ASHRAE LV-11-C036-2011 British Columbia’s Energy Efficient Buildings Strategy.pdf

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1、Andrew Pape-Salmon is a Director of the Energy Efficiency Branch with the BC Ministry of Energy, Mines and Petroleum Resources. Erik Kaye and Katherine Muncaster are Senior Policy Advisors with the Energy Efficiency Branch. British Columbias Energy Efficient Buildings Strategy Andrew Pape-Salmon, P.

2、Eng, MRM Katherine Muncaster, MRM Erik Kaye Member ASHRAE ABSTRACT British Columbias Energy Efficient Buildings Strategy established targets for significant energy and emission reductions in new and existing buildings by the year 2020. It promoted systemic market transformation through the introduct

3、ion, adoption and eventual regulation of new energy efficient building designs, products and technologies, and ensures that demand-side management programs and government leadership, incentives and regulations lead to permanent changes in the market. This paper outlines key policy measures, estimate

4、s energy savings and identifies a framework for evaluating the Strategys progress, including indicators of success. A quantitative analysis on current and planned energy efficiency measures indicated that the targeted 20% reduction in energy use per household can be met and that the 9% reduction in

5、commercial and institutional energy use can be exceeded. The composition of savings was well-distributed across measures, with 38% relying on utility and government programs and rates and 50% from codes and standards. INTRODUCTION In 2008 the government of British Columbia (BC) released the second v

6、ersion of the Energy Efficient Buildings Strategy (EEBS) (BCMEMPR 2008), supporting the 2007 Energy Plan and 2008 Climate Action Plan that sets a greenhouse gas emission reduction target of 33% by 2020. The EEBS promotes energy efficiency through the introduction, widespread adoption and eventual re

7、gulation of energy efficient building designs and end-use technologies, leading to new codes and standards. An earlier version of EEBS (BCMEMPR 2005) set a foundation for voluntary action and stimulated significant investment into new programs that enabled market readiness for most of the regulation

8、s under the BC Energy Efficiency Act. This paper provides an overview of the market transformation measures established under EEBS by the provincial and federal governments, energy utilities and industry associations between 2005 and 2010. It also provides estimates of the associated percentage ener

9、gy demand reductions projected for 2020. Finally, it presents a framework for evaluating the effectiveness of EEBS, along with indicators of success, based on a literature review of case studies from other jurisdictions. This evaluation will inform the development of a collaborative workplan for the

10、 provincial government, three major electricity and natural gas utilities, the BC Utilities Commission (the public utility regulator), local and federal governments and industry associations. This will support the achievement of the EEBS targets by 2020 (i.e., 20% reduction in energy use per househo

11、ld, 9% reduction per square meter of commercial/institutional floor space). MARKET TRANSFORMATION APPROACH FOR ENERGY EFFICIENCY The market transformation (MT) approach aims to create a permanent shift toward energy efficiency by setting a 5-10 year vision for energy performance, reducing market and

12、 institutional barriers and engaging key influencers, investors and program delivery agents on a collaborative workplan to achieve a common set of goals. In reality, each organization has LV-11-C036298 ASHRAE Transactions2011. American Society of Heating, Refrigerating and Air-Conditioning Engineers

13、, Inc. (www.ashrae.org). Published in ASHRAE Transactions, Volume 117, Part 1. For personal use only. Additional reproduction, distribution, or transmission in either print or digital form is not permitted without ASHRAES prior written permission.independent goals and thus, the MT workplan aims to m

14、aximize institutional efficiency and prevent conflicting efforts. The EEBS (BCMEMPR 2008) was the policy document that articulated MEMPRs vision, mandate and workplan to advance MT, including regulations that led to permanent improvements in energy efficiency. The achievement of MT can be measured o

15、n the basis of the “Five As of Market Transformation” (NRCan 2010), including the following indicators of success for an energy efficient product or building design: x Consumer and industry awareness of the energy efficient product/design (e.g., are people aware of which home improvements will achie

