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Key Steps for Improving Ontario's LEARNING BY DOING: KEY STEPS FOR IMPROVING ONTARIO’S RENEWABLE ENERGY PROGRAMS Mariana Eret January 30th, 2015 A MAJOR PAPER SUBMITTED TO THE FACULTY OF ENVIRONMENTAL STUDIES IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER IN ENVIRONMENTAL STUDIES YORK UNIVERISTY, TORONTO, ONTARIO, CANADA __________________________ Mariana Eret, MES Candidate _________________________ Dr. Jose Etcheverry, Supervisor © Copyright by Mariana Eret, 2015 Abstract The use of renewable energies (RE) for electricity production can potentially deliver a range of social, environmental and economic benefits. With the passage of the Green Energy and Green Economy Act (GEGEA) of 2009, the Ontario government has introduced a comprehensive set of policy measures to foster the development of renewables and achieve other policy goals. The RE growth in the province has been accompanied by a number of challenges, preventing Ontario from realizing the full potential of its RE resources and capturing the associated benefits. As Ontario expands its RE generation, it is vital that it puts in place a robust support framework that can ensure successful RE implementation. This study examines Ontario’s current legal and policy framework for renewables in the power sector and offers policy recommendations for improving this framework A qualitative comparative analysis of RE policies and programs in three jurisdictions - Germany, Denmark and Ontario is used to identify policy parameters and conditions that have proved to be significant for successful RE deployment in Germany and Denmark, and to evaluate Ontario’s RE policies against these “success factors”. Qualitative expert interviews are employed to elicit experts’ perspectives about the performance of Ontario’s current RE policy framework, the barriers to RE implementation in the province and potential policy solutions to address these barriers. The findings of this study suggest that Ontario has made important progress in establishing favourable conditions for RE development with the introduction of the GEGEA legislation and the FIT program. These policy initiatives kick-started the RE development in the province and have been key to a number of other positive developments, such as clean-tech innovation, emergence of a local RE industry and community power development. However, there have also ii been adverse consequences and implications, such as local opposition to RE and the perception that FIT costs are excessive. The study offers a number of policy recommendations for improving RE policy design and implementation and overcoming other barriers to RES in Ontario. The government should give higher priority to renewables in the energy planning. The specific design elements of FIT policy should be better tailored to RE policy goals. Following best international practices in RE policy design and implementation can help achieve this goal. The public engagement opportunities in RE development should be improved. A concentrated effort is needed to create an organizational culture supportive of RETs in the electricity sector. A longer-term perspective and a more integrated approach to energy policy-making is needed in Ontario. The province should initiative a discussion about the costs and benefits of nuclear refurbishment and the implications of continuing with the current nuclear path. Measures to improve integration of RES into the grid should be strengthened. Support for public outreach, education and provision of evidence-based transparent information can help improve the reputation of renewables and create stronger public support for this energy option. iii Foreword Growing up in a rural community where people rely on the local environment for many important elements of their livelihood, I developed a special respect for nature and a desire to learn how we can achieve a more environmentally sustainable way of living. My interest in environmental sustainability provided the motivation to apply for the Masters in Environmental Studies (MES) Program at York University. Throughout my time at the Faculty of Environmental studies I became interested in the opportunities that renewable energy (RE) offers to help address some of the most pressing complex and interrelated issues facing us today, including climate change, pollution, energy security, rural development and unemployment. My Area of Concentration in the MES program - “Policy success factors for the promotion of renewable energy” - reflects my interest in policy mechanisms, conditions and parameters that can facilitate development and deployment of RE to help us achieve a more sustainable energy system, achieve the shift to a low-carbon economy and build a more sustainable future. Recognizing that RE refers to a broad range of energy sources and that its effective implementation requires the participation of many actors, I narrowed down my research interests to RES in the electricity sector and ad-hoc governmental policy responses. This research was conducted in partial fulfillment of the requirements of the MES program. Through a comparative analysis of RE policies and programs in three jurisdictions - Germany, Denmark and Ontario – I explored, in depth, key issues and questions related to my subject area to fulfil the learning objectives identified in my Plan of Study (POS). In particular, I examined Ontario’s most salient renewable power options and the key drivers of RE deployment in Ontario and beyond, which satisfies several of my learning objectives: i.e. understanding the characteristics of different energy sources and the social, economic and environmental impacts iv of different energy options. The specific and emerging barriers to RE development, the strengths and weaknesses of RE support measures and their suitability in different contexts and situations have been other major themes of my plan study. I gained further insight into these issues by evaluating the key elements of the RE support frameworks in the selected case studies, such as RE targets and feed-in tariffs. Finally, and most importantly, my research paper helped me to meet the learning objectives of the third component of my POS: i.e. to examine the policy conditions that have driven successful RE deployment in leading RE jurisdictions and to understand how lessons learned there can be adapted and extrapolated to inform future RE policy development. I thoroughly examined which policy factors and parameters have successfully driven rapid and large-scale development of RES in two leading RE jurisdictions - Germany and Denmark. The comparison of RE experiences in these jurisdictions and Ontario enabled me to inform policy recommendations for improving Ontario’s RE support framework. Interviews with experts helped assess the relevance and applicability of international best practices and lessons to Ontario’s policy context. I hope that the findings and recommendations of this study will be useful to policymakers in Ontario and other jurisdictions seeking to design a successful RE policy support framework. v Acknowledgements First and foremost, I would like to thank my supervisor Dr. Jose Etcheverry for his guidance, encouragement and understanding. This paper would not be possible without his help and support. I am deeply indebted to all those who agreed to be part of my study as interviewees and who kindly shared their thoughts and perspectives on the renewable energy situation in Ontario. Talking to you was the most interesting and exciting part of my research project. I also thank Prof. Mark Winfield, Prof. Jose Etcheverry and Prof. Peter Mulvihill for their interesting questions during my defence. I am grateful to Prof. Mark Winfield, Prof. Martin Bunch, Prof. Brian Milani, Eric Millar and other MES Faculty Members for their interesting lectures and for all those things that I learned thanks to you. Finally, I thank my fiancé Saman and my family for their support and advice. vi Table of Contents Abstract ...................................................................................................................................... ii Foreword .................................................................................................................................... iv Acknowledgements .................................................................................................................... vi Table of Contents ....................................................................................................................... vii List of Tables ............................................................................................................................. ix Chapter One: Introduction ......................................................................................................... 1 Chapter Two: Literature Review ............................................................................................... 3 2.1 Renewable Energy Definition ....................................................................................... 3 2.2 Major Renewable Energy Sources: a Brief Overview .................................................. 4 2.2.1 Renewables in Ontario: Present Utilization and Future Potential ...................... 6 2.3 Drivers and Benefits of Renewable Energy .................................................................. 8 2.3.1 Energy Security .................................................................................................. 9 2.3.2 Environmental and Health Benefits ...................................................................
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