housing a low carbon society an ODPM leadership agenda on climate change

“green alliance... Housing a Low Carbon Society An ODPM leadership agenda on climate change by Joanna Collins

Published by Green Alliance, May 2006, £15

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Green Alliance is a registered charity number 1045395 Company Limited by guarantee, registered number 3037633 Green Alliance Green Alliance is one of the UK’s foremost environmental groups. An independent charity, its mission is to promote sustainable development by ensuring that the environment is at the heart of decision-making. It works with senior people in government, parliament, business and the environmental movement to encourage new ideas, dialogue and constructive solutions. 1 This pamphlet is supported by the 1 y

following organisations t e i c o s

Association for the Conservation of Micropower Council n o

Energy b National Energy Foundation r a BioRegional National Trust c w o Bill Dunster Architects New Local Government Network l a

British Wind Energy Association g

SERA Labour Environment Campaign n i s

Campaign to Protect Rural England Sponge Sustainability Network u o Chartered Institute of Housing The Royal Society for the Protection h Combined Heat and Power of Birds Association The Wildlife Trusts Energy for Sustainable Development Town and Country Planning Energy Saving Trust Association Friends of the Earth UK Business Council for Sustainable Greenpeace Energy Groundwork Woking Borough Council Gusto Homes Woodland Trust Labour Housing Group WWF-UK London Borough of Croydon acknowledgements

Green Alliance wishes to thank the Esmée Fairbairn Foundation, the National Trust, the Royal Society for the Protection of Birds, the Woodland Trust and WWF- UK for their support of this work.

Very many thanks also to Tracy Carty, Guy Thompson,Warren Hatter, James Cooper, Ian Christie, Chloe Meacher, Zoltan Zavody, Paul King, Jo Wheeler, Andrew Allen, Simon Marsh, Hugh Ellis, Leonie Greene, Rob Shaw, Syed Ahmed, David Westbrook and John Perry for their guidance and comments on drafts, and to all the participants of the seminar held in January 2006 to discuss the pamphlet. “Across every sector of business, climate “The time is right to bring together policy change offers as many if not more on regeneration and sustainable business opportunities than the world development. Disadvantaged wide web. The opportunity within the neighbourhoods suffer most from run- housing sector is to create developments down local environments, high levels of which deliver high quality lifestyles with pollution, fuel poverty and lack of low environmental impacts. These facilities. We now have a once in a lifetime sustainable communities will have the opportunity to revive existing ability to change the mindset of the communities and model new ones in a people living within them and visiting way that makes a significant leap into a them, leading to a more sustainable more sustainable future” lifestyle for all. If government sets the Tony Hawkhead, Chief Executive framework and incentivises the market, Groundwork progressive developers will deliver” Steff Wright, Chief Executive Gusto Homes “Most people now accept that climate change is happening and that the causes are primarily man-made. No longer can it “Local government can be pivotal in be treated as a side-line environmental establishing sustainable practices. Using issue. The consequences of inaction will their powers of community well-being, affect our economy and society at large. powers to trade, their developing strategic The planning system is ideally placed, and planning roles, and their ability to co- provides the necessary framework, to ordinate across the full range of public start making the transition to low carbon services, local authorities should form the communities” vanguard of the UK’s progression to a Gideon Amos, Director sustainable future” Town and Country Planning Association Chris Leslie, Director New Local Government Network

“Working with local government and across central government, ODPM can affect “The National Trust is already seeing the significant change on the journey towards impacts of climate change on our gardens, a low carbon Britain. This will include the buildings, coast and countryside. The explicit measures promoted by this ODPM now has a leading role in helping pamphlet as well as the simple, albeit people find local solutions to the huge hard, work of developing the capacity and challenges climate change poses for understanding of sustainability across communities and the environment” government and public services” Fiona Reynolds, Director-General Hywel Lloyd, Chair The National Trust SERA Labour Environment Campaign “If everyone around the world lived as we “Housing affordability has shot up the do in the UK today, we would need three political agenda, yet little priority has planets to support us. Sustainable, One been given to the long term cost of Planet Living needs to be made easy, domestic energy use for households and affordable and attractive for people. the environment. We should think about ODPM can do more than most government homes in the same way we’re starting to departments to make this a reality by think about cars and electrical appliances. delivering a policy framework and The ODPM needs to take the lead in progressive regulation that puts reducing the environmental impact of sustainable development first. The homes housing through energy-conscious and communities that result from planning and investment” decisions made today will determine the Neil Sinden, Policy Director lives of people, and their environmental Campaign to Protect Rural England impacts, for generations to come” Paul King, Campaign Director One Million Sustainable Homes, WWF-UK “The climate change review has shown that the domestic household sector is one of the slowest to make its contribution to “The ODPM has a crucial role to play in meeting the target of reducing carbon tackling climate change, given the emissions by 20 per cent by 2010. It is significance of the housing sector and of critical for ODPM to take the lead in its programmes in investing in it. Housing putting the UK back on track to meet the professionals are keen to see the ODPM 2010 target. An increased emphasis on take action which reflects the great energy efficiency combined with micro- importance of this issue, and will give it renewables could have a huge impact their backing in the work we do” here” David Butler, Chief Executive Tim Lunel, Chief Executive Chartered Institute of Housing The National Energy Foundation

“Climate change threatens disaster for the “Homes account for 27 per cent of UK world’s wildlife and for many animal and carbon emissions. Some one third of plant species in the UK, unless we take homes that will exist in 2050 have yet to dramatic action to curb it. The ODPM has be built, with most adding to, rather than a crucial leadership role in ensuring that replacing, existing stock. The government local government, planners and has put the UK on a path to reduce its developers play a full part in tackling the carbon emissions by 60 per cent by 2050. causes and impacts of climate change” If we are to achieve this in housing, we Graham Wynne, Chief Executive need to accelerate improvements in the The Royal Society for the Protection energy performance of both existing stock of Birds and new build” Nick Eyre, Director of Strategy Energy Saving Trust housing a low carbon society 4 contents annex 2notesandr . recommendations of summary 1 annex invest-to-save: aspendingreview forhousingalow 4 . change for tools 3 . goals . . . 2 . leadershipagendaonclimatechange anODPM 1 . executivesummary carbon society local go planning forsustainablecommunities building standards new build local leadershiponclimatechange climate-proof communities decent homes,climate affordable low carboninnovation existing stock v ernment ...... frne . . eferences ...... 24 22 30 32 35 27 19 19 14 21 13 17 9 9 5 7 executive summary 5

This pamphlet focuses on what the Office of the Deputy Prime Minister (ODPM) y t e can do to tackle climate change through a leadership agenda centred on housing i c o

and the communities in which people live. s n o b the case for action r a c

Climate change is the most significant public policy issue we face.The w o government has committed the UK to reducing carbon by 60 per cent by 2050. l a

Securing major reductions in carbon emissions from UK households, which are g n i currently responsible for 27 per cent of carbon emissions, is a considerable but s u o

critical challenge if we are to meet this target and tackle climate change effectively. h Homes and communities in the twenty-first century need to be designed to help us adapt to a changing climate, but importantly they are also the means by which we can cut carbon out of our lifestyles and mitigate the impacts of climate change.

Current policies and programmes are not delivering the carbon emission reductions that are needed in the domestic sector.There is a clear need for government action to bring about a radical reduction in the carbon footprint of our housing stock and communities. an ODPM leadership role It is crucial to our prospects of tackling climate change that ODPM steps into a leadership role. With responsibilities for housing, planning and local government, the ODPM is in a unique position to deal with climate change on the ground in the UK.The way our homes and communities are designed and built has tended until now to lock us into carbon-intensive lifestyles. In the twenty-first century quality design must be about making low carbon living the easier choice. Section one of this pamphlet gives an overview of the main opportunities within the department for taking this agenda forward. Joining other departments in delivering the Public Service Agreement on climate change will be key to embedding climate change as a central priority within the department.2 Five major commitments are proposed as the backbone of an ODPM leadership agenda on climate change:

