Energy Utopia: Vancouver’s Neighbourhood Energy Strategy by Molly M Steeves B.A. (Hons.), University of Victoria, 2008 Project Submitted in Partial Fulfillment of the Requirements for the Degree of Master of Urban Studies in the Urban Studies Program Faculty of Arts and Social Sciences © Molly M Steeves SIMON FRASER UNIVERSITY Spring 2019 Copyright in this work rests with the author. Please ensure that any reproduction or re-use is done in accordance with the relevant national copyright legislation. Approval Name: Molly Steeves Degree: Master of Urban Studies Title: Energy Utopia: Vancouver’s Neighbourhood Energy Strategy Examining Committee: Chair: Patrick J. Smith Professor Urban Studies and Political Science Meg Holden Senior Supervisor Professor, Urban Studies and Geography Anthony Perl Supervisor Professor, Urban Studies and Political Science Isabel Gordon External Examiner Director of Financial Services District of West Vancouver Date Defended/Approved: January 23, 2019 ii Ethics Statement iii Abstract This study explores the barriers faced by the City of Vancouver in implementing its Neighbourhood Energy Strategy (2012). Through a case study of the Creative Energy Central Heat district energy system, I explore the challenges the City of Vancouver had in operationalizing this policy. The conceptual framework for this study utilizes the concepts of energy justice, remunicipalization and path dependency. These concepts facilitate an exploration of the intricacies and multiplicities of the challenges faced by the City of Vancouver, chiefly the provincial regulatory process with the British Columbia Utilities Commission (BCUC). With the assistance of the conceptual framework, I find that the BCUC’s stated mission of providing equal access to safe, economical and sustainable energy was in conflict with the City of Vancouver’s proposed agreement with Creative Energy. I also find that ownership was a significant factor in the challenges faced by the City, as Creative Energy’s private ownership subjected the agreement between the City of Vancouver and Creative Energy to the Provincial regulation. Finally, I find that resistance to new technology and methods challenged the agreement, as evidenced by statements provided by interveners in the regulatory process. These findings provide insights about the enactment of district energy policy for other municipalities seeking to enable GHG reductions through the provision for new district energy systems or through fuel switches of existing district energy systems. Keywords: district energy; Vancouver; energy justice; remunicipalization; path dependency iv Dedication For Cecilia. v Acknowledgements Thank you to all my friends, family and colleagues for their support in the completion of this project. I would also like to thank everyone who participated in this study for their invaluable input and insight, Finally, thank you Meg for all of your oversight, patience and wisdom. vi Table of Contents Approval ............................................................................................................................ ii Ethics Statement ...............................................................................................................iii Abstract ............................................................................................................................ iv Dedication ......................................................................................................................... v Acknowledgements .......................................................................................................... vi Table of Contents .............................................................................................................vii List of Tables .................................................................................................................... ix List of Figures.................................................................................................................... x List of Acronyms ............................................................................................................... xi Chapter 1. Introduction ................................................................................................ 1 1.1 The Why – Cities as Agents of Change ................................................................. 1 1.2 The Research Question ......................................................................................... 4 1.3 Case Study Context ............................................................................................... 4 1.3.1 Provincial Context – British Columbia, Canada .............................................. 4 1.3.2 Regional Context – Metro Vancouver ........................................................... 11 1.3.3 Municipal Context – the City of Vancouver ................................................... 12 Chapter 2. Conceptual Framework ........................................................................... 19 2.1 Energy Justice ...................................................................................................... 19 2.1.1 Distributional Justice ..................................................................................... 21 2.1.2 Recognitional Justice .................................................................................... 22 2.1.3 Procedural Justice ......................................................................................... 23 2.2 Remunicipalization ............................................................................................... 24 2.3 Path Dependency ................................................................................................. 27 Chapter 3. Research Design ..................................................................................... 31 3.1 Interviews ............................................................................................................. 31 3.2 Archival Material ................................................................................................... 34 3.3 Policy Documents................................................................................................. 35 3.4 Media Coverage ................................................................................................... 35 3.5 Analytical Efforts .................................................................................................. 36 Chapter 4. A History of District Energy in Vancouver ............................................ 38 4.1 History of District Energy ...................................................................................... 38 4.2 Central Heat ......................................................................................................... 39 4.3 South East False Creek ....................................................................................... 41 4.4 Other District Energy Systems in Vancouver ....................................................... 43 4.5 History of District Energy from a regulatory perspective at the City of Vancouver ... ............................................................................................................................. 44 vii Chapter 5. District Energy Policy in Vancouver ...................................................... 46 Chapter 6. Creative Energy and BCUC: The Challenges ........................................ 55 Chapter 7. Discussion ............................................................................................... 69 7.1 Energy Justice ...................................................................................................... 69 7.2 Remunicipalization ............................................................................................... 72 7.3 Path Dependence................................................................................................. 74 7.4 The Use of A Conceptual Framework in this Case Study .................................... 76 Chapter 8. Conclusions ............................................................................................. 78 8.1 Topics for Further Discussion ............................................................................... 80 8.1.1 Zero Emissions Building Strategy ................................................................. 81 8.1.2 Creative Energy Moving Forward .................................................................. 83 References ..................................................................................................................... 84 viii List of Tables Table 1: Interviewee Relationship to District Energy and Neighbourhood Energy Strategy ................................................................................................... 33 Table 2: Greenest City Action Plan – Target Reductions for NES (Neighbourhood Energy Systems or district energy systems) ........................................... 47 Table 3: Downtown Area Characteristics and Strategies ...................................... 50 Table 4: Cambie Corridor Characteristics and Strategies ..................................... 51 Table 5: Central Broadway Area Characteristics and Strategies .......................... 51 Table 6: Energy Centre Guidelines ....................................................................... 52 Table 7: Energy Centre Strategic Priorities ........................................................... 54 Table 8: Feasibility