A Critical Review of Home Energy Rating in Australia

ANZAScA 2000: Proceedings of the 34th Conference of the Australia and New Zealand Architectural Science Association, December 1-3, 2000 A CRITICAL REVIEW OF HOME ENERGY RATING IN AUSTRALIA T.J. Williamson School of Architecture, Landscape Architecture & Urban Design Adelaide University Australia ABSTRACT The design of houses to suite the Australian environment has been a preoccupation from the first day that Europeans set foot on the shores of Botany Bay. During the mid to late 1970s the issue of energy resource use was added to the design criteria. Efforts in Australia to encourage energy-efficient housing as a public policy can be traced to this time and provided an impetus for increased research, development and promotion. Emphasizing energy savings in the home was an integral part of the first public policy programmes. Since the late 1980s and early 1990s public policy on energy-efficient housing has been motivated, at least in the rhetoric of Governments, by another concern. In late 1992 Australia signed the UN Framework Convention on Climate Change and the Council of Australian Governments endorsed a National Greenhouse Response Strategy. As one response action of this strategy the Australian and New Zealand Minerals and Energy Council agreed to the development of a Nationwide House Energy Rating Scheme (NatHERS) and to examine the adoption of energy performance standards for new houses. This paper traces the history of the development of NatHERS and its implementation. The paper deals critically with the shortcomings of NatHERS. Referring to limited research data, the fundamental objectives to reduce household energy consumption and reduce greenhouse gas emission are questioned. INTRODUCTION This report suggested that sustainable development means adopting lifestyles within the planet's The development of the Nationwide Home Energy ecological means. Publication of the Brundtland Rating Scheme (NatHERS) has its essential roots in Report set in motion a process that culminated in the the 1987 World Commission on Environment and United Nations Conference on Environment and Development a report entitled Our Common Future, Development (UNCED), held at Rio de Janeiro in known also as the ‘Brundtland Report’ (WCED, 1992. 1987).). This Report made it clear that the world's current pattern of economic growth was not The Brundtland Report saw potential climate change sustainable on ecological grounds and that a new type as an issue that threatened sustainable development, of development is required to meet foreseeable human and recommended urgent action to increase energy- needs. Sustainable development in this case was efficiency and moves towards the use of renewable defined as, energy. Several international conferences were organised aimed at directing attention to the “Development that meets the needs of the present consequences of possible global climate change. In without compromising the ability of future June, 1988 the Toronto Conference, The Changing generations to meet their own needs.” Atmosphere: Implications for Global Security brought together scientists, policy makers and others to 101 consider ideas for an international response to the recognising that different regions will require issue. This conference concluded with a resolution different design features …… AMEC Ministers aimed at reducing CO2 emissions. It stated that will also investigate the development of national energy efficiency standards for new homes” ‘governments and industry should reduce CO2 (Australian and New Zealand Minerals and emissions by approximately 20% of 1988 levels by the Energy Council, 1990) year 2005’ (Toronto Conference, 1988). In late 1990 and following a resolution of the Second In 1990 two reports were released in Australia which World Climate Change Conference, the UN addressed energy use and greenhouse gas issues. The established an Intergovernmental Negotiation Australian and New Zealand Environment Council Committee (INC) to develop a Framework (ANZEC) in their Report Towards a National Convention on Climate Change. After considerable Greenhouse Strategy for Australia recommended, negotiation the Convention was opened for signature at the “Earth Summit" in Rio de Janeiro in June, 1992. “adopting the initial global targets recommended The main objective of this Framework Convention on by the Toronto Conference…as an interim Climate Change (UNFCCC) was to: national goal for planning purposes and subject to review, stabilise carbon dioxide emissions to ". achieve . stabilization of the greenhouse gas the 1988 levels, prior to the end of 1997.” concentrations in the atmosphere at a level that (Australian and New Zealand Environment would prevent dangerous anthropogenic interference Council, 1990) with the climate