瑞士能源政策回顾2023.pdf

Energy Policy ReviewSwitzerland 2023The IEA examines the full spectrum of energy issues including oil,gas and coal supply and demand,renewable energy technologies,electricity markets,energy efficiency,access to energy,demand side management and much more.Through its work,the IEA advocates policies that will enhance the reliability,affordability and sustainability of energy in its 31 member countries,13 association countries and beyond.This publication and any map included herein are without prejudice to the status of or sovereignty over any territory,to the delimitation of international frontiers and boundaries and to the name of any territory,city or area.Source:IEA.International Energy Agency Website:www.iea.orgIEA member countries:AustraliaAustriaBelgiumCanadaCzech RepublicDenmarkEstoniaFinlandFranceGermanyGreeceHungaryIrelandItalyJapanKoreaLithuaniaLuxembourgMexicoNetherlandsNew ZealandNorwayPolandPortugalSlovak RepublicSpainSwedenSwitzerlandRepublic of TrkiyeUnited KingdomUnited StatesThe European Commission also participates in the work of the IEAIEA association countries:Argentina BrazilChinaEgyptIndiaIndonesiaKenyaMoroccoSenegalSingapore South Africa Thailand UkraineINTERNATIONAL ENERGYAGENCY 3 TABLE OF CONTENTS ENERGY INSIGHTS Executive summary.9 Key recommendations.12 1.General energy policy.13 Country overview.13 Energy supply and demand.16 Key policies.18 Measures to ensure short-term energy security during the winters of 2022/23 and 2023/24.24 Hydrogen.25 Assessment.26 Recommendations.28 ENERGY SYSTEM TRANSFORMATION 2.Energy and climate change.29 Overview.29 Energy-related GHG emissions drivers and GHG intensity.30 Energy-related GHG emissions.31 Climate targets.32 Climate policies.33 Carbon capture and storage and carbon dioxide removal.39 Adaptation and resilience to climate change.39 Environmental impacts of the energy sector.40 Assessment.40 Recommendations.43 3.Energy efficiency.45 Overview.45 Policy targets and measures.46 Buildings.47 Transport.51 Industry.55 Public sector.56 Assessment.57 Recommendations.61 TABLE OF CONTENTS 4 4.Renewable energy.63 Overview.63 Renewable electricity.65 Renewable electricity policies and measures.65 Renewable heating and cooling.71 Renewable transport.72 Assessment.73 Recommendations.77 5.Energy research,development and demonstration.79 Overview.79 Key actors in the energy innovation ecosystem.79 Resource push.80 Energy innovation policies,priorities and programmes.81 Knowledge management.85 Assessment.87 Recommendations.88 ENERGY SECURITY 6.Electricity.89 Overview.89 Electricity supply and demand.89 Industry structure.91 Retail prices and taxes.92 Electricity policy.93 Security of electricity supply.96 Assessment.97 Recommendations.100 7.Natural gas.101 Overview.101 Gas supply,demand and trade.102 Market structure.103 Natural gas infrastructure.105 Natural gas policy.106 Biogas.107 Natural gas security.107 Assessment.108 TABLE OF CONTENTS 5 TABLE OF CONTENTS Recommendations.109 8.Nuclear.111 Overview.111 Status of the Swiss nuclear fleet.112 Power generation.113 The role of long-term operation of Swiss nuclear power plants in the generation mix.113 Radioactive waste management strategy.115 Nuclear research.118 Assessment.118 Recommendations.120 9.Oil.121 Overview.121 Supply and demand.122 Oil policy.124 Market structure.125 Biofuels.126 Infrastructure.127 Oil emergency policy and stockholding.128 Assessment.129 Recommendations.130 ANNEXES ANNEX A:Organisations visited.131 Review criteria.131 Review team and preparation of the report.131 ANNEX B:Glossary and list of abbreviations.134 Acronyms and abbreviations.134 Units of measure.135 LIST OF FIGURES AND TABLES Figures Figure 1.1 Policy-making cycle in Switzerland.14 Figure 1.2 Overview of energy production,supply and demand in Switzerland,2021.16 Figure 1.3 Total energy supply by source in Switzerland,2005-2021.17 Figure 1.4 Total final consumption by source in Switzerland,2005-2021.17 TABLE OF CONTENTS 6 Figure 1.5 Energy demand per sector and per fuel and electricity generation by fuel in Switzerland,2021.18 Figure 2.1 Total greenhouse gas emissions by sector in Switzerland,1990-2021,and 2030 and 2050 targets.30 Figure 2.2 Energy-related greenhouse gas emissions and main drivers in Switzerland,2005-2021.31 Figure 2.3 Energy-related GHG emissions by sector in Switzerland,2005-2021.31 Figure 2.4 Energy-related GHG emissions by energy source in Switzerland,2005-2021.32 Figure 2.5 Selected measures of Switzerlands CO2 Act over time.34 Figure 3.1 Energy demand and drivers in Switzerland,2005-2021.45 Figure 3.2 Total final consumption by sector in Switzerland,2005-2021.46 Figure 3.3 Total final consumption in the buildings sector in Switzerland by source,2005-2021.48 Figure 3.4 Total final consumption in transport in Switzerland by energy source,2005-2021.52 Figure 3.5 Registered electric vehicles and public charging points in Switzerland,2010-2022.53 Figure 3.6 Total final consumption in industry