1. Join the joint Defra-DfT-DTI Public Service Agreement on climate change. 2. Set a whole house carbon reduction target for all housing stock of at least 30 per cent by 2020, and at least 60 per cent by 2050.3 3. Produce and publish the new climate change Planning Policy Statement by the end of 2006, and launch it through a high-profile, cross-departmental statement by ministers. 4. Declare the Thames Gateway a carbon neutral, climate-proof development.4 5. Introduce a leadership duty for local government on climate change. goals For too long, concerns about climate change have been regarded as separate from – and even at odds with – the government’s ambition to improve the affordability and comfort of housing.This is changing. Section two identifies how the central goals needed for an ODPM leadership agenda on climate change - namely, affordable low carbon innovation, warm homes, local leadership and climate-proof communities - are not only consistent with, but vital to, the housing a low carbon society 6 department playdepartment aleadershiprole inhousingalow carbonsociety. look f decent homes, bid. r we make Inthefinal sectionofthispamphlet, inSpendingReviewchallenge 2007. pla Now istherefore thetimefor ODPMtounderlinetheleadershiprole itneedsto p andto affordable homes, department’s aspirations togive everyone accesstodecent, inv tools forchange oppor itwillalsoresult inmissed only have significant environmental consequences, framework for change. carbon neutral areThames Gateway, aimedat strategic building thelong-term andcommittingtoa forleadership dutyonclimate localgovernment, change asintroducing a such Othermeasures, forthcoming Codefor Sustainable Homes. introducing incentives for developers highstandardsagainst toreach the asequalising such upon immediately, and VAT onnew build andrefurbishment, Many ofthemeasures proposed canbeacted urgent actionwithstrategic ambition. balancingtheneedfor actionsare proposed, combination andlong-term ofshort a area, Ineach planningandlocalgovernment. build andexistingstock), actionsare identified for building priority standards(new recommendations above, Buildingonthefive organisations consultedinthedevelopment ofthispamphlet. recommendations are basedontheinsightsofawiderange effects.These andtohelpcommunities adaptimpact ofourhomesonclimate change toits f iv ecommendations onthekey elementsthat shouldbeincludedinthedepartment’s romote liveability andsustainable communities. e y In the twenty-first century, our comfort and security willdependnotjuston ourcomfort and security In thetwenty-first century, The but failing toactnow willnot game, isalong-term Dealing withclimate change Section three setsoutrecommendations for thepolicies neededtomitigate the esting tosav major c nciaecag,andtomake thecasefor resources appropriate tothis on climate change, orw tunities andmak T esr a dniid‘lmt hneadntrlrsucs asoneofthe reasury hasidentified andnatural resources’ ‘climate change ard tow hallenges tha b ut onadecentclima orking withODPMno e e futur t are shaping Comprehensive thecurrent SpendingReview. e challenges farchallenges more costly. te.The organisations thispamphlet supporting te.The w n nteyast oe tohelpthe and intheyears tocome, depar cut carbonoutofourlifestyles andavert theworst casescenario. they are we alsothemeansby which can Butimportantly, with extremes ofclimate. communities in thetwenty-first willneedtobedesignedhelpuslive century a to addr new development canmake apositive contribution ongoing housingnumbers debate toconsiderhow pamphlet ec andthis at thecore ofODPM’s visionandagenda, the housingn andhasbecomeeven inthecontextof more important greenfield land ofthepast, brownfield landrepresented break avisionary withtheover-emphasis on biodiverse, every year from theimpactsofclimate change. 1 an ODPM leadershipagendaonclimate an ODPM 1 could f impacts onbiodiv c people liv centr through aleadershipagendaclimate change pamphlet focuses onwhat ODPMcandototackle 50 percentoftheUK’s carbonemissions.This Buildingsare responsible for over role ofODPM. East. ofirreversiblethe risk catastrophic climate change. significant cutsinourcarbonemissionswithinthenextdecadeifwe are toavert intheclimate we changes reaching take for granted andthat we must make that Scientistswarn we face far- but onadecentclimate. just ondecenthomes, homes for improvements allandmuch-needed inlong-neglectedhousing. Minister(ODPM)isleadingthedrivetodeliverDeputy Prime new affordable Office ofthe government.The home isagoalthat ofthecurrent liesat theheart environmentally sustainable way.The for opportunity everyone tolive inadecent homes andcommunities are designedandbuilt alsoaffects ourability tolive inan way everyday andthetoolstotackle our us security life anditschallenges.The necessity in2006, Butadapting isalready toclimate change a causing 28,000premature deaths. summerof2003was thehottestfor 500years, taste ofwhat istocome.The hanging climate islikely tomake by 30millionmore peoplehungry 2050.The leadership role once more.The government hascommittedtheUKtoreducing leadership role oncemore.The ODPM hasdemonstrated leadershiponenvironmental before.The priorities It is now crucial to our prospects of tackling climate change that ODPMstepinto climateIt isnow change toourprospects oftackling crucial All ofthishasbigimplications for thebuilt environment andfor theleadership willdependnot ourcomfort andsecurity however, In thetwenty-first century, Our homesandcommunities affect theway give we lookoutontheworld.They ed onhousingandthecommunities inwhich tment’ change ace extinctionb essing clima e .The Sustainable Communities Planlies .The s hoes tha commitment toanurbanr umbers tobedeliv ersity ma with drought conditionsforcing water intheSouth restrictions te c t f ocus, y hange the middleofcentur y looking beyond the . be ca Decent homesand er atohc Uptoathirdofland-basedspecies tastrophic. ed no w nisneo u neue,non- enaissance ofourunderused, under theSustaina 6 codn oteHde ete a According totheHadley Centre, y . 7 5 Already 150,000 peopledie In Eur “ sustainable way” live inanenvironmentally and builtaffectsourabilityto communities are designed the wayourhomesand ope w b le Comm e ha v e alr unities Plan. eady hada

housing a low carbon society 7 7 housing a low carbon society 8 in thegovernment’s Public Service Agreement onclimate change. .DcaeteTae aea abnnurl climate-proof Declare development. the Thames Gateway acarbon neutral, 4. una c somedegree ofclimate by scenario committingtoradicalcarboncuts, change liveability. goalremains toavertlong-term While the primary theworst-case climate between upfront affordability andsustainability. andacarbonneutral toendthisstandoff istheopportunity Thames Gateway, Plan, Anambitioussetofstandardsfor theSustainable Communities skills. the necessary progressive developers toinvest inbestpracticeandtrainingprogrammes todeliver components oflow carbonhousingandgive themarket neededfor certainty good news economiesofscaletothe isthat ODPMisinapositiontobring andlightthenpeoplewillbevulnerablewarmth billsanddiscomfort.The torising isnottakenopportunity to designinclimate-proof fabric andenergy efficient andthe Ifthefocus isonupfront affordability alone, an affordable home. lifestyle. thusenabling themtoleadalow carbon andenergytransport infrastructure, sustainable whetherpeoplehavecan alsodetermine accesstolocalservices, to useenergy sustainably andlive comfortably.The location anddensityofhousing fabric andfittings ofpeople’sfall.The homeshave amajorinfluenceontheirability f Energy useinourhomesiscurrently responsible carbon by 60percentby 2050. 5. Produce andpublish thenew PlanningPolicy climate change Statement by the 3. .Setawhole housecarbonreduction target ofat for least30per allhousingstock 2. Join thejointDefra-DfT-DTI Public Service Agreement onclimate change. 1. commitments ar Five major leadership agenda for ODPMwithgoalsfor andlonger-term. theshort thispamphlet setsouta With thisinview, and adaptation plansintheyears beyond. thatraisesitssightstomore ambitious carboncuts also important thedepartment En for Department of is tojoinwiththeDepartment Trade (DTI), andIndustry ha andfeel they intheirowntangible change communities that they willunderstand, Itisonly whenpeopleseeleadershipand momentum towards alow carbonsociety. Localgovernment hasaclearandpowerful role toplay inbuilding action. costs undertheimpactofclimate change. un-insurable andmaintenance andasourceofdiscomfort withspirallingrunning anddonotbecome homes andcommunities are designedfor lifetime liveability, r2 e eto h Kscro msin,adtetedi o hst ie not andthetrend isfor thistorise, or 27percentoftheUK’s carbonemissions, hange isno v vir b The growth areas willalsobeatest-bedfor thedepartment’s commitmentto alsohave fuelprices andrising Climate change implications for theconceptof Intr end of2006, cent b One ofthefirst stepsthat ODPMcantake towards housingalow carbonsociety The other central priority for willbeinempowering thedepartment The othercentralpriority local e w y onment F a ar ministers tk n thestepsthat canbetaken by alltowards alow carbonsociety.stake in, oduce aleadershipdutyf e of thefutur y 2020, w ood andRural Affairs for (Defra) andtheDepartment Transport (DfT) nvtbe n ems lnt iewt t Mostofthepublic are andwe must plantolive withit. inevitable, . e and launc and at least60percentby 2050. pr oposed asthebac e ik.ODPMhasaclearresponsibility toensure that new risks. h it thr or localgo ough ahighpr kbone ofthisleadershipa v er nment onclima fl,cross-departmentalstatement ofile, 9 te change. genda: 8 oee,itis However, 10 2 goals 9 y t e affordable low carbon innovation i c o The government’s £38 billion Sustainable Communities Plan is the UK’s largest s n o

house building programme for decades and represents the single largest b r development opportunity in Europe. It could also represent the single largest a c

opportunity to make a strategic breakthrough for low carbon living. On the w o recommendation of the Barker review of housing supply, the government has now l a committed to increasing the number of new homes built each year to 200,000, g n i largely focused on four growth areas across the South East: the Thames Gateway, s u o

Milton Keynes and the South Midlands, London-Stansted-Cambridge-Peterborough, h and Ashford. While this scale of development brings with it the difficult challenge of avoiding damage to the character of our existing communities and countryside, it also creates a huge opportunity to generate economies of scale and bring down the costs of low carbon construction once and for all.

