Science Policy
day one project

Creating a National HVDC Transmission Network

05.05.22 | 11分钟阅读 | 文字John Tracey

概括

The Biden Administration hascommitted从2005年到2030年,到2050年,美国从2005年的水平和净零排放量减少了50-52%的温室气体排放。要实现这些目标,美国必须迅速增加可再生能源的生产,同时建立所需的传输能力才能达到这些目标。携带由新的可再生能源产生的功率。这样的投资需要在A中转换美国电网never-before-seen speed and scale; for example,a recent studyestimates that a 60% increase in transmission capacity will be required. One way to achieve this ambitious transmission target is to create a national High Voltage Direct Current (HVDC) transmission network overlaid atop the existing alternating current (AC) grid. In addition to advancing America’s climate goals, such an effort would spur economic development in rural areas, improve the grid’s energy efficiency, and bolster grid stability and security. This memo proposes several policy options to incentivize private-sector efforts to construct a national HVDC transmission network while avoiding environmental and eminent-domain concerns that have doomed previous HVDC projects. Options range from modest and easily implemented rule changes by federal agencies to more ambitious Congressional actions.

Challenge and Opportunity

当前的美国电网类似于艾森豪威尔州际系统之前的美国高速公路系统。正如1950年代初铺好的一条或两条车道的道路几乎延伸到了几乎每个社区一样,今天很少有地区没有被授予。但是,当今纵横交错的交流电源线纠结,拥挤和不适合,以迅速从需求较低的能源产生地区(例如中西部和西南部)直接转移到直接到大人群中心的能源产生区域。需求最高。由于HVDC输电线路在300英里以上的距离上损失的功率低于AC线的功率较少,因此HVDC技术是将到2050年到2050年与电力消费者相连的可再生生成候选者。

There is a dearth of HVDC lines in the United States today, and the few that do exist are scattered across the country and were not designed to facilitate renewable development. In other words, the U.S. is a long way away from the integrated nationwide HVDC network needed to achieve net-zero emissions. Recent attempts by the private sector to begin building long-distance HVDC transmission lines between renewable producing regions and consumers — such asClean Line Energy’s proposalfor an aboveground line that would have linked much of the Great Plains to the Southeast — have been unsuccessful due to a host of challenges. These challenges included negotiating leases with thousands of landowners with understandable concerns about how the project could alter their properties, mounting an effective legal defense of the company’s use ofSection 1222of the Energy Policy Act of 2005 (which allows developers to assume the federal government’s power of eminent domain for large-scale transmission projects if leases cannot be agreed upon), negotiating with many local and state jurisdictions to secure project approval, and maintaining investor confidence throughout the complex and time-consuming permitting and leasing process. However, a new generation of private developershas proposed一个创新的解决方案,这些challen绕过ges: the construction of an underground nationwide HVDC network alongside existing rail corridors. Unlike aboveground transmission built through a mosaic of property owners’ holdings, this solution requires negotiation with only the seven major American rail companies, takes advantage of the proximity of these already-disturbed corridors to many areas with high renewable-energy potential (Figure 1), does not add visual pollution to the aboveground landscape, and would likely not require the use of Section 1222 to justify eminent domain.

Figure 1: Areas with high potential for wind and solar generation in the Great Plains and Southwest overlap with existing rail routes. Clockwise from left to right, routes of all seven class 1 railways (Source:Federal Railway Administration), heat map of average annual wind speed 80 meters aboveground (an indicator of the potential for wind energy generation; Source:National Renewable Energy Laboratory (NREL)), heat map of global horizontal solar irradiance (an indicator of solar-energy potential; Source:NREL).

In addition to the political considerations discussed above, several recent advances in HVDC technology have driven costs low enough to make HVDC installation cost-competitive with installing high voltage alternating current (HVAC) lines (see FAQ for more details). As a result, incentivizing HVDC makes sense from perspectives beyond addressing climate change. The U.S. electric gridmust be modernizedto address pressing challenges beyond climate, such as the need for improved grid reliability and stability. Unlike AC transmission, HVDC transmission can maintain consistent power, voltage, and frequency, making it a promising way to support the large-scale incorporation of renewable sources into our nation’s energy mix while simultaneously bolstering grid stability and efficiency and spurring rural economic growth.

