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GAO-12-843, SOLAR ENERGY: Federal Initiatives Overlap but Take

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GAO-12-843, SOLAR ENERGY: Federal Initiatives Overlap but Take United States Government Accountability Office Report to Congressional Requesters GAO August 2012 SOLAR ENERGY Federal Initiatives Overlap but Take Measures to Avoid Duplication GAO-12-843 August 2012 SOLAR ENERGY Federal Initiatives Overlap but Take Measures to Avoid Duplication Highlights of GAO-12-843, a report to congressional requesters Why GAO Did This Study What GAO Found The United States has abundant solar Sixty-five solar-related initiatives with a variety of key characteristics were energy resources and solar, along with supported by six federal agencies (see table). Over half of these 65 initiatives wind, offers the greatest energy and supported solar projects exclusively; the remaining initiatives supported solar and power potential among all currently other renewable energy technologies. The 65 initiatives exhibited a variety of key available domestic renewable characteristics, including multiple technology advancement activities ranging resources. In February 2012, GAO from basic research to commercialization by providing funding to various types of reported that 23 federal agencies had recipients including universities, industry, and federal laboratories and implemented nearly 700 renewable researchers, primarily through grants and contracts. Agency officials reported energy initiatives in fiscal year 2010— that they obligated about $2.6 billion for the solar projects in these initiatives in including initiatives that supported fiscal years 2010 and 2011, an amount higher than in previous years, in part, solar energy technologies (GAO-12-260). The existence of such because of additional funding from the 2009 American Recovery and initiatives at multiple agencies raised Reinvestment Act. questions about the potential for duplication, which can occur when Number of Federal Initiatives That Supported Solar Energy Technology in Fiscal Years 2010 multiple initiatives support the same and 2011, by Agency and Total Obligations technology advancement activities and technologies, direct funding to the Number of Total same recipients, and have the same Agency solar initiatives obligations goals. Department of Energy (DOE) 20 $2,342,765,827 GAO was asked to identify (1) solar- Department of Defense (DOD) 27 154,637,296 related initiatives supported by federal National Science Foundation (NSF) 7 48,761,556 agencies in fiscal years 2010 and 2011 National Aeronautics and Space Administration (NASA) 7 34,818,345 and key characteristics of those U.S. Department of Agriculture (USDA) 3 577,247 initiatives and (2) the extent of Environmental Protection Agency (EPA) 1 200,000 fragmentation, overlap, and duplication, if any, of federal solar- Total 65 $2,581,760,271 related initiatives, as well as the extent Source: GAO analysis of agency-provided data. of any coordination among these initiatives. GAO reviewed its previous The 65 solar-related initiatives are fragmented across six agencies and overlap work and interviewed officials at each to some degree in their key characteristics, but most agency officials reported of the agencies identified as having federal solar initiatives active in fiscal coordination efforts to avoid duplication. The initiatives are fragmented in that years 2010 and 2011. GAO developed they are implemented by various offices across the six agencies and address the a questionnaire and administered it to same broad areas of national need. However, the agencies tailor their initiatives officials involved in each initiative to to meet their specific missions, such as DOD’s energy security mission and collect information on: initiative goals, NASA’s space exploration mission. Many of the initiatives overlapped with at technology advancement activities, least one other initiative in the technology advancement activity, technology type, funding obligations, number of funding recipient, or goal. However, GAO found no clear instances of duplicative projects, and coordination activities. initiatives. Furthermore, officials at 57 of the 65 initiatives (88 percent) indicated that they coordinated in some way with other solar-related initiatives, including This report contains no both within their own agencies and with other agencies. Such coordination may recommendations. In response to the reduce the risk of duplication. Moreover, 59 of the 65 initiatives (91 percent) draft report, USDA generally agreed with the findings, while the other require applicants to disclose other federal sources of funding on their agencies had no comments. applications to help ensure that they do not receive duplicative funding. View GAO-12-843. For more information, contact Frank Rusco at (202) 512-3841 or [email protected]. United