Policy Evaluation of Purchasing Electricity from Rooftop PV by PT

PLN (Persero) and Its Effectiveness in Increasing the Renewable

Energy Portion on the Energy Mix

R. Andika Bayu Kurniawan and Yudo Anggoro

School of Business and Management, Institut Teknologi Bandung, Jakarta, Indonesia

Keywords: Conversion Factor, Energy Mix, Renewable Energy, Rooftop PV

Abstract: In 2017, global cumulative solar photovoltaic (PV) capacity reached almost 398 GW and generated over 460

TWh. However, total installed solar PV in Indonesia is only 0.017 GWp from the potential capacity of 207.9

GWp. To push the development of solar PV capacity, the government stipulated Minister of Energy and

Mineral Resources Regulation Number 49 of 2018 on Solar Photovoltaic System Utilization by customers of

PT PLN. The energy exported is converted by 65% for non-industrial customers. For industrial customers, it

is subject to capacity charges and emergency energy charges. The objectives of this research are to evaluate

the implementation of the rooftop PV policy, then to observe alternative solutions to optimize it. The program

evaluation method is used. Data obtained through interviews, FGD, and literature reviews. The analysis is

done qualitatively and quantitively. The results are challenges on implementing rooftop faced by utilities

(existing system condition), consumers (65% not appealing), and government (untracked systems); what are

the alternative solutions; how to overcome the intermittent issue.

1 INTRODUCTION

Solar Photovoltaic (PV) technology, which converts

sunlight into electricity, is a rapidly growing

renewable energy resource and assumedly will play a

major role in global energy production. Solar energy

is abundant, and therefore, Solar PV is one of the most

promising renewable energy resources. In 2017,

cumulative solar PV capacity reached almost 398 GW

and generated over 460 TWh, representing around

2% of global power output.

Figure 1: Solar PV Generation and Cumulative Capacity by

Region, 2017 – 2023.

Utility-scale projects account for over 60% of

total PV installed capacity, with the rest in distributed

applications (residential, commercial, and off-grid).

Over the next five years, solar PV is expected to lead

renewable electricity capacity growth, expanding by

almost 580 GW under the Renewables 2018 main

case (Figure 1).

However, the growth in Indonesia is not as

enthusiastic as its peers do. It is a big challenge for

the Directorate General of Electricity (DGE) as a

regulator in the electricity sector in Indonesia on this

matter. As stated in Presidential Regulation Number

24, the Year 2010 concerning Status, Duties, and

Functions of State Ministries and Organization

Structure, Duties, and Functions of Echelon 1 of State

Ministries, Directorate General of Electricity has

duties to formulate and to implement policy and

standards on the electricity sector. One of its mission

is to optimally utilize primary energy sources and

renewable energy by paying attention to their

economics.

Kurniawan, R. and Anggoro, Y.

Policy Evaluation of Purchasing Electricity from Rooftop PV by PT PLN (Persero) and Its Effectiveness in Increasing the Renewable Energy Portion on the Energy Mix.

DOI: 10.5220/0009958905070514

In Proceedings of the International Conference of Business, Economy, Entrepreneurship and Management (ICBEEM 2019), pages 507-514

ISBN: 978-989-758-471-8

507

Figure 2: Organizational Structure of DGE.

According to the National Energy Policy, also

mentioned in National Energy Planning Policy, such

objectives of national energy management are:

 Optimal energy mix: minimum 23% of

renewable energy in 2025, and minimum 31%

of them in 2050;

 Total power generation capacity installed of

115 Gigawatt in 2025 and 430 GW in 2050.

Solar energy is one of the renewable energy

resources that are abundant in Indonesia. However, in

2017, the total installed solar power plant in Indonesia

is merely just 0.017 GWp (Electricity Utilities

Statistic in Indonesia year 2017) from the potential

capacity of 207,9 GWp (RUEN). Therefore, the

government-issued Minister of Energy and Mineral

Resources (MEMR) Regulation Number 49 of 2018

in order to regulate electricity utilization from

Rooftop PV by PLN customers to be absorbed by

PLN without disrupting the operation of the

electricity system given the intermittent electrical

energy from Rooftop PV.

