Integrating energy efficiency within housing systems: A systems approach to map retrofit decision-making among non-profit housing actors

Abstract

Repair and retrofit of social and affordable housing (also known as community housing) improves living conditions and reduces residential greenhouse gas (GHG) emissions. Many policies and programs target the condition and energy efficiency of these buildings, often characterized by deferred maintenance. These policies are critical for mitigating climate change and preserving affordable housing, especially for vulnerable people. However, their effectiveness is constrained by the complexity of urban social housing systems, given overlapping jurisdictions and the diversity of actors, policy domains, regional climates, and energy systems. Non-profit housing actors primarily make asset management and maintenance decisions to provide safe, affordable, and accessible housing – decisions that can lead to energy efficiency retrofits. However, retrofit decision-making is a dynamic process of negotiation between actors and materials evolving over several stages. To design integrated and transformative policies, understanding and comparing systems shaping these decision-making processes is essential.

Using a systems approach and mixed methods we: 1) identify materials and broader system elements influencing early-stage decision-making from the perspectives of community housing actors; 2) map the strength of these influencing factors across four early stages of the retrofit decision-making process; and 3) compare how local contexts shape the influential factors in two contrasting systems, Saskatchewan (SK) and British Columbia (BC), Canada. We identify 16 influencing factors and map them across four project stages: identification, prioritization, design, and approvals. Building issues, funding availability, and impact on residents are key drivers, though factors vary across stages and depend on local contexts. We conclude with policy and program recommendations.