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Sustainable Housing: a Follow–Up Report

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House of Commons Environmental Audit Committee Sustainable Housing: A Follow–up Report Fifth Report of Session 2005–06 Report, together with formal minutes, oral and written evidence Ordered by The House of Commons to be printed Tuesday 21 March 2006 HC 779 Published on Thursday 30th March 2006 by authority of the House of Commons London: The Stationery Office Limited £24.50 The Environmental Audit Committee The Environmental Audit Committee is appointed by the House of Commons to consider to what extent the policies and programmes of government departments and non-departmental public bodies contribute to environmental protection and sustainable development; to audit their performance against such targets as may be set for them by Her Majesty’s Ministers; and to report thereon to the House. Current membership Mr Tim Yeo MP (Conservative, South Suffolk) (Chairman) Ms Celia Barlow, MP (Labour, Hove) Mr Martin Caton, MP (Labour, Gower) Mr Colin Challen, MP (Labour, Morley and Rothwell) Mr David Chaytor, MP (Labour, Bury North) Ms Lynne Featherstone, MP (Liberal Democrat, Hornsey and Wood Green) Mr David Howarth, MP (Liberal Democrat, Cambridge) Mr Nick Hurd, MP (Conservative, Ruislip Northwood) Mr Elliot Morley MP (Labour, Scunthorpe) [ex-officio] Mr Mark Pritchard, MP (Conservative, Wrekin, The) Mrs Linda Riordan, MP (Labour, Halifax) Mr Graham Stuart, MP (Conservative, Beverley & Holderness) Ms Emily Thornberry, MP (Labour, Islington South & Finsbury) Dr Desmond Turner, MP (Labour, Brighton, Kempton) Mr Ed Vaizey, MP (Conservative, Wantage) Joan Walley MP (Labour, Stoke-on-Trent North) Powers The constitution and powers are set out in House of Commons Standing Orders, principally Standing Order No. 152A. These are available on the Internet via www.parliament.uk. Publication The Reports and evidence of the Committee are published by The Stationery Office by Order of the House. All publications of the Committee (including press notices) are on the Internet at: www.parliament.uk/parliamentary_committees/environmental_audit_committee.cfm. A list of Reports of the Committee in the present Parliament is at the back of this volume. Committee staff The current staff of the Committee are: Mike Hennessy (Clerk); Lynne Spiers (Second Clerk); Eric Lewis (Committee Specialist); Elena Ares (Committee Specialist); Richard Douglas (Committee Specialist); Louise Combs (Committee Assistant); Caroline McElwee (Secretary); and Robert Long (Senior Office Clerk). Contacts All correspondence should be addressed to The Clerk, Environmental Audit Committee, Committee Office, 7 Millbank, London SW1P 3JA. The telephone number for general inquiries is: 020 7219 6150; the Committee’s e-mail address is: [email protected] References In the footnotes of this Report, references to oral evidence are indicated by ‘Q’ followed by the question number. References to written evidence are indicated by page number as in ‘Ev12’. number HC *-II 1 Contents Report Page Conclusions and recommendations 3 Introduction 10 The Scope of the Inquiry 10 Background. 11 Sustainable Communities: Homes for All 12 Demolition versus new build 14 The Code for Sustainable Homes 15 What does the Code for Sustainable Homes ask of Developers? 18 Is the Code challenging enough to deliver the necessary environmental savings?20 Can a voluntary Code work? 23 The Role of DEFRA 28 Building Regulations 29 Fiscal Incentives 31 Why are incentives necessary? 31 Public Perceptions/Public Actions 33 What form might these incentives take? 34 The Government Response 37 The Timely Provision of Infrastructure 38 Water Infrastructure 41 Background 41 Security of water supplies in the South East and the four Growth Areas – can the water companies cope with demand? 43 Managing demand—does this have to mean new infrastructure? 45 Public Awareness 48 Conclusion 50 Past reports from the Environmental Audit Committee since 1997 55 3 Conclusions and recommendations 1. We have never disputed the need to address the problem of housing affordability and we accept that this will inevitably result in more new homes being built, but we are concerned that consideration of the environmental impacts of these new communities ranks below a significant number of other economic and social factors. (Paragraph 7) 2. We were interested to see that ODPM has provided an explanation for what it means by sustainable communities but we remain deeply concerned at the very limited and superficial reference to the environment. For example, we would have liked to see explicit reference to the need for the homes within these communities to be built to high environmental standards, including energy and water efficiency. (Paragraph 11) 3. The resignation of one of the key players on the Steering Group tasked with developing the Code seemed to bode ill on the likelihood that critical consultation responses would be given real consideration. While