Multisectoral perspectives toward a sustainable energy transition in Puerto Rico: Implications for the post-2017 Atlantic Hurricane Season
DOI:
https://doi.org/10.5055/jem.0657Keywords:
Energy transition, recovery planning, stakeholder perspective, public participation, Hurricane Maria, disaster recoveryAbstract
Puerto Rico experienced the most prolonged power outage in US history after two hurricanes hit the Archipelago in September 2017. Hurricane Irma left over one million people without electricity, and Hurricane Maria left Puerto Rico in a total blackout when it hit. The damages to 80 percent of the electrical grid opened the possibility to the Puerto Rico Electric Power Authority to explore options beyond merely reconstructing and keeping the grid centralized. Prior to these events, an active public discussion on how to transform the electrical system had been occurring regarding a new energy policy passed in 2014 that created Puerto Rico’s first Energy Commission and concerning the first Integrated Resource Plan approved in 2016.
Objective: This study aimed to examine stake-holders’ visions, values, perceived barriers, and opportunities for a sustainable energy transition before the 2017 Atlantic Hurricane Season and how the stake-holders’ perspectives have been manifesting during post-disaster efforts.
Design: This study examined working documents generated by an Energy Stakeholders Forum (ESF) and semistructured interviews with key stakeholders in the energy decision-making arena.
Setting: The data analyzed in this study were collected for 2 years (2015-2016) before Hurricanes Irma and Maria hit Puerto Rico. The ESF had a series of meetings to generate multisectoral dialog and pursue more public participation in energy policy and planning processes. The semistructured interviews were conducted as part of an NSF-Critical Resilient Infrastructure Systems and Processes project investigating stakeholders’ perspectives on the electrical system.
Participants: Thirty-one stakeholders participated in face-to-face semistructured interviews using purposive and snowball sampling. The ESF’s meetings not only gathered up to 60 key stakeholders but also were open to the public.
Results: This study suggests that stakeholders’ perspectives were consistent with the prerequisites for a transition to renewable energy before the 2017 Atlantic Hurricane Season. However, even though the conditions of vision and values were present, there was also predisaster inertia from nontechnical barriers preventing the sustainable transition that still prevails in post-disaster Puerto Rico.
Conclusion: This paper provides an empirical reflection that ponders Puerto Rico’s post-disaster scenario through predisaster stakeholders’ perspectives. Emergency management professionals should reflect on why understanding predisaster conditions is critical in order to promote recovery efforts that meet the long-term needs of society and support sustainable development for future generations. The analysis may also reinforce planning for disaster recovery via governance approaches that consider stakeholders’ perspectives before disasters strike.
References
Intergovernmental Panel on Climate Change: Climate change: Implications for the energy sector. Fifth Assessment Report. 2014. Available at https://www.worldenergy.org/assets/images/imported/2014/06/Climate-Change-Implications-for-the-Energy-Sector-Summary-from-IPCC-AR5-2014-Full-report.pdf. Accessed August 31, 2020.
Heal G, Larocco P, Sandalow D, et al.: Post-María Puerto Rico, global collaboratory 2017-2018: Final report. Columbia: Columbia Center for Global Energy Policy, 2018.
Jaramillo L, Castillo J, Sepulveda PM, et al.: Huracán María y Reconstrucción del Sistema Eléctrico. In Estado de Situación Energética De Puerto Rico. San Juan: Oficina Estatal de Política Pública Energética, 2017: 99-125. Available at https://static1.squarespace.com/static/5b6c67d071069910870c6820/t/5cbd046be5e5f0648a778456/1555891502310/percent282018percent29+Oeppepercent2C+Estado+de+situacio?n+energe?tica+de+Puerto+Rico+percent282017percent29.pdf. Accessed August 31 2020.
Puerto Rico Energy Resiliency Working Group: Build back better: Reimagining and strengthening the power grid of Puerto Rico. San Juan, PR, 2017. Available at https://www.governor.ny.gov/sites/governor.ny.gov/files/atoms/files/PRERWG_Report_PR_Grid_Resiliency_Report.pdf. Accessed August 31, 2020.
Miller TR, Chester M, Muñoz-Erickson TA: Rethinking infra-structure in an era of unprecedented weather events. Issues Sci Technol. 2018; 34(2): 46-58. Available at https://issues.org/rethink-ing-infrastructure/. Accessed August 31, 2020.
US Department of Energy: Hurricanes Maria & Irma April 4 event summary (Report 98-Final). 2018: 1-4. Available at https://www.energy.gov/sites/prod/files/2018/04/f50/Hurricanespercent20Mariapercent20percent20Irmapercent20Eventpercent20Summarypercent20Aprilpercent204percent2Cpercent202018.pdf. Accessed August 31, 2020.
Brundiers K, Eakin HC: Leveraging post-disaster windows of opportunities for change towards sustainability: A framework. Sustainability. 2018; 10(5): 1390. DOI: 10.3390/su10051390.
