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The City of Edinburgh Council’s Carbon Management Plan 2015/16 to 2020/21

Carbon Management Plan

2015/16 to 2020/21

The City of Edinburgh Council

Created by: The City of Edinburgh Council Prepared by: James Garry, April 2015

1 City of Edinburgh Council’s 2015/16 to 2020/21 Contents City of Edinburgh Council’s 2015/16 to 2020/21

1 Executive Summary In the previous Carbon Management Plan (CMP), published in 2008, the City of Edinburgh Council stated its aspiration to achieve a carbon reduction target of 25% by 2013/14, based on the 2005/06 carbon footprint baseline. This CMP sets out the Council’s ambitions for 2020/21, with a roadmap for progress. Reducing carbon emissions is not just about our commitment to the environment. The same processes we use to identify options for carbon emissions reduction will also identify opportunities to realise financial savings through improved efficiency in the procurement and operation of our buildings and transport. The actions outlined within this Plan form part of our efficiency plan to reduce consumption and provide value for money. The 2005/06 carbon footprint was calculated to be 192,911 tonnes of carbon dioxide equivalent (tCO2e) and covered electricity, gas and gas oil consumption, transport and waste disposal to landfill. The City of Edinburgh Council has decided to set a target of reducing its total annual carbon footprint by 81,023 tCO2e to 118,169 tCO2e by the end of financial year 2020/21; a 42% reduction against baseline. This will ensure that the Council makes an equitable contribution to the aspiration for a 42% reduction target in city-wide emissions (the Sustainable Edinburgh 2020 target), based upon the 2005/06 corporate baseline footprint, to be delivered by 2020.

Resource Efficient Scotland has recently produced a suite of guidance resources and tools, prepared and written by specialist carbon management consultants, to assist public sector organisations in developing, revising and maintaining their Carbon Management Plans, activities and supporting documentation. These resources have been used to recalculate the Council’s carbon footprint for 2013/14. Reductions will be achieved through a range of projects including energy, fleet and awareness raising initiatives. If all identifiable carbon saving projects were to be implemented, the potential cumulative financial savings (avoided costs) to the organisation are in the region of £50m over the period 2013/14 to 2020/21. The Project Sponsor for this CMP is Greg Ward, Director of Economic Development and Council sustainability champion. The Director as chair of the Corporate Sustainability Group will oversee the delivery of the CMP. This CMP is viewed as a ‘live’ document. To ensure that it remains fit for purpose to deliver targeted carbon savings, this document will be reviewed on an annual basis. This process will be overseen by the Corporate Sustainability Group. City of Edinburgh Council’s 2015/16 to 2020/21

2 Foreword from the Project Sponsor

This second Carbon Management Plan (CMP) represents the City of Edinburgh Council’s firm commitment to tackling climate change at a corporate level. It sets out our ambitions to reduce carbon emissions by taking forward projects and actions and changing policy to make the delivery of Council services more sustainable. In becoming a signatory of both Scotland’s Climate Change Declaration and of the Covenant of Mayors, the City of Edinburgh Council demonstrates that it recognises the significance of climate change. These commitments are an integral part of the Council’s wider responsibilities on sustainability and delivery of the Sustainable Edinburgh 2020 framework. The Council recognises also that it has a vital role in addressing the challenges posed by climate change – and that it must lead by example and demonstrate its commitment, determination and successes to others. The Carbon Management Plan is an important part of fulfilling the Council’s commitments. This Plan sets targets for the Council to reduce emissions. Whilst the Plan focuses on what the Council can do through its own activities, it is also an important step in helping to encourage others. This Plan sets out how the Council will achieve these targets to reduce its own carbon emissions. It is complementary to Edinburgh's Sustainable Energy Action Plan (SEAP) which sets out a city-wide approach to reduce carbon emissions through better use and generation of energy.

Dame Sue Bruce Chief Executive, City of Edinburgh Council

3 Foreword from Resource Efficient Scotland

On behalf of Zero Waste Scotland, which delivers Resource Efficient Scotland programme for the Scottish Government, I commend the commitment of the City of Edinburgh Council to improving their resource efficiency throughout their operations demonstrated in this Carbon Management Plan.

