or replace aging boilers,
whether to comply with pollution standards or to address aging capital equipment.
Investments in industrial facilities provide an opportunity for CHP deployment,
which is often a better investment, cleaner, and more energy efficient than
alternatives. DOE and EPA have partnered to ensure that industrial facilities have
information on alternative cost-effective clean energy strategies such as CHP when
making investment decisions27.
22 ICF Internal estimates based on historical production data.
23 See Figure 5.
24 The lower limit is based on DOE's natural gas resource estimate for the United States in ElA's Annual Energy
Outlook 2012; the upper limit is based on ICF International's estimates of recoverable North American resources
as of spring 2012.
25 DOE Energy Information Administration, Annual Energy Outlook 2012.
26 Energy Information Agency, Projected retirements of coal-fired power plants.
http://www.eia. gov/todayinenergy/detail.cfm?id=7330.
27 http://www1.eere.energy.gov/manufacturing/distributedenergy/boilermact.html.
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Barriers to Increased CHP Deployment
Although much progress has been made in the last decade to remove technical and
regulatory barriers to wider adoption of CHP, and while significant new market
drivers support an increase in CHP development, several major hurdles remain:
Unclear Utility Value Proposition
Many investor-owned electric utilities still experience customer-sited CHP as
revenue erosion due to traditional business models linking sales to cost recovery
and revenues. Since most facilities that install CHP remain connected to the grid
and need to rely on their servicing utility for supplemental power needs beyond
their self-generation capacity and/or for standby and back-up service during outages
or planned maintenance, utility policies, attitudes, and actions can make or break
a CHP project's economics. Utility tariff structures and standby rates impact the
economics of on-site generation28. Similarly, interconnection processes can delay the
project development process and add expenses by requiring costly studies, onerous
technical requirements, or significant delays in the process.
Limited CHP Supply Infrastructure
The downturn in CHP investment since 2005 has reduced the size and focus of the
industry sales and service infrastructure. CHP is not currently a major emphasis for
most energy developers and equipment suppliers. Increased use of CHP will help
bring system costs down and develop service infrastructure for CHP.
Market and Non-Market Uncertainties
CHP requires a significant capital investment and the equipment has a long life -
20+ years. It can be challenging to make investment decisions in a rapidly changing
policy and economic environment. Uncertain factors affecting project economics
include: fuel and electricity prices, regional/national economic conditions, market
sector growth, utility and power market regulation, and environmental policy.
Sizing the CHP system to maximize efficiency in many industrial facilities (i.e.,
thermal match) often produces power in excess of the host site's needs, introducing
the added market risk of power pricing to a consumer usually in a different core
business. In addition, CHP may increase emissions on-site while reducing emissions
regionally; CHP projects benefit from policies that recognize and account for
these savings29.
End-User Awareness and Economic Decision-Making
CHP is not regarded as part of most end-users' core business focus and, as such,
is sometimes subject to higher investment hurdle rates than competing internal
options. In addition, many potential industrial project hosts are not fully aware of
the full array of benefits provided by CHP, or are overly sensitive to perceived CHP
investment risks.
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Local Permitting and Siting Issues
CHP installations must comply with a host of local zoning, environmental, health
and safety requirements at the site. These include rules on air and water quality,
fire prevention, fuel storage, hazardous waste disposal, worker safety and building
construction standards. This requires interaction with various local agencies
including fire districts, air districts, and water districts and planning commissions,
many of which may have no previous experience with a CHP project and are
unfamiliar with the technologies and systems.
28 Rate structures that recover the majority of the cost of service in non-bypassabie fixed charges and/or ratcheted
demand charges reduce the economic savings potential of CHP.
29 International Energy Agency, Combined Heat & Power: and Emissions Trading: Options for Policy Makers, July 2008,
http://www.iea.org/papers/2008/chp_ets.pdf.
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Innovative Solutions for Increased CHP Deployment
Given the barriers outlined above, policymakers are beginning to craft solutions that
benefit all stakeholders (users, utilities, ratepayers). These include:
Utility Partnerships to Advance CHP
Utilities currently own just 3% (-2.4 GW) of existing CHP capacity. Given the
central role that they play in the development of new CHP — through policies
that directly impact project economics — and this modest level of ownership,
greater partnership between utilities, their industrial customers, project developers,
and other stakeholders offers a significant opportunity for addressing several
obstacles that currently limit project development. Utility recognition of CHP as an
investment opportunity to retain large industrial customers, as well as a solution to
needed investments in new generation and T&D infrastructure, is critical. Utilities
can serve as important partners in the development of CHP projects in areas of the
grid that are currently congested and in need of support. Financing difficulties can
also be relieved by utilities that typically have a lower cost of capital and longer
investment time horizons than many of their industrial customers. Overall, greater
utility partnerships on CHP are a win-win for the utility, the end-user/project
developer, and other ratepayers. The utilities can get the generation and T&D
infrastructure support they need, while providing the user with stable financing
and risk management. Project benefits will need to be appropriately apportioned
to stakeholders through well-crafted, fair policies and strategies to ensure
broad support.