Johnson LA, Olshansky RB: After Great Disasters: How Six Countries Managed Community Recovery. Cambridge, MA: Lincoln Institute of Land Policy, 2016. Available at https://www.lincolninst.edu/publications/books/after-great-disasters. Accessed August 31, 2020.
The Department of Homeland Security: National Disaster Recovery Framework, 2nd ed. 2016. Available at https://www.fema.gov/media-library-data/1466014998123-4bec8550930f774269e0c5968b120ba2/National_Disaster_Recovery_Framework2nd.pdf. Accessed August 31, 2020.
Hauff J, Bode A, Neumann D, et al.: Global energy transitions: A comparative analysis of key countries and implications for the international energy debate. Weltenergierat-Deutschland. 2014: 2. Available at https://www.extractiveshub.org/servefile/getFile/id/7448. Accessed August 31, 2020.
US Department of Energy: Energy transition initiative: Islands playbook. 2015. Available at https://energy.gov/eere/downloads/energy-transition-initiative-islands-playbook. Accessed August 31, 2020.
Grabowski ZJ, Matsler AM, Thiel C, et al.: Infrastructures as socio-eco-technical systems: Five considerations for interdiscipli-nary dialogue. J Infrastruct Syst. 2017; 23(4): 02517002-02517009. DOI: 10.1061/(ASCE)IS.1943-555X.0000383.
Miller C, Muñoz-Erickson TA, Monfreda C: Knowledge Systems Analysis: A Report for the Advancing Conservation in a Social Context Project. Tempe, AZ: Consortium for Science, Policy and Outcomes, 2010. Available at https://cspo.org/library/knowledge-systems-analysis-a-report-for-the-advancing-conservation-in-a-social-context-project/. Accessed August 31, 2020.
Turnheim B, Berkhout F, Geels F, et al.: Evaluating sustain-ability transitions pathways: Bridging analytical approaches to address governance challenges. Global Environ Change. 2015; 35(November): 239-253. DOI: 10.1016/j.gloenvcha.2015.08.010.
Goodier CI, Chmutina K: Non-technical barriers for decentral-ised energy and energy efficient buildings. Int J Energy Sector Manag. 2014; 8(4): 544-561. DOI: 10.1108/IJESM-03-2014-0001.
Painuly JP: Barriers to renewable energy penetration: A frame-work for analysis. Renew Energy. 2001; 24(1): 73-89. DOI: 10.1016/ S0960-1481(00)00186-5.
Chmutina K, Goodier CI: Alternative future energy pathways: Assessment of the potential of innovative decentralised energy systems in the UK. Energy Policy. 2014; 66: 62-72. DOI: 10.1016/j. enpol.2013.10.080.
Reddy S, Painuly JP: Diffusion of renewable energy technologies-barriers and stakeholders’ perspectives. Renew Energy. 2004; 29(9): 1431-1447. DOI: 10.1016/j.renene.2003.12.003.
Layzer JA: Introduction: Defining problems in US environmental politics. In The Environmental Case: Translating Values into Policy. 2nd ed. Washington, DC: C.Q. Press, 2006: 1-25.
Demski C, Butler C, Parkhill KA, et al.: Public values for energy system change. Global Environ Change. 2015; 34: 59-69. DOI: 10.1016/j.gloenvcha.2015.06.014. 21. Miller CA, Richter J: Social planning for energy transitions. Curr Sustain Renew Energy Rep. 2014; 1(3): 77-84. DOI: 10.1007/ s40518-014-0010-9.
Díaz P, Adler C, Patt A: Do stakeholders’ perspectives on renew-able energy infrastructure pose a risk to energy policy implementation? A case of a hydropower plant in Switzerland. Energy Policy. 2017; 108: 21-28. DOI: 10.1016/j.enpol.2017.05.033.
Longhurst N, Chilvers J: Mapping diverse visions of energy transitions: Co-producing sociotechnical imaginaries. Sustain Sci. 2019; 14(4): 973-990. DOI: 10.1007/s11625-019-00702-y.
Sovacool BK: How long will it take? Conceptualizing the temporal dynamics of energy transitions. Energy Res Soc Sci. 2016; 13: 202-215. DOI: 10.1016/j.erss.2015.12.020.
Colvin RM, Witt GB, Lacey J: Approaches to identifying stake-holders in environmental management: Insights from practitioners to go beyond the ‘usual suspects. Land Use Policy. 2016; 52: 266- 276. DOI: 10.1016/j.landusepol.2015.12.032.
de Onís CM: Energy colonialism powers the ongoing unnatural disaster in Puerto Rico. Front Commun. 2018; 3(January): 1-5. DOI: 10.3389/fcomm.2018.00002.