There are clear business benefits of using fewer resources and emission reduction and we look forward to supporting the organisations in the implementation of resource efficiency measures. City of Edinburgh Council’s 2015/16 to 2020/21

______Iain Gulland, Director of Zero Waste Scotland

4 Introduction 4.1 Background to the Organisation

The City of Edinburgh Council is responsible for providing key public services in Scotland’s capital city to over 440,000 citizens and the many million visitors the city attracts each year. With around 20,000 employees, the Council is the second largest employer in the city. 4.2 The City of Edinburgh’s Performance on Carbon Management to date

The City of Edinburgh Council began its Carbon Management Programme in 2008. Since that date, the Council’s annual reporting obligations through the CRC Energy Efficiency Scheme and Scotland’s Climate Change Declaration Annual Report have ensured that measuring and monitoring carbon emissions have remained important. The advent of new mandatory reporting on Climate Change Duties from 2016 onwards gives added impetus to ensuring that measuring and monitoring carbon emissions and carbon mitigating projects is fit for purpose into the future. Reducing annual budgets are a key challenge facing the Council in the near term. To successfully address this challenge, the Council will have to change the way in which it operates and how it delivers the essential services it provides. This, in turn, may have significant impacts on future carbon emissions. The City of Edinburgh Council’s Corporate Sustainability Group will take measures to adapt the CMP to any potentially significant impacts on achieving CMP targets. A further challenge is the impact on the organisation of the CRC Energy Efficiency Scheme (CRC EES); this Scheme currently results in additional costs associated with the organisation’s carbon emissions. Implementation of this CMP should help to deliver year-on-year benefits by realising cost savings and minimising future CRC exposure. In the 2008 Carbon Management Plan, the Council set a reduction target of

25% based on a 2005/06 carbon footprint baseline of 192,911 tCO2e. The 2005/06 footprint included emissions from: electricity, gas and oil consumption; transport and waste to landfill and was calculated using the then available emission conversion factors to convert energy consumed into carbon. A number of factors have made this a challenging target. In common with peers and many other public sector organisations at that time, the complexities associated with delivering a comprehensive carbon management programme were new and not fully understood. City of Edinburgh Council’s 2015/16 to 2020/21 Furthermore, the changing legislative and policy framework has meant that the drive to meet the stated CMP carbon reduction target has often been overshadowed. Finally, energy intensiveness within Council buildings is changing and there is a constant drive to increase the efficiency of service delivery. Given these factors the original CMP, including reduction targets, has been reviewed and revised to help the City of Edinburgh Council move forward constructively on this agenda. City of Edinburgh Council’s 2015/16 to 2020/21

5 Carbon Management Strategy

5.1 Context and Drivers for Carbon Management

The organisation faces a complex set of drivers which set the context for carbon management. Crucially, the organisation recognises that these cannot and should not be viewed in isolation from each other or the principal goal of continuously minimising its environmental impact whilst maximising its contribution to society and the economy. Ultimately, a strong performance on carbon emission reduction should deliver financial benefits to the Council by mitigating the risks associated with e.g. increases in energy tariffs and levies such as the CRC EES. The following represent the key carbon drivers for the City of Edinburgh:

 Scottish Government targets

 UK & European targets

 Climate of reducing financial allocations

 Mandatory and voluntary carbon reporting requirements

 Rising energy costs

 Principle that investments in carbon reduction are generally associated with commensurate reductions in future expenditure

 The need to eliminate waste of resources and to increase efficiency

 The organisation’s own carbon management targets

 Depletion of the world’s finite resources

 It’s the right thing to do

5.1.1 Legislative drivers for carbon management Over the past 20 years there have been many pieces of legislation enacted at an increasing rate in the UK and Scottish Parliaments which aim to address the issue of climate change, carbon dioxide and greenhouse gas emissions, and sustainability. Many of these stem from European Union Directives which in turn were developed in order to meet the obligations of the Kyoto Protocol, adopted in December 1997 and enforced in 2005. Legislative drivers for carbon management can take the form of targets (e.g. from the UK or Scottish Government), incentive systems, charging schemes, or regulatory compliance requirements. In addition, the City of Edinburgh Council is committed to a 42% reduction in city-wide carbon emissions by 2020 as detailed in Sustainable Edinburgh 2020 and reiterated in Edinburgh’s recently published Sustainable Energy Action Plan. City of Edinburgh Council’s 2015/16 to 2020/21 This present CMP will aid the delivery of key sustainability and estate management programmes in a carbon efficient and sustainable manner.