A nationwide HVDC network would also increase grid stability by connecting the four large interconnections that make up the shared American and Canadian power grid (Figure 2). Currently, the two largest of these interconnections — the Eastern and Western interconnections — manage700 and 250 GWof electricity respectively. Yet, these interconnections are connected by transfer stations with a capacity of only about1 GW最近的研究NREL为首的研究员艾伦布鲁姆生态建模nomics of building a nationwide HVDC macrogrid that would tie the Eastern and Western interconnections together. The study concluded that such an investment would have a net benefit-to-cost ratio of 1.36 due to the possible ability for a nationwide HVDC grid to (i) shuttle renewable energy across the country as different power sources begin and end generation capabilities each day, and (ii) respond more nimbly to power outages in regions affected by natural disasters.

Figure 2: The four interconnections comprising the American and Canadian electricity grid: the Western, Eastern, ERCOT (Texas), and Quebec interconnections. Colors within the Eastern interconnection represent the territories of non-profit entities established to promote and enhance grid reliability within the territories shown on the map. These grid-reliability non-profits should not be confused with independent system operators (ISOs). (Source:National Electricity Reliability Council (NERC)).

总部位于明尼阿波利斯的Direct Connect以及美国和国际投资者混合的财务支持,已经开始了SOO Green的许可过程,Soo Green是第一个与铁路线共同分配的地下HVDC项目。Soo Green将从爱荷华州的乡村到芝加哥都会区。尽管此距离在地理上很短,但就其将提供的连通性而言是重要的。该线路将把中西部(味o)和PJM独立系统运营商(ISO)链接,这是管理美国大部分电网的九个区域机构中的两个。MISO和PJM ISO的综合领域从风能的大平原延伸到需求中心,例如费城,纽约郊区和华盛顿特区,促进该地区的HVDC传输促进可再生能源,从需要大量的能量到需要它的地区。

By providing a market for wind power in the energy-consuming PJM territory, the SOO Green proposal has already begun to generate interest in expanded renewable development in the wind-rich MISO territory.直接连接估计that the SOO Green HVDC link will spur $1.5 billion of new renewable-energy development, create $2.2 billion of economic output in Iowa and Illinois, and create thousands of construction, operation, and maintenance jobs.

SOO Green’s construction specifications, operational plan, and anticipated profit margin are near-ideal for an underground rail co-located HVDC project. The planned route crosses only two states, relies on a low-use railway, lies atop an area with well-characterized geology, and connects the energy-producing Midwest with the energy-consuming Mid-Atlantic. But despite these favorable conditions, SOO Green’s attempts to gain approval have been handicapped by outdated utility regulations. Direct Connect’s efforts have shown that even proposals with optimal conditions confront difficult permitting pathways. As a result, scaling underground co-located HVDC rapidly enough to achieve the transmission required for net-zero emissions in 2050 requires federal action to make these types of lines a more attractive proposition. The policy options outlined below would encourage other privately backed HVDC projects with the potential to boost rural economies while advancing climate action.

Plan of Action

以下政策建议将通过刺激位于现有铁路走廊并肩的地下HVDC输电线路的私人支持的建筑来加速国家HVDC网络的发展。建议在现有授权下由联邦能源监管委员会(FERC)颁布的一项和第二个易于行动的规则更改。建议三提出,能源部(DOE)和FERC提出了更长期的合作努力,以加速全国HVDC传输选址和许可。建议四是需要国会行动的更雄心勃勃的提议。

Recommendation 1. FERC should amend its rules governing how ISOs review new merchant transmission projects.

