Bioenergy - draft policy statement: consultation

Introduction

When using sustainably sourced material, bioenergy can convert organic material into a renewable energy source. The organic material, often referred to as biomass feedstock, can be processed to give a direct energy output, such as producing heat from combustion, or refined to produce a liquid biofuel or biogas.

The bioenergy sector is currently a vital part of Scotland’s circular economy, generating value from waste and by-products. We believe there are additional resources which could be available for energy generation and want to see these utilised where they can facilitate a transition away from fossil fuels.

Purpose

The purpose of this draft Bioenergy Policy Statement is to set out the role that we see bioenergy having in Scotland's journey to net zero. It signals what the Scottish Government see as the short, medium and long term role for bioenergy, how the use of bioenergy can help Scotland get to net zero and highlights the actions that still need to be taken to enable this.

Bioenergy has many applications across heat, power, industry and transport, with a diverse range of mature and emerging technologies, which can be used to convert organic matter (biomass) into energy and could permanently remove carbon dioxide from the atmosphere when used with carbon capture technology. This makes bioenergy a complex policy area with diverse stakeholder interests.

Bioresources are often a by-product of agriculture, forestry, manufacturing or industry and should be utilised to displace fossil fuels, reduce emissions and reduce use of raw materials. Where feasible, carbon capture and heat recovery for use both on and offsite should also be added to the process.

The versatility and ability of bioenergy to act as a ‘drop-in’ fuel, make it valuable in displacing fossil fuels in the short term. In the longer term, developing technologies give it significant potential for delivering negative emissions^[1]. This draft Bioenergy Policy Statement sets out what we see as the key priorities for this diverse sector.

The draft statement is presented in two chapters, the first covering the use of bioenergy and the second considering the potential domestic supply of biomass feedstocks. Consultation questions appear at the end of each section within the chapters and are listed at the end of the draft statement (at Annex A on page 34).

Context

In our 2021 Bioenergy Update we set out the current role of bioenergy and how that may change as we move towards a net zero future. We identified the complex interdependencies throughout the biomass supply chain, as well as the potential competition for finite resources. The Update set out the importance of a strategic deployment of bioenergy technologies to ensure available resources are used in the most effective way. We highlighted the emerging role for Bioenergy with Carbon Capture and Storage (BECCS) as integral to achieving the negative emissions potential which will make net zero possible.

Since the publication of the Bioenergy Update, we have published our draft Energy Strategy and Just Transition Plan, which set out our vision for an energy system which delivers affordable, resilient and clean energy supply. It also set out that although Negative Emissions Technologies (NETs), such as BECCS, will be critical for reaching net zero. These technologies cannot be used to justify unsustainable levels of fossil fuel extraction or impede Scotland’s just transition to net zero.

There is a need for bioenergy to be scaled up and be used where it has the greatest impact in reducing emissions. The Climate Change Plan update (CCPu) described the need for increased use of BECCS in the future, acknowledging that further assessment is needed of the availability, sustainability and fairness of this increased bioenergy use in Scotland.

In our Bioenergy Update we outlined the need for more evidence to understand the availability of biomass feedstock and the trade-offs which need to be considered when scaling up production. We also committed to investigate the existing and emerging technologies which could help to deliver a net-zero energy system. The relationships between our energy system, net zero ambitions and use of land must be managed carefully to ensure that development is sustainable and delivers opportunities for a fairer, greener future.

Climate Change Plan (CCP)

The next Climate Change Plan (CCP), covering the period 2025 to 2040, is currently being produced with a final plan to be published no later than March 2025. The Scottish Government must set out within the CCP what policies and proposals will produce the required emissions reductions to meet annual statutory targets.

This draft policy statement sets out the parameters that need to be considered when setting bioenergy use now and in the future. It identifies what we think the priority uses of bioenergy are in the short, medium and long term, and sets out the potential domestic biomass supply that could be available as feedstock for energy production. It examines how available domestic biomass feedstock could be increased by planting energy crops. It also acknowledges the potential constraints on the use of bioenergy, the importance of having strict sustainability criteria and that biomass feedstock production and use should facilitate key sustainable development goals.

The modelling that underpins the CCP has been updated to reflect our greater understanding of the constraints on availability of sustainable biomass feedstock and technology readiness.