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Energy Policy Review

France 2021

3

FOREWORD

Foreword

The International Energy Agency (IEA) has conducted energy policy reviews of its member countries since 1976. This peer review process supports energy policy development and encourages the exchange of international best practices. By seeing what has worked - or not - in the real world, these reviews help to identify policies that can deliver concrete results. As a member of the IEA for almost three decades, France has been instrumental in guiding international efforts to accelerate clean energy transitions. France has demonstrated important leadership in global climate negotiations, notably with the landmark Paris

Agreement in 2015 and

in promoting green finance. I also highly value the strong engagement with IEA activities that we are seeing from France's Minister for Ecological Transition, Barbara Pompili, and her staff at the Ministry. This close cooperation was evident in the preparation of this report as well as for a recent joint study the IEA published with France's transmission system operator, RTE, which examined how power systems could operate with very high shares of variable renewables. France was among the first countries in the world to adopt an energy transition framework with a National L ow -Carbon Strategy and a 10-year investment plan for the energy sector. In 2019, France enacted into law its goal of reaching net zero emissions by 2050. However,

France

is behind schedule on its energy transition targets, despite important reforms being underway. While its power sector emits relatively low quantities of carbon, its overall energy consumption is dominated by fossil fuels, resulting in rising emissions, notably from transport.

France's nuclear fleet is ageing

and maintaining its low-carbon power generation will require timely decisions about the future electricity mix along with an acceleration of clean energy investments. France's economic recovery plan ("Plan Relance") and "France 2030" investment plan have earmarked unprecedented levels of funding for sustainable mobility, building re trofits, hydrogen, nuclear power and other technologies. To guide progress in these areas, the government needs to refresh its 2016 national energy research strategy. France has considerable work ahead on the road to net zero. It needs to focus on implementation, reviewing progress to date, and increasing co-ordination across the government. As the European Union implements its 55% emissions reduction target,

France will need to increase its

2030 targets for emissions reductions, share of renewables

and sector -by-sector energy efficiency. I strongly believe this report can help France advance its energy and climate goals while ensuring fairness, energy security and economic growth. The IEA will continue to work closely with France as it moves ahead with its transition.

Dr. Fatih Birol

Executive Director

International Energy Agency IEA. All rights reserved. 5

TABLE OF CONTENTS

ENERGY INSIGHTS

Foreword ........................................................................

1. Executive summary ........................................................................

.............................11 Increased climate focus ........................................................................ .............................11

Slow progress of France's energy transition .....................................................................12

Prioritising implementation ........................................................................ ........................13

Clear milestones for net zero and targets for 2030 ...........................................................14

Policies for the net zero pathway ........................................................................

..............15 Electricity market reforms ........................................................................ ..........................15

Carbon pricing and energy tax reforms ........................................................................

.....16

Sustainable recovery will be an opportunity ......................................................................16

Security of France's clean energy transition .....................................................................17

Key recommendations ........................................................................ ...............................18

2. General energy policy ........................................................................

.........................19 Country overview ........................................................................

Energy supply and demand

.......................21 Key institutions ........................................................................

Energy transition strategy and targets ........................................................................

......27

Territorial and regional energy planning ........................................................................

....29 EU Climate Law and the role of the National Energy and Climate Plan ...........................30

Energy and carbon pricing and taxation ........................................................................

....31 Green budgeting ........................................................................

People

-centred transition ........................................................................ ..........................33 Assessment ........................................................................ Recommendations ........................................................................ .....................................38

ENERGY TRANSITION

3. Climate change ........................................................................

....................................41 Overview ........................................................................

Energy-related CO2 emissions ........................................................................

..................42

CO2 emissions drivers and carbon intensity .....................................................................43

Emissions reduction targets ........................................................................ ......................45 Governance and compliance ........................................................................ .....................49 Climate finance ........................................................................ ..........................................50 IEA. All rights reserved.

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Adaptation and resilience to climate change ....................................................................52

Assessment ........................................................................ Recommendations ........................................................................ .....................................58

4. Energy efficiency ........................................................................

.................................59 Overview ........................................................................

Energy intensity and energy savings ........................................................................

........60

Energy efficiency targets and policies ........................................................................

.......62

Policies and progress by sector ........................................................................

................64 Assessment ........................................................................ Recommendations ........................................................................ .....................................77

5. Renewable energy ........................................................................

...............................79 Overview ........................................................................

Progress towards renewable targets ........................................................................