A report for the Department for Environment, Food and Rural Affairs (Defra) on the environmental impact of 140,000 new homes a year, as proposed before Barker, estimated that they would cause an extra two million tonnes of carbon emissions a year, at an external cost of two to three billion pounds over the next thirty years.11 To lock ourselves into this annual emissions increase would be a big step backwards, particularly given that we will already fail to meet the ten million tonnes a year reduction needed to “ cleaner, safer, greener energy reach the government’s 20 per cent carbon reduction target by 2010. Instead, the ODPM has on our homes and in our the opportunity to take a big leap forwards, by using the Thames Gateway growth area as a communities is not just an flagship to deliver ultra-low carbon developments innovative technological at affordable cost. By transforming supply chains for low carbon technologies, this will change the solution. It can also be a economics of sustainability for the other growth areas and for existing homes too. In section three catalyst for cultural change” we set out how the Thames Gateway can become a model of carbon neutral growth, to the benefit of new and existing residents.

The anticipated lifetime of new build is 60 years or more. Homes built today will still be here in 2050 when we need to be emitting 60 per cent less carbon. At least 6.6 million new homes will be built between 2005 and 2050 to meet the growth in households, representing one quarter of all homes in 2050.The University of Oxford’s Environmental Change Institute (ECI) has modelled what we need to do to ensure the average house in 2050 produces only 40 per cent of the carbon associated with a typical home today.12 The ECI modelling shows that all new homes will have to have a space heating demand of close to zero by 2020 at the latest.Therefore the government should set a target to achieve close to zero carbon space heating for new homes by 2015,13 as new homes will have to compensate for the anticipated challenges of delivering carbon savings in existing stock, which will be more difficult to upgrade. housing a low carbon society 10 of the andneedreassuranceThames Gateway, that they willget. energy. comm the Institutefor Public Policy suggeststhat thiskindofmixed Research use ser minimisingtheneedtotravel through good provision oflocal communities, betw government’s ideal densityof30to50dwellings perhectare offers agoodbalance fit well withODPM’s commitmenttoanurbanrenaissance onbrownfield land.The but may which notalways areas, beappropriate inrural viable at higherdensities, eff whethersustainabledetermining willbecost- energy infrastructure andtransport candeliverschemes innew andexistingcommunities. shown leadershipindemonstrating thefinancial andcarbonsavings that such how Sectionfour have describes localauthorities energy. efficient useofprimary make which withcommunity networks ofheat andpower, biomass heating, home. andbecomemore awaretheir own ofhow behaviour, they useenergy inthe renewables peoplemake and helpordinary theconnectionswithclimate change hasshown Recentresearch that small-scale can alsobeacatalyst for culturalchange. It is notjustaninnovative ofclimate change. solutiontothechallenge technological homes. providing themainheating andhotwater energy supply inthreeofour quarters By2050 they willbe willneedtogrow at 30percentayear. household scale, onacommunity and photovoltaics andmicro combinedheat andpower (CHP), solar solarthermal, ground sourceheat pumps, wood-fuel, micro-wind, as such installation ofzero andlow(see Boxes carbontechnologies, A-C).The d pr out what more canbedonetoallow manufacturers tomove tomass from niche but insectionthree we set already avanguard supported ofcouncils indoingthis, has affordable department for allby increasing thevolume ofthemarket.The families housing. inordinary appear todemonstrate anenergy intelligencethat ismarkedly greater thansimilar behind several ofthese demonstration projects. English P desirable placestolive andwork (see Boxes provedA andB). tobeattractive, is currently growing at anunsustainable four percentayear. Personal accountsfor transport 18percentofUKcarbonemissionsandcaruse car. evelopments by gooddesignthat minimisesheat lossandmakes useofsolargain oduction, ectiv vices, Lo Green plansare anessentialfeature transport ofaffordable low carbon by Density canhave ofnew abigimpactonthecarbonfootprint communities, like Commercial viability canbeincreased yet by further integrating renewables, greener energy andinourcommunities onourhomes safer, Generating cleaner, Close tozero carbonspaceheating hasalready beenachieved inahandful of ODPM canplay astrategic role inmakingmicrogeneration technologies een socialsustaina w 1 unity 4 15 .Community andpublic energy provision transport schemes becomemore e. Young andoldpeoplelivinginsocialhousingwithmicro-renewables carbon comm and makingtheb ar tnerships haspla , well served with local shops, transport and services iswhat peoplewant andservices transport well servedwithlocalshops, , and to unblock investmentand tounblock innovation. infurther unities, bility andvia us, y ed aleadingr with man tram ortubeaneasier bility for public andcommunity transport y or allofthef ole inesta , b mor lishing thepartnerships aue bv,have already eatures above, e a ttractiv 16 A 17 recent survey by e option thanthe 11 BOX A: Greenwich Millennium Village When English Partnerships, the government’s national agency for y t

regeneration and development, took over the peninsula, they asked Richard e i c

Rogers, urban renaissance adviser to ODPM, to create a complete infrastructure o s

master plan. Developers Countryside Properties and Taylor Woodrow then won n o an international competition to develop Greenwich Millennium Village on this b r a public land, supplying nearly 1100 apartments and 300 homes in what now c provides a climate-proof low carbon model for the rest of the Thames Gateway w o l

growth area. An 80 percent reduction in energy use is achieved through a a g

combination of local electricity generation, improved insulation, and energy- n i s

efficient devices for the apartments. Greenwich Millennium Village was the first u o

UK private housing development to incorporate community heat with a CHP h system, which provides central heating, hot water, and electricity. Passive design is also important in minimising energy use.The buildings were purposely shaped and positioned to make full use of the sun for both light and heat.

Lifetime liveability has been designed into the buildings and the wider community.The concrete frame provides a thermal mass that will moderate indoor temperature and help to avert the need for artificial cooling as summer temperatures rise. Apartments are grouped in communities around a large village green and an artificially created lake, with links to the river and the rest of the Greenwich Peninsula via green corridors.The lake feature brings local biodiversity to the doorstep as well as helping to reduce future flooding risk. Pressure on the region’s scarce freshwater will be reduced by a built-in rain- water harvesting system which provides water to flush toilets, reducing water consumption by thirty per cent.

The Village is no residential ghetto, incorporating a community centre, a primary school, a health centre, shops, cafes, bars, and offices, and having good bus links and cycle routes to the nearby North Greenwich bus and underground station.18

BOX B: Stamford Brook Stamford Brook, a partnership project between the National Trust, Redrow Homes (North West) and Taylor Woodrow Developments, is a unique development of 710 new dwellings on the edge of the National Trust’s Dunham Massey estate at Broadheath, Altrincham. Work on the development started in August 2003 and the first residents moved into their new homes in April 2005.

Each of the homes being built on this estate will be ultra efficient in their use of energy, water and building materials.They have been designed so the minimum possible number of houses experience shade and all feature water- efficient showers, compost bins for the kitchen worktop and the garden.The development also includes woodland walkways, greenways and cycle paths.

The estate will include a large proportion of affordable housing (ten per cent in the first phase rising to 25 per cent in the final stage).The National Trust claims that there is no reason for the upfront costs of quality, low carbon development to remain prohibitively high. While cost is a factor, as Stamford Brook shows, it is in fact only marginally more expensive to deliver to high environmental standards. housing a low carbon society 12 “ “ house-builders ar neutral development” isolated exampleofcarbon stillstandsasan BedZED ahead ofregulation” for adoptinghigher standards tr the BuildingRegulations about future marketcertainty ajector y , and clearincentiv for allLondonboroughs tohave zero energy developments by 2010. isinspiteofacallfrom theMayor ofLondon of carbonneutraldevelopment.This a wood fuelcommunity heating network. andallheating andhotwater requirements are designedtobemetby a Regulations, homes are around tenpercentthat ofatypicalhomebuilt to2000Building heating requirements ofBedZED andthedirection ofthingstocome.The liveability, a pr oflocalcouncilshave majority theconfidence lacked orcapital to gain.The money itoffered ofintegrated workspace interms andsocialenvironmental was inrecognitionBedZED developers ofthevalue for at lessthanmarket value.This tomake landavailablebeing powers tothe undertheLocalGovernment Act 2000, usingitswell- SuttonBorough Councilwas apioneer, mayauthorities notadopt. investment insustainable skillsandsupplyasacore business strategy. chains adopting higherstandardsaheadofr fr isfuture market certainty however, What house-builders are calling for, address this. Investment survey, sustainability benchmarking favours which thebestperformingdevelopers inthe WWF-UK/Insight Halifax, green mortgage initiative from the complacently pursuingbusiness asusual.The isolation whenthey cannotrecoup thelifetime savings andcompetitorsare ha bills, withaneye ontenants’ Only leadingsocialhousingproviders, certain living. and plannersasbeingmore about one-offcapital costthan ongoing affordable Affordability isgenerally understoodby policy-makers leaders onclimate change. them torecoup theinvestment (seesectionthree). ssociation isoftenheldupastheiconicexampleofcarbonneutral Peabody Trust, om ODPMa IAHuigDsg wr n20,BedZEDstillstandsasanisolated example RIBA HousingDesign Award in2000, ior v edntnZr nryDvlpet(eZD,adevelopment by thehousing Beddington Zero Energy Development (BedZED), Planners tooare oftenreluctant toinsistonstandardsthat neighbouring e embraced amor itise value intheabsence for money ofawidely understoodrole inthisway, as e calling for otteBidn euain rjcoy andclearincentives for bout theBuildingRegulations trajectory, e ogtr iw but rent capping stillmeansit is hardfor view, long-term es see littlebusiness caseinraisingstandards House-builders cannot always rely onapremium. sodevelopers costsandsustainability, than running location are more front-of-mind for house-buyers layout and Look, wishfulthinking. perhaps, mainstream market withoutpolicyinterventionis, to behigherthan low carbondevelopment upfront costsofquality, Secondl tak andthisshouldbe extension andnew reservoirs, ter in forupfront new costofinfrastructure homes, developments canoffsetsomeoftheconsiderable climate-proof planning for low carbon, micr like super-insulation and components, ms ofgr en intoaccountinthecost-benef Expecting such standardstoenterthe Expecting such The goodnews isthat there isnoreason for the egula ogenera 19 y , ertal,sixyears afteritwas awardedRegrettably, tion. the pr drifreet gasnetwork id reinforcement, tion, 21 Onl ice ofman represents onepositive move to is cur ‘a y v then willthey beable tojustify era r ge’ entl y ne y low carbon w high lar b uild. 20 it equa gely because Firstl tion. y, suppliers cannot take advantage of scale economies while the market remains 13 niche.22 The Sustainable Communities Plan, and a carbon neutral Thames Gateway, is the opportunity to end this stand-off between upfront affordability and y t

sustainability. It has been calculated that zero-emission housing could be delivered at e i c

a cost comparable to market rates if planners were to specify over a threshold of o 23 s

