An Advocacy Coalition Approach

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An Advocacy Coalition Approach Virginia Commonwealth University VCU Scholars Compass Theses and Dissertations Graduate School 2018 CROSS-IDEOLOGICAL SOLAR POWER COALITIONS IN THE AMERICAN SOUTH: AN ADVOCACY COALITION APPROACH Brian T. Toibin Virginia Commonwealth University Follow this and additional works at: https://scholarscompass.vcu.edu/etd Part of the Public Affairs, Public Policy and Public Administration Commons © The Author Downloaded from https://scholarscompass.vcu.edu/etd/5682 This Dissertation is brought to you for free and open access by the Graduate School at VCU Scholars Compass. It has been accepted for inclusion in Theses and Dissertations by an authorized administrator of VCU Scholars Compass. For more information, please contact [email protected]. CROSS-IDEOLOGICAL SOLAR POWER COALITIONS Toibin, B © Brian Thomas Toibin 2018 All Rights Reserved CROSS-IDEOLOGICAL SOLAR POWER COALITIONS Toibin, B CROSS-IDEOLOGICAL SOLAR POWER COALITIONS IN THE AMERICAN SOUTH: AN ADVOCACY COALITION APPROACH A Dissertation submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy at Virginia Commonwealth University by BRIAN THOMAS TOIBIN Master of Library and Information Science, University of South Carolina, 2006 Bachelor of Science, James Madison University, 1989 Director: Dr. Damian Pitt Associate Professor of Urban and Regional Studies and Planning L. Douglas Wilder School of Government and Public Affairs Virginia Commonwealth University Virginia Commonwealth University Richmond, Virginia December 2018 CROSS-IDEOLOGICAL SOLAR POWER COALITIONS Toibin, B.T. Acknowledgements I would like to take this opportunity to acknowledge and thank my family and friends whose love and support made the completion of this project possible and who light my life every day. Lisa, you are the love of my life and you have been instrumental in guiding and supporting me through the highlights and lowlights of both life and this accomplishment. Your love, faith, support, and understanding are my foundation. For that I will be forever grateful. I look forward to the roads that wait to be travelled. I love you. Una, you are the greatest sister anybody could have. Your encouragement and dedication to all of us makes you as unique as your inspirational work. Thank you for the encouragement, sisterly friendship, and love that is one of the great blessings of my life. I love you. To my brother-in-law Brad and sister-in-law Bonnie. Thank you for the love, friendship, and support you provide to all of us in so many ways. It is an honor to know you both. To the younger generation of our clan: Andrew, Katie, Aidan, Liam, Mariah, and Catherine. Thank you all for your love, acceptance, and support over the years. I am proud of each one of you. Follow your dreams and make those dreams work for a cause greater than yourself. There is work to be done to secure your future, and this work belongs to us all – including you. I would like to thank my academic support system at Virginia Commonwealth University – you know who you are, and you are many. Thank you i CROSS-IDEOLOGICAL SOLAR POWER COALITIONS Toibin, B.T. for helping me through this endeavor, I could not have made it with out you. Thank you to my Dissertation Committee: Dr. Damian Pitt, Dr. John Mahoney, Dr. Robyn Diehl McDougle, and Dr. John Aughenbaugh. It was a pleasure working with you all. Dr. Pitt, thank you for your guidance. Dr. Mahoney, thank you for being the first line of editing work, your efforts will be forever appreciated. Also, thank you to Prof. Chris Saladino, who helped make my first few years at VCU memorable, amusing, and filled with interesting conversations. Thank you to all those involved in the solar coalition efforts in both Georgia and Florida who took the time to speak with me while I was conducting the research for this project. Your assistance was very important to the accuracy and value of this study. Thank you for helping me convey this important public policy effort to a wider academic audience. Finally, and most importantly, this work is dedicated to my parents, Mary and Colum Toibin. Your love, support, and guidance are beyond measure. Thank you for standing by me and “walking” with me. I love you Mom – I love you Dad. I appreciate you both more with each passing day. I also want to thank my departed brothers, Kevin and Brendan, for being great brothers and better friends. I love you guys. “Energy is the most critical challenge facing humanity.” – Richard Smalley (Rice University), Nobel Laureate If we can solve this, we can solve many other issues. So Onward… P.S: Thanks to the 3 pups: Finn, Sally, and Schatzi, who kept me company during late nights of researching and writing. ii CROSS-IDEOLOGICAL SOLAR POWER COALITIONS Toibin, B.T. Table of Contents Acknowledgements………………………………………………………………………………………… i Table of Contents………………………………………………………………………………………….... iii Abstract…………………………………………………………………………………………………………. xii CHAPTER I: INTRODUCTION TO STUDY……………………………………………………….... 