As per MEMR Regulation Number 49 of 2018,

the maximum capacity of Rooftop PV that can be

installed is 100% of the power connected to the

National Electric Company PLN. From this capacity,

the energy exported to the grid is valued at 65% of the

actual exported energy. This provision applies to non-

industry customers, while for industrial customers, it

is subjected to capacity charge and emergency energy

charge costs following the provisions of the Minister

of Energy and Mineral Resources Regulation Number

01 of 2017 on Parallel Operation of Power Plants with

the PT PLN (Persero) Electric Power Network.

From this capacity, the energy exported to the grid

is valued at 65% of the actual export. This provision

applies to non-industry customers, while for

industrial customers, it is subject to capacity charge

and emergency energy charge costs following the

provisions of the Minister of Energy and Mineral

Resources Regulation Number 01 of 2017 on Parallel

Operation of Power Plants with the PT PLN (Persero)

Electric Power Network. These parameters are seen

as discouraging the development of rooftop PV.

2 METHODS

2.1 Conceptual Framework

The exploration of the research is of basis to evaluate

a public policy or regulation that is already

implemented. The program evaluation is chosen

where the policy that will be evaluated could be

associated with the program, where this program

contains an objective to achieve something. And also,

the policy that will be evaluated in this research in

particular.

Framework for program evaluation:

Standards

Utility

Feasibility

Propriety

Accuracy

Engage

stakeholders

Steps

Describe

the program

Gather credible

evidence

Focus the

Evaluation

design

Justify

conclusions

Ensure use

and share

lessons learned

Figure 3: Evaluation Framework.

There are six steps to evaluate a program.

Step 1: engage stakeholders

Step 2: describe the program

Step 3: focus the evaluation design

Step 4: gather credible evidence

Step 5: justify conclusions

Step 6: ensure the use and share lessons learned

ICBEEM 2019 - International Conference on Business, Economy, Entrepreneurship and Management

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2.1.1 Engage Stakeholder

Table 1: Stakeholder Identification.

Stakeholders

Scopes

DGE

Electrification Ratio, targeting 100%;

Operation Certificate, registered in DGE;

Power purchase agreement approval must be processed via DGE;

BPP calculation approval;

RUPTL of PLN

DGNREEC

The findings of the evaluation needed by the government in order to make sure that

the program is effectively in line with the government target to meet the RUEN

energy mix target of 23% Renewables Energy in 2025.

Jakarta Office of Industrial

and Energy

Solar potential coverage in the region;

Operational Permit must be approved from this agency;

Local Contractor of PV Rooftop must obtain a permit from this agency

PT PLN (Persero)

Owner of existing network grid;

The existing contract with IPP;

Energy transaction;

Rooftop PV Supplier

Supplier of the equipment of solar PV;

Business affected

Directorate General of Electricity

Directorate General of New and Renewable Energy and Energy Conservation

2.1.2 Describe the Program

The program here is a product that has been through

a public policy process. There are several motives that

infuse why the policymaker is endorsing the agenda

of issuing the policy. Some of them are energy

trilemma, grid edge, and sustainable development

goals. Paris Agreement on Climate Change also came

out as one of the motives.

The program itself is about the Utilization of

Rooftop Solar Power Generation Systems by

Customers of PT PLN (Persero), as enacted by

Minister of Energy and Mineral Resources

Regulation Number 49 of 2018.

2.1.3 Focus the Evaluation Design

The evaluation designed by conducting several steps:

 Literature Review (Background of Public

Policy, Policy Analysis, Energy Trilemma,

Grid Edge overview, Paris Agreement and

SDG, Policy Statement, Levelized Cost of

Electricity)

 Arranging interviews with stakeholders to

gather useful data (DGE, DGNREEC, PLN,

and PV Supplier)

 Qualitative analysis and calculation if

necessary

 Benchmarking with other countries.

2.1.4 Gather Credible Evidence

 Collecting interview results to build a

conclusion of policy evaluation

 Mapping and collecting necessary data given

by stakeholders or other credible sources

 Applicable rules that the current program

related to.

2.1.5 Justify Conclusions

 Qualitative and calculation supported the

hypothesis

 Benchmark practice in other countries on the

respected matter

 Focus Group Discussion related to the issues.