5.1.2 Other drivers for carbon management While reducing the financial and legal risks posed by various legislative requirements is a significant driver behind the City of Edinburgh Council’s carbon management programme there are other factors supporting the need for improving energy efficiency and reducing carbon emissions.  Cost saving: The case for carbon reduction is strengthened by current financial constraints requiring reduced operating costs whilst maintaining effective service delivery. This provides a strong incentive to cut resource consumption to release this money for frontline services.  Reputational benefit: By delivery of sustained carbon reductions, the Council will be viewed as an exemplar enhancing the organisation’s broader sustainability credentials.  Improved staff satisfaction: Studies have identified a correlation between an organisation with strong environmental performance and high staff satisfaction.  Improved engagement with key stakeholders: Key stakeholders of the Council, including the local community, are increasingly focusing on sustainability. The Council’s engagement and enhanced commitment will enhance the relationship with these stakeholders, for example, as a member of the Edinburgh Sustainable Development Partnership.

6 Emissions Baseline and Projections 6.1 Carbon Footprint Baseline, Cost and Projections

This section covers the establishment of the Council’s carbon footprint, associated cost and cost projections. The following categories make up the Council’s baseline carbon footprint:

 Waste (to landfill)  Buildings Energy Consumption including: o Council buildings – all operational Council office premises, libraries, community centres, museums, residential centres, etc (but excluding Council housing); o Edinburgh Leisure properties – swimming pools, leisure centres, sport centres, gyms etc; o schools (excluding Edinburgh Schools Partnership sites);  Infrastructure Energy, including street lighting and stair lighting;  Transport, including Council fleet fuel consumption and business mileage paid to officers. City of Edinburgh Council’s 2015/16 to 2020/21 Excluded emission sources include:

 contaminated waste e.g. medical  internal waste  specialist waste  air mileage/train travel  home-to-office mileage  social housing

6.2 Data Sources

The data sources used are based on data provided by internal data owners and are as follows:- i) Stationary Sources  electricity – Buildings  gas – Buildings

ii) Waste  waste to landfill

iii) Transport  fleet Operations  business mileage

iv) Others  infrastrctural energy (including streetlighting)  water

Data was then collated and converted to a CO2e tonnage equivalent using DEFRA factors for Company Reporting1.

6.3 Carbon Footprint and Cost

Resource Efficient Scotland (RES) has recently produced a suite of guidance, resources and tools, prepared and written by specialist carbon management consultants, to assist public sector organisations in developing, revising and maintaining their Carbon Management Plans, activities and supporting documentation. These resources have been used to recalculate the Council’s carbon footprint for 2013/14. The RES footprinting and projects tool has in- built revised carbon emission and cost factors for the period 2013/14 to 2020/21. These factors will be reviewed annually by RES to ensure their accuracy. The City of Edinburgh Council’s overall carbon footprint for the year 2013/14

was 132,032 tCO2e. Chart 1(a) overleaf shows that electricity constitutes

1http://www.ukconversionfactorscarbonsmart.co.uk/ City of Edinburgh Council’s 2015/16 to 2020/21 43% of the 2013/14 Carbon Footprint with gas (21%) and Waste to Landfilll (29%) representing the two next largest contributors.

Chart 1(a): Carbon footprint 2013/14

Graph 1(b) and Table 1 overleaf illustrate the costs associated with the council’s carbon emissions in 2013/14. Gas and Electricity combined constitute the largest cost at over £15.6M. Waste to Landfill constitutes a slightly lower cost of £15.4m and Transport emissions constitute a lower cost at £4.8m. Significantly, Waste to Landfill takes on a larger impact on the overall cost to the Council when compared with the carbon footprint. The overall estimated cost of the Carbon Footprint for the year of 2013/14 was £36.1m.