New merchant transmission projects (transmission lines developed by private companies and not by rate-regulated utilities) and generation projects are often reviewed by ISOs as part of a single interconnection process. In SOO Green’s case, the PJM ISO is backlogged in its reviews due to the high volume of new renewable-generation project proposals. This creates avicious cycleholding back the clean-energy sector: a delayed review of the transmission capabilities required by new renewable-generation projects ultimately chills the market for generation projects as well. FERC should therefore issue a rule that requires PJM and other ISOs to review new renewable generation and new transmission projects on separate tracks.

建议2. FERC应将HVDC传输项目免于针对不可控制的交流传输项目开发的外部容量规则。

根据PJM ISO制定的当前规则,只有在电网运营商可以直接派遣该能源时,PJM服务区域以外产生的能源才能参与PJM的能源市场。由于可再生能源生成的弥散性,PJM操作员不可能派遣特定的可再生生成项目。2021年10月,Soo Green提出了抱怨to FERC alleging that the PJM ISO’s external-capacity rules were designed to manage older, less diffuse generation resources — and that these rules need to be updated to allow the technological advantages of HVDC transmission (e.g., the capacity to schedule current flow at pre-agreed upon times and flows along HVDC transmission lines) to benefit PJM customers. FERC should exempt HVDC transmission projects from such rules as ISOs like PJM develop new external-capacity rules better suited to diffuse generation.

建议3. FERC和DOE应采用协作策略,以确定新的Rail共同位置的HVDC传输的相互同意的路线。

Previous attempts by Congress to establish greater federal power over transmission siting and permitting have revolved around the DOE’s authority to designate some counties as National Interest Electric Transmission Corridors (NIETCs). NIETCs are regions that DOE identifies as being particularly prone to grid congestion or transmission-capacity constraints. The creation of NIETCs was authorized by the Federal Power Act (Sec. 216), which also grants FERC the authority to supersede states’ permitting and siting decisions if the rejected transmission project is in a NIETC and meets certain conditions (including benefits to consumers (even those in other states), enhancement of energy independence, or if the project is “consistent with the public interest”). This “backstop” authority was created by the Energy Policy Act of 2005 and was recently reformed in 2021’s Infrastructure Investment and Jobs Act. Although it is a laudable attempt to spur transmission investment, the revised authority in its current formis unlikely to lead to the sudden acceleration传播选址和允许必要的achieve the Biden Administration’s climate goals. This is because NIETC designation, as well as any FERC action under Section 216, (i) trigger the development of environmental impact statements under the National Environmental Policy Act (NEPA), and (ii) would likely engender strong political opposition by states and landowners whose properties would be part of proposed routes but would not receive any benefits from transmission investments.

DOE和FERC不仅要仅依靠这种自上而下的方法,而应采用协作策略,在该策略中,他们与州政府,1级铁路,公用事业和感兴趣的传输开发人员合作,以计划和允许未来的HVDC传输,包括铁路共同定位项目。这种方法,符合Building a Better Grid Initiative, would decrease the possibility of political opposition — especially if rail co-located HVDC is emphasized due to its relatively small number of stakeholders and focus on already disturbed corridors. In addition, if mutually agreed corridors can be negotiated, this collaborative approach would render the lengthy NEPA reviews required for NIETC designation and FERC precedence unnecessary (although NEPA reviews may still be required if federal agencies are involved in the agreed-upon projects in other ways. See FAQ for more information).