2.1.6 Ensure Use and Shared Lesson

Learned

 The evaluation is expected could be reviewed

by the respective agency

 And also as an alternative solution for

stakeholders

2.2 Method of Data Collection and

Analysis

Data obtained through interviews, focus group

discussions, as well as literature reviews from books,

journals, publications, and other reliable sources. The

analysis is done qualitatively and also simulates

Policy Evaluation of Purchasing Electricity from Rooftop PV by PT PLN (Persero) and Its Effectiveness in Increasing the Renewable

Energy Portion on the Energy Mix

509

various sensitivity scenarios to calculate the potential

savings that might be obtained by the customer.

3 ANALYSIS

3.1 Business Situation

Generation Cost of Production (BPP) for PLN has

been enacted by Minister of Energy and Mineral

Resources Decree Number 55 K/20/MEM/2019 of

2019 on Cost of Production of Power Plant for PT

PLN (Persero) Year 2018. The decree divided BPP

into one National BPP, six Regional BPP, 25

Distribution BPP, and several systems and sub-

systems BPP. National BPP is 1119 Rp/kWh or 7.86

cents US$/kWh (Rp 14246/US$, Bank of Indonesia

Average Rate Exchange in 2018). The lowest BPP is

in West Java and Central Java Distribution, with 984

Rp/kWh or 6.91 cents US$/kWh, and up to highest

BPP in several Distributions with BPP of 3041

Rp/kWh or 21.34 cent USD$/kWh. Then comes price

constraint on developing solar PV with IPP

mechanism due to regulation of generating

purchasing price by PLN:

 In the event that the BPP Generation in the

local electricity system is above the average of

Indonesia National BPP, the purchase price of

electricity from Solar PV shall be a maximum

of 85% (eighty-five percent) of the BPP

Generation in the local electricity system;

 In the event that the BPP Generation in the

local electricity system is the same or below the

national BPP average, the purchase price of

electricity from Solar PV shall be determined

based on the agreement of the parties.

The comparison of renewable energy potential in

Indonesia versus its installed capacity based on the

statistic of electricity state in Indonesia year 2017

could be found on this table.

Table 2: Comparison of Potential and Installed Capacity

(the Year 2017 Data).

Sources of

Energy

Potential

(MW)

Installed

Capacity

(MW)

Utiliz.

Geothermal

29.544

1.805,40

6,11%

Hydro

75.091

5.124,06

6,82%

Mini-micro

Hydro

19.385

326,08

1,68%

Bioenergy

32.654

0,11%

Solar

207.898

17,02

0,008%

Wind

60.647

1,12

0,002%

Wave

17.989

n.a

For solar energy, in 2017, the total installed

capacity of all types of solar PV installed reported to

the government was only 17,02 MW, merely just

0,008% of all its potential could be counted by the

data. So, the potential is there. However, the

utilization is still far from its optimum figure.

Meanwhile, in the roadmap of new and renewable

energy development (EBT) stated on Electricity

Procurement General Plan (RUPTL), 63 MWp of

solar-powered generation newly additional capacity

installed in 2019, from only 17,02 MW installed in

2017. The hope of the installation of rooftop PV

should help to reach this target.

That is why the issuance of Ministry of Energy

and Mineral Resources Regulation number 49 of

2018 on Utilization of Rooftop Solar Power

Generation Systems by Customers of PT PLN

(Persero) should alleviate the number of solar PV

utilization on customers side. However, the

implementation of the regulation should always be

evaluated in terms of attractiveness and the

effectiveness given.

3.2 Results and Discussion

The household consumers of rooftop PV get their

energy from the PV production, all converted in 1:1

ratio if their real energy needs are absorbed for their

own use. Then, if the energy produced from PV is

more than what can they use on their own, the user

may export their surplus of energy (kWh) to the grid

(PLN). However, the conversion would not be in a 1:1

ratio, but a 1:0.65 ratio. Meaning that for every 1 kWh

energy exported to PLN, PLN will count it as 0.65

kWh and will be calculated as energy credit for the

following month's transaction. Illustration of Rooftop

PV Production could be seen in Figure 4.

