Negative Policy Feedback and Energy Efficiency Policy in the UK

The UK has a target to reach net zero emissions by 2050. It has so far reduced its carbon emissions by 47% compared to 1990 levels (The CCC 2022, p.17). However, looking ahead, there are significant gaps between what emissions reduction targets demand and the policies the UK has in place. One of the conspicuous areas of under-delivery has been the energy efficiency of buildings and the UK’s climate advisors have stated that “Plans for decarbonising buildings need to be strengthened” (the CCC, 2022, p.32). Historically the UK government implemented policies which delivered improvements in the energy efficiency of buildings, but this picture changed dramatically from 2013 onwards. This paper investigates the reasons behind the policy gap in building energy efficiency between 2013 and 2022. A lacuna which is particularly notable because of the consistent lobbying for additional policies to improve building energy efficiency throughout this period from UK-based energy and climate change experts and interest groups. It makes a contribution to the energy transitions literature on the factors which speed up or slow down low-carbon transitions (Roberts et al., 2018). It advances the growing literature on the role of policy feedback in shaping energy transitions, drawing from the longstanding insight that not only can politics shape policy but ‘policy makes new politics’ (Roberts et al., 2018 p.306). It does by answering the following two research questions: ▪️ Why did the UK consistently fail to make significant improvements to the energy efficiency of existing domestic buildings between 2013-2022? ▪️ What role did negative policy feedback play in constraining UK government policy in the area of domestic energy efficiency policy? It is hypothesised that the following developments created negative feedback effects during this period, contributing to the lack of policy action: (1) the 2010-2015 coalition government’s failed policy reorientation; (2) the 2017 Grenfell fire and the associated cladding scandal; (3) the botched Green Homes Grant. These episodes are believed to have created negative perceptions about the policy area within government and gradually eroded the capacity of the energy efficiency industry. Exploring this case study will develop understanding of the mechanisms by which negative policy feedback can constrain energy transitions (Edmondson et al. 2019, p.4). Additionally, much of the literature on policy feedback and low-carbon transitions has focused on the balance between carbon-intensive and renewable forms of power generation. This paper will investigate a different type of case with seemingly distinct dynamics (for example, limited presence of incumbent lobbyists). The paper will be based on interviews with individuals with insider knowledge of policymaking in this area and an evaluation of policy documents, conducted during April and May 2023. A theory-testing process tracing approach will be used to analyse the material, focused on tracing causal mechanisms within this case. The aim will be to test, adapt and widen the parameters of theory on the role of policy feedback in low-carbon transitions, and thereby develop the state of the art in this area.