Ontario Energy Board Putting Up Barriers to Energy Conservation
Tuesday, June 14th 2011 10:25:22am
Toronto, June 14, 2011 - Ontario's Environmental Commissioner says the province's energy regulator is putting up barriers to increased energy conservation. This is just one of the conclusions from his Annual Energy Conservation Progress Report - 2010 (Volume One), Managing a Complex Energy System, released today.
"The Ontario Energy Board (OEB) plays a valuable role in protecting consumer interests, but this traditional regulatory function is in conflict with its expanded powers over conservation," says Commissioner Gord Miller. He points to recent decisions by the OEB that have forced both electricity and natural gas distributors to restrict the conservation programs they offer to consumers.
One of the OEB's key objectives is to promote energy conservation, but the Board recently told Union Gas and Enbridge Gas Distribution to curtail proposed increases in their conservation budgets and instead, freeze them at existing levels for the next three years. "The ‘low-hanging fruit' in conservation has already been harvested," says Miller, "but the Board won't approve the investments that are necessary to accomplish further energy savings. The Board is ignoring the benefits that will come with reduced infrastructure costs and lower greenhouse gas emissions."
The progress report also says the OEB has established rules that could hinder the Conservation and Demand Management (CDM) programs offered by the province's electricity utilities. "The Ontario Power Authority has designed province-wide conservation programs, yet it's the electric utilities who will carry them out. The Ontario Energy Board has given utilities all of the responsibility but none of the freedom to modify or improve programs if necessary."
Conservation is only one of the areas where the OEB has been asked to take on an expanded policy-making role. The government has also told the OEB to facilitate the adoption of the smart grid - a modernized electricity system that uses information technology to operate more efficiently. Miller believes that "one entity has to be given the responsibility for establishing the vision of an integrated electricity system, and providing the leadership for modernizing our electricity grid." However, the Commissioner questions whether the OEB would be the appropriate choice to achieve this innovative objective, given its conflicted responsibilities.
To watch the Commissioner's pre-recorded comments, please visit: http://www.youtube.com/user/EcoComms
For more information, contact:
Communications and Outreach Coordinator
Environmental Commissioner of Ontario
416-325-3371 / 416-819-1673
For French language release and bilingual support, please contact:
Jean-Marc Filion, 705-492-6997
The report is available for download at http://www.eco.on.ca
Aussi disponible en français
The Environmental Commissioner of Ontario is the province's independent environmental watchdog. Appointed by the Legislative Assembly, the ECO monitors and reports on compliance with the Environmental Bill of Rights, the government's progress in reducing greenhouse gas emissions and its actions towards achieving greater energy conservation in Ontario.
Annual Energy Conservation Progress Report - 2010 (Volume One):
Under the Environmental Bill of Rights,1993, the Environmental Commissioner of Ontario (ECO) reports annually to the Legislative Assembly of Ontario on the province's progress in energy conservation. Managing a Complex Energy System, the first volume of the 2010 energy conservation report, reviews policy developments that occurred over the year, highlights concerns with the current policy agenda and outlines recommendations to further conservation in Ontario.