Customers' electrical energy credit transactions at

the end of the month are calculated as follows:

Customer’s Electricity Bill (kWh) =

Amount of imported kWh – 65% of Amount of

exported kWh

 Amount of exported kWh:

amount of kWh exported by customers to PLN,

counted by the export meter

 Amount of imported kWh:

amount of kWh imported by customers from

PLN

Notes that:

1. In the case that the amount of electricity

exported is greater than the amount of

electricity imported in the current month, the

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510

excess will be accumulated and calculated as a

deduction for the following month's bill.

2. The export excess is accumulated for a

maximum of 3 months but will be reset every

April, July, October, and January.

Figure 4: Illustration of Rooftop PV Production of kWh

Calculation.

According to MEMR Regulation No. 49/2018, the

conversion rate of exported kWh to PLN is 1:0.65, or

PLN counted only 0.65 times of the actual kWh it

received from customers with rooftop PV. The 0.65

conversion rate on calculating customers kWh by

PLN is based on the audit result from the Audit Board

of the Republic of Indonesia (BPK) on the 2017 BPP

of generation, which is 62% from the total BPP of

PLN.

The value of the energy produced by PV (export

to PLN) compared to the value of energy imported

from PLN (Electricity Rate) is equal to the value of

PLN's BPP of generation (62% rounded to 65%).

PLN also considered 65% to compensates network

risks.

More consideration is needed since the rooftop

PV would most likely be installed in LV and MV

connected customers and already expensed the

connection charge previously.

3.2.1 Saving Simulation of Residential

Rooftop PV

Table 3: PV Energy Production.

Energy

Production

Power

Durat.

(h)

Energy

% of

total

Energy

% of

Total

Daily

Energy

Self-

Consumed

0.76

3.04

76%

16.14%

Exported

to PLN

0.24

0.96

24%

5.10%

Total (PU) (Blue Total Area)

21.23%

Notes of Table 3:

 With this typical production, of the total energy

generated by PV, 76% is self-consumed at

noon and afternoon time (equivalent to 16.14%

of the total kWh (18.84)) when the production

is at peak 1 PU.

 Since the energy is excessed by 24% of total

peak production, those energy exported to

PLN’s grid (equivalent to 5.10 % of the total

kWh consumed).

 The amount of energy 5.10% (equivalent to

24% of the total energy generated by PV) is

what is affected by the energy transaction

conversion factor.

 Of the total energy consumed by households

before installing Rooftop PV, PLN will lose the

selling of kWh of 16.14% plus a 5.10% *

conversion factor (customer savings).

 With a conversion factor of 1: 0.65, the total

customer savings is 16.14% + (5.10% * 0.65) =

19.45% of the total kWh consumed.

 If the conversion factor for household

consumers is 1:1 instead of 1:0.65, the total

customer savings is 16.14% + 5.10% = 21.24%

of the total kWh consumed, or 1.79% more

saving of energy.

3.2.2 Saving Simulation of Industrial

Rooftop PV

One industry was a customer of PLN with a capacity

contract of 2000 kV (Rate Subclass: I-3), with a load

of 1.500 kW. It was then installed a rooftop PV of 500

kWp capacity.

I-3 rate: 1.115 Rp/kWh (off-peak rate)

L rate: 1.650 Rp/kWh (special service rate)

Assuming peak production time of PV is 3.5

hours, monthly saving from PV production is:

Saving : 3.5 hours x 500 kWp x 30 days x 1.115

equal to Rp. 58.537.500 per month.

Next is the calculation of parallel charge as

additional cost due to parallel operation:

1. Connection charge = Rp. 0

(Already connected with PLN grid, with

contract capacity of 2000 kVA at the first time.)

2. Capacity charge

Highest capacity charge

= Total Net Capable Capacity (MW) x 40

hours x Electricity Rates

= 500 kWp x 40 hours x 1.115 Rp/kWh

= Rp. 22.300.000, -

3. Emergency Energy Charge (EEC)

Assuming Forced Outage Rate (FoR): 5%, then

Policy Evaluation of Purchasing Electricity from Rooftop PV by PT PLN (Persero) and Its Effectiveness in Increasing the Renewable

Energy Portion on the Energy Mix

511

= 1 (time/month) x 2 (hours/trip) x 500 kWp

x 1.650 Rp/kWh

= Rp. 1.650.000, -

Hence,

Total Addition cost of parallel operation

= Rp. 0 + Rp. 22.300.000 + Rp. 1.650.000

= Rp. 23.950.000, -

Thus, the net saving industry gain from

installing 500 kWp capacity (under its contract

capacity) is Rp. 58.537.500 – Rp. 23.950.000 =

Rp. 34.587.500, -.