Graph 1(b): Council Carbon footprint cost for 2013/14

Table 1 showing Council Carbon footprint cost 2013/14 City of Edinburgh Council’s 2015/16 to 2020/21

Carbon Footprint (tCO2e) Cost (£)

Stationary (electricity and 85,061 £ 15,688,023 gas combined) Water 159 £ 263,955 Waste 38,422 £ 15,377,424 Transport 8,389 £ 4,774,681 Total 132,032 £ 36,104,083

6.4 Business As Usual (BAU)

Analysis of forecast emissions and the expected impact of BAU allows an evaluation of how the organisation’s carbon emissions will change over time

in terms of tCO2e emitted and cost. The results of the evaluation help to explain what is happening in the short and long term, what is happening to different parts of the footprint and the importance of the grid emission factor forecast, including levels of uncertainty. Within the next five years, the Council will see significant changes in response to a challenging budget regime. The Transformation Programme is the Council's programme to transform the way the Council delivers services and addresses increasing financial challenges. The Council’s ‘Business as Usual’ (BAU) will change as the Transformation Programme implements projects and initiatives to influence the way the Council delivers its services Graphs 2(a) and 2(b) below show the expected BAU (carbon and cost respectively) from 2013/14 onwards. This illustration of BAU does not reflect the changes in the Council’s carbon and cost performance that are anticipated from the Transformation Programme. As this programme develops a detailed programme of projects that can be quantified in terms of carbon and cost, it will be possible to illustrate a more realistic BAU. These graphs provide a clear indication of the carbon-associated cost challenges facing the Council’s over the next few years.

Graph showing 2(a) BAU projections (carbon)

Graph showing 2(b) BAU projections (cost) City of Edinburgh Council’s 2015/16 to 2020/21

These graphs clearly illustrate that the costs associated with the Council’s emissions will sharply rise toward 2020/21 although emissions are stable for most of the period after an initial rise from the 2013/14 baseline (due to changing emission factors). This shows that without intervention, carbon emissions will be higher in 2020/21 than they are at present. The factors2 driving future cost increase, and the assumptions which underpin these, are variable and difficult to product but include:  demand- this is expect to rise  gas and oil prices – highly variable and influenced by global demand  electricity – production costs are expected to rise  energy transportation costs – these are expected to rise

2 http://www.parliament.uk/briefing-papers/SN06751/components-of-an-energy-bill City of Edinburgh Council’s 2015/16 to 2020/21

7 Carbon Management Projects 7.1 Introduction

In order to continue achieving emissions reductions and avoiding financial exposure, the City of Edinburgh Council is committed to identifying and implementing carbon saving projects. The Council recognises that successful attainment of its carbon reduction targets is contingent upon the following key elements being in place:

 An internal organisational framework that is sufficiently robust to support the financing, delivery and monitoring of carbon reduction projects.

 Clearly identified responsibility and accountability for delivery against carbon reduction targets from the outset.

 Identification of a realistic suite of carbon reduction projects across a range of areas relevant to the carbon footprint; this list must be regularly reviewed and flexible to adapt to emerging needs and opportunities for funding.

 A data collection and collation system to inform both an annual internal progress update on the CMP and external reporting requirements.

7.2 Existing Projects

The following list is an indicative illustration of initiatives and projects that have already been completed or implemented since 2005/6. The carbon emission savings achieved by these schemes, and other programmes such as general asset management, have already contributed towards the Council’s carbon reductions and corresponding savings are therefore included in the baseline carbon footprint for 2013/14.  condensing boiler installations  PIR lighting control  smart meter installation  voltage optimisation  schools Insulation  Edinburgh Leisure Green Energy Team  LED Stair lighting Trial  Craigmillar Neighbourhood Centre  energy efficiency programme  Royston Community Centre  urinal water saving devices  relocation from Chesser House  Waverley Court cooling point adjustment  ICT Energy Management  provision of Staff Travel Guide  electric vehicles  maintenance of large fleet vehicles City of Edinburgh Council’s 2015/16 to 2020/21  driver training programme  food waste collection  main and arterial road Spend to Save lighting

