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NATURVÅRDSVERKET RAPPORT 6460 Industrins energieffektivisering – styrmedlens effekter och interaktion It is important to view the issues from a broader perspective where important practical circumstances are also considered. A general regulation is simple form of control, while the individual regulations are not always efficient. General regulations are not in line with the Supreme Court’s general statement permit conditions should be precise for reasons of legal certainty. In this regard, a revision on the part of the Supreme Court would be needed (even though precise conditions must remain the general rule). There is also a need for a more efficient monitoring and enforcement system. In addition, the regulations following the so-called BREFsystem will strengthened through the new EU Directive on industrial emissions, but so far it remains unclear how energy issues will be addressed within BREF. The report’s concluding chapter discusses some important policy choices for future policy interventions concerning industrial energy use. We here discuss in more detail the issue of whether industrial energy use should be regulated through general or mill-specific conditions. We also present possible reforms of the existing policies. Here we emphasize – as a first point – the importance of an efficient pricing of energy carriers. PFE cannot replace the role of the pricing mechanism; ultimately energy prices create the demand for energy efficiency measures. The introduction of energy management systems can assist companies in identifying attractive energy efficiency projects, and make efficient choices between these, but in the end it is the potential to bring down energy costs that induce companies to pay attention to these in the first place. Our analysis shows that the Environmental Code and PFE in combination imply a form of dual control of energy conservation behavior in the industry, and there is therefore a need to “streamline” the two instruments. Our assessment suggests that revisions are desirable in both cases. The Environmental Code can constitute the main regulation for determining the conditions for the operation of existing and new industrial facilities. The Code permits flexibility in terms of adjusting conditions to meet the specific situations that face each industrial plant. The industry’s criticism of the Code should however be taken seriously. A number of revisions could make the environmental permitting process more efficient, such as: (a) the development of specific guidelines for how assessments should be performed in preparation for permits are needed; as is (b) the establishment of a forum for more constructive dialogue between regulators and industry representatives. On the latter point the regulating authorities need to overcome the often significant information asymmetries. An efficient permitting process builds heavily on a common understanding of the problems, opportunities, and of the challenges that exist in each case, and this is often lacking today. With these revisions the Environmental Code could address many of the issues that PFE have dealt with, not the least requiring firms to constantly oversee and act upon their energy management systems. The role of the regulating authorities should mainly be to require effective energy management practices (including demands for the implementation of energy management systems), but also to initiate more comprehensive system changes to improve overall energy efficiency in society. In the latter case there are good reasons to initiate a search process and give the company time to identify the most cost-effective solutions. 13
NATURVÅRDSVERKET RAPPORT 6460 Industrins energieffektivisering – styrmedlens effekter och interaktion A possible future for PFE is to design a voluntary agreement that has a much stronger focus on technological progress and innovation (rather than adapting current operations). Exactly how such a program can be designed must be further investigated, but the basic idea could to offer industrial companies a (fiscal) tax reduction for working intensively on developing new technology. A concrete example could be the so-called CCS technology permitting lower carbon dioxide emissions from industrial processes. An added value of such an agreement would be: (a) the development of a mechanism for transferring knowledge between the participating companies; and (b) new knowledge about how government authorities and the industry jointly can develop the type of innovation system that the new technology requires. An effective introduction of new technology requires both engineering research about the character of different technological solutions but also new insights into how institutional arrangements (e.g., legislation) need to be developed to facilitate the future adoption of the technology. 14
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