Summary
In their 2024 Climate Action Plan, the Government of Ireland established a national target to install 8 gigawatts of solar photovoltaic (PV) panels nationally by 2030[i]. As part of this target, the Solar for Schools programme was launched by the Department of Education in November 2023. This programme provides all eligible schools in Ireland with the opportunity to apply for funding to install rooftop solar PV panels to reduce electricity costs through renewable energy. However, barriers to participation can arise through frictions present in the application process, which can make a school’s experience burdensome. For example, the take-up of the predecessor to the 2023 Solar for Schools programme was very low, likely due to burdensome administrative procedures. The purpose of this policy brief is to measure the type and size of these frictions in Ireland’s Solar for Schools programme and provide recommendations to reduce those frictions. An audit of Ireland’s Solar for Schools programme led to the development of a journey map, illustrating the typical steps a school takes to apply for funding for panel installation. A qualitative analysis of stakeholder interviews informed this evaluation and quantification of the administrative frictions present in each step of the journey. While the administrative burdens experienced in the process are not excessive, for school principals, the most significant barriers to programme participation emerged in the contractor quote selection process and the inability to add on to the 6kW of government-funded solar panels. To address these barriers, this brief recommends a restructuring of the tender process, changes to the payment procedure, and removal of restrictions on solar panel expansion.
Context
In 2019,prior to the launch of the Solar for Schools programme, administrative frictions related to solar photovoltaic (PV) installation on schools in Ireland was raised as an issue by the non-governmental organisation (NGO) Friends of the Earth Ireland[ii]. Their analysis revealed frictions throughout the application process for schools applying to the government for solar installation grants, particularly in the implementation phase. This was due to a requirement for schools to apply for planning permission prior to panel installation, which led to delays, costs, and abandoned applications. As a result, in 2022, the Government of Ireland removed the planning permission requirement for schools to install solar PV panels[iii].
In November 2023, Ireland’s Department of Education launched Phase I of the Solar for Schools programme. The first call for applications opened for 1,600 schools within 11 designated areas across Ireland, who received invitations to apply for the funding programme directly from the Department of Education. In October 2024, the Department of Education announced that 1,100 of those schools received approval for solar PV installations and Phase I was deemed a success. The Solar for Schools programme was then extended to all schools nationwide (ca. 3,962) in November 2024 for Phase II of the programme[iv]. In both Phases, primary and secondary schools could apply for funding to install up to 6kW (approximately 16 panels) of solar PV, saving each school around €1,200-1,600 per year in electricity costs. Furthermore, the VAT rate for solar panel installation in schools was reduced to zero in Budget 2024[v].
Achieving similar or improved engagement in Phase II of the Solar for Schools Programme will be an important achievement as part of Ireland’s National Climate Action Plani. However, scaling policies can be difficult[vi]. Administrative frictions, in particular, can impede an individual’s ability to find relevant information; hinder the cost benefit analysis of a decision; create frustration, stress, embarrassment, and other negative emotions; and cause waiting times and additional delays[vii]. One way to support further engagement is to reduce any administrative frictions present in the application process, thus making a school principal’s experience of policy implementation less onerous and resulting in higher participation.
Policymakers worldwide are increasingly paying attention to administrative frictions and making friction reduction a central aspect of efforts to improve citizen services[viii]. Assessments of administrative frictions, or “Sludge Audits”, can help identify and gauge their baseline presence within a policy or scheme[ix]. Sludge in this context refers to unnecessary or unjustified frictions that make it harder for people to do what they want to do[x]. A similar audit by the authors has been conducted on Ireland’s afforestation scheme[xi] as the first sludge audit within a climate action plan[xii].
