Equity-based energy retrofits to address energy poverty in Canada

Many energy efficiency and decarbonization retrofit programs aim to alleviate energy poverty by targeting low-income households, but these programs do not always address the multiple determinants of energy poverty. This study develops a vulnerability-based framework to explore the extent to which energy retrofit programs designed for low-income households comprehensively account for socioeconomic, demographic, and cultural structures that shape energy poverty experiences, employing Canada as an empirical case study using key informant interviews with program administrators. The framework conceptualizes energy poverty as the vulnerability to future housing-related harms, amplified by energy-related risk factors, and conditioned by a household's inability to adequately respond. The study finds several key issues limiting the capacity of low-income retrofit programs to address the overlapping and compounding determinants of energy poverty, including inadequate funding, exclusion of the poorest quality housing, limited retrofit options, and a narrow focus on energy efficiency gains. This study shows key opportunities to expand and deepen the current ecosystem of low-income retrofit programs by expanding existing policy innovations. The paper also offers suggestions for widening the policy arena to address energy poverty, both within retrofit programs and beyond.