7.3 Planned Future Projects and Potential Savings

The projects outlined in Table 2 below are those which have been identified for implementation over the period to 2020/21 because they either are already planned for delivery as part of an ongoing programme of work, or have firm Council commitment and can be quantified in terms of carbon. Other, potentially significant, projects are under development and should be implemented before 2020/21 but their potential carbon and cost savings cannot be estimated at this time. In relation to projects that have had their associated potential carbon savings quantified, the annual saving by

2020/21 predicted is 14,473 tCO2e (cumulative saving by this point 70,456

tCO2e). Associated annual cost savings are anticipated to be £13,494,534 (cumulative savings at this point £49,880,797). Table 2: Projects

Project Reference Project Description Location

At 12 Leisure and Swim Edinburgh Leisure Combined heat and power units Centres

Edinburgh Leisure New pool air handling units At 2 Swim Centres

High efficiency motors and variable speed drives on air At 4 Leisure and Swim Edinburgh Leisure handling units Centres

At 6 Leisure and Swim Edinburgh Leisure Variable speed pumps Centres

At 7 Leisure and Swim Edinburgh Leisure Life cycle maintenance works Centres

Edinburgh Leisure Good house keeping measures Edinburgh Leisure

CEC Large scale BMS Operational Property

CEC Oil to Gas Boiler Conversion and AHU Upgrade Abbeyhill Primary School

CEC Oil to gas boiler conversion Fox Covert Primary School

CEC Heating conversion Electricity to ASHP Nether Currie PS

CEC Lighting conversion Bruntsfield PS

CEC LED Street Lighting Lighting

CEC LED Stairlighting (24hr, D2D, D2M) Lighting

CEC Upgrade Fleet diesel vehicles Fleet

CEC EBS Telematics for Diesel Vans Fleet

CEC Diesel to electric vehicles (Switched on Fleets) Fleet

CEC Millerhill Treatment Plant (food waste) Waste

CEC Millerhill Treatment Plant (residual waste) Waste City of Edinburgh Council’s 2015/16 to 2020/21

CEC Scheme piloting waste heat from Sewage pipes from Council Buildings Various

Table 3 showing summary of Project costs and savings

2020/21 Projects Capital Costs £131,750,311

Annual carbon savings 14,473 tCO2e

Cumulative carbon savings 70,456 tCO2e Annual Cost Savings £13,494,534 Cumulative Cost Savings £49,880,797

Graph 3 showing project cost savings

Graph 4 showing Project cost savings

If all carbon saving projects identified so far were to be implemented, the potential cumulative financial savings (avoided costs) to the organisation are in the region of £50M over the period 2013/14 to 2020/21, largely from energy savings and a reduction in carbon and landfill taxes. Graph 5 showing Cost of Inaction (carbon)

Graph 6 showing Cost of Inaction (cost)

It is forecast that if all carbon reduction projects are implemented as planned, in 2020/21, the Council will see a reduction in its carbon footprint to 119,675tCO2e. This is marginally less than required to achieve a 42% carbon reduction against the Council’s 2005/06 baseline. However, projects are in development which will, almost certainly, achieve a significant further carbon emission reduction. Financial costs from carbon emissions are predicted to decrease from £36.1M in 2013/14 to £28.1M by 2020/21. In summary, the following table presents an illustration of the Council’s target and actual carbon reduction performance to 2013/14 and a forecast of City of Edinburgh Council’s 2015/16 to 2020/21 the Council’s performance from 2015/16 to 2020/21 in relation to a target of a 42% reduction against a 2005/06 baseline.

Table 4: Carbon reduction against targets

Baseline Target Actual Emissions Emissions Required Year Emissions Calculated Forecast Emissions

Emission (tCO2e) (tCO2e) (tCO2e) Reduction

s (tCO2e) 2013/14 2013/14 2020/21 (tCO2e) 2005/06 2013/14- 2020/21

192,911* 144,683* 132,032 119,676 118169

Reduction 25% 31.5% 9% 10.5% (1.5% shortfall)

 Calculated using historic emission factors which were superseded in 2013/14.

