Report of the Portfolio Committee on Energy on the
Energy Stakeholder Meeting, scheduled on 30 August 2012, dated 12 March 2014
Theme: “Exploring solutions to challenges on financing and
certification of locally produced renewable products”
1.
Opening remarks by the Chairperson, Hon SJ Njikelana
The Chairperson welcomed
delegates to the fourth stakeholder’s meeting arranged by the Committee since
November 2011. A number of challenges in
the renewable energy sector were highlighted during the previous engagement
with the Committee on 7 June 2012. Stakeholders were invited to brief the
Committee on the challenges faced by the sector and to explore possible
solutions. The renewable energy sector
in South Africa was relatively new but progress had been made over the previous
eighteen months. The third round of
procurement (Window 3) would commence shortly.
2.
Presentations
2.1. Overview by the Department
of Energy (DOE)
Ms Mokgadi
Modise, Chief Director: Clean Energy, DOE presented
the briefing.
The legislation applicable to the renewable energy sector included the Energy
Act and the Electricity Regulation Act (as amended), supported by the
Preferential Procurement Policy Framework Act, Tax Incentive Regulations issued
by the National Treasury and the Industrial Policy Action Plan (IPAP). The Independent Systems Market Operator Bill
was intended to level the playing field for producers of electricity. The participation of the Economic Development
Department in the National Economic Development Labour Advisory Council
(NEDLAC) had resulted in the signing of a Green Economy Accord, the Local
Procurement Accord and the National Skills Development programme.
Policy and regulatory framework developments included approval of the Renewable
Energy White Paper in 2003; approval of the Biofuels Industrial Strategy in
2007; approval of the Integrated Resource Plan in 2011; provision for legal and
regulatory frameworks for renewable energy in the New Generation Capacity
Regulation Act and providing financial support for Government’s policy goals.
The major challenges were high capital costs and the need to build
capacity. Government initiatives
included opportunities for skilling people but continued support and proactive
participation by all the stakeholders was required. The development of a sustainable renewable
energy sector was costly and required mobilizing all the available resources at
domestic, regional and international levels.
Multi-disciplinary partnerships needed to be established.
The Renewable Energy Programme was launched in August 2011. The DOE had negotiated with the Development
Bank of Southern Africa (DBSA) to assist with funding the black economic
empowerment (BEE) portion of projects.
The programme included specific requirements developers had to adhere
to. The Department and the National
Treasury had initiated a concessionary renewable energy funding programme and a
number of funding institutions had expressed interest in participating in the
programme. The DOE had formed a
partnership with Kreditanstalt für
Wideraubau to roll out solar systems in the Eastern
Cape.
The German government had
provided a grant for the non-grid electrification programme in the Eastern
Cape. The United States of America had
approached the Department of Science and Technology (DST) with a view to participate
in the development of off-grid technologies for remote, rural areas. The Global Alliance for Clean Cook Stoves is
a public/private partnership to promote clean and efficient household cooking
solutions.
The Renewable Energy Market
Transformation (REMT) programme of the DBSA offered financial support for
feasibility studies of renewable energy power generation and solar water
heating projects. The Energy and
Environment Partnership (EEP) programme of the DBSA provided funding for
off-grid and grid connected energy feasibility studies. The Energy and Environment Partnership
Programme for Southern and Eastern Africa supports renewable energy projects in
eight Southern and East African countries.
The programme is jointly funded by Finland and Austria and was
implemented in April 2010.
The Danish Energy Agency had engaged with the DOE in the development of a
project document to provide funding for several renewable energy projects in
terms of the Fast Start funding programme.
The Cancun agreements include the establishment of the Green Climate
Fund, a Finance Standing Committee and a Technology Mechanism. Progress was made in the establishment of the
Green Climate Fund during the 17th Conference of Parties (COP17) in
Durban.
The South African Renewable Initiative (SARi) was
established to support the development of the renewable energy sector in South
Africa. SARi
aimed to overcome the imbalance between the costs and benefits of renewable
energy.
The DOE had examined the international experience in using public finding to
leverage private investment which includes:
2.2. Presentation by the South
African Renewable Energy Council (SAREC)
Mr Johan van den Berg, Interim
Chairman, SAREC presented the briefing.
The local content requirements for Solar Photovoltaic (Solar PV), Solar Thermal
with storage and wind in the first round (Window 1) and second round (Window 2)
of procurement were compared. The
thresholds for the solar technologies were met but it was uncertain if the
targets for wind energy would be achieved.
The Department of Trade and Industry (DTI) had commissioned studies into
the localisation of the Solar PV, Solar Thermal and wind energy
industries. The outcomes of the studies
were expected to provide a roadmap for the optimum localisation of the three
main technologies, used in the renewable energy sector.
The Sustainable Energy Society of Southern Africa (SESSA) was collaborating
with the DST and the Council for Scientific and Industrial Research (CSIR) to
build a platform for the monitoring, measurement and reporting of actual job
creation, enterprise development and skills development in the renewable energy
sector.