For the case of rooftop PV with this parallel

operation policy could be associated with grid

compensation that PLN charged to the owner of PV,

for using PLN as backup/supplement. The amount of

capacity charge alone has offset the potential saving

by 38.1% of customers. This should be a

consideration to engage more with industry groups to

help to achieve renewable energy targets of the

energy mix as mandated by RUEN.

This net saving after parallel charges applied

would be the basic calculation on how much would

the investment needed on installing rooftop PV, when

is the BEP, and is it feasible or not considering the

lifetime of the equipment, and so on. These might be

well also addressed as consideration on how the

industry could help them producing cleaner energy

and help the government reach the 23% target of the

renewable energy mix in 2025.

3.2.3 Decreasing Interest of Rooftop PV On-

Grid

Data collected from PT Rekasurya Prima Daya (PT

RPD), one of the distributor and provider of rooftop

PV to be installed on its customer's property. This

company has been marketing its product since 2016,

prior to the commencement of MEMR Regulation

Number 49 of 2018, with total package sold were 25

kWp in 2016, 140 kWp in 2017, and 260 kWp in

2018.

Table 4: PT RDP Rooftop PV Sold in 2016 – 2019 (as of

July 31st).

Year

Capacity

(kWp)

Spots

2016

2017

140

2018

260

2019

"In fact, making customer interest decreases, because

they only got paid 65% of the total kWh exported. In

addition, customers must get permission from PLN,

which sometimes has not been socialized to all PLN

work areas so that the process would take longer."

(Muhammad Fadli Salim, Director of PT RPD, July

29th, 2019).

3.2.4 Distributed Generation Trends

Data collected from FGD, Distributed PV (DPV) is a

disruptive but at the same time unveil opportunities

 Rapidly deploy much-needed capacity

 Tap new sources of investment capital

 Reduce air emissions

 Empower consumers

Distributed PV also is challenging on how we

plan, operate, regulate, and even conceptualize the

power system. However, consumers are no longer

waiting for regulatory, legal, and technical issues to

be resolved, leading to untracked systems.

Grid codes/standards are playing an important

role in Distributed PV Grid integration out of 4

trends.

3.2.5 Benchmark

In Malaysia, the Net Energy Metering (NEM) scheme

is similar to what the export-import meter scheme in

Indonesia based on MEMR Regulation Number 49 of

2018. In Malaysia, FiT for Solar PV not viable post-

2017 due to limited RE Fund. It is moving towards

auction since price reduction and NEM to focus on

rooftops (minimize land use). NEM is introduced to

continue the development of the solar PV market. The

difference is, Malaysia applied quota allocation for

NEM; 500 MW for 2016 – 2020 (100 MW per year).

Effective on 1 st January 2019, the Net Energy

Metering (NEM) has been improved by adopting the

true net energy metering concept, and this will allow

excess solar PV generated energy to be exported back

to the grid on a "one on one" offset basis. This means

that every 1 kWh exported to the grid will be offset

against 1 kWh consumed from the grid, instead of at

the Displaced Cost previously. This comparable with

the Indonesia scheme of the conversion rate of 1:0.65,

while in Malaysia, it is 1:1. Since implementing this

1:1 offset basis, the numbers of approved capacity

have been rising double the number of that in the

previous year (Figure 5).

ICBEEM 2019 - International Conference on Business, Economy, Entrepreneurship and Management

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Figure 5: Total Approved PV Capacity (kWp) by Year in

Malaysia.

Thailand also just launched its Net Energy

Metering scheme. Key points from rooftop PV net

metering launched by Metropolitan Electricity

Authority (MEA) and Provincial Electricity

Authority (PEA) are:

• The capacity quota for MEA: 30 MWp

• The capacity quota for PEA: 70 MWp

• Maximum capacity per meter: 10 kWp

(3-phase power system, 380/220 V) or 5 kWp

(1-phase power system, 220 V)

• Export tariff: 1.68 THB/kWh

• Import tariff: 3.80 THB/kWh

• Tariff period: 10 years

• Connection Charges : 8,500 THB

(9,095 THB incl. tax).