.........80

Trends in renewable energy by sector ........................................................................

......82

Policies and measures

..............................84 Renewables in electricity ........................................................................ ...........................84

Renewables in heating and cooling ........................................................................

..........91 Renewables in transport ........................................................................ ............................93 Assessment ........................................................................ Recommendations ........................................................................ .................................. 102

6. Energy research, development and innovation ................................................... 105

Overview ........................................................................ ................................................. 105

IEA framework for energy innovation policy ................................................................... 106

Key energy innovation priorities ........................................................................

............. 107

Main actors shaping France's energy innovation ........................................................... 107

A. Funding for energy R&D and innovation.................................................................... 109

B. Knowledge management ........................................................................ ................... 111 C. Support for innovation and market creation in strategic technology areas ............... 114

D. Tracking progress of energy innovation .................................................................... 117

Recommendations ........................................................................ .................................. 121

ENERGY SECURITY

7. Electricity........................................................................

........................................... 123 Overview ........................................................................ ................................................. 123

Electricity supply and demand ........................................................................

................ 124 Electricity trade ........................................................................ ....................................... 125 IEA. All rights reserved. 7

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Electricity demand ........................................................................ .................................. 128 Electricity policy ........................................................................ ...................................... 130 Market reforms........................................................................ ........................................ 130

Electricity security and emergency measures ................................................................ 136

Crisis management and emergency response .............................................................. 141

Assessment ........................................................................ ............................................ 142 Recommendations ........................................................................ .................................. 147

8. Nuclear ........................................................................

............................................... 149 Overview ........................................................................ ................................................. 149

The role of nuclear in France's energy transition ........................................................... 150

Outlook for nuclear energy ........................................................................ ..................... 150

Modernisation and long

-term operation ........................................................................ . 153

The outlook for nuclear new build ........................................................................

.......... 154

Financing nuclear and electricity market design ............................................................ 155

The nuclear fuel cycle, research and development ....................................................... 157

Assessment ........................................................................ ............................................ 158 Recommendations ........................................................................ .................................. 161

9. Natural gas ........................................................................

........................................ 163 Overview ........................................................................ ................................................. 163 Gas market structure ........................................................................ .............................. 168

Networks and

tariffs ........................................................................ ................................ 168

Gas policy and market regulations ........................................................................

......... 170 Assessment ........................................................................ ............................................ 178 Recommendations ........................................................................ .................................. 180

10. Oil ........................................................................

..................................................... 183 Overview ........................................................................ ................................................. 183 Oil policy ........................................................................ ................................................. 187 Market structure ........................................................................ ...................................... 189 Oil infrastructure ........................................................................ ..................................... 190 Oil emergency policies ........................................................................ ........................... 193 Assessment ........................................................................ ............................................ 197 Recommendations ........................................................................ .................................. 199

ANNEXES

ANNEX A: Organisations visited ........................................................................

............ 201

ANNEX B: Review team and preparation of the report .................................................. 203 IEA. All rights reserved.

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ANNEX C: Energy balances and key statistical data ..................................................... 205

ANNEX D: International Energy Agency "Shared Goals" .............................................. 209

ANNEX E: Glossary and list of abbreviations ................................................................ 211

LIST OF FIGURES, TAB

LES AND BOXES

Figures

Figure 2.1 Map of France ........................................................................ ......................20 Figure 2.2 Overview of France's energy production, supply and consumption, 2019 .22 Figure 2.3 Total energy supply in France by source, 2000-20 .....................................22 Figure 2.4 France's energy production by source, 2000-20 .........................................23 Figure 2.5 Share of total energy supply produced domestically in France by ................ energy source, 2000-20 ........................................................................ .......23 Figure 2.6 Share of total energy supply by source in G20 countries, 2019 .................24 Figure 2.7 Total final consumption in France by sector, 2000-19 ................................25 Figure 2.8 Total final consumption in France per sector and per fuel, 2019 ................25 Figure 2.9 National, regional and local plans for the energy transition ........................30 Figure 3.1 Greenhouse gas emissions in France by sector, 1990-2019 and targets ..42 Figure 3.2 France's energy-related CO2 emissions per sector, 2000-20 .....................43 Figure 3.3 France's energy-related CO2 emissions by source, 2000-19 .....................43 Figure 3.4 Energy-related CO2 emissions and key drivers in France, 2000-20 ...........44 Figure 3.5 CO2 intensity per GDP* in France and IEA countries, 2000-19 ..................44 Figure 3.6 CO2 intensity of electricity and heat generation in France and selected ....... IEA countries, 2000-19 ........................................................................ ........45 Figure 3.7 France's path to climate neutrality under the revised National Low-Carbon

