U.S. Renewable Electricity: How Does the Production Tax Credit (PTC) Impact Wind Markets? Page: 2 of 20
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U.S. Renewable Electricity: How Does the PTC Impact Wind Markets?
Summary
U.S. wind projects that use large turbines greater than 100 kilowatts (kW)-are eligible to
receive federal tax incentives in the form of production tax credits (PTC) and accelerated
depreciation. Originally established in 1992, the PTC has played a role in the evolution and
growth of the U.S. wind industry. Under existing law, wind projects placed in service on or after
January 1, 2013, will not be eligible to receive the PTC incentive. Industry proponents are
advocating for an extension of PTC availability, citing employment, economic development, and
other considerations as justification for the extension. While a PTC extension may improve the
prospects for U.S. wind development and manufacturing next year and beyond, the wind industry
is influenced by a number of other factors. It is uncertain how the near- or long-term availability
of the PTC incentive-in isolation of changes to other market factors-would either grow or
sustain current wind development and manufacturing levels.
For 2012, the pending expiration of the wind PTC is actually creating a short-term surge in wind
proj ect development and related investment and employment. Wind installations in 2012 are
expected to range somewhere between 10 to 12 gigawatts (GW) a record year for the industry.
However, market estimates for new installations in 2013 range from 1-2 GW if the PTC expires
and 2-4 GW if the PTC is extended. Limited market activity in 2013 is partially explained by the
uncertain nature of the PTC, which results in reduced manufacturing orders and development
activity as developers and investors wait for official policy direction. Wind installation
projections for 2014 and beyond vary with the assumed availability, and duration, of PTC
incentives. However, all projections reviewed for this report expect annual U.S. wind turbine
demand to be less than the existing U. S. turbine manufacturing capacity-approximately 13 GW
per year.
Other factors that can affect wind development include (1) state renewable portfolio standards
(RPS), (2) U. S. electricity demand growth, and (3) the price of natural gas. State RPS policies
have been the primary demand creator for wind projects, in most cases, by requiring certain
utilities to source a percentage of their retail electricity sales from renewable generators. Market
analysis indicates that incremental RPS-driven demand for all sources of renewable power is
estimated to be 4 GW-5 GW annually until 2025. Additionally, U.S. electricity demand growth is
expected to be modest for the foreseeable future, meaning that there will likely be modest demand
for new electric power capacity. Finally, the price of natural gas can also influence wind markets.
Low natural gas prices can erode the economic competitiveness of wind electricity, while high
natural gas prices can result in opportunities for wind to compete economically without the PTC.
Current estimates from the U. S. Energy Information Administration (EIA) proj ect sustained low,
but increasing, natural gas prices for the next several years.
By the end of 2012, Congress will either allow the PTC incentive to expire or it may choose to
extend or modify the incentive. Should Congress decide to extend the availability of wind PTC
incentives, the duration (e.g., two years, four years, permanent) of such an extension will likely
be part of the policy debate. Generally, the shorter the extension the greater the short-term
economic and employment activity as developers and investors accelerate development plans in
order to qualify for the PTC incentive. However, this development acceleration is likely to reduce
future RPS-driven demand. A permanent PTC is also a policy option that may be considered, and
EIA estimates indicate that such a policy may actually reduce near-term wind capacity additions,
with annual installations peaking at 4 GW in the 2030 timeframe. Higher natural gas prices, more
aggressive RPS policies, and increased U. S. electricity demand could change this outlook.Congressional Research Service
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U.S. Renewable Electricity: How Does the Production Tax Credit (PTC) Impact Wind Markets?, report, October 10, 2012; Washington D.C.. (https://digital.library.unt.edu/ark:/67531/metadc821806/m1/2/: accessed April 24, 2024), University of North Texas Libraries, UNT Digital Library, https://digital.library.unt.edu; crediting UNT Libraries Government Documents Department.