Thailand is currently conducting Peer-to-peer

energy trading using the blockchain pilot project. The

technology of energy transfer's data that would be the

basis of energy transactions will be using blockchain.

The advantage for the nation with this P2P under

blockchain technology:

 Support renewable energy

 Support Thailand 4.0

 Enhance competitive for the Thai industry.

While for the people, it empowers people to

manage energy, besides passive income for

prosumers.

4 CONCLUSIONS

4.1 Challenges of Implementing Rooftop

For utilities, rooftop PV as a distributed generation

can give the opportunities for the system overall and

for utilities by supplying electricity directly to some

percentage of customers, and depending on the status

of the grid infrastructure, allows deferral of capital

investments to maintain and upgrade grids and related

services when these are less economical. However,

grids with distributed generation (including solar

rooftop PV) facing challenges where they become

active and see power flowing in both directions, with

a higher number of active customers to manage and a

change in the load profile by reducing demand from

the central generation. The requirements that allow

management of the flow of electricity in real-time,

including revised roles of network operators and

proper network technology, are yet to be fully

developed in most of the countries. Rooftop PV

utilization requires a network feasibility study, which

should be based on the distribution network grid code,

while there is currently no distribution network grid

code, so there are doubts in it.

For customers, with only 65% of exported kWh

counted in credit, the customer could choose way

under their installed watt capacity rooftop PV, and

use it exclusively for their own use, for a reason that

 Cheaper investment

 No hassle of re-applying for rooftop PV user to

PLN

 No need to change the existing meter.

The export excess is accumulated for a maximum of

3 months, but will be reset every April, July, October,

and January is not really appealing. No benefit for

industry or large-scale rooftop PV with energy

production is bigger than its consumption.

For the government, the preferences of self-

consumed the rooftop PV, not connected with the grid

through net metering, leads to the difficulty of

controlling the amount of intermittent generation

connected to the grid.

4.2 Conversion Factor of 65%

PLN counted only 0.65 times of the actual kWh it

received from customers with rooftop PV. The 0.65

conversion rate on calculating customers kWh by

PLN is based on the audit result from the Audit Board

of the Republic of Indonesia (BPK) on 2017 BPP of

generation, which is 62% from the total BPP of PLN.

The value of the energy produced by PV (export

to PLN) compared to the value of energy imported

from PLN (Electricity Rate) is equal to the value of

PLN's BPP of generation (62% rounded to 65%).

PLN also considered 65% to compensates network

risks.

Policy Evaluation of Purchasing Electricity from Rooftop PV by PT PLN (Persero) and Its Effectiveness in Increasing the Renewable

Energy Portion on the Energy Mix

513

4.3 Possible Alternatives to Conversion

Factor

From the focus group discussion, interviews, and

benchmark on other countries, these could be

alternatives on conversion factor on other rules on

connecting rooftop PV to the grid:

1. 1:1 Conversion Rate for Residential Consumers

that are less commercial

2. 1:0.65 Conversion Rate for Commercial and

Industrial Group of Consumers, however,

eliminating the emergency charge and capacity

charge

3. 1:1 for all groups of consumers, but regulator

limiting the capacity by quota, based on the

feasibility of the sub-system, and according to

the applied grid code.

4.4 Overcoming Intermittent Issue of

Rooftop PV

The difference in network quality in each region

requires rules in rooftop PV interconnection with the

grid as well as rules regarding the operation of

rooftop PV connected to the grid (grid code). The

code is to regulate the technical requirements for

connecting solar power plants based on grid

characteristics. The existence of these codes can

improve the integration of rooftop PV generator

optimization so that the grid is not interrupted by the

presence of intermittent solar PV.

It is better for the customer, especially household

customer, to install rooftop PV with the capacity of

their daylight load capacity, not peak load capacity,

so all production is optimally consumed by house

load.

The evaluation of this research is expected could

be reviewed by respective agencies and stakeholders

and to help the government in reaching the target of

23% Renewable Energy in 2025.

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