The Potential of Biofuels in China

(Netzwerk Biotreibstoffe) This IEA Bioenergy Task 39 report looks at the potential of biofuels in China. Although climate change and energy security are of concern to China, it is not clear which of these drivers has been the primary motivator for biofuels development. However, the policies that China has implemented so far to help develop biofuels have resulted in the country becoming the world’s third largest ethanol producer. The country currently produces about 3 million m³ of ethanol and about 1.14 million m³ of biodiesel per year. Although the Chinese government has set ambitious targets to increase annual biofuels production to12.7 million m³ of ethanol and 2.3 million m³ of biodiesel by 2020, it is highly unlikely that these targets will be met. It is worth noting that biofuels development and use received little attention in the country’s recently released 13^th five-year plan. Unlike other forms of renewable energy, no exact output targets were given for biofuels. READ MORE Download report

Excerpt from IEA report: Since the oil crisis of the 1970’s energy security and climate change mitigation requirements have been the main motivators behind most countries’ desire to develop biofuels. Although climate change and energy security are also of concern to China, it is not clear which of these drivers has been the primary motivator for biofuels development. However, the policies that China has implemented so far to help develop biofuels have resulted in the country becoming the world’s third largest ethanol producer. The country currently produces about 3 billion litres of ethanol and about 1.14 billion litres of biodiesel per year. Although the Chinese government has set ambitious targets to increase annual biofuels production to12.7 billion litres of ethanol and 2.3 billion litres of biodiesel by 2020, it is highly unlikely that these targets will be met. It is worth noting that biofuels development and use received little attention in the country’s recently released 13th five-year plan. Unlike other forms of renewable energy, no exact output targets were given for biofuels.

Unlike stationary power, which can be derived from multiple sources including solar, hydro and wind, transportation has limited options available for decarbonisation. Although biofuels can potentially alleviate energy security concerns and make an important contribution to reducing transportation emissions and air pollution, it seems that the most recent central government policies have primarily focussed on the development of “new energy vehicles” (electric and hybrid vehicles). However, it is worth noting that electric vehicle expansion based on coal-derived electricity will have a limited impact on emissions.

China’s biofuels policies have mainly focused on ethanol production with about 99% of the ethanol produced in China based on conventional starch-based feedstocks. Current ethanol production has been developed within a highly regulated environment as no facilities can be built unless government approval is obtained. All ethanol production and distribution is controlled by state-owned oil companies and only state approved companies can carry out blending and receive incentives and subsidies. Although an E10 mandate is in place in four provinces and 27 cities, no blending can take place outside of these areas. The price of the ethanol that blenders have to pay producers is fixed at 91.1% of the price of gasoline. As a result, there are no incentives in place for consumers to preferentially purchase ethanol containing fuels as the blended fuel costs the same price as the unblended fuel.

After the initial development of ethanol production facilities based on stale grain reserves in 2007, the government banned further bioethanol development based on grains. Instead they encouraged the production of so-called 1.5 generation feedstocks such as cassava, sweet potato and sweet sorghum. A further two ethanol facilities were supposed to be developed based on cassava and one based on sweet sorghum. These 1.5 generation crops were supposed to be predominantly grown on marginal lands. However, this approach has had limited success, with land and water availability proving to be significant challenges while these supposed biofuels feedstocks still compete with food production.

The commercial development of so-called second generation/advanced biofuels based on cellulosic feedstocks has been limited to small volumes. Currently there is only one demonstration/commercial scale facility using corn cobs as the feedstock. However, it appears that there is considerable potential for further cellulosic ethanol production based on a range of agricultural residue feedstocks. Preliminary assessments of agriculture residue availability indicate that there should be significant quantities available for ethanol production, even based on conservative estimates. However, far more detailed studies need to be carried out to determine realistic availability within an economically viable radius. At the same time, a detailed assessment of the likely supply chain challenges that might be encountered in China needs to be carried out. (i.e. small-scale farming versus large-scale commercial farming; manual harvesting versus mechanical harvesting; topographical factors such as terrace farming; and the viability of large-scale collection of rice straw). These further analyses will be better able to distinguish between the theoretical and actual potential of making advanced/second generation bioethanol in specific locations.

Although several international companies such as DuPont, Beta Renewables and Novozymes have announced plans for construction of commercial scale cellulosic ethanol facilities in China, in partnership with existing ethanol producers, the current low price of oil has delayed these developments. Thus, it is unlikely that the commercial development of cellulosic ethanol will occur in time to meet the government’s ethanol targets for 2020. However, this conversion technology is probably the best opportunity for the country to expand ethanol production, in addition to achieving its climate change mitigation and emission reduction targets for transport.

Unlike the ethanol industry the biodiesel industry has developed slowly, is dominated by small-scale private businesses and is largely unregulated. No mandate for biodiesel blending exists, except for a small trial in two counties in Hainan province. There are also limited incentives to carry out biodiesel blending. The vast majority of the biodiesel that is produced is used by industry, with only about 30% used for transport. Market penetration for biodiesel has been very limited as state-owned oil companies own 90% of the gas stations and they have not encouraged biodiesel use.

Virtually all of the biodiesel that is produced is based on used cooking oil as the feedstocks. Although large volumes of so-called “gutter oil” are produced in China, competition from illegal re-use in food applications has resulted in supply availability challenges. The central government’s strategy of developing 1.5 generation oilseed-bearing trees and crops such as Jatropha as the feedstocks has had limited success to date. Although biodiesel production targets are modest and could possibly be achieved, further expansion is likely to be limited. Although there is approximately equal demand for gasoline and diesel in China’s transportation supply chain, biodiesel market penetration and production targets have been very low compared to ethanol. Early indications are that compressed natural gas vehicles, particularly for haulage, may be preferentially developed ahead of biodiesel. Although imported biofuels could potentially be used to meet government targets this is likely to remain limited as current regulations do not allow any imported ethanol to be used for transport.

The experience in other jurisdictions such as Brazil, the EU and the US has shown the essential role the supporting policies play in creating demand, stimulating production and facilitating research, development and commercialisation of biofuels. Although the Chinese government has implemented some policy support for biofuels, these policies have primarily focused on ethanol, have lacked integration and have had a limited impact on the development of biofuels. For example, the most recent 13th Five-year Plan makes limited mention of biofuels implying that biofuels will likely play only a minor role in China’s decarbonisation of its transport sector. READ MORE