The use of biomass as an energy feedstock is emerging as a
potentially viable alternative to address U.S. energy security
concerns, foreign oil dependence, rural economic development, and
diminishing sources of conventional energy. Biomass (organic matter
that can be converted into energy) may include food crops, crops
for energy (e.g., switchgrass or prairie perennials), crop
residues, wood waste and byproducts, and animal manure. Most
legislation involving biomass has focused on encouraging the
production of liquid fuels from corn. Efforts to promote the use of
biomass for power generation have focused on wood, wood residues,
and milling waste. Comparatively less emphasis has been placed on
the use of non-corn-based biomass feedstocks-other food crops,
non-food crops, crop residues, animal manure, and more-as renewable
energy sources for liquid fuel use or for power generation. This is
partly due to the variety, lack of availability, and dispersed
location of non-corn-based biomass feedstock. The technology
development status and costs to convert non-corn-based biomass into
energy are also viewed by some as an obstacle to rapid technology
deployment. For over 30 years, the term biomass has been a part of
legislation enacted by Congress for various programs, indicating
some interest by the general public and policymakers in expanding
its use. To aid understanding of why U.S. consumers, utility
groups, refinery managers, and others have not fully adopted
biomass as an energy resource, this report investigates the
characterization of biomass in legislation. The definition of
biomass has evolved over time, most notably since 2004. The report
lists biomass definitions enacted by Congress in legislation and
the tax code since 2004 and definitions contained in legislation
from the 111th Congress (the American Clean Energy and Security Act
of 2009, H.R. 2454; the American Clean Energy Leadership Act of
2009, S. 1462; the Clean Energy Jobs and American Power Act, S.
1733; and the discussion draft of the American Power Act). Comments
on the similarities and differences among the definitions are
provided. One point of contention regarding the definition is the
inclusion of biomass from federal lands. Some argue that removal of
biomass from these lands may lead to ecological harm. Others
contend that biomass from federal lands can aid the production of
renewable energy to meet certain mandates (e.g., the Renewable Fuel
Standard) and that removal of biomass can enhance forest protection
from wildfires. Factors that may prevent a private landowner from
rapidly entering the biomass feedstock market are also included in
the report. Bills were introduced in the 112th Congress that would
modify the biomass definition (e.g., S. 781, H.R. 1861). However,
debates about the definition have not been as extensive in the
112th Congress as they were in previous Congresses. Forthcoming
discussions about energy, particularly legislation involving the
Renewable Fuel Standard or energy tax incentives, may prompt
further discussion about the definition of biomass.
General
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