Methodology
The methodology followed a three-phase sludge audit procedure to measure the level of administrative frictions in the Solar for Schools programme. In the first phase, a behavioural journey map was developed to demonstrate the steps school principals follow as part of Ireland’s Solar for Schools programme to install solar panels. The second phase evaluated the presence of administrative frictions at each individual step in the application journey. Each step was given a “sludge score” to quantify its administrative frictions following the sludge assessment criteria developed by the New South Wales Behavioural Insights Unit[xiii]. In the third phase, the project conducted a qualitative analysis of stakeholder interviews to provide a holistic review of the process. Following a semi-systematic interview guide[xiv], all three phases were informed by semi-structured interviews with eight stakeholders across a variety of roles, including school principals, solar panel installers, and programme administrators.
Results
Eight steps to put solar PV panels on schools
In developing the journey map for schools engaging with the Solar for Schools Programme, eight stages were identified, each consisting of between one to six steps. Figure 1 presents the journey map of the application process based on participants’ experiences in Phase I of the Programme, when this evaluation took place. To our knowledge, the same user journey has been applied to Phase II, which commenced in November 2024. Waiting periods between stages were generally low among stakeholders, with an average wait time of approximately 3-4 weeks from application to approval (Stage 4) and six weeks between schools receiving their first grant instalment (Stage 5) and their final instalment after installation (Stage 8). Thus, uncertainty or waiting times were not significant concerns in this scheme.
Low administrative frictions overall
Overall, the analysis demonstrated low administrative friction in the programme, with just over half the steps (53%) receiving a “sludge score” of 1 or less (very easy) and no step receiving a sludge score higher than 3 (somewhat difficult) out of 5 (very difficult). While this programme is a successful scheme with low administrative frictions, addressing even low frictions can improve engagement and success within the scheme. This is particularly true when individuals interacting with the programme already have a demanding workload, as is the case for school principals. The journey map in Figure 1 highlights the stages and steps with the highest level of burden (sludge scores of 3) in orange.
Selecting a contractor is burdensome
The audit revealed the need for significant time investment by school principals when applying for the Solar for Schools scheme. Selecting a contractor (Stage 2) is typically the most time-consuming task in the process as it involves gathering three quotes from contractors on the Sustainable Energy Authority Ireland’s (SEAI) list of approved contractors.
Submitting required documents can be onerous
Once the school principal has three quotes, they must organise the required documents for submission to the Department of Education (Stage 4). Submitting these required documents can be an onerous task because school principals are not familiar with these forms. If the document format or information is not prepared accurately, the Department of Education will request the school principal to get the contractor to fix these errors, which can take some time. One participant shared that their contractor became frustrated after having to resubmit an application when it was not correctly presented the first time, specifically regarding VAT exclusive quotations. Similarly, another stakeholder stated that they were not informed of an issue with the VAT exclusive language in the application and only found out when they proactively contacted SEAI for an update on their application.
Frustration with the prohibition of adding self-funded PV panels
Stakeholders emphasised frictions related to the current programme’s installation limit of 6kW (approximately 16 panels) of solar PV (Stage 6). Some installations above 6kW require a different (NC7) ESB application and additional associated cost. However, it is not clear if this is the rationale for the 6kW limit set by the Department of Education. Nonetheless, school principals expressed frustration with the explicit prohibition of adding on to the 6kW of solar PV panels, even if the school funded the cost of additional panels themselves. If the school chose to add self-funded panels later, they would incur installation costs, which could have been reduced if those panels were installed with the initial 6kW installation. Likewise, it is more economically efficient for contractors to install projects larger than 6kW or to focus on domestic installations which are easier and faster to complete. This makes selecting a contractor (Stage 2) more difficult for schools in times when demand for solar installers is higher than supply, as is currently the case[xv].
Figure 1: Journey map of applicants participating in Ireland’s Solar for Schools programme Phase 1, as of September 2024, with stages and steps in orange indicating areas where administrative frictions were perceived as very difficult.
Policy Recommendations
1. Restructure the tender process through a centralised procurement system
This audit demonstrated that selecting a contractor created the strongest administrative frictions for school principals engaging with the Solar for Schools programme. Principals highlighted their lack of time, expertise, or resources to facilitate the tender process. This friction could be reduced by allocating responsibility to local authorities, or a body with an equivalent geographic reach, to manage the tender process through a central procurement structure for all eligible schools in their area. Such a structure would appeal more to contractors by allowing them to bid for multiple schools “in bulk” rather than one school at a time, which is more costly. This is feasible -a similar model is in place in the United Kingdom through their own Solar for Schools programme, where the local authority manages the process for all schools in their catchment.