by source in Switzerland,2005-2021.55 Figure 4.1 Renewable energy in total final energy consumption in Switzerland,2005-2021.64 Figure 4.2 Share of renewable energy by source in each of Switzerlands sectors,2021.64 Figure 4.3 Renewable energy in electricity generation in Switzerland,2005-2021.65 Figure 4.4 Allocation of network surcharge by funding mechanism in Switzerland,2022.67 Figure 5.1 Energy-related public RD&D budget by sector in Switzerland,2010-2021.81 Figure 5.2 Energy-related public RD&D spending per GDP in IEA countries,2021.81 Figure 5.3 Switzerlands participation in IEA technology collaboration programmes.85 Figure 5.4 New patents in energy-related climate change mitigation technologies,Switzerland,2005-2019.86 Figure 6.1 Electricity generation by source in Switzerland,2005-2021.90 Figure 6.2 Electricity demand by sector in Switzerland,2005-2021.90 Figure 6.3 Switzerlands electricity imports and exports,2005-2021.91 Figure 6.4 Electricity prices for industry and households in IEA member countries,4Q 2022.92 Figure 7.1 Share of natural gas in Switzerlands energy system,2005-2021.102 Figure 7.2 Natural gas demand by sector in Switzerland,2005-2021.102 Figure 7.3 Switzerlands natural gas trade by country,2005-2021.103 Figure 7.4 Natural gas prices for households in Switzerland,4Q 2022.104 Figure 7.5 Natural gas prices for industry in Switzerland,4Q 2022.104 Figure 8.1 Nuclear electricity generation in Switzerland,2005-2021.111 Figure 9.1 Shares in oil in Switzerlands energy sector,2005-2021.122 Figure 9.2 Switzerlands net imports of crude oil and refinery feedstock by country,2005-2022.122 Figure 9.3 Oil products demand by fuel(2005-2022)and sector(2005-2021)in Switzerland.123 Figure 9.4 Oil products production by fuel in Switzerland,2005-2022.123 Figure 9.5 Switzerlands net imports of oil products by country,2005-2022.124 Figure 9.6 Price comparison for automotive diesel in the IEA,1Q 2023.126 TABLE OF CONTENTS 7 TABLE OF CONTENTS Figure 9.7 Price comparison for unleaded gasoline(95 RON)in the IEA,1Q 2023.126 Figure 9.8 Switzerlands biofuels and shares in transport fuels,2011-2021.127 Tables Table 1.1 Energy efficiency targets in the ES2050,EP2050+and parliament decision.23 Table 1.2 Renewables targets in the ES2050,EP2050+and parliament decision.23 Table 2.1 Switzerlands GHG emissions trends under main sectors and CO2 Act goals.32 Table 2.2 Summary of Switzerlands climate targets.33 Table 2.3 Terminology to describe the evolution of the CO2 Act.33 Table 3.1 Switzerlands energy efficiency targets according to ES2050 and EP2050+.47 Table 3.2 Switzerlands indicative energy efficiency targets and actual achievement in 2020.47 Table 6.1 Main cross-border interconnection capacity by source in Switzerland,2021.95 Table 8.1 Status of Swiss nuclear power plants as of 2021.112 Table 8.2 Major modernisation and/or refurbishment of nuclear operating plants in recent years in Switzerland.114 Table 8.3 Timeline of the deep geological repository site selection process in Switzerland.116 9 ENERGY INSIGHTS Executive summary Switzerland is committed to reach net zero emissions by 2050 and reduce greenhouse gas(GHG)emissions by at least 50%by 2030 compared to 1990.To support this,the government has prepared several pieces of legislation.The long-term Federal Act on Climate Protection Goals,Innovation and Strengthening Energy Security foresees substantial subsidies for replacing fossil heating and processes.A revision to the CO2 Act for the period beyond 2025 with instruments to reach the countrys 2030 target under the Paris Agreement was being debated in parliament at the time of writing.The third piece of legislation is a revision of the 2018 Energy Act to replace the indicative targets for the expansion of renewables and per capita energy and electricity consumption with binding targets complemented with concrete measures to speed up deployment.Reaching the climate target for 2030 will require substantial efforts,especially in the building and transport sectors,which both failed to meet their 2020 sectoral emissions targets.One challenge for the government is that the domestic climate legislation is currently in a flux.A revision of the CO2 Act for the period to 2030 was rejected in referendum in 2021 and the new proposed CO2 Act is still in the legislative process.Voters have,in particular,rejected the planned substantial increase in the CO2 levy on stationary fuels.The new proposed CO2 Act shifts the focus from regulations and tax increases to incentives and foresees a notable increase in funding for measures targeting the transport and building sectors.The new proposed CO2 Act to 2030 also increases the share of emissions reductions that can happen abroad to a maximum of 40%.Energy efficiency is a key pillar of Switzerlands strategy towards reaching its energy and climate targets for 2030 and the net zero target for 2050.Switzerland shows notable decoupling between energy consumption and economic growth.Its