16、ve the highest energy savings?). x Product/design availability in both urban and rural areas (e.g., do window manufacturers in small cities have an ENERGY STARqualified product line?). x Accessibility for a broad range of market segments (e.g., is there a compact fluorescent bulb option for all type

17、s of light fixtures?). x Affordability and cost-effectiveness (e.g., do new houses with an EnerGuide rating of 80 have energy savings that exceed incremental capital costs within a reasonable timeframe such as five to ten years?) x Public and industry acceptance (e.g., do HVAC system designers gener

18、ally agree that condensing boilers are sufficiently reliable to specify them?). MEMPR has facilitated the deployment of five distinct types of measures that support MT, as follows: 1. Information, branding and labelling raising awareness and acceptance among consumers and key influencers. For exampl

19、e, establishing a high-efficiency window standard, simplifying the message associated with the standard, establishing a brand so that it is easily recognizable (e.g., ENERGY STAR), and a labelling system that illustrates the benefits of the standard compared to its peers (e.g., U-value label). 2. Ce

20、rtification, training and demonstration improving industry capacity to provide energy efficient options, addressing product acceptance, availability and accessibility and improving quality and durability of goods and services. For example, BC invested in the “Quality First” training program for furn

21、ace and heat pump installers, run by the Thermal Environmental Comfort Association of BC, promoting appropriate sizing of heating equipment and ducting systems to reflect the size of, and heat loss from a house or building. 3. Pricing and incentives stimulating investment in energy efficiency, addre

22、ssing awareness, availability and affordability to consumers. For example a consumer tax break or utility rebate connected with the construction of high-performance buildings. 4. Voluntary measures institutionalizing energy efficiency by supporting market leaders who voluntarily adopt energy efficie

23、nt levels, providing economies of scale through large-scale procurement. For example, a builder that only specifies ENERGY STARqualified windows in their houses. 5. Regulated standards - making energy efficiency universal through policy and regulatory measures, addressing all Five As, “raising the f

24、loor” across an entire product line or building sector and ensuring that inefficient products are permanently phased out of the market. Nadel et.al., (2003) provided a comprehensive evaluation of MT efforts in the United States, considering 28 major initiatives of federal, state, regional and local

25、governments over a decade and drawing the following conclusions: (pp. 41-42): x It is important to enlist input, participation and support of major players such as equipment manufacturers and real estate management companies. x Energy saving targets need to be achievable by industry, but sufficientl

26、y high to attract the interest of “program operators” (energy utilities, agencies, energy service companies). x Attention needs to be provided to field performance of technologies, not just the metrics determined by manufacturers. x Success often happens when efficient products and services can be d

27、ifferentiated from conventional ones by consumers, through certification such as ENERGY STAR or Building Operator Certification. x The full range of benefits of products and services (e.g., improved student performance in energy efficient schools) need to be promoted, not just the energy savings. 20

28、11 ASHRAE 299x Training can be provided to service providers and equipment salespeople. x Incentives can help attract attention to, and address higher costs of new products, and can be reduced or ended when consumer awareness, widespread availability and salesperson and installer experience improves

29、. x Most successful MT initiatives are multi-pronged efforts that involve several different market interventions and multiple organizations that evolve through time. x Programs must be kept simple for participants, such as a single efficiency specification (e.g., for motors). x The product or servic

30、e must be reliable. A companion ASHRAE conference paper (Pape-Salmon et.al 2010a) highlights the specific market transformation efforts for windows and glazing assembles in buildings. BUILDING STRATEGY MEASURES The Energy Efficient Buildings Strategy (EEBS) includes a number of government initiative

31、s to improve the efficiency of buildings and energy-using equipment through programs and regulations. These are complemented by BC Hydros extensive efforts under their Power Smart program, new conservation rates and the installation of digitally-operated smart meters for their customers by 2012. In

32、addition, other energy utilities such as Terasen Gas and FortisBC have extensive demand-side management (DSM) programs. Finally, Natural Resources Canadas Office of Energy Efficiency administers the ENERGY STAR program in Canada and oversees national energy efficiency regulations for products and eq