2. Allow schools to expand solar PV systems beyond 6kW
In interviews, school principals expressed disappointment in the Solar for School programme’s restriction on solar PV system expansion above 6kW. While this installation does reduce the electricity costs of schools, many principals would like the opportunity to use other funding to add onto the 6kW PV system, ideally while the contractors are already on site to save on installation costs. Likewise, installers would be more inclined to engage with schools installing larger projects. Thus, removing the restriction on installations above 6kW, even if the remaining panels are school-funded, would provide more incentive for both schools and contractors to engage with the programme and ultimately reduce schools’ operating costs and environmental impact further.
3. Simplify applications for schools and installers
While the Solar for Schools application process is not excessively burdensome, stakeholders identified frictions within the document preparation stage of the process. In particular, confusion arose regarding the VAT exclusive language in the application, with several stakeholders expressing frustration with the need to re-submit forms numerous times and have their contractor re-sign forms repeatedly. It would benefit both school principals and contractors if there was more clarity in the application forms regarding reporting requirements. Excessive paperwork can deter school principals, particularly those with limited time and administrative capacity, from participating in similar schemes in the future.
4. Encourage schools to maximise educational opportunities
While beyond the scope of this audit, the research uncovered opportunities to leverage solar PV panel installation in primary and secondary schools for teaching and learning. Some schools are already using their new solar PV technology to allow students to explore renewable energy generation and participate in the low carbon transition. When schools display the real-time data from the solar panels, it allows students to learn about the importance of clean energy and become involved in their school’s sustainability actions. Like the Solar for Schools programme in the United Kingdom, school curricula could be linked to the schools’ solar outputs to encourage development of relevant skills.
5. Apply this model to other schemes
The successful rollout of Phase I of the Solar for Schools scheme can be largely attributed to the collaboration between the Department of Education and the SEAI. As an organisation with expertise in existing solar PV grant programmes, the SEAI has the resources and knowledge, including from applied behavioural science, to process applications for energy grants. This expertise is necessary for the Department of Education to process applications. Such a successful model could be applied to other programmes to streamline the application process and ensure necessary expertise is available to support applicants.
Conclusion
This brief presents one of the first “sludge” audits aimed at identifying administrative frictions as a barrier to achieving climate action targets. No administrative process is frictionless, so any audit will reveal some friction and this audit was no exception. Our findings illustrate the administrative frictions experienced in a best case scenario, where principals proactively engaged with the process of availing of this grant. These frictions could be further exacerbated among those who did not engage in the scheme.
Although the assessment revealed that many steps in Ireland’s Solar for Schools programme contain low or very low friction, three aspects of the programme create friction and associated transaction costs for school principals and contractors. These include frustrations arising from the need to find three contractor quotes; issues with document preparation; and the constraint on the size of solar panel installation that can be completed.
There are also opportunities to learn from the administration of this scheme. For example, the scheme demonstrates that collaboration between state bodies or organisations can be beneficial and could be applied to other programmes to maximise efficiency and expert knowledge. The audit undertaken in this study could also be applied to other climate action schemes to identify process improvements that ease participation and enhance the likelihood of meeting climate goals.
Further information: For further information on the audit analysis, please contact the authors to be directed to the working paper from this research.
Acknowledgements: This work is part of the research project assessing “Administrative Burdens as Barriers to Implementation of Ireland’s Climate Action Plan” (ABICAP), (EPA project 2022-CE-1149) funded under the EPA Research Programme 2021-2030. The EPA Research Programme is a Government of Ireland initiative funded by the Department of the Environment, Climate and Communications. The authors acknowledge the input of the members of the project steering committee for this brief, especially Desmond O’Mahony and Anne Mason. We are also grateful to the New South Wales Government Behavioural Insights Unit, who provided access to their Sludge Finder Tool; Ross McCann at Grian52; and staff within the Department of Education and Friends of the Earth Ireland for valuable feedback. Ethics approval for this research was confirmed by UCD’s Office of Research Ethics on September 7, 2023 (Reference: LS-LR-23-208-Lades).