建议4.创建联邦税收抵免,以刺激HVDC传输的国内制造和建设,包括沿铁路走廊的HVDC线路。

Congress should create two federal investment tax credits (ITCs) to stimulate a market for American HVDC lines. One tax credit should be directed to American manufacturers of cross-linked polyethylene (XLPE) which serves as the liner for HVDC cables. Such an incentive would help ensure a reliable, predictably priced domestic supply of this essential material. The second tax credit should be directed to HVDC line developers and should be modeled on an existing tax credit authorized by the Energy Policy Act of 2005 (26 U.S.C. § 48) for renewable-generation projects. A tax credit for HVDC line developers was previously introduced by Sen. Martin Heinrich (D-NM) as part of 2019’sElectric Power Infrastructure Improvement Act。在参议院财政委员会拖延后,this bill wasre-introducedin 2021 in both the House and Senate, then incorporated into President Biden’s Build Back Better Plan. The HVDC provisions of Build Back Better should be included in House and Senate Democrats’ attempts to revive the legislation during the summer of 2022. If negotiations are unsuccessful this summer, the HVDC provisions should be re-introduced via a stand-alone bill framed as a logical expansion of the renewable-generation tax credits enacted with broad bipartisan support in the Energy Policy Act of 2005. This strategy would separate HVDC tax credits from partisan feuding over Build Back Better and would draw greater attention to HVDC’s ability to simultaneously foster rural economic development and speed much-needed decarbonization efforts.

Conclusion

A significant increase in transmission capacity is needed to meet the Biden Administration’s efforts to achieve net-zero emissions by 2050. Creating a nationwide HVDC transmission network would not only greatly aid the United States’ efforts to address climate change — it would also improve grid stability and provide sustained economic development in rural areas across the country. Minneapolis-based Direct Connect’s SOO Green project to construct HVDC transmission alongside existing rail corridors is an example of an innovative solution to legitimate stakeholder concerns over environmental impacts and the use of eminent domain —concerns that have plagued previous failed efforts to construct long-distance HVDC transmission. The federal government can stimulate private development of this publicly beneficial infrastructure via simple rule changes at FERC, embracing a collaborative strategy to site and permit new transmission infrastructure, and by passing new HVDC transmission-specific tax credits modeled after existing credits.

Frequently Asked Questions
您可以详细说明DC和AC之间的区别吗?为什么网格作为交流电网发展?

Direct current (DC) runs continually in a single direction. DC became the standard current for American electricity early in the development of the U.S. grid, due largely to Thomas Edison’s endorsement. However,at that timeDC could not be easily converted to different voltages, making it expensive and difficult to supply power to consumers since different end uses require different voltages. Alternating current (AC), or current that reverses direction at a set frequency, could be converted to different voltages and had its own prominent proponent in Nikola Tesla. Due to the lower costs associated with AC voltage conversion, ACbecame the technology of choiceas city-wide and regional scale power plants and transmission developed in the early 20th century.

Can you elaborate on how to decide between HVDC and AC transmission? Under what circumstances should AC and HVDC be used?

In general, AC transmission is more cost-effective for lines that cover short distances, while HVDC transmission is ideal for longer projects. This is mainly due to the physical properties of DC, which reduce power loss when compared to AC transmission over long distances. As a result,DC transmission is ideal用于将农村地区产生的可再生能源转移到需求较高的地区。


An additional factor is the need for HVDC lines to convert to AC at the beginning and end of the line. Due to the history discussed above, most generation and end-use applications respectively generate and require AC power. As a result, the use of HVDC transmission usually involves two converter stations located at either end of the line. The development of voltage source converter (VSC) technology has significantly shrunk the land footprint required for siting converter stations (to as little as〜1英亩)并减少与转换相关的功率损耗。而VSC电台很昂贵(成本昂贵$100 million or more), the expenses of VSC technology begin to be balanced by the savings in efficiency gained through HVDC transmission atdistances above 300 miles


Additional factors that lower the costs for underground rail co-located lines are (i) that America’s fracking boom has led to significant technological advances in horizontal drilling, and (ii) the wealth of engineering experience accumulated by co-locating much of America’s fiber-optic network alongside roads or railways.

Can you quantify the magnitude of the backlog within PJM’s approval process?

The current backlog is estimated to be 30 months or more, according toSOO Green’s first FERC complaint

Does FERC have the authority to issue rule changes proposed in recommendations one and two of this memo?