Irizarry Mora E: Breve Reseña sobre la Historia de la Generación de Energía Eléctrica en Puerto Rico. In Fuentes Energéticas: Luchas Comunitarias y Medioambiente En Puerto Rico. San Juan, PR: La Editorial Universidad de Puerto Rico, 2012: 21-36.
Marxuach SM: Restructuring the Puerto Rico Electric Sector. San Juan, PR: Center for a New Economy, 2005: 1-54. Available at http://grupocne.org/wp-content/uploads/2012/01/PREPA_Paper.pdf. Accessed August 31, 2020.
Estado Libre Asociado de Puerto Rico: Ley de Transformación y ALIVIO Energético de Puerto Rico. San Juan, PR: LexJuris Puerto Rico, 2014. Available at http://www.lexjuris.com/lexlex/Leyes2014/lexl2014057.htm.
Arnstein SR: A ladder of citizen participation. J Am Plann Assoc. 1969; 35(4): 216-224. DOI: 10.1080/01944366908977225.
Comité de Voluntarios del Foro de Constituyentes de Energía: Declaraciones de Visión Para Puerto Rico y su Sistema Energético. San Juan, PR: Instituto Nacional de Energía y Sostenibilidad Isleña, 2016. Available at https://inesi.upr.edu/declaraciones-de-vision-para-puerto-rico-y-su-sistema-energetico/. Accessed August 31, 2020.
Wu J: Landscape sustainability science: Ecosystem services and human wellbeing in changing landscapes. Landscape Ecol. 2013; 28(6): 999-1023. DOI: 10.1007/s10980-013-9894-9.
National Renewable Energy Laboratory: Counting on solar power for disaster relief. US Department Energy, 1999: of 1-4. Available at www.energy.gov/sites/prod/files/2013/10/f3/26042.pdf. Accessed August 31, 2020.
O’Connor PA: Energy Transitions. Boston: The Frederick S. Pardee Center for the Study of the Longer-Range Future, 2010. DOI: 10.1126/science.207.4426.52.
Kwasinski A, Andrade F, Castro-Sitiriche MJ, et al.: Hurricane Maria effects on Puerto Rico electric power infrastructure. IEEE Power Energy Technol Syst J. 2019; 6(1): 85-94. DOI: 10.1109/ jpets.2019.2900293.
Willison CE, Singer PM, Creary MS, et al.: Quantifying inequities in US federal response to hurricane disaster in Texas and Florida compared with Puerto Rico. BMJ Glob Heal. 2019; 4(1): 1-6. DOI: 10.1136/bmjgh-2018-001191.
Klein N: The Battle for Paradise: Puerto Rico Takes on the Disaster Capitalists. Chicago, IL: Haymarket Books, 2018: 43-44.
Kuzemko C, Lockwood M, Mitchell C, et al.: Governing for sustainable energy system change: Politics, contexts and con-tingency. Energy Res Soc Sci. 2016; 12: 96-105. DOI: 10.1016/j. erss.2015.12.022.
Direct Relief and the Clinton Foundation: Solar generation and storage projects at critical facilities since Hurricane Maria. Puerto Rico Solar Map. Available at http://www.puertoricosolarmap.org/. Accessed August 31, 2020.
Roque AD, Pijawka D, Wutich A: The role of social capital in resiliency: Disaster recovery in Puerto Rico. Risks Hazard Crisis Public Policy. 2020; 11(2): 204-235. DOI: 10.1002/rhc3.12187.
García A, González A, Irizarry A, et al.: Queremos sol (We want sun). Available at https://www.queremossolpr.com/project-4. Accessed August 31, 2020.
Reyes AA, Rivera JI, Nunez JM, et al.: Preliminary Feasibility Study for Small Modular Reactors and Microreactors for Puerto Rico. San Juan, PR: The Nuclear Alternative Project, 2020. Available at https://www.nuclearalternativeproject.org. Accessed August 31, 2020.
Omer AM: Energy use and environmental impacts: A general review. J Renew Sustain Energy. 2009; 1(August): 053101-053138. DOI: 10.1063/1.3220701.
Gould WA, Díaz EL, Álvarez-Berríos NL, et al.: Chapter 20: US Caribbean. In Zimmerman JK (ed.): Impacts, Risks, and Adaptation in the United States: The Fourth National Climate Assessment, Vol. II. Washington, DC: US Global Change Research Program, 2018: 809-871. DOI: 10.7930/NCA4.2018.CH20.
The White House: Presidential policy directive 21: Critical infrastructure security and resilience. Washington, DC. 2013: 1-12. Available at https://obamawhitehouse.archives.gov/the-press-office/2013/02/12/presidential-policy-directive-critical-infrastructure-security-and-resil. Accessed August 31, 2020.
How to Cite
Issue
Section
License
Copyright 2007-2023, Weston Medical Publishing, LLC and Journal of Emergency Management. All Rights Reserved