total final consumption per capita is substantially below the IEA average and decreased by 13%between 2011 and 2021.However,the governments five-year monitoring report published in late 2022 concluded that the current policy measures are insufficient to reach the 2030 targets.It is,therefore,important that energy efficiency as the first fuel principle is anchored as a pillar of new energy and climate legislation.Switzerland recognises that by 2050 it will still emit around one-quarter of its current GHG emissions from hard-to-abate sectors,around 60%of which would be balanced via net emissions technologies(NETs)in Switzerland and abroad.The country also has plans to develop carbon capture and storage(CCS)technologies and infrastructure to avoid the remaining approximate 7 million tonnes(Mt)of carbon dioxide(CO2)from waste incineration and concrete production a notable shift in positions compared to the IEAs last in-depth review in 2018,when CCS and NETs were not part of the proposed policy and technology mix.However,the federal government is legally limited in the development EXECUTIVE SUMMARY 10 of CO2 transport and storage infrastructure within Switzerland because surface and subsurface territorial planning is under the competence of cantons.Ensuring security of electricity supply in winter While advancing its energy transition,Switzerland must also ensure security of supply,especially during the winter months.There are several challenges ahead and tackling them in a co-ordinated way will require a whole-of-government,whole-economy approach.The greatest challenges lay in the electricity sector,which will undergo major changes with the gradual phase-out of nuclear,the accelerated electrification of the heating and transport sectors,and the need to ramp-up generation from renewable electricity to ensure the net zero emissions trajectory to 2050.Primarily,solar PV and hydro are expected to fill the gap from the phase-out of nuclear power.The Swiss electricity system has a very high degree of flexibility thanks to its large installed capacity of pumped hydro storage.But Switzerland is dependent on imports to cover its electricity demand in winter when water reserves run low,and demand is high.With the expected changes to the energy mix in neighbouring countries,the winter import dependency might become critical,although Switzerland is importing electricity mainly at times when electricity prices are low in Europe.There is hence a need to accelerate the expansion of renewable energy and,in particular,technologies that offer more generation during winter,such as wind and hydro.The 2022 energy crisis and the tense situation in the nuclear sector in France(a major exporter to Switzerland in winter),compelled the government to implement urgent but time-limited measures to ensure short-term security of electricity and gas supply.It advanced several policy initiatives that had been languishing in the complex Swiss legal approval system.Under the so-called“winter reserve ordinance”,Switzerland is implementing measures to address the specific Swiss electricity shortage during winter;they include the creation of and regulation for the use of a hydropower reserve of 500 gigawatt hours(GWh)and the construction of a 250 megawatt(MW)reserve power plant that can run on several fuels(gas,oil and hydrogen),with provisions for contracting pooled emergency generators and other existing gas turbines.Both would have permission to operate until the end of April 2026.By then,the ordinance would have been absorbed in the Act on the Secure Electricity Supply with Renewables that is currently in the legislative process.In the gas sector,the government obliged the gas industry to secure additional storage capacities outside of Switzerland equivalent to 15%of annual consumption(there is no gas storage within the country)and to buy gas purchase options for about 20%of winter consumption.The energy crisis has revealed how necessary basic gas sector regulation is;the creation of an independent transmission system operator and a gas regulator should be pursued with urgency.Facilitating permitting processes and enhancing policy co-ordination A key obstacle to Switzerlands energy transition is the permitting processes for energy projects which mirror complex,time-intensive governance and legal structures.Projects often face long legal proceedings,which can delay projects for decades.Although the EXECUTIVE SUMMARY 11 ENERGY INSIGHTS Energy Act of 2018 requires cantons to designate areas for renewables,the practical impact so far is limited,as the overall approval process remains complex.The same legislation designates large hydro and wind projects as being in the national interest.The government should now provide legal clarification that this designation applies to all renewable power plants and their connection to the grid,as well as the building and operation of electricity grids in general.The energy security benefits of such projects should also b