From the ground up: how to adapt policy design to participant needs to achieve equitable housing decarbonization

Extended abstract 3-001-26

States and local governments seek to accelerate decarbonization through a range of well-intended policies and programs. Yet, lack of coordination between these programs, and limited attention to the factors that impact individuals’ behavior and decision-making is hindering wider adoption of decarbonization programs, especially among priority communities.

To analyze the mismatch between policy goals and on-the-ground needs, we partnered with environmental justice and community organizations to implement a Participatory Action Research (PAR) study in California, a global leader in decarbonization with over 300 residential energy programs. We conducted 125 in-depth interviews across California with people who hold leadership positions in state and local governments, energy utilities, implementation companies, nonprofits, and community organizations, as well as with homeowners and renters.

We present a conceptual model analyzing how cross-sector actions influence key decision-makers (e.g., homeowners, landlords) across five facets of participant engagement: (1) Awareness & motivation, (2) Capacity of property owners and the workforce, (3) Affordability, (4) Energy infrastructure readiness, and (5) regulation & permitting. Unlike traditional evaluations that analyze programs purely by design, our model assesses how multiple policies and programs interact to shape participant success. We use this model in two ways. First, to explain the factors contributing to variations in services and experiences between potential participants. Second, to highlight areas for policy interventions.

Our findings illuminate multi-level governance challenges and map pathways to align interests across levels and sectors, advancing equitable decarbonization. We argue that successful implementation requires a shift from "individual-as-integrator" models to "system-supported" interventions. Key recommendations include statewide program coordination, deep engagement, integrating participant support services, addressing ownership fragmentation and remediation needs, building the capacity of "middle actors" – such as local governments, contractors, and community organizations – to act as system integrators, removing administrative and infrastructure barriers, and embedding equity in evaluation frameworks.

While grounded in California, this model offers a vital blueprint for energy transition in other nations, where energy poverty and peak demand on the national grid are rising concerns. 

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