we welcome the fact that ODPM has issued a press release saying that it will strengthen the Code, and Yvette Cooper has written to us, bringing this to our attention, ODPM still has a significant uphill battle to regain credibility, for the Code, the consultation process and itself. (Paragraph 17) 4. The fact that ODPM judged that the question of whether or not to make increased levels of energy and water efficiency compulsory, needed further assessment, and so should be part of the consultation, is surprising. Given the desperate need to off-set the impact of the proposed increased numbers for new homes, the likely cost of energy in the immediate future and the dire state of the water resources in the South East of England, there can be no question that these should be compulsory. (Paragraph 21) 5. We are pleased to welcome, therefore, ODPM’s latest decision to set minimum standards of energy and water efficiency for every level of the Code but we are anxious to know exactly what these standards will be and when they will come into effect. ODPM must make these details available at the earliest opportunity. This should include an assessment of the cost and practicality implications of setting minimum standards for each level, reflecting one of ODPM’s original concerns, as well as an assessment of the energy and water efficiency savings attached to each standard. (Paragraph 22) 6. It remains unacceptable to us that Level One of the new Code for Sustainable Homes is not consistent with the BRE Ecohomes “Very Good” standard and is, at best, little better than the existing Building Regulations. This questions the value of the many months the Senior Steering Group spent developing the Code and surely flies in the face of the original intentions of the SBTG. (Paragraph 24) 7. We do think that the Code for Sustainable Homes should require flood risk measures, such as door gates, flood resistant under-floor vents and high level 4 electrical sockets, to be included as standard in all homes built in areas where the Environment Agency has identified a reasonable risk of flooding. (Paragraph 26) 8. We recommend ODPM include a requirement for legal timber to be used in all buildings at Level One. (Paragraph 27) 9. WWF has said that all that is necessary to bring them back on board the Senior Steering Group for the Code for Sustainable Homes is, “quite simply, a statement that whatever results from the consultation period, the final code will be demonstrably stronger and go further than existing Government commitments”. We believe that if ODPM is to enjoy the confidence of the environmental world, consumers and the construction industry then this must not simply be a statement but a commitment that is delivered without further delay. We do not believe that the measures announced by ODPM on 9 March represent a significant step forward. (Paragraph 28) 10. We are so concerned that, despite the so-called “strengthening” of the Code for Sustainable Homes, it is still not adequate and we would urge ODPM to take some time, properly to assess the consultation responses, and to think very hard about some of the crucial elements missing from the Code. As it stands it will still fall far short of what is needed to ensure that future housing development is sustainable. (Paragraph 29) 11. It is entirely unsatisfactory that for those building in the private sector, the Code is intended only as a voluntary measure. (Paragraph 30) 12. The reality must surely be that the effectiveness of the levels and standards set out in the Code become increasingly diminished if the Code itself can be largely ignored by the Private Sector, the sector directly responsible for the vast majority of new builds in England, because it is voluntary. (Paragraph 31) 13. If the Government regards the Code as a form of draft Building Regulations, as Ministers have suggested, then ODPM must set out a clear timescale in which Code standards will be adopted into Regulations. (Paragraph 33) 14. The whole basis of the widespread scepticism with regard to compliance with a voluntary Code is that there is little incentive for developers to raise their standards and build to the Code. Time and again we have been told that developers will do only what they are required to do. (Paragraph 36) 15. We are concerned that houses have already been built, and will continue to be built, without sufficient regard to strong environmental standards. Reliance on developers to gradually begin to “do the right thing” we believe is misplaced and is symptomatic of a fundamental lack of urgency in the Government’s approach to ensuring that new housing and new communities are truly sustainable. We do not believe that this can be left to chance and we look to ODPM to provide strong leadership, not only across government, but in respect of developers and Local Authorities, who need greater support and guidance to ensure that there is no delay in introducing strong environmental standards. (Paragraph 36) 5 16.
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