1 Introduction……………………………………………………………………………………........... 1 Definition of Terms…………………………………………………………………………………….. 6 Organization of this Study…………………………………………………………………………... 8 Historical Background of the Issue………………………………………………………………….. 9 History of Electrical Generation…………………………………………………………………... 9 Public Utility Regulatory Policy Act of 1978…………………………………………………. 13 Deregulation………………………………………………………………………………………………. 14 Factors in the Adoption of Solar PV……………………………………………………………... 18 Grid Parity…………………………………………………………………………………………………. 21 State Policies Supporting Solar……………………………………………………………………. 22 History of Power Purchase Agreements (PPA)………………………………………………… 25 PPA Origins in California…………………………………………………………………………….. 25 PPA Growth and Success in Other States……………………………………………………… 26 Examples of PPA Effectiveness……………………………………………………………………. 27 iii CROSS-IDEOLOGICAL SOLAR POWER COALITIONS Toibin, B.T. 28 Coalition composition in Georgia and Florida………………………………………………. CHAPTER II: LITERATURE REVIEW……………………………………………………………….. 33 Public Policy Theories Applicable to Energy………………………………………………… 33 Potential Public Policy Theories Applicable to Energy……………………………………… 33 Incrementalism………………………………………………………………………………………….. 34 Multiple Streams Theory…………………………………………………………………………….. 38 Punctuated Equilibrium……………………………………………………………………………… 42 A Better Theoretical Fit………………………………………………………………………………. 47 The Advocacy Coalition Framework (ACF)………………………………………………………. 48 The Advocacy Coalition Framework Model………………………………………………….. 51 Relatively Stable Parameters………………………………………………………………………. 54 Basic Attributes of the problem area……………………………………………………….. 54 Basic distributions of natural resources…………………………………………………... 55 Fundamental cultural values…………………………………………………………………… 56 Basic legal structure……………………………………………………………………………….. 57 External Subsystem Events…………………………………………………………………………. 58 Changes in socio-economic conditions and technology…………………………….. 58 Changes in systemic governing coalitions………………………………………………... 59 Policy decisions and impacts/subsystems……………………………………………….. 60 The ACF and Solar Power……………………………………………………………………….. 60 Summary of Literature Review……………………………………………………………………….. 64 CHAPTER III: METHODOLOGY………………………………………………………………............. 66 Research Questions…………………………………………………………………………………….. 67 Qualitative Research Design………………………………………………………………………. 67 iv CROSS-IDEOLOGICAL SOLAR POWER COALITIONS Toibin, B.T. Sensitizing Concepts………………………………………………………………………………….. 70 Sampling…………………………………………………………………………………………………… 71 Data Collection…………………………………………………………………………………………... 74 Data Management and Analysis………………………………………………………………….. 76 Ethics………………………………………………………………………………………………………... 78 Validity……………………………………………………………………………………………………… 79 CHAPTER IV – NARRATIVE OF EVENTS…………………………………………………………... 82 Georgia Narrative…………………………………………………………………………………………… 82 Georgia Background – Nuclear Issue…………………………………………………………… 82 Advent of Tea Party……………………………………………………………………………………. 83 Georgia Public Service Commission (GPSC)…………………………………………………. 84 Early Coalition Efforts………………………………………………………………………………… 87 Green Tea Coalition challenges the GPSC……………………………………………………... 89 Commissioner McDonald’s Solar Proposal…………………………………………………… 91 Public Debate of Commissioner McDonald’s Solar Proposal…………………………. 93 Georgia Steps into the Sun…………………………………………………………………………... 94 Florida Narrative……………………………………………………………………………………………. 98 Utility Control in Florida……………………………………………………………………………... 98 Founding of Floridians for Solar Choice (FSC)……………………………………………… 100 Floridians for Solar Choice – Referendum Proposal……………………………………… 101 Floridians for Solar Choice - Referendum Language……………………………………... 102 Floridians for Solar Choice - Signature Effort……………………………………………….. 103 The Utilities Begin to React…………………………………………………………………………. 105 Consumers for Smart Solar (CSS)………………………………………………………………… 106 Dueling Proposals Create Confusion……………………………………………………………. 108 The Collapse of FSC Ballot Amendment Effort……………………………………………… 111 v CROSS-IDEOLOGICAL SOLAR POWER COALITIONS Toibin, B.T. Solar Amendments Face The Vote…………………………………………………………………… 112 Amendment 1 and Amendment 4………………………………………………………………... 112 Amendment 4…………………………………………………………………………………………….. 113 Amendment 1 Takes Center Stage……………………………………………………………….. 114 The Public Thinks Two Opposites are True………………………………………………….. 115 FSC and CSS Campaign for Their Cause………………………………………………………... 116 Floridians for Solar Choice Fights Back………………………………………………………... 120 The Audio Tape………………………………………………………………………………………….. 121 The Numbers
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