A long-term vision and roll out plan across the various technologies was
required. The Integrated Resource Plan
(IRP) was flexible enough to allow Government to take advantage of new
technologies but manufacturers and investors required a degree of certainty and
clarity on the allocations for the various types of technology in the medium to
long term. The IRP should only be
amended to encourage local manufacturing.
Each type of technology required a minimum annual procurement allocation
to allow the local industry to develop.
The studies being undertaken should provide an indication of what the
minimum allocation should be for each type of technology.
The briefing included a diagram to illustrate the complex project financing
process applicable to the renewable energy sector. Various certification and guarantee
requirements were applicable to each type of technology. Project financing did not require the
developers to sign surety to a bank. The
loans could be very large and the bank’s depositors had to be protected against
any default. Instead, each piece of
equipment had to be tested, certified and guaranteed by a financially strong
company. The testing and certification
process was lengthy and companies required a strong balance sheet in order to
provide the necessary guarantees.
Start-up companies were not able to produce the kind of balance sheet to
support a guarantee. Development
institutions such as the Industrial Development Corporation (IDC) were
alternative sources of financing. The
cost of financing impacted on the cost of renewable energy and needed to be
kept as low as possible.
Each renewable technology
requires a minimum annual procurement for a number of years (medium term) to
activate local manufacturing. SAREC further pointed out that suggesting exact
figures may be premature and the answer will be different for different
technologies, however a collaborative investigation between government and
industry will assist to refine these figures. SAREC further highlighted that
there has been a clear and rapid response by local manufacturing firms in
investigating localisation potential based on the 3 725MW allocation.
Challenges include the
following
1) Certification and guarantees
– Project finance
In project
finance, the equity providers (developers) do not guarantee or sign surety to the bank
for the very large loans (can be more than ZAR 1 billion). If the project does
not perform, the bank must be able to sue someone who has the money to pay - or
the public’s deposits at the banks might ultimately be jeopardised. For this
reason each piece of equipment must be certified and guaranteed by a
financially strong company.
Certification
of new equipment involves testing and takes time (eg 12 months or more for
wind). Guarantee is essential – a big balance sheet is needed. It is possible
to provide other kinds of finance through development institutions (eg IDC). If
no bank loans are used and developers are asked to provide everything themselves, there may not be enough
money and the cost of renewable energy will go up, as this kind of money is
more expensive than bank loans
2.
Certification and guarantees – PV
According
to SAREC, the PV industry is confident that local manufacturing of certain
components can take place affordably in South Africa. Currently 3 module
assembly plants exist in South Africa with a capacity of approx 120MW/yr.
Several more plants for module assembly and inverter manufacture are under
development but require clear procurement roll-out plan.
3.
Certification and guarantees – Solar
thermal
Steel,
glass piping, tanks, construction materials, cement and cooling equipment can
be sourced locally. There is no local manufacturer of turbines and receiver
tubes. If a manufacturer came it would has to be international coming with
certification and guarantees otherwise time and a balance sheet would be
required. Appropriate certification would allow local manufacturers to compete
in the growing global market for CSP.
Certification
and guarantees – Wind
There is
currently no local turbine manufacturer at commercial scale to buy from and no
certified and guaranteed local blade manufacturer to buy from. One
un-guaranteed, local turbine assembler and blade manufacturer is currently closing its doors due to guarantee requirements of banks and
the bid rules. Certification will take about 12 – 18 months after erection of
pilot plant – thus perhaps 2 years away. If a certified and guaranteed
international firm comes to SA, this shortens to the time required to complete
the local factory
Possible solutions include:
(i). Change the scoring system
At present
the scoring is 70:30 for Price: Socio-economic. Strong localisation success may
save money even if the prices rise a little – more
employment, money stays in the country. With regard to the PV, SAPVIA suggests
that the scoring needs to be analysed per technology and per component. The
actual number of jobs created for each component manufactured locally must be
quantified and balanced against increased costs. Increased costs will lead to
higher energy costs, less installed capacity (there is a limited budget
available for government to procure) and fewer jobs through installation and
operation – a balance is required.
(ii). Lure international manufacturing firms
•
Lure
international firms with existing certifications and guarantees to SA, which
shortens the delays.
(iii). Develop non-recourse
finance packages
The IDC and DBSA can choose to apply project finance rules
differently to serve a development objective, and thus choose to “bank”
unproven South African technology without certification or guarantees. In time
the certification issue will disappear and the companies may be able to provide
some of the guarantees themselves
(iv). Allow bids at varying
levels of local content
If firms
are allowed to submit two bids with two prices corresponding with two different
localisation levels, it will be clear to government what localisation really
costs. Government could allocate bids at both levels and achieve the optimum,
blended levels of price and local content. In this manner the target is
achieved at industry level and not project level and projects can indirectly
“help” each other.
(v). Look at the regional potential
SA firms
have a competitive advantage in Southern Africa, due to the lower
transportation costs. The regional market will be bigger than the local market
and if the regional market can be accessed the feasibility of local firms will
be strengthened.