2,500-5000 dwellings. The upper end of this range is only 2.5 per cent of the n o number of houses being procured in the Thames Gateway. It will be ambition that b r a enables ODPM to reduce costs and make low carbon homes affordable, not caution. c w o decent homes, decent climate l a g n Within the Sustainable Communities Plan, the ODPM has given emphasis to i s u

improving poor quality existing homes, as well as building new ones.This is no o small task. One third of all homes in the UK in 2003 could not be classed as h ‘decent’. Eighty per cent of these failed the thermal comfort test, meaning that they are draughty and cold in winter.24 This is a disaster for the climate, as well as for the health and happiness of the people who live in them. Overseeing an upgrade of the existing stock to high standards of energy efficiency is probably the single most important thing that ODPM can do for the climate change agenda, and it will pay huge social dividends.The department is already committed to bringing all social housing up to the Decent Homes Standard by 2010, but this standard could do far more in a cost-effective way to save carbon and the bills of tenants,25 (see Building Standards section for recommendations on its revision). On the other hand, requiring the installation of high energy performance gas-fired boilers since 1 April 2005 is a positive step forward.

Homes existing now will make up at least two thirds of the housing stock in 2050, when emissions need to be at minimum 60 per cent lower than today. According to the Environmental Change Institute, this means that the average energy efficiency of existing homes, as measured by the Standard Assessment Procedure (SAP) rating,26 will need to increase from 51 to at least 80.27 Taking into account that people who have had to endure cold homes will wish to enjoy enhanced comfort and warmth, thus absorbing some of the efficiency gains, a number of studies have projected what technical measures will be needed to achieve the increase.28 Much can be achieved now through the known cost-effective techniques of draught stripping and insulating lofts and cavity walls. Only 36 per cent of cavity walls in this country are insulated, leaving nine million UK homes that could have their heat loss reduced at a stroke by over a third.29 By 2050, all existing homes will need to have top-up loft insulation over 300mm thick (the Decent Homes Standard generally specifies only 50mm), cavity wall insulation where applicable, and double glazing. A major programme of solid wall insulation will also be needed at a later stage.

With around a fifth of the country’s housing stock in their hands, local authorities and housing “ homes existing now will make associations have a vital role to play. Forty per cent up at least two thirds of the of social housing does not have cavity wall insulation, for instance, leaching 2.5 million housing stock in 2050” tonnes of carbon a year.30 Over two million homes still have a SAP rating below 30.

Many of the poorest quality houses are to be found in the nine housing market renewal areas of low demand in the North and Midlands, where the ODPM is housing a low carbon society 14 alr is Climate change making that goalareality now andinthecomingdecades. Planning for we climate change cannotavoid to willbe crucial live andwork. fciaecag snwieial.We is nowof climate change inevitable. tolive needtolearn withit. somedegree worst by casescenario committingtoradicalcutsincarbonemissions, goalremains toavert Whiletheprimary the confronting theSouthEastin2006. killer heat oftheEuropean summerin2003andthedrought conditions ther in toprompt givingnineopportunities handsroughlychanges every five years, high embeddedcarboncostofnew materials. initselfincursthe which refurbishment at around atenthofthecostrebuilding, comfort -exceeding2002 BuildingRegulations -cangenerally bebuilt into m rebuild andrefurbishment affecting one aprocess ofdemolition, championing climate-proof communities onwtnns far thenumber outstripping ofnew homesbuilt. to new tenants, 1.3millionhomeswere soldorrented In2002, handsfor saleorrental. changing tenants toenjoy low carboncomfort. andallowing social housingtohighstandardsofenergy efficiency at leastcost, couldmake real headway inrefurbishing given sufficient ambition, pathfinders, also work toboosttheesteemofdisadvantaged communities. can andsuggeststhat cuttingedgetechnology installations infuelpoorhomes, trial National Energy anumberAction issupporting of homes that are hardtoimprove. Microgeneration hasausefulrole toplay incuttingcarbonandbillssolidwalled perverseincentivescurrent todemolitionaswe insectionthree. describe maypre-1919 housingstock more couldbedonetoremove well prove necessary, andahigherrate ofclearanceandreplacement ofthe matter for thecommunity, quality oflocalen lif located toanticipate thelikely onliveability impactofclimate change over its Itisvitalthat new development isdesignedand most keenly felt inurbanareas. e ulig eeal r ul ols 0t 0 er,sothey must bedesigned New buildings generally are built tolast60 to100years, appear insurmountable. Postponing leadershipcouldmake future steps householders andlandlordstotake. stepwillbeeasierfor theneach to introducelevers thenecessary now, for change available. andaffordable insurancemay nolongerbe andmaintain, tooexpensive torun in, then peoplecouldfind that theirnew homesprove tobetoouncomfortable tolive issuesare ignored Ifsuch comfort andshelterfrom extreme weather conditions. seasonalwater scarcityandtheability ofthebuilding fabric togive oppressive heat, v illion homes. Research hasfound that Research highstandardsofenergy efficiency and illion homes. etime ead smn eoe25.Owner-occupiers so move onaverage only everyestment before 2050. 15years, The impactsofextr The best opportunity forThe bestopportunity encouraging upgradesofmarket housingiswhenit Together theDecentHomesStandardandHousingMarket Renewal Liveability is a new and important agenda for ODPM.The goalistoimproveLiveability isanew the agenda andimportant for ODPM.The The gr e will beonl y , impacting onus, in ter o wth areas are atest-bedfor ODPM’s liveability. commitment tolong-term ms offloodr y vir thr onments inordertocr ee suc eme summerhea most nota h isk, potnte.IftheODPMworks withHM Treasury opportunities. availability toescape ofgreen spaces inwhich b l y in theca t and more intensesporadicrainfall willbe ea te placeswhere peoplewillwant to 31 While the route chosen shouldbea While theroute chosen atohcfodn f20,the tastrophic floodingof2000, 32 Rented housing to withstand and operate under more extreme climate conditions.33 Crucially, they 15 will need to keep us cool in summer as well as warm in winter. Failure to act on this now will mean widespread uptake of energy-guzzling domestic air y t

conditioning, cancelling out hard-won energy savings and making 60 per cent e i c

carbon reduction an impossible goal. Passive design features can do much to remove o s

the need for cooling technology. Incorporating thermal mass, through the use of n o green roof and green wall technology, for example, helps to moderate temperature b r a extremes and keep it pleasant indoors. Modern methods of construction are at a c disadvantage here, although they can be positive in terms of quality control. w o l

External shading from blinds, shutters and trees will be important where thermal a g

mass is lacking. Additional cooling should be restricted to efficient ‘tri-generation’ n i s

combined heat and cooling networks, which are being championed by the London u o

Energy Plan. h

Features of the community that offer visual and physical relief from the urban heat island effect will also be a crucial feature of liveability.34 In London, lucky people with access to parks already line up in them like sardines on a hot day.Access to quality green space and the presence of trees, green roofs, green walls and communal gardens help combat the urban heat island effect, as will surface water features like canals and lakes. ODPM’s recent commitment to earmark ten per cent of growth area funding for green space shows valuable foresight and is to be commended.35

BOX D: Rainham Marshes In early 2004, deputy prime minister John Prescott announced funding of nearly one million pounds to help new and existing communities in the Thames Gateway benefit from a new RSPB wetland reserve in a priority regeneration area on the upper Thames Estuary.

This has since been matched by a Heritage Lottery Fund grant to the reserve’s access and education programme, Access for All on the Marshes, helping to build an Environment and Education Centre that will open in mid-2006 as the gateway to the reserve. Field teachers will be on hand to help people learn about the wading birds and other wildlife, as well as the social and industrial history of the site, via a series of Discovery Zones. A network of paths and viewpoints will create access where none existed before, creating a valuable local amenity in an area formerly dominated by pedestrian-unfriendly roads, wire fences and industrial tips and depots.The reserve’s biodiversity profile will draw birdwatchers and other visitors from across London and beyond, representing a welcome boost to the image of the area, and bringing opportunities for further local economic regeneration.