Strategy, 2005

-50 ........................................................................ ................47 Figure 3.8 France's carbon budgets under the National Low-Carbon Strategy ...........48 Figure 3.9. Losses from extreme weather events in EU countries and the ..................... United Kingdom, 1980-2019 ........................................................................ 52

Figure 3.10 Emissions of air pollutants in France, 2000-19 ...........................................54

Figure 3.11 Concentrations of air pollutants in France, 2009-18 ...................................54

Figure 4

.1 France's energy demand and key demand drivers, 2000-19 .....................60 Figure 4.2 Energy intensity per GDP in selected IEA countries, 2000-18 ...................60

Figure 4.3 Energy intensity per capita in IEA countries, 2019 .....................................61

Figure 4.4 Energy savings by sector in France, 2000-18 .............................................61

Figure 4.5 Total final consumption in France by sector, 2000-19 ................................62 Figure 4.6 France's primary and final energy consumption, 2000-18 and targets .......63 F igure 4.7 Buildings energy demand in France by source, 2000-19 ............................64 Figure 4.8 Residential energy consumption in France by end-use, 2019, and by .......... source, 2000-19 ........................................................................ .................65

Figure 4.9 District heat supply in France by source, 2000-19 ......................................66

Figure 4.10 Transport total final consumption in France by fuel, 2000-19 .....................69 Figure 4.11 Total fleet of electric cars and charging points in France, 2010-20 ............69 Figure 4.12 Industry total final consumption in France by source, 2000-19 ..................72 Figure 4.13 Industry total final consumption in France by subsector, 2019 ...................72

Figure 5.1 France's renewable energy by sector, 2019 ...............................................81

IEA. All rights reserved.

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TABLE OF CONTENTS

Figure 5.2 France's progress towards 2020 and 2030 goals for renewable ................... energy deployment ........................................................................ ..............82

Figure 5

.3 Historic trend of renewable energy in total final energy consumption ........... in France, 2000 ...............83 Figure 5.4 Renewable energy consumption by sector in France, 2019 .......................83 Figure 5.5 Renewable electricity generation in France, 2004-20 .................................85 Figure 5.6 France's renewable electricity budgetary commitments (20 years) ............87 Figure 5.7 Renewable energy in heating and cooling in France, 2004-19 ...................91 Figure 5.8 Renewable energy in transport in France, 2004-19 ....................................94 Figure 5.9 Renewable energy in transport in IEA countries, 2019 ...............................95 Figure 6.1 The IEA's four functions of a successful innovation ecosystem for ............... energy ........................................................................ ............................... 106

Figure 6.2 Energy innovation ecosystem in France .................................................. 108

Figure 6.3 Energy-related public RD&D budget by sector in France, 2009-19 ......... 109 Figure 6.4 Energy-related public RD&D spending per GDP in IEA countries, 2019* 110 Figure 6.5 Energy-related R&D spending by globally listed companies ......................... headquartered in France, by sector, 2015 -20 .......................................... 111 Figure 6.6 Energy patenting trends in France (left) and contributions to global ............. patenting (right) ........................................................................ ................. 113 Figure 6.7 Early-stage venture capital investments in clean energy start-ups in .............

France, by sector, 2010

-20 ....................................................................... 116 Figure 7.1 France's electricity generation by source, 2000-20 ................................. 124 Figure 7.2 France's electricity net trade (imports/exports), 2000-19 ......................... 126

Figure 7.3 Electricity infrastructure of France ............................................................ 127

Figure 7.4 Electricity demand in France by sector, 2000-19 ..................................... 128 Figure 7.5 Share of electricity in total final consumption in IEA countries, 2019 ...... 129

Figure 7.6 Electricity generation for IEA countries, 2020 .......................................... 129

Figure 7.7 Electricity prices for France and selected IEA countries, 2000-20 .......... 134 Figure 7.8 Electricity industry and household prices in IEA countries, 2020 ............ 135 Figure 8.1 Nuclear power generation in France, 2000-20 ......................................... 149 Figure 8.2 History of commissioning pressurised water reactors in France, .................. 1977
-99 ........................................................................ ............................. 153 Figure 8.3 Projections for the levelized cost of electricity in France by technology .. 154