(vi). Promote training and r&d
Facilitate
funding for Training, Research and Development in universities and businesses,
specifically as part of the project Socio Economic Development spend in REIPPP.
This will create the intellectual component to SA’s emergence as a power in RE.
(vii). Distributed solutions
Mostly in PV but also in wind, to facilitate the roll out of the
smaller-scale distributed generation (own use and Net Metering). Smaller projects allow local
companies to provide technology more easily and bolsters their track
record and ability to provide guarantees (project finance not required)
2.3. Presentation by the South
African Bureau of Standards (SABS)
Mr Sadhvir
Bissoon, Executive, SABS presented the briefing.
The SABS was established in 1945 and was governed by the Standards Act, No 8 of
2008. Responsibility for regulatory
functions was transferred to the National Regulator for Compulsory
Specifications (NRCS) in 2008. The Standards
Division comprised 400 Standards Committees and deals with international (e.g.
International Standards Organisation (ISO) standards and the food safety
certification HACCP) and local standards (e.g. the South African National
Standards SANS). National standards are
developed by technical experts. The SABS
conducts conformity assessments and testing for system and product
certification as well as training programmes.
Certification of a product provided the assurance that the product
complied with the specified standard.
The SABS Mark was a highly recognizable symbol of credibility and was
synonymous with quality, reliability and dependability. The certification processes for products and
for systems were explained.
The ESKOM rebate scheme for domestic solar water heaters required compliance
with SANS 1307. Mr. Bissoon
indicated that performance testing of heat pumps was currently in
progress. The feasibility study on wind
turbines had been completed and submitted to the DST. SANS 941 applies to the energy efficiency
labeling of electronic appliances. The
SABS was currently engaged with the DTI to upgrade the laboratory and testing
facilities where appliances were tested, to determine if energy efficiency
claims were met.
ISO 50001 applied to energy management systems.
The SABS is currently engaged in training assessors and auditors on ISO
50001 and preparing for accreditation by the South African National
Accreditation Society (SANAS). The
applicable South African National Energy Efficiency Standards were illustrated.
The main challenges were identified as:
2.4. Presentation by the National Regulator for Compulsory Specifications
(NRCS)
Mr Musa Ndlovu, Executive, NRCS
presented the briefing.
The NRCS was responsible for administering the compulsory specifications
included in regulations. The
specifications are applicable to products that are imported, manufactured, sold
and/or exported. Other responsibilities
were defined in the Trade Metrology Act, the National Building Regulations and
the Building Standards Act.
Functions include;
The NRCS does not participate
in the writing of SANS or the certification and testing of products. The Regulator consulted widely with the
relevant sectors, and the technical regulations and specifications were
published for public comment.
Details were provided of the progress made in providing technical regulations
for solar water heaters, domestic hot water storage tanks, electrical
appliances, lighting, the energy-efficiency of new buildings and electric
vehicles.
2.5. Presentation by the Banking Association of South Africa (BASA)
Mr Pierre Venter, General
Manager, BASA presented the briefing (see attached document).
The presentation covered the role and contribution of the banking sector to the
development of the renewable energy sector in South Africa; the experiences and
lessons learnt in the procurement of renewable energy and the prognosis on the
key issues.
The involvement of Independent Power Producers (IPP’s) in the IRP since March
2011 was considered to be a great success story by the banking sector. Project financing by 2012 totaled R100
billion, of which R70 billion was from debt financing, mostly provided by the
commercial banking sector. The first two
rounds of renewable energy procurement had resulted in a lot of interest from
the financial sector. The commercial banking sector was looking forward to the
next round of bidding, had the finance available and was ‘ready to play’.
BASA recognized that the development of the renewable energy sector in South
Africa was at an early stage but had noted the development of healthy
competition in the sector. The
commercial banking sector was willing to support and exploit commercially
viable and sustainable opportunities.
Banks had already moved into investing solutions such as; the Green
Exchange Traded Fund, foreign exchange (FX) products, interest rate and
commodity hedging and agency/transactional services. Banking premises were being converted to be
more energy-efficient and a substantial amount was being invested in
electricity back-up systems for IT platforms.
The challenges concerning IPP’s included risk factors, time constraints,
inexperience of bidders and bureaucracy.
The challenges for the State including balancing social and economic
imperatives, meeting local content criteria, low manufacturing output
(particularly in the Solar PV sector), determining feed-in tariffs and a
conflict of interest as the State was both referee and player.
Critical focus areas identified were;
The prognosis on the key issues was generally positive, provided that the
message from the State was positive and that over-regulation of the renewable
energy industry was avoided. The new
industries had to be commercially viable and sustainable. Increased competition was welcomed. More needed to be done to educate consumers
and provide consumers with coherent information.
The policy on renewable energy had been established and the necessary research
had taken place. South Africa should now
focus on implementation. More attention
had to be given to develop ancillary businesses and attracting expertise. The regional options needed to be considered
and investors should be encouraged to invest in South Africa rather than in the
neighbouring countries.
3. Discussions
4. Recommendations