Yes, FERC has the authority to issue these proposed rule changes underSection 206of the Federal Power Act (FPA), which states:


“Whenever the Commission, after a hearing held upon its own motion or upon complaint, shall find that any rate, charges, or classification demanded, observed, charged, or collected by any public utility for any transmission or sale subject to the jurisdiction of the Commission, or that any rule, regulation, practice, or contract affecting such rate, charge, or classification is unjust, unreasonable, unduly discriminatory or preferential, the Commission shall determine the just and reasonable rate, charge, classification, rule, regulation, practice, or contract to be thereafter observed and in force, and shall fix the same by order.”


FERC has the authority under Section 206 of the FPA to issue the proposed rule changes because theclassificationof HVDC transmission as generation by ISOs (recommendation 1) and ISOrulesgoverning external capacity (recommendation 2) are practices and rules that affect the rates charged by public utilities.

What is the permitting framework for large-scale HVDC transmission projects like SOO Green?

根据《国家环境保护法》(NEPA),大规模的HVDC传输项目不符合传输构建的分类排除标准(沿着以前受到干扰的通行权,长度<20英里;10 C.F.R.2021附录b). As a result, environmental impact statements are required to be created by all relevant federal agencies (possibly including the Environmental Protection Agency as well as the Departments of Commerce, Energy, the Interior, Labor, and Transportation). All relevant state and local permitting requirements also apply.

您能否详细说明该备忘录建议采用的合作方法?还有其他应涉及的机构吗?

To take advantage of the political momentum granted to thenewly createdDOE Undersecretary of Infrastructure and the relevant expertise within FERC, the new undersecretary, in partnership with FERC’s Office of Energy Policy and Innovation (OEPI), should together lead the collaborative effort by DOE and FERC to work with states, utilities, class 1 railways, and interested transmission developers. To expedite transmission development, efforts to bring representatives from these stakeholders to the table should begin as soon as possible. Once a quorum of interested parties has been established, the Infrastructure Undersecretary and FERC OEPI should facilitate the establishment of regular “transmission summits” to build consensus on possible transmission routes that meet the concerns of all parties.


必要时,基础架构和OEPI副秘书也应在这些定期计划的计划峰会中包括其他相关机构和办公室。具有宝贵观点的DOE办公室是清洁能源示威的办公室;能源效率办公室和可再生能源;以及能源与运输联合办公室(由美国能源部和运输部(DOT)共同管理)。可能的其他FERC办公室包括能源市场法规办公室和新创建的公众参与办公室。其他相关机构包括DOT内的国家铁路管理局,劳工部和内政部(由于西方建造的线路很可能越过联邦土地)。


Because HVDC transmission is a young industry, coordination among all these agencies and all relevant stakeholders for rail co-located HVDC transmission to proactively develop a clear regulatory framework would greatly aid the maturation of HVDC transmission in America.

鉴于2019年电力基础设施改进法案在参议院财政委员会中停滞不前,而后卫尚未通过,这是什么证据表明,在独立法案中,HVDC传输基础设施的税收抵免会得到两党的支持?

HVDC传输项目和组件的税收抵免是现有的可再生能源税收抵免的逻辑扩展,旨在增强许多美国农村社区的可再生能源增长的积极经济影响。1992年和2005年的《能源政策法》中最初的可再生能源税收抵免以两党的利润(93 - 3和85 - 12)获得通过。一项集中的倡导努力,使所有将从这些新提出的税收抵免中受益的利益相关者团结起来(包括将刺激新的可再生生成的农村社区,铁路公司,HVDC开发商和制造商,具有高可再生需求的城市中心)将产生所需的Bipartisan the Bipartisan支持。

8. Have other countries built nationwide HVDC transmission networks?

China leads the worldin installed point-to-point HVDC transmission. China also recently openedthe world’s first HVDC grid。Behind China, the European Union has made extensive investments in deploying point-to-point HVDC lines and is planning to develop an integrated European grid by requiring EU members to meet a15% interconnection target(这意味着每个国家必须能够到2030年将其15%的电力发送给邻居。India, Brazil,澳大利亚和新加坡have opened or are planning ambitious HVDC projects as well.