Figure 8.4 Key actors in the French nuclear sector ................................................... 157

Figure 9.1 Share of natural gas in France's energy system, 2000-20 ...................... 163 Figure 9.2 France's natural gas net imports by country, 2000-19 ............................. 164 Figure 9.3 France's natural gas demand by sector, 2000-19 .................................... 165 Figure 9.4 Industry and household natural gas prices in IEA countries, 2020 .......... 169 Figure 9.5 Natural gas prices in France and selected IEA countries, 2000-20 ......... 170

Figure 9.6 Gas infrastructure in France ..................................................................... 172

Figure 10.1 The role of oil in supply, electricity and consumption in France, ................... 2000
-20 ........................................................................ ............................. 184 Figure 10.2 France's crude oil net imports by country, 2000-19 ................................. 184

Figure 10.3 France's oil products production, 2000-19 ............................................... 185

Figure 10.4 France's oil products consumption, 2000-19 ........................................... 185

Figure 10.5 France's oil products net trade by country, 2000-19 ................................ 186

Figure 10.6 France's oil demand by sector, 2000-19 .................................................. 187

Figure 10.7 Price comparisons for automotive diesel, unleaded gasoline (95 RON) ....... and light fuel oil in the IEA, 3Q 2020 ........................................................ 190

Figure 10.8 Oil infrastructure in France ....................................................................... 191 IEA. All rights reserved.

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Figure 10.9 Stockholding system in France ................................................................ 196

Figure 10.10 Emergency oil stocks in France by type, 2010 -20 .................................... 196 Ta bles Table 2.1 Main targets and policies and measures in the multiannual enrgy plan .....

2020 ........................................................................

29
Table 2.2 Evolution of domestic consumption taxes between 2013 and 2020 ...........32 Table 3.1 France's targets for reducing emissions of pollutants for 2020 and 2030 ..54 Table 5.1 France's renewable energy targets by sector for 2020 and 2030 ...............81 Table 5.2 France's targets by fuel for the electricity mix up to 2035 ...........................84 Table 5.3 Targeted promotion of renewable electricity capacity (GW) .......................85 Table 5.4 France's targets for renewable heat under the PPE 2020 (TWh) ...............92

Table 6.1 Mission Innovation - Spending overview ................................................. 110

Table 7.1 Structure and evolution of electricity generating capacity in France........ 125

Table 8.1 Nuclear power reactors in France ............................................................ 151

Table 9.1 Entry interconnection capacities of the French gas network (GWh/d) ..... 173 Table 9.2 Exit interconnection capacities of the French gas network (GWh/d) ....... 173 Table 9.3 Liquefied natural gas terminals in France, 2020 ...................................... 174 B oxes Box 5.1 Technical conditions for a power system with a high share of renewables ... in France towards 2050 ........................................................................ .......86

Box 6.1 France's national hydrogen strategy ........................................................ 116

Box 7.1 The restructuring of the French utility EDF .............................................. 132

Box 7.2 Towards a consumer-centred clean energy transition ............................. 135 IEA. All rights reserved.

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ENERGY INSIGHTS

1. Executive summary

France has been an early thought leader of the global energy transition. As host of the COP21 and the Paris Agreement, France is widely seen as a frontrunner in the energy transition by the international community.

France

benefits from decarbonised electricity and the lowest per capita emissions of advanced economies thanks to the role of nuclear energy, which accounted for 71% of its power mix in 2019, and the role of hydro power (10%). France's decarbonisation framework, anchored in the Energy Transition Law of 2015, builds on the National Low-Carbon Strategy for 2050 (Stratégie Nationale Bas-Carbone, SNBC), with targets for the reduction of fossil fuel use and emissions by sectors under three five -year carbon budgets out to 2034. In the energy sector, actions are implemented by two successive five-year energy investment plans (la programmation pluriannuelle de l'énergie, PPE). Building on the SNBC and the PPE, regions are implementing their own climate and energy transition goals under the regional plans for spatial planning, sustainable development and equality. At the local level, municipalities are working on their c limate air and energy plans.

In 2021, France is not yet on track to

reach its targets for energy efficiency, renewable energy or emissions reductions, that were agreed in 2015. France should be able to catch up in the coming years, if the important reforms which are under way are implemented across the energy sector. As foreseen in the PPE, a significant acceleration in investment in the clean energy transition is needed to achieve

France's energy and climate targets by

2030. Commendably, the government adopted a historic

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