system. Such a level should be achieved within a time-frame sufficient to allow One of the actions to reduce CO2 emissions proposed ecosystems to adapt naturally to climate change, to by this report was, ensure that food production is not threatened and to enable economic development to proceed in a “..referring to the Australian Minerals & Energy sustainable manner" (UNFCCC, 1992, Article 2) Council the need to develop and introduce national energy conservation standards for As a framework treaty, the Convention sets out residential and commercial buildings including principles and general commitments but left more appropriate insulation standards..” (Australian specific obligations to later deliberations. The and New Zealand Environment Council, 1990) Convention relies on voluntary, that is, not legally binding commitments by the signature (Annex I) In June 1990 the AMEC (now ANZMEC) produced a countries to take steps to satisfy the objective of the report “Energy and the Greenhouse Effect”. This Convention and fulfill its requirements. Australia was report avoided a commitment to the Toronto one of the first countries to ratify the UN Framework Conference target but reiterated a previous Convention on Climate Change, and it came into Commonwealth government undertaking to, effect on 21st March 1994. With Australia signing the Convention in late 1992 the Council of Australian “…. achievable target reductions in greenhouse Governments endorsed the National Greenhouse gas emissions, based on scientific assessment and Response Strategy (NGSC). The goal of this strategy set in consultation with government, industry and was to, environmental groups.” (Australian and New Zealand Minerals and Energy Council, 1990) “..to contribute towards effective global action to limit greenhouse gas emissions and enhance This report stressed the joint role of Commonwealth, greenhouse gas sinks; to improve knowledge and State and Territory governments in developing any understanding of the enhanced greenhouse effect; initiatives, meaning essentially that each State and and to prepare for potential impacts of climate Territory would do its own thing, but did manage to change in Australia.” (N.G.S.C., 1992) announce, The NGSC softened the "Toronto target" as stated in “AMEC Ministers have agreed to the the earlier 1990 ANZEC statement and added development of a system of rating new homes by conditional requirements, their energy efficiency….The rating system given to a new home will depend on the use of wall and “..to stabilise greenhouse gas emissions (not ceiling insulation, passive solar design, the use of controlled by the Montreal Protocol on Substances energy efficient space heating and cooling, the that Deplete the Ozone Layer) based on 1988 levels, use of energy efficient cooking appliances, double by the year 2000 and to reduce these emissions by glazed windows, appropriate window shading 20% by the year 2005…. Subject to Australia not and other relevant factors. The rating system will implementing response measures that would have be developed on a State by State basis, adverse economic impacts….” (N.G.S.C., 1992 p8) 102 One objective in this strategy directed at household Also in November 1998, the 1992 National energy use aimed to, Greenhouse Response Strategy (NGRS) was superseded by a National Greenhouse Strategy (NGS). “improve the energy efficiency of residential Again this policy document under the heading of buildings and domestic appliances.” (N.G.S.C, Energy Efficiency Standards for Residential Buildings 1992 p20) commits to, A related response strategy was that Governments, "... develop a minimum energy performance through ANZMEC (Australian and New Zealand requirement for new houses and major extensions Minerals and Energy Council), expanded on the 1990 taking into account, as appropriate, opportunities statement and again agreed to, offered by existing performance measures, or ratings, such as the Nationwide House Energy “….expedite the development of a consistent Rating Scheme (NatHERS)." (AGO, 1998) nationwide House Energy Rating Scheme (NatHERS) for trial in early 1994. This project Australia’s “obligation” or “commitments”1 having will also examine the adoption of complementary signed the Kyoto Protocol is often given as the energy performance standards for new houses by justification for programs to reduce greenhouse gas the end of 1994, taking into account costs and emissions. Although this is an important goal the benefits.” (N.G.S.C, 1992 p21) reality should be made explicit. The Kyoto Protocol (1997) will only enter into force 90 days after it has In March 1995, and just prior to the first Conference been ratified by at least 55 Parties to the Convention, of Parties meeting (COP1) of the UNFCCC, the including

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