BOX E: The River Nene Regional Park Northamptonshire County Council is spearheading the River Nene Regional Park project, alongside the East Midlands Regional Assembly, Rockingham Forest Trust and the Ise Valley Protection Group.This scheme is pointing the way for green space investment in growth areas and elsewhere, building on a Green Infrastructure Research Project that is developing a shared strategy for green infrastructure within the regional park area. Particular focus is being given to the green links around Corby, Daventry, Kettering, Wellingborough housing a low carbon society 16 of flooding. T theOffice ofScienceand is notjustnew communities that willbeinneedofthem: developments that have notadequately assessedfloodrisk. astheODPMhasrecognised withitsrecent commitmenttocallin areas, flood risk istoavoid locating development in ofcourse, Part ofthestrategy, down the Thames. prevent andcurbtherepercussions ofsealevel for Londonandareas rise further development. fluvial andtidalfloodingby the Thames inmany for oftheareas scheduled of willexacerbate therisk Climate change also avaluable formofflooddefence. woods andparksinurbanareas is designingspacefor wetland features, makes clear, sustaina does goahead, need oases Urbanareas are nottheonly that will deserts areas asothersbecomeunsuitable. tobuild inecologicalresilience andtoenable speciestomovebiodiversity, intonew includinglarge landscape areas for theconservation andenhancementof grids, RegionalSpatial Strategies have akey role toplay inplanningforlandscapes. green as well aslinkingandextendingexistingprotected areas onthescaleofentire willbetoofastof change -thenwe willneedtoprovide for creating new habitats climate alongsideus-manychanging specieswillnotbeable toadapt asthespeed IftheUK’s biodiversity istobeable toadapt toa and wildlife that peoplevalue. impact ofsupply restrictions. made ofrainwater and grey-water harvestingonnew developments toreduce the Fullusewillneedtobe with thealready acuteproblem ofseasonalwater scarcity. minim W proposed standardsfor theprovision ofaccessible natural green spaceandthe EnglishNature has planning for new highqualityspaces for nature andrecreation. ec oodland completed in spring 2006. completed inspring park have received atotalof£2.4millionfundingfrom ODPMandshouldbe Nineprojects withintheregional wildlife scopetoadapt toclimate change. reserves andcommunity woodlands canbeenhancedandinterlinked togive as itcanhelpensure amore strategic view ofhow anetwork oflocalnature regionalfor scaleoftheparkisimportant biodiversity, towns.The surrounding tolinkanew Forestcyclists andhorseriders parkat Rockingham country with railwaya former inwhich intoapath for lineisbeingturned walkers, project, Lakes AnexampleofthisistheStanwick the existingurbancommunities. with nature is enhancedrather thanreduced asnew development isaddedto toensure that people’s accesstogreen spaceandcontact and Northampton, hnology estima uh‘re rd’wl o utb ieiefrpol,but alsofor theplants willnotjustbealifeline for people, Such ‘green grids’ In theSouthEastinpar As Greening theGateway um le b eubndang etrslk re of,pnsadprebepvn.It pondsandpermeable paving. le urbandrainage features like green roofs, . T 38 rust has done the same for woodland access.These shouldbeusedasthe hasdonethesamefor woodlandrust access.These P v eople andwildlif 36 el ofpr The Thames Gateway highlightstheneedfor integrated planningto it will be crucial todesignflood resistant buildings andbuildit willbecrucial in tes tha o vision available toallcommunities. ODPM’s green spacestrategy for the Thames Gateway,, t over two millionpropertiesintheUKare already at risk ticular e in intensiv , pr ob lems offlashfloodingwillgohand-in-hand el y f armed regions willalsobenefitarmed from 37 Where development local leadership on climate change 17 Central government can create a powerful enabling framework for local action, y but it is only when people see leadership and tangible progress in their own t e i communities that they will begin to believe in the possibility and desirability of c o moving towards a low carbon society.The new localism agenda is highly pertinent s n to the climate change challenge. Local authorities are in a powerful position to lead o b r action on climate change and create this momentum, through their local strategic a c

partnerships and the many levers at their disposal for creating real carbon reductions w o that can also promote energy security and pay social dividends. l a g n i

A pioneering few have done so. Aberdeen City Council chose to deliver affordable s u warmth for council tenants in multi-storey flats via community CHP, and reduced o h tenant bills and carbon emissions by 40 per cent in the process. Southampton City Council partnered with the private sector to tap into geothermal energy and provide competitively-priced low carbon heating and cooling networks for housing, shops, offices, a hospital and a leisure complex. Woking Borough Council is famous for having cut carbon emissions from council buildings and housing by 77 per cent since 1990, thanks to its community energy network and private wire system, which has made economic use of CHP and solar photovoltaics.39

The key to the success of these pioneers is the establishment of local energy services companies (ESCOs), which can generate energy and energy savings locally and bill customers directly for an affordable supply. Savings arise for the customer, ESCO and local authority thanks to efficient generation and distribution in local networks, cutting out the energy loss and costs associated with less efficient centralised supply. Profits can be recycled to install more energy generation capacity or energy efficiency measures. Southampton City Council has a profit sharing agreement with Solent Sustainable Energy Ltd, the organisation set up to develop sustainable energy projects in the city. In Woking, energy prices for citizens have fallen every year since 1991 and the council has released £5.4 million in energy savings in the past decade.40 The Mayor of London Ken Livingstone has established a new London Climate Change Agency to apply more widely the pragmatic lessons learned from Woking, Southampton and other local authorities.

It is not just in relation to efficient energy supply that councils can show leadership. Woking and Southampton have both set themselves 60 per cent carbon reduction targets, to be delivered across the full range of local authority functions, from upgrading social housing to delivering green transport plans and procuring low carbon products and services. Braintree Council in Essex first partnered with British Gas to offer one-off Council Tax rebates for households that install cavity wall insulation and this scheme has now been expanded to further authorities. Sutton Council is signing residents up to a Planet Pledge, and offering them support, advice and incentives in return for commitments to leave the car at home, install efficient lighting or insulate the loft. East Ayrshire Council is procuring food that is 70 per cent local and 50 per cent organic for ten schools across the county, cutting out the carbon emissions associated with intensive production and food miles.41

Over one hundred local authorities have now signed up to the Nottingham Declaration on Climate Change, which commits them to develop plans with their partners and local communities to progressively address the causes and the impacts of climate change.42 To date, however, the situation remains one of lonely islands of housing a low carbon society 18 risk andtheinroads ofthesea. risk andwhentoaccepttheneedfor managed retreat from flood when to ‘hold theline’ there willbetoughdecisionsfor communities totake about Intheseareas, erosion. especially inareas vulnerable tofloodingorcoastal consequences ofclimate change, own. behaviour easiertochange is much ofagroup aspart orcommunity thanonones oa oenetaddw gi ocmuiis ishighly pertinent, local government anddown again tocommunities, community actiononclimate change. operate gives localauthorities more emphasistotheirpotentiallead which i bestpractice drivenfor by themostpart individuals.This entrepreneurial excellence, is notjustabout awareness. andclimate oflifestyle impacts.This bothinterms change adapt tonew challenges, play role animportant inhelpingcitizens withsufficient support, organisations can, Community developedfurther intheforthcoming localgovernment whitepaper. s nieyt pedfr untiltheperformanceandfundingframework within unlikely tospread far, and toensure spacefor wildlife. maintain andenhancetheattractiveness ofthecityasaplacetolive andwork, Na Defra’s Environmental Action Fundand Anglian Water. Fundingcomesfrom stream over thethree-year fundedlife oftheproject. andthefocus willshifttonew developments asthey comeon Hamptons, allotments andcyclingclubs inf Sustaina householderswillgetahouseholdvisitand months ofmoving in, pa andadoptmore sustainabledevelopments embedintotheirnew community, Seeding Sustainable Communities BOX F:Peterborough CityEnvironment Trust tending tothepeoplesideofsustaina Peterborough CityEnvironment Cambridge-Peterborough growthTrust area. is DMscneto obedvlto,devolving more powerODPM’s andcapacity to conceptofdouble devolution, tter 45 or tur The Trust isalsoworking withPeterborough CityCouncilandEnglish Peterborough isafocus for new development withintheLondon-Stansted- Local authorities alsoneedtoactivelyLocal authorities helpprepare communities for the ma e ns ofbeha oehneaddvlpaGetrPtroog re rd to to enhanceanddevelop aGreater Peterborough Green Grid, l iigWloePc,withfree energyble efficient Living goodsand Welcome Pack, tion about activitiesavailable inthelocalcommunity like car-sharing, viour bef 44 or , a project designed to help arrivals tonew aproject designedtohelparrivals housing , hni oe ocnetn wrns noato,it When itcomestoconverting awareness intoaction, e 4 . 6 the The f y 47 get loc irst development tobetargeted isthe k b ed intone le communities equation through w otns Within six routines. 43 and willbe 3 tools for change 19

These goals are all opportunities as well as challenges. Delivering on them will y t e require collaboration at all levels, from land-owners, developers, planners, training i c o

bodies, local government, community organisations and householders themselves. s n

ODPM, uniquely, has the tools at its disposal to get that process happening. It is the o b policy framework that will give certainty to all players about the priority that must r a be given to these goals, and the outcomes that are needed, spurring people to find c w o their own preferred solutions. From certainty will come innovation and opportunity. l a g n ODPM has the opportunity to apply levers in three key areas: i s u l building standards; o l planning; h l local government.

