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Energy Policy Review

France 2021

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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

TABLE OF CONTENTS

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.

TABLE OF CONTENTS

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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 .....................43quotesdbs_dbs26.pdfusesText_32

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