33、uipment, among other initiatives. Residential Sector Programs The LiveSmart BC: Efficiency Incentive Program provides a simplified approach for homeowners and residential landlords to access whole-house energy audits, advice on improvement options, incentives for upgrades and provision of an energy

34、label. Provincial and utility rebates are provided through a single program for efficiency upgrades for space and water heating equipment, windows and doors, insulation, air tightness and the installation of renewable energy systems. The program also included access to federal government rebates whi

35、ch were phased-out in early 2010. Incentives for efficiency upgrades were determined on the basis of the greenhouse gas emission reductions. An energy model was developed using Hot2000 software to determine typical energy savings and emissions reductions compared with a reference house for two regio

36、ns of the province. As of August 2010 over 47,000 participants had completed an energy assessment and received an EnerGuide label. About 29,000 had already completed energy efficiency improvements and a second assessment to confirm the savings. Over 150 certified energy advisors were working on hous

37、e assessments. They would play a critical role for proposed policy directions such as energy labeling (see below) and air tightness testing for new construction if required in the BC Building Code. At the start of the program in 2008, only 30 energy advisors were trained. In order to stimulate signi

38、ficant investments in energy efficiency, new policies are being developed for energy labelling at the time of property transfer or sale. MEMPR has established pilot projects with utilities, local governments and regional Real Estate Boards to test the impact of energy labels on consumer behavior. Pa

39、rticipants receive an extra incentive for their LiveSmart BC energy assessments if they agree to disclose their energy rating on the MLS listing and provide the assessment report to prospective buyers on request. An evaluation of pilot projects will be conducted in 2011. EEBS includes support for su

40、per-efficient new homes (that are designed to minimize purchased energy, including clean energy supplies on-site or in the community). Eight small developments with 80-90 residential units are under construction. The Minister of Housing and Social Development challenged the construction industry to

41、be building housing that is net zero for GHG emissions by 2020, with superior airtightness and insulation that will enable net zero energy performance through the addition of renewable energy generation such as solar panels (BCOHCS 2010). The Buildings Strategy focuses on incentives and consumer inf

42、ormation as the initial stages of market transformation for homes in British Columbia, supporting changes in regulations outlined below. 300 ASHRAE TransactionsPrograms for Commercial, Institutional and Government Buildings EEBS aims to increase energy efficiency for buildings through government lea

43、dership for new construction and the existing public sector building stock of approximately 6,500 buildings, enabling utilities to undertake extensive DSM programs, support for building labeling and certification programs and market mechanisms such as conservation rate structures and smart meters. S

44、pecific examples of voluntary measures include: x Developing and testing an energy performance benchmarking tool and labeling system; x Supporting industry associations such as the Canada Green Building Council and the Building Owners and Managers Association (BOMA) BC to introduce energy evaluation

45、, labeling and certification programs; x Investing in training programs for energy managers and building systems operators to achieve energy savings through management, controls and occupant engagement delivered by BOMA and Douglas College; x Installing energy information systems with real-time “das

46、hboards” in several public buildings, to be used as a tool for engaging building occupants on energy conservation campaigns (see Owen et.al. 2010); x Legislating carbon neutrality (net zero emissions) for operations of core government, Crown Corporations, health and public education organizations by

47、 the end of 2010 (and the majority of local governments by 2012) by tracking and reducing emissions and purchasing greenhouse gas offsets through the Pacific Carbon Trust; x Implementing the Public Sector Energy Conservation Agreement with an electricity reduction target of 20% by 2020 and employing

48、 approximately 30 energy managers across the public sector organizations; and, x Requiring all new government buildings and facilities to meet the standard of LEED Gold or equivalent certification, including use of BC wood products. A mix of voluntary measures, incentives and regulations characteriz

49、e the market transformation approach to the commercial, institutional and government sectors, which reflect the diversity of the sector itself. This sector remains a challenge for energy efficiency programs due to the focus on short-term paybacks and frequent turnover of tenants. Innovative mechanisms are needed to address the spilt-incentive barriers in a sector where most energy users are tenants. Utility Regulatory Initiatives The Clean Energy Act (CEA) (Queens Printer 2010) established a new planning framework for BC Hydro to support econ