7.4 Target Setting

As detailed above, the Council’s baseline was 192,911 tCO2e in 2005/6. Emissions recalculated using an updated Resource Efficient Scotland

methodology and a suite of updated emission factors, were 132,032 tCO2e in 2013/14 or approximately 31.5% lower than the 2005/06 baseline. Although, allowance must be made for variations in data quality over time and changing carbon assessment methodologies, including the use of updated emission factors. Therefore for the period 2015/16-2020/21 a further 10.5% emission reduction is required to achieve at 42% carbon

reduction since 2005/06, equivalent to a footprint of 118,169 tCO2e in 2020/21. A 9% reduction by 2020/21 is forecast by the RES toolkit, slightly City of Edinburgh Council’s 2015/16 to 2020/21 less than that required. A number of projects and initiatives with significant carbon emission reduction potential are in development and if fully implemented a 10.5% reduction by 2020/21 should be within reach or potentially surpassed. When the energy saving potential of these projects and initiatives are fully quantified, using appropriate metrics, the RES footprinting and projects tool can be populated. The footprint forecast (2020/21) will be updated to take account of these quantified projects. Examples include the Re:Fit Programme and initiatives being developed as part of the Council’s Transformation Programme. Based on this analysis, the City of Edinburgh Council therefore commits to a target of 42% carbon emission reduction over the period 2005/06 to 2020/21.

City of Edinburgh Council’s 2015/16 to 2020/21

8 Management and Delivery of the Carbon Management Plan 8.1 Introduction

In order to ensure that there is effective and ongoing ownership of the Carbon Management Plan, it is important to have a fully defined governance structure. The City of Edinburgh Council will adopt the following structure for management accountability. 8.2 The Corporate Sustainability Group

The Council’s Corporate Sustainability Group (CSG) will provide strategic oversight of the CMP, driving carbon reduction action forward across all service areas. The management framework for the CMP will be closely aligned with that of the Sustainable Energy Action Plan (SEAP). Reporting on progress and performance will take place annually to the Corporate Policy and Strategy Committee and as part of annual statutory reporting requirements. The CSG is convened by Greg Ward, Director of Economic Development and meets every six weeks. 8.3 Resourcing and Ownership

The Carbon Management Plan and carbon saving target will be presented for approval by the Corporate Policy and Strategy Committee. Committee approval will provide endorsement of the CMP and a clear commitment at the highest level, reinforcing the need for further action across the Council. Approval will continue to provide long-term organisational momentum for embedding the CMP and carbon savings across the Council. This will primarily be delivered through the governance structure for carbon management described in this section. Key stakeholders at all levels of management will provide overall support for promoting a culture of carbon reduction throughout facilities and buildings. The key to the success of this updated CMP is effective engagement with staff. Everyone has a role to play in embedding and delivering the CMP and collaborative working is essential to deliver the desired carbon savings. The key stakeholders in the organisation who will continue to shape and change culture and awareness are:

 Chief Executive

 Senior management

 Heads of services and officers

 All staff City of Edinburgh Council’s 2015/16 to 2020/21 9 Progress Reporting 9.1 Yearly Updates to the Carbon Management Plan

The Carbon Management Plan is a live document and will change on an annual basis as the Council’s estate changes. To ensure that the CMP remains fit for purpose to deliver targeted carbon savings, the document will be reviewed annually. This process will be overseen by the CSG. Specifically, the following areas of the CMP will be subject to annual review:

 progress towards overall carbon reduction target including tCO2e savings against target and quantifiable benefits

 progress with identified carbon reduction projects

 financial savings achieved as a result of carbon reduction projects

 costs of the programme

 wider benefits e.g. staff engagement An annual CMP progress report will be presented to the Corporate Policy and Strategy Committee. A summary of the annual report will be presented as part of the Council’s Scottish Climate Change Declaration (SCCD) Annual Report to the Sustainable Scotland Network (shortly to be superseded by a mandatory Climate Change Public Duties report). Some projects contained within the corporate CMP are also included within the city-wide Sustainable Energy Action Plan. Progress on implementing the CMP will be reported to committee as part of the annual SEAP reporting cycle and will be consistent with the requirements of annual Public Duties reporting.

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