Below we set out what has been achieved in these areas to date, and what more needs to be done. building standards By 2050, the UK’s homes will need to generate at least 60 per cent less emissions than today.Two-thirds of these will be homes that exist today, one third will be new build. ODPM needs to adopt a strategy for delivering 30 per cent carbon reductions across new and existing stock by 2020, and to use the tools at its disposal to signal how standards will be progressively raised to meet and exceed this and the 60 per cent target for 2050. If sectors like aviation fail to deliver on fuel efficiency and are treated as premium users of carbon absorption capacity, then sectors like housing will need to over-achieve against the 60 per cent target to compensate.

top recommendation: Set a whole house carbon reduction target for all housing stock of at least 30 per cent by 2020, and at least 60 per cent by 2050.48 new build progress made: l Building Regulations Part L 2006: 18-20 per cent energy efficiency improvement. l Commitment to a strengthened Code for Sustainable Homes following a weak early draft. l Housing Corporation and English Partnerships interim commitment to EcoHomes 2006 Very Good.

measures needed: Building Regulations Part L: l Further 25 per cent efficiency improvement at 2010 review. l Announce requirement for close to zero carbon space heating by 2015. housing a low carbon society 20 l l l measures needed: l l l l l progress made: existing stock l l l l l l l l l l l l l Renewal andGreen Landlordscheme. HousingMarket HomeConditionReport A-G energy ratings, Standard, asabasisfor improved DecentHomes timetable for upgradeby 2020, vrPr 06 ee orqiezr msin.Linklevels clearly to Level 5torequire zero emissions. over Part L2006. over sixfloorsunder theDecentHomesStandard. tenants recoup savings from energy efficiency investment thesewith while sharing occupancy andwhenhomesare extended. donotmeettheCode.which for meetingtheCode. public land. levelscoring 4or5ontheCodefor Sustainable Homes. withoutmicrogeneration orcommunity energy. levelreach 3, andinfour years notpossible to should notbepossible level toreach 4, upsothat afteroneyear shouldberatcheted it which energy network, requirement for publicly-funded housing. ees1 ,3ad4t eur abnsvnso 0 5 40and60percent 25, 3and4torequire carbonsavings of10, 2, Levels 1, Ne Requir toenable themto Revise rent for capping Registered SocialLandlords, rules Equalise VAT on renovation andnew build. Fiscal incentiv Intr Building Regulations torequire costeffective improvements of at change Gr Home ConditionRepor Building Regula Sustaina Proposed energy mandatory auditofallexistinghomes. Mandatory assessmentofallnew homesandzero starrating for homes Give the Academy for Sustainable Communities amandate todeliver skills Requirement tomeetlevel 3shouldbeaconditiontothecontractsaleof Stamp Dutyrebates onnew andexistingCodehomesat level 3orabove. A A Strong incentives for microgeneration orconnectiontoacommunity Revised level 3(40percentsaving over Part L2006)tobeminimum StampDutyrebates asacomplement toBuildingRegulations topromote • Centralfundingfor one-offCouncil Tax rebates for energy efficiency • Encourage tointroduce Code-basedCouncil localauthorities Tax • Code for Sustainable Homes: five-yearly BuildingRegulation Part Lreviews. public-private green mortgage first fundtosupport timebuyers ofhomes Challenge Fundfor developments meetinglevel 5. een Landlord scheme proposal. een Landlordscheme w mor Budget 2006. measur banding systemfrom 2010. oduce aCodef tar e . e get of100,000 emptyhomestobeoccupied b b the useofcomm le andSecure Buildings Act. ambitious ener es usingthe£20millionLocal es tions P or Sustaina ar ts from 2007. gy eff t unity hea L 2006: b iciency impr le Homesf replacement boilerspecification. ting with CHP in all high rise blocks ting withCHPinallhighrise A or existinghomesb o uthority Fundannouncedat uthority v ements at pointofsale. y 2010. y 2007 anda new build 21 Building Regulations are a tool that can be used strategically to give the construction industry market certainty on future carbon reduction. While Part L y t

2006 represents a good step forward, it fell short of earlier commitments due to e i c perceived practical constraints on the industry. Certainly, achieving low carbon o s

specifications requires a set of skills that are not yet well developed.The Academy n o b

for Sustainable Communities needs a clear remit to deliver the full range of skills r a needed for low carbon construction. But the essential requirement is for future c w

market certainty to justify industry investment in new supply chains, techniques and o l training. a g n i s

If ODPM signals clearly in advance what minimum standards will be required in u o future rounds of Building Regulations, the industry will have the market certainty it h needs. If the housing stock as a whole is to deliver the necessary 60 per cent carbon reduction by 2050,50 then Building Regulations will need to require close to zero space heating by 2015.This is the signal that needs to be given to the industry now. To unleash investment in microgeneration technologies and community energy infrastructure it should also be made clear that all new buildings will have to incorporate on-site renewable supply by 2015.

Building Regulations set the minimum standard for new build and renovation. A clear strategy for standards and their enforcement over the next 40-50 years is required.The Code for Sustainable Homes should provide a good way to signal future Building Regulations standards in advance, and to reward those developers that are making a voluntary investment in higher standards.The recent ODPM announcement that the draft Code, widely criticised as being weak, will be strengthened and supported by planning incentives, is very welcome.51 Of key importance are the commitments to make level 1 of the Code stronger than Part L on energy efficiency, and to set minimum standards on energy at each level. Such a system will provide a far better basis for signalling in advance the stepwise tightening of carbon standards to be enacted through five-yearly Building Regulation reviews.

However, the level 3 commitment on publicly funded housing, while a welcome step forward, could and should still be strengthened.The Energy Saving Trust has set good, best, advanced practice standards (previously bronze, silver, gold), which represent carbon savings of 10, 25 and 60 per cent over Part L 2006.The current ODPM proposal is for level 3 of the Code, which will be applied to publicly funded housing, to represent the best standard or 25 per cent additional savings. If government-funded housing is to fulfil the demonstration and market-leading role it can and should play, the commitment should be raised to 40 per cent carbon savings. This standard should be attached as a condition to the contract sale of public land.

Recommended carbon savings for the Code for Sustainable Homes Level Carbon savings EST standard Policy lever Level 1 10 per cent >Part L EST Good Level 2 25 per cent >Part L EST Best Level 3 40 per cent >Part L Min for public-funded buildings Level 4 60 per cent >Part L EST Advanced Stamp Duty rebates Level 5 Zero carbon Eligible for Challenge Fund housing a low carbon society 22 “ needed forexistinghomes” Sustainable Homeswillbe a version oftheCodefor loca to measur ann andapublic campaign shouldhighlightthe of energy costs, ratings for running expenditur andhence householders clearinformation about theirlikely consumptionof, giving efficiency standardsfrom theCodeshouldformbasisfor thissystem, Energy available from 2007tobuyers ortenantswhenhomesare soldorrented. i undertaken. housing standardsandincentivetoensure that improvements schemes are Codeshould thenbelinked tosocial buildings) canbeusedasafoundation.This confidence ofODPMinraisingcarbonandefficiency standardsinotherareas. shouldboostthe given adequate warning, inplacetomeetthischallenge, chains ability shown by togettheskillsandsupply theindustry per centefficient.The at least85 allreplacementrequiring boilersfrom 2006tobecondensingboilers, by deliver rapid market transformation andboost efficiency oftheexistingstock, existing stock omtet We urge ODPMtoconsultonarevisedCommitment. proposal assoonfeasible. directed from energy tosupport supplierslookingtodeliver theirEnergy Efficiency andhouseholderscouldbe implemented at well undertenper centextracost, couldbe top-uploftinsulation andcavity wall filling, draught-proofing, like thesimplemeasures needed, However, that thepublic hadnotbeenconsulted. andministerswere concerned cent ofthevalue ofany building works over £8000, 2005 becausethiswould have required energy efficiency work equivalent totenper was deletedfrom Part L Arequirement for improvements. ‘consequential works’ toauditexistinghomesforopportunity energy andimplementcost-effective represents avital out.This andwhenextensionsare carried hands, change allowing toapply thedepartment BuildingRegulations toexistinghomeswhenthey Sustainable andSecure Buildings buildings.The Act isapowerful new enabler, below. are setoutinthesectiononplanning with specialapplication totheGrowth Areas, planningincentives, Further level 4orabove shouldreceive StampDutyrebates. Firsttimebuyers ofhomesachieving needed for low-cost low carbontechnologies. inordertodeliver theeconomiesofscale ofhigherlevelssupport oftheCode, n aelmtdifuneoe uespecuidwt aiascss lookand have limitedinfluenceover buyers preoccupied with capitals costs, eciglvl5 Incentives shouldalsobeintroduced for market housingin levelreaching 5. Home ConditionRepor ODPM hasalr The ODPMiscurrently conductingareview ofthesustainability ofexisting A ual sa tion. Challenge Fund should be set up to support housingassociationChallenge Fundshouldbesetuptosupport developments es tha vings tha Incentiv e on, t an ener energy.Training shouldbegiven toestate agents ontheimplications ead es f t householders canmak y or gy auditwillr made constr A-ra ts, ted pr including an Researc by theSustainable Buildings Task British Group.The asrecommended efficiency andcarbonstandards, new withchallenging energy homes from 2007, f aversion oftheCode energy standardsover time, operties intheformofStamp Dutyrebatesoperties for or Sustaina uctiv ecommend. To anODPMstrategy ofraising underpin e h and decisive useofBuildingRegulations to e Esta A-G ener from thecost-effective undertaking ble Homeswillbeneededfor existing b lishment’s EcoHomesXB(existing nomto ln,hwvr islikely however, Information alone, gy ra ting , will ha v e to bemade buyers would have a much larger impact, particularly if it permitted buyers to claim 23 the rebate for improvements made after the sale. y t