States Government Accountability Office Contents Letter 1 Background 4 Six Agencies Supported Sixty-Five Solar-Related Initiatives with a Variety of Key Characteristics 6 Initiatives Are Fragmented across Agencies and Sometimes Overlap, but Agency Officials Reported Coordination to Avoid Duplication 16 Agency Comments and Our Evaluation 25 Appendix I Scope and Methodology 26 Appendix II Solar-Related Initiatives at Six Federal Agencies, Descriptions and Fiscal Years 2010 and 2011 Obligations 29 Appendix III GAO’s Questionnaire for Federal Agencies with Initiatives Supporting Solar Energy Technologies 43 Appendix IV GAO Contact and Staff Acknowledgments 53 Tables Table 1: Initiatives and Projects by Agency, Fiscal Years 2010 and 2011 7 Table 2: Number of Federal Initiatives That Supported Solar Energy Technology for Fiscal Years 2010 and 2011, by Agency and Total Actual and Estimated Obligations 16 Table 3: Number of Initiatives Supporting Technology Advancement Activities and Eligible Funding Recipients 17 Table 4: Department of Defense Solar-Related Initiatives 29 Table 5: Department of Energy Solar-Related Initiatives 36 Table 6: Environmental Protection Agency Solar-Related Initiatives 39 Table 7: National Aeronautics and Space Administration Solar- Related Initiatives 40 Table 8: National Science Foundation Solar-Related Initiatives 41 Table 9: U.S. Department of Agriculture Solar-Related Initiatives 42 Page i GAO-12-843 Solar Energy Figures Figure 1: Number of Agencies’ Solar-Related Initiatives That Supported Technology Advancement Activities 9 Figure 2: Number of Agencies’ Solar-Related Initiatives That Supported Various Recipient Types 12 Figure 3: Number of Agencies’ Solar-Related Initiatives Employing Various Funding Mechanisms 14 Abbreviations ARPA-E Advanced Research Projects Agency-Energy DARPA Defense Advanced Research Projects Agency DOD Department of Defense DOE Department of Energy EERE Office of Energy Efficiency and Renewable Energy EIA Energy Information Administration EPA Environmental Protection Agency IAPG Interagency Advanced Power Group NASA National Aeronautics and Space Administration NNI National Nanotechnology Initiative NSF National Science Foundation OMB Office of Management and Budget R&D research and development Recovery Act American Recovery and Reinvestment Act of 2009 SETP Solar Energy Technologies Program TRL technology readiness level USDA United States Department of Agriculture This is a work of the U.S. government and is not subject to copyright protection in the United States. The published product may be reproduced and distributed in its entirety without further permission from GAO. However, because this work may contain copyrighted images or other material, permission from the copyright holder may be necessary if you wish to reproduce this material separately. Page ii GAO-12-843 Solar Energy United States Government Accountability Office Washington, DC 20548 August 30, 2012 The Honorable Ralph M. Hall Chairman Committee on Science, Space, and Technology House of Representatives The Honorable Andy Harris Chairman Subcommittee on Energy and Environment Committee on Science, Space, and Technology House of Representatives The United States has abundant solar energy resources and solar, along with wind, offers the greatest energy and power potential among all commercial domestic renewable resources currently available, according to the National Academies of Science. While helping meet the nation’s energy needs, solar sources of electricity could also offer substantial environmental benefits, such as a reduction in greenhouse gas emissions, over conventional electricity generation. However, solar and wind energy as sources of electricity at the utility scale also face numerous challenges related to their intermittent availability and higher costs compared with traditional energy sources. The Department of Energy’s (DOE) Energy Information Administration, an independent statistical and analytical agency, reports that although solar energy accounted for only 1 percent of all renewable energy electricity consumed in the United States in 2010, solar energy use increased by about 60 percent from 2006 to 2010. DOE has also embarked on a comprehensive effort to reduce the cost of generating electricity using solar power. Beyond supplying electricity to the existing infrastructure or grid (i.e., the electricity networks that carry electricity from the plants where it is generated to consumers, including wires, substations, and transformers), solar energy technologies have extensive defense and space applications. For example, the Department of Defense (DOD) has undertaken efforts to develop technologies that allow it to use solar energy in operational environments, such as the conflicts in Iraq and Afghanistan, to help reduce its reliance on conventional fuel, which is very
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