Biomass: Comparison of Definitions in Legislation (CRS Report for Congress)
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| Release Date |
Revised June 27, 2019 |
| Report Number |
R40529 |
| Report Type |
Report |
| Authors |
Kelsi S. Bracmort, Specialist in Agricultural Conservation and Natural Resources Policy; Ross W. Gorte, Specialist in Natural Resources Policy |
| Source Agency |
Congressional Research Service |
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Summary:
The use of biomass as an energy feedstock has regularly been presented as a potentially viable alternative to address U.S. energy security concerns, foreign oil dependence, and rural economic development, and as a tool to possibly help improve the environment (e.g., through greenhouse gas emission reduction). Biomass (organic matter that can be converted into energy) includes food crops, crops grown specifically to produce energy (e.g., switchgrass or prairie perennials), crop residues, wood waste and byproducts, and animal manure. Biomass may be used to produce heat, electricity, or liquid transportation fuel. Efforts to promote the use of biomass for liquid transportation fuels have focused on corn primarily. Efforts to promote the use of biomass for power generation have focused on wood, wood residues, and milling waste primarily. Comparatively less emphasis has been placed on the use of other biomass feedstocksânoncorn food crops, nonfood crops, crop residues, animal manure, and moreâas renewable energy sources for liquid fuel use or for power generation. This is partly due to the variety, lack of supply, and dispersed location of noncorn-based biomass feedstock. The technology development status and costs to convert noncorn-based biomass into energy are also viewed by some as obstacles to rapid adoption or deployment.
To aid in understanding the role of biomass as an energy resource, this report examines the characterization of biomass in legislation. For over 40 years, the term biomass has been used in legislation enacted by Congress for various programs. Biomass-related legislation has provided financial incentives to develop technologies that use biomass. How biomass is defined influences decisions about the type of biomass that is grown, where it is grown, and potential preferred energy uses, among other things. There have been 14 biomass definitions included in legislationâincluding tax legislationâsince 2004.
Future policy discussions about both energyâparticularly legislation involving the Renewable Fuel Standard (RFS) and energy tax incentivesâand the environment may prompt further discussion about the definition of biomass. For example, one point of contention regarding the biomass definition and the RFS is whether the term should be defined to include a larger quantity 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 RFS) and that the removal of biomass can enhance forest restoration or protection from wildfires, insects, or diseases.
Bills have been introducedâin the current Congress and previous Congressesâthat would modify the biomass definition, indicating some interest in expanding or refining its use. For example, S. 1614 would expand the renewable biomass definition for the RFS to include more biomass material from federal lands. Bills that would modify the biomass definition were also introduced in the 111th, 112th, and 113th Congresses. This report lists biomass definitions enacted by Congress in legislation since 2004, and discusses the similarities and differences among the definitions.