The Code needs to be backed up by a well-funded and effective marketing e i c

campaign to raise awareness of the scheme and its benefits to home purchasers, o s

developers, planners, architects and others. n o b r a

Energy ratings based on the Code for Existing Homes should also be used to c establish a new Decent Homes Standard from 2010.The current Standard has so far w o l

missed the opportunity to make significant carbon reductions in the existing stock, a

52 g delivering only an anticipated half a million tonnes of carbon reduction by 2010. n i s

The Standard can use the levels of the Code to tighten up over time. u o h Registered Social Landlords are currently discouraged from undertaking energy efficiency investments by rent capping rules, which mean that savings cannot be recouped via rents even where tenants are benefiting from reduced bills.These rules should be revised to allow landlord and tenants to share in the savings.

For private rental properties, the Green Landlord scheme, proposed by HM Treasury for consultation in 2005, offers a chance to overcome the problem of landlords having no incentive to invest in reducing their tenants’ bills.This would build on the existing Wear and Tear Allowance, which allows landlords to offset a fixed rate of ten per cent of rental revenue tax against costs incurred for wear and tear. A flat rate tax incentive should be applied within or alongside this, conditional on achieving an ongoing minimum home energy rating.

Finally, the Code should be used as a basis for refurbishment standards within the Housing Market Renewal areas.The decision to demolish or refurbish will rest on many factors, but energy efficiency need not be used as a justification for demolition except in exceptional cases. Refurbishment to meet Code standards on carbon that are equivalent to new build can be done at a significantly lower cost than demolition and rebuild. However, repair and renovation still incurs 17.5 per cent VAT while new build is VAT-free, a distortion which causes a spiral of decline leading to low demand and unduly favours demolition in renewal areas. Equalisation of VAT for renovation and new build is an urgent priority.

Renovation also avoids the carbon costs associated with the production and transport of construction materials.There are currently 689,000 empty homes, representing over three per cent of the housing stock. About half of these are in the South East where demand for new homes is greatest.Three hundred thousand homes have been empty for more than six months.55 As the government has said in its response to the Barker review of housing supply, “Bringing empty properties back into use has fewer environmental impacts than building new homes as such properties will also be located near to existing facilities and infrastructure.”56 housing a low carbon society 24 planning forsustainablecommunities systems canalsobeloca as possib Developments would beasclosetozero carbon carbon asaresult ofdevelopment. high standardstohelpde settingconsistently make theGateway aworld-class carbonneutraldevelopment, the ne urban hea offlooding, in theform region itishighly impacts, exposedtoclimate change A makingitaworld-class sustainable community.carbon neutralandclimate-proofed, that thegrowth improvements areas bring toexistingcommunities. hasalways department beenclearthatcomfort itwants andlow toensure bills.The Itshouldnotbejustthenew homes that benefit from highstandardsof chains. energy infrastructure. andtransport andlinkingthemtonew sustainable efficiency improvements inexistinghomes, carbon neutral l l l l measures needed: l l l l l progress made: Declare the climate-proof development Thames Gateway acarbonneutral, statement cross-departmental by ministers. and launchitthroughahighprofile, Produce andpublish thenewclimate change PlanningPolicy Statement (PPS)by theendof2006, top recommendations: The Thames Gateway willbeahighprofile test-caseforliveability. Asa long-term oaheeti,ODPMshouldensure that growth inthe ToThames Gateway achieve this, is December 2006. by bystatement withcross-departmentalsupport launched ministerial assessment. community energy. energy efficiency above BuildingRegulations and on-site renewables, sta andtoDesignCoding. of planning, Intr Strengthen andbroaden PPS22(renewable energy) intoaplanning Make mitigation andadaptation climate change centraltotheBarker review Draft clima PPS 1callsonlocalandregional bodiestoaddress climate change. PPS 22allows positive planningfor on-siterenewables. Flooding Dir Ten percentgrowth area Fundearmarkedfor green space. PPSandrevised aclimate change Commitment topreparing guidance. Planninggainsupplementrebate for levels 4and5. • • w tement onsustaina homes sc le b Stra PPS3 torequire LocalDevelopment Frameworks andRegionalSpatial oduce planningincentiv t sadefcsadfehae hrae With asignificant of proportion island effects andfreshwater shortage. ut una tegies touseCode te c Thames Gateway would mean there would beno netincrease in heduled f ection tocall-inproposals withinadequate floodrisk v oidable carbonincreases from growth would beoffsetvia hange PPStobeoutf ted anddesignedtobenef v elopers emplo b or public land, ODPM also has a real opportunity to ODPMalsohasareal opportunity or public land, le ener . es f gy tha 58 or theCodefor Sustainable Homes. New green spacesandsustainable drainage y t or consulta economies ofscaleinlo r equir es positive planningpoliciesfor it existingcomm tion b y . 57 summer 2006and w unities carbon suppl . ODPM y should work with the London Thames Gateway Development Corporation, South 25 East of England Development Agency, East of England Development Agency and other relevant bodies, to prepare a planning framework for achieving this by 2007. y t

It should also establish a dedicated climate change agency to coordinate investment e i c

and action by energy suppliers, developers, local authorities and community groups o s

to make it work on the ground. A visionary approach to the Thames Gateway will do n o much to make low carbon technologies accessible to all through economies of scale, b r a and to demonstrate how architects and planners can design for long-term liveability c in the face of climate change. w o l a g

There is also a need to compliment the London 2012 Olympic developments. n i s

The contractual bid documents outline a vision and specific objectives for London u o

2012 under the theme ‘towards a One Planet Olympics’.This includes a pledge h towards a ‘low carbon games’ to showcase how the Olympics are adapting to a world that is increasingly affected by climate change.59

Some progress has already been made. With its recent announcement that ten per cent of growth area funding would be ring-fenced for green spaces, ODPM has renewed its commitment to the liveability agenda. In support of its Greening the Gateway strategy,60 the department has already invested £26 million from its Thames Gateway fund in projects like the new RSPB reserve opening this year at Rainham Marshes, in an area of severe disadvantage and industrial decline (see Box D).There is a welcome new commitment to a Flooding Direction, to call-in proposals with inadequate flood risk assessment, as advised by the Environment Agency.61