State Policies to Capture Benefits of CHP
Many states, cognizant of the energy, environmental, and economic benefits of
CHP, are crafting strategies to increase the use of CHP. These strategies include: state
goals for new CHP development, energy efficiency or renewable energy portfolio
standards that recognize CHP, utility regulatory policies, clean energy allowance set-
asides under emissions trading programs, recognition of CHP's emissions reductions
in state air planning, and tax policies or other mechanisms to provide incentives
for CHP. Through their leadership, state policy makers are laying the groundwork
for expanding CHP development and, in so doing, realizing the associated energy,
environmental, and economic benefits for their state30. For example, the California
Air Resources Board's (CARB's) Scoping Plan envisions enough CHP to reduce GHG
emissions by 6.7 million metric tons (MMT) annually and the recent California
Public Utilities' (CPUC) decision sets a target of 3,000 MW of new contracts by 2020,
which has a target of 4.8 MMT of GHG reductions from new CHP projects31.
Ensuring state permitting and siting officials share information about CHP and best
practices, including standardized procedures for permitting and siting, encourages
greater use of CHP. Some states, such as New York, have issued guidebooks on
distributed generation siting, permitting and codes32. States have also moved
towards developing standardized interconnection application forms, specifying that
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project developers comply with national technical and safety standards (IEEE, UL,
fire safety guidelines, etc.), and have standardized application processes, timelines,
and fees as a way of streamlining the process for CHP projects.
30 A number of states have begun to recognize CHP as an option under their clean energy goals. States have included
CHP as an eligible resource in their renewable portfolio standards, typically under a separate tier devoted to
efficiency measures. CHP has also been incorporated as part of a stand-alone state energy efficiency portfolio
standard. For example, Massachusetts' Alternative Energy Portfolio Standard (AEPS) that requires 5 percent of
the state's electric load be met with "alternative energy" by 2020. CHP qualifies under the AEPS and as of 2009
represented 99 percent installed capacity under the program. Additionally, some states have enacted broader
legislation and/or issued executive orders establishing CHP targets such as California's goal of 6,500 MW of new
CHP called for as part of an executive order or New Jersey's Energy Master Plan which calls for 1,500 MW of new
CHP capacity within the state.
31 Docket 11 -IEP-1 A. California Energy Commission. Comments on the Cogeneration Association of California and the
Energy Producers and Users Coalition on the California Clean Energy Future Overview. June 20, 2011.
http://www.energy.ca.gov/2011_energypolicy/documents/2011 -07-06_workshop/comments/
Cogeneration_Association_of_California_Comments_2011 -07-20_TN-61457.pdf.
32 Bourgeois, Tom, and Bruce Hedman. "Clean Distributed Generation in New York State: State and Local Siting,
Permitting and Code Issues." Prepared for the New York State Energy Research and Development Authority. May
2003. http://www.pace.edu/lawschool/files/energy/docs/Pace_CHP_Siting_Guidebook.pdf.
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Conclusion
CHP is a proven solution for meeting growing energy demand efficiently, cleanly
and economically CHP is a clean energy solution that immediately addresses a
number of national priorities including improving the competitiveness of U.S.
manufacturing, increasing energy efficiency, reducing emissions, enhancing our
energy infrastructure, improving energy security and growing our economy.
The Obama Administration is supporting a national goal of achieving 40 GW of
new, cost effective CHP in the United States by the end of 2020. This challenge falls
in line with the goals set by the Industrial Energy Efficiency and Combined Heat and
Power Working Group of the State and Local Energy Efficiency Action Network (SEE
Action), which is focused on promoting industrial energy efficiency and CHP33.
Achieving this goal would require a significant increase in the level of CHP
development over recent years, but the pace of development would be comparable
with periods in the late 1980 through mid-1990s and again in the early 2000s
when the market and policy landscapes were more favorable towards CHP. To meet
this goal by 2020, barriers to CHP development need to be removed, and effective
policies, programs and financing opportunities promoted.
An additional 40 GW of CHP (approximately 50 percent more than the current
levels of U.S. CHP capacity) would save 1 Quad of energy (equivalent to 1 percent
of total annual energy consumption in the U.S.), reduce C02 by 150 million metric
tons annually (equivalent to the emissions of over 25 million cars), and save energy
users $10 billion a year relative to their existing energy sources. Achieving this goal
would also result in $40 - 80 billion in new capital investment in manufacturing
and other U.S. facilities over the next decade.
33 Industrial Energy Efficiency and Combined Heat and Power Working Group, SEE Action Network.
http://www1.eere.energy.gov/seeaction/combined_heat_power.html.
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For More Information:
Visit the U.S. DOE Advanced Manufacturing Office Website
atwww.eere.energy.gov/manufacturing.
Visit the U.S. EPA Office of Air & Radiation Website at
www.epa.gov/air.
DOE/EE-0779 August 2012
DEPARTMENT OF A rn« united States
B? Ilk II r™ Environmental Protection
CNCKUl VtrriAgency
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