Disclaimer: Although every effort has been made to ensure the accuracy of the material contained in this document, complete accuracy cannot be guaranteed. The Environmental Protection Agency does not accept any responsibility whatsoever for loss or damage occasioned or damages claimed to have been occasioned, in part or in full, as a consequence of any person acting, or refraining from acting, as a result of a matter contained in this document. This report is based on research carried out from January 2023 to December 2024. More recent data may have become available since the research was completed.
[i] Government of Ireland. (2023). National Climate Action Plan 2024. https://www.gov.ie/en/publication/79659-climate-action-plan-2024/
[ii] GreenNews.ie (2019) “State must remove barriers to rooftop solar for schools” by Niall Sargent. May 19, 2019 https://greennews.ie/state-remove-roottop-barriers-solar/ (Accessed 14 January 2025).
[iii] Friends of the Earth Ireland. (2022). “Solar panels casting more shadows then sunshine on Government’s Climate Credentials”. Available at https://www.friendsoftheearth.ie/news/solar-panels-casting-more-shadows-then-sunshine-on-governmen/ (Accessed 22 January 2024).
Department of Housing, Local Government and Heritage. (2022). Solar Planning Exemptions. https://assets.gov.ie/237944/ec5b6c68-0c32-4d04-953f-ac9f6fb0f884.pdf
[iv] Department of Education. (2024). “Ministers Foley and Smyth announce that the Solar for Schools Programme will now be extended to all schools nationwide”. Press Release. Available at: https://www.gov.ie/en/press-release/20d1f-ministers-foley-and-smyth-announce-that-the-solar-for-schools-programme-will-now-be-extended-to-all-schools-nationwide/ (Accessed 12 November 2024).
[v] Government of Ireland. (2023). Budget 2024 Expenditure Report. https://assets.gov.ie/273322/fd803803-1a3d-48d5-aae2-a549de6a9927.pdf
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[viii] OECD (2024) Fixing frictions: ‘Sludge audits’ around the world. https://www.oecd-ilibrary.org/content/paper/5e9bb35c-en
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[ix] Sunstein, C. R. (2022). Sludge audits. Behavioural Public Policy, 6(4), 654–673.
[x] Sunstein, C. R. (2021). Sludge: What stops us from getting things done and what to do about it. MIT Press.
[xi] Forestry Division, Department of Agriculture, Food and the Marine. (2024). Afforestation Scheme 2023-2027 Document. https://assets.gov.ie/268169/c042cc66-08de-4818-b27a-409ce8c527f8.pdf
[xii] Lentz, P., Augustenborg, C., & Lades, L. (2024). Administrative Burdens as Barriers to Afforestation: A Sludge Audit of Ireland’s Afforestation Scheme. Hosted on the Open Science Framework. https://doi.org/10.17605/OSF.IO/MF37P
[xiii] NSW Behavioural Insights Unit (2024) The NSW Government Sludge Audit Method Guide. Department of Agriculture, Food and the Marine. https://www.nsw.gov.au/departments-and-agencies/behavioural-insights-unit/sludge-toolkit/download-sludge-audit-method-guide
[xiv] Lades, L., & Martin, L. (2024). Interview Guide: Identifying “Sludge” in Climate Action. Hosted on the Open Science Framework. https://doi.org/10.17605/OSF.IO/32WTA
[xv] Sustainable Energy Authority Ireland (SEAI) (2023) National Retrofit Plan Quarterly Progress Report Quarter 2, 2023. https://www.seai.ie/sites/default/files/publications/SEAI-Retrofit-Quarterly-Report-Q2-2023.pdf (Accessed 9 December 2024).
This policy brief is available to download here.