The Long-Term Energy Plan
In 2010, the government restarted the development of the Integrated Power System Plan by issuing the Long-Term Energy Plan (LTEP) and a Supply Mix Directive. The ECO is pleased the government acted on a previous recommendation to establish electricity consumption targets in addition to peak demand reduction targets. This will reduce the need for new generating stations, transmission and distribution lines, and better reflects the design of many of the conservation programs available. However, the ECO feels the LTEP did not adequately explain the difficult trade-offs necessary when choosing among types of generation. Furthermore, the LTEP is an energy plan in name but is an electricity plan in reality. Ontario needs an energy plan and a multi-fuel conservation strategy that addresses all energy sources. (Page 11)
Several changes in fiscal policy have affected the cost of electricity, including the 13% Harmonized Sales Tax (HST). As a result, electricity is now treated like other goods and services, sending a more accurate price signal about its cost. However, with the Ontario Clean Energy Benefit the government has essentially reversed the impact of the HST and restored an artificial price subsidy on electricity, creating a perverse incentive that undermines conservation. Changes were also made to the Global Adjustment to charge very high prices during a few hours of very high demand for large electricity consumers (more than 5 MW). This change is essentially a form of critical peak pricing. In general, the ECO supports this incentive to reduce peak demand and urges the government to expand critical peak pricing to smaller consumers and adjust some inequities in the allocation of costs in the Global Adjustment. (Page 21)
A New Conservation Framework
A new Conservation and Demand Management (CDM) framework for electric utilities has been implemented for 2011 to 2014. For the first time utilities have been mandated to meet conservation targets based on a provincial target of 1,330 MW and 6,000 GWh. The Ontario Energy Board (OEB) developed a CDM Code to govern the utilities' CDM activities. The ECO is concerned that the current CDM framework may discourage co-operation with other utilities or organizations and is unnecessarily restricting the role of utilities and their ability for innovation. The current CDM framework is set to expire on December 31, 2014. To ensure momentum is sustained a review and preparation for the next CDM framework should be completed before this end date. (Page 31)
Conservation Budget Freeze
On March29, 2011, the OEB announced that the conservation budgets for Ontario's natural gas utilities would be limited to their existing levels for the next three years. This was a surprising decision as both utilities and Board staff supported an increase in conservation spending. In addition, the Minister of Energy had also urged the OEB to consider expanding natural gas conservation efforts. The decisions of both the government and the OEB to restrict conservation spending will stall needed growth in conservation programs. (Page 39)
Smart grid is the term used to describe the next generation of the electricity delivery system. Fundamental to this initiative is a two-way communication network that will allow consumers to more effectively manage their electricity use and also increase the opportunities for demand response and distributed renewable energy generation.
If the smart grid is to succeed, the ECO believes that one organization with a perspective of the electricity system as a whole should guide all organizations with grid-related responsibilities to the common goal of modernizing the smart grid. The ECO also feels incentives should be provided to undertake infrastructure investments that reduce distribution line loss to overcome the higher cost of efficient infrastructure and ensure that appropriate long-term system planning occurs. (Page 43)
Barriers to Alternative Energy
Solar thermal systems, which use solar energy directly rather than convert it into electricity, are generally more energy efficient and deliver greater energy and cost savings than solar photovoltaic (PV)systems. The provincial government's cancellation of incentives to install solar thermal systems for homeowners, combined with the OPA's enticing microFIT program, has created a perverse incentive for homeowners to install solar PV systems over solar thermal. The ECO believes both types of technologies have value and both should be encouraged. (Page 53)
The report makes the following recommendations:
1. The ECO recommends that the Ministry of Energy clarify how the peak demand and consumption targets contained in the Long Term Energy Plan and Conservation and Demand Management Directive are measured.
2. The ECO recommends that the Ministry of Energy build upon the work completed in the Long-Term Energy Plan and produce a comprehensive multi-fuel energy plan.
3. The ECO recommends that the Ministries of Energy, Revenue, and Finance improve the design of the Ontario Clean Energy Benefit so that any transitional assistance on electricity bills oes not act as a disincentive to conservation.
4. The ECO recommends that the Ministry of Energy initiate the next Conservation and Demand Management framework, which would include guaranteed funding, by January 1, 2014.
5. The ECO recommends that the Ministry of Energy clarify the appropriate roles of the government and gas utilities in funding natural gas conservation, with the goal of increasing overall funding.
6. The ECO recommends that the Ontario Energy Board encourage and facilitate smart grid investments that reduce line losses, putting these investments on an equal footing with conservation investments.
7. The ECO recommends that the Ministry of Energy adjust the relative financial incentives available for solar thermal and solar photovoltaic in residential buildings to appropriately reflect the economic and environmental benefits of each technology.