However, the challenge, and the opportunity, does not stop with the growth areas and the Thames Gateway.Across the UK, planners can make a major and positive contribution to reducing climate change, whether by promoting microgeneration or reducing our need to travel, ensuring we can adapt in comfort and security. ODPM has taken some important steps towards this. Planning Policy Statement 1 (PPS 1) makes it clear that ‘regional planning bodies and local planning authorities should ensure that development plans contribute to global sustainability by addressing the causes and potential impacts of climate change.’ Brief references to climate change are also to be found in new Planning Policy Statements (PPS) on rural areas, biodiversity, Regional Spatial Strategies and the forthcoming PPS 25 on development and flood control. In practice, however, planning for climate change is still very patchy.Three major applications in Islington Council that were determined during September and October 2005 did not mention climate change at all.62 ODPM reforms could herald a new era of “ across the UK, planners can planning, which aims to be responsive to modern needs, with the development of Regional Spatial make a major and positive Strategies and Local Development Frameworks. It is crucial that these new frameworks are made fit for contribution to reducing purpose in the twenty-first century, affording climate change” climate change due priority in decision-making. Further leadership from ODPM is urgently needed to ensure this happens, before these frameworks are finalised in 2007. ODPM has already set a useful precedent for such an intervention with the public participation statement Public Involvement in Planning:The Government’s Objectives in 2004. housing a low carbon society 26 be tak should theopportunity Where ODPMistakinga leadinrewarding qualitydesign, per hectare systemsmore –willmake economically such viable. tha given ensure that community heating for systemsare new thenorm developments, ortheproposed planninggainsupplementto use theplanninggainprinciple other sustainable energy Plannersshould alongsiderenewable infrastructure energy. De objection tothedraftpolicyinLondonBorough of Waltham Forest’s Unitary confusingmessages are asGOLondon’s emerging such At Government Office level, are likelyneed more authorities reassurance that neighbouring tobedoinglikewise. andothershave indicated that they wouldintroducing renewable energy policies, are inpracticeonly of authorities asmallproportion However, photovoltaics array. 13micro-wind turbinesandasolar development with81solarwater heaters, renewable energy.The largest isa360unitresidential currently underconstruction 71developments are now approved require which InCroydon, communities. ener The new Codefor Sustainable Homeswill needitsown setof planningincentives if giv asrecommended by to theEnergystatement Saving onsustainable energy, Trust, PPS22couldusefully bedeveloped intoabroader planningpolicy documents. in new developments through positively expressed policiesinlocaldevelopment should[rather than local authorities ‘may’] specifically encourage renewable energy PPS 22inthislight. w flexible policiesare anexcellent, Such energy tosupply large new developments. theuseofon-siterenewable Boroughthe exampleofMerton Councilinrequiring leadership whenitusedPPS22onrenewables toencourage localplannerstofollow done inastrategic rather thanapatchy way. that itisimportant this loved native climate, speciesare tosurviveachanging have but ifmuch- beenmadetofundinggreen spaceandplanningfor biodiversity, Somepositive commitments help bothpeopleandwildlife adapt toclimate change. are neededto aswell asabetter-linked network ofprotected areas, management, natural floodingdefences andcoastline trees for shade, Features like parks, planners canwork togethertoensure strategic provision ofgreen infrastructure. review shouldincludeattention tohow localandregionalclimate change.This review intoplanningisgiven aclearer remit toreview theadequacyofplanningfor planning systemincombating climate change. role ofthe but alsothecrucial toplanners, ofclimatethe importance change by statement articulating PPSshouldalsobelaunched astrong ministerial 2006.The necessitates adraftby summer PPS needstobepublished by theendof2006.This c be a material planningcondition”. be amaterial onsidered ofthepreparation aspart ofLocalDevelopment the Documentshowever, a v y e t Planning incentiv DMi wr fteeise,andhastaken awelcome decisiontoreview ODPM isaware oftheseissues, The ODPMtookavery positive steptowards empowering localcommunity For that thenew andconsistencyitisalsocrucial thesake Barker ofclarity Inordertobe PPSiswelcome. The recent commitmenttoaclimate change lpetPa,onthegrounds that “the useofrenewables is notconsidered to elopment Plan, gy sc the highdensityr to bring economies of scale to microgeneration technologies andcommunity economiesofscaletomicrogeneration technologies to bring planning author en tointegra hemes andbr te cr T es canw ities guidanceonde o equirements underthedraftPPS3(housing)-35buildings ing po fur iter ther empower such policies, PPS 22 needs to clarify that PPS22needstoclarify ther empower policies, such ia onlong-ter ork w wer closertothepeopleinnew sustainable 63 onders f m v eloping comm liv or thequalityofne ea bility andlow carbon innovation. unity hea w development. ting netw orks and 64 it is to have application beyond social housing.The draft PPS 3 gives only a weak 27 signal to local planners to encourage use of the Code.This should be strengthened to a requirement, and developers who meet higher levels of the Code should be y t

offered rebates on the proposed planning gain supplement. e i c o local government s n o b r a top recommendation: c w o Introduce a leadership duty for local government on climate change. l a g n i

progress made: s u o

l Local Government Act 2000 enables authorities to set up energy service h companies. l Commitment to produce new best practice guidance for local authorities on climate change and promoting sustainable energy.66 l Commitment to focus on climate change in the post 2008 local government performance framework.67

measures needed: l Priority to be given to climate change in local government performance framework. l Freedom to raise revenue and invest-to-save in local areas, in the spirit of the Lyons Review. l National procurement facility for micro-renewables in public buildings. l Powers to require owners to bring grossly energy inefficient housing (

As Minister for Communities David Miliband said at the recent Sustainable Communities Conference, “Local government’s role is to help citizens and communities become the masters of change.” 68

Nowhere is this role more pertinent than in relation to climate change. Local government will be the lynchpin of practical action and community initiatives to cut carbon and help people adapt to change. A few pioneers already are.The majority, however, need to be “ Local government will be the empowered by government to assign lynchpin of practical action resources and priority to this leadership role. Real action requires and community initiatives to upfront investment, even if savings and local revenue then follow, as the cut carbon and help people example of Woking, Aberdeen and adapt to change” others has shown. David Miliband has expressed a determination to ask fundamental questions about the reforms needed to help local government take on the community leadership challenge. As part of the Climate housing a low carbon society 28 p to Change Programme Review ODPMmadetwo commitmentstowards thisend: Agr Spending Review. cr Sustainable energy facilities andtransport shouldalsobecentraltothe in place. from theproposed planninggainsupplementtohelpgetthisessential infrastructure energy andrenewable schemes Authorities shouldbeable energy. toapply revenue community cyclingandbus routes, green havens, energy efficient socialhousing, the sa to save theLyons Review public money, shouldensure that they are entitledtoretain andinvest inenergy efficiency follow theexampleofSouthamptonand Aberdeen, environment tothestatutoryareas ofwaste andplanning.To encourage councilsto by confining investment onthe constrains rather thanrewards leadership, oftheComprehensiveperformance policyintheform Performance Assessment Atpresent in themostappropriate community solutionstoclimate change. White Paper alloffer tohelplocalgovernment opportunities take theleadandinvest a needthestatus ofadutytocommand the power was designedtoencompass, which Evidencesuggeststhat key like climate leadershipchallenges change, used. thispower hasbeenseldom inpractice, However, objectives like carbonreduction. totake stepstopromote localauthorities socialandenvironmentalpermits possible approaches todelivery. itwillgive themscopetoadoptarangeof sufficient availability ofqualitychildcare, Whilethiswillsetaclearrequirement ensure that authorities Childcare Bill. Ausefulparallelistheproposed inthe dutyfor localauthorities opportunity. thereby itintoan turning challenge, and resources totheclimate change priority liaison withtheRegionalDevelopment andempower themtogive Authority, in it shouldencourage todevelop authorities theirown energy strategy andtargets, Rather prescriptive inthesenseofsettingone-size-fits-all carbonreduction targets. dutyshouldnotbe aleadershipdutyonclimate change.This local authorities for concern localauthorities. needed tomake aprinciple actiononclimate change stepsare usefulbut moregovernment willbe performanceframework.These andtofocus inthepost2008local onclimate change sustainable energy; colla willneedtowork likesector partners housingassociations andschools.They le central government asefficiency savings undertheGershonReview. ODPM tohelpraisethestandard ofpr Leicester CityCouncilisshowing how thelimitedresources madeavailable by lo v roduce best practice guidance for local authorities on climate change and roduce onclimate bestpracticeguidancefor change localauthorities v w oss-depar ailable attention andresources. ers the Councils shouldbeencouraged tousereward fundswithinLocal Area SpendingReviewThe forthcoming Lyons andtheLocalGovernment Review, thepower ofwell-being inthe LocalGovernment enshrined In theory, Act 2000 One centralempowering stepthat would have asignificant impactistogive The leadershippotentialoflocalgovernment liespartly inthe onclimate change eements tospr er standardsinaneighbour bora vings f tiv y can use to get enabling infrastructure in place for communities, such as such can usetogetenabling inplacefor communities, infrastructure tmental r el rlclsedo a us rather thanberequired themallto toreturn or localspendtaxcuts, y to ensure that housebuilders are nottemptedtouse theleverage of ead theirinfluenceandlever improvements amonglocalpublic e vie w of infrastr ing planningauthor uctur iv a te sectorr e needs f or gr ented housingcanbecombined ity todr owth areas at thenext ive aracetothebottom. to maximum effect with incentives such as Defra’s Warm Front Programme to tackle 29 both energy efficiency and fuel poverty for vulnerable groups. Councils should also have their powers to intervene over unsafe or unfit public buildings extended to y t

allow them to require owners to bring grossly energy inefficient housing (

up to standard with cost-effective measures. o s n o

A key catalyst to deep reductions in carbon will be local energy agencies, as b r a pioneered by Woking Borough Council.The Local Government Act 2000, as part of c its programme of investing local authorities with the power to promote well-being, w o l

enabled authorities to follow the Woking example and set up public-private energy a g

service companies that can finance, design and manage sustainable energy supply n i s

networks to reduce fuel poverty, bills and environmental impacts. Few councils have u o yet taken the opportunity, despite the social, economic and environmental gains to h be had. Where councils lack an energy entrepreneur like Allan Jones of Woking, or the cross-party support and in-house expertise he enjoyed, the steps needed to establish energy agencies can look challenging, and they will need more support in the form of dedicated loan finance and well-coordinated practical advice.

The Local Government Association places great emphasis on the need for more and better organised practical support for local authorities to help them show environmental leadership.There is a plethora of initiatives, but little signposting and tools do not always meet the needs of officers and councillors. Forum for the Future, through its Local Authority Partnership Network of 30 authorities and in partnership with the Audit Commission, is piloting a sustainability standard that suggests practical steps for mainstreaming issues like climate change, and permits benchmarking and exchange of good practice. If the pilots are successful this tool will need profile and support in order to be widely taken up and owned by authorities outside the existing best practice networks.

The other side of the leadership potential of local government is their ability to be locally visible and accountable to communities. On climate change, citizens need to see change happening around them in order to feel that their individual actions will contribute to something bigger and worthwhile.The importance of local government’s demonstration role should not be underestimated. A dedicated procurement facility should be established to support councils in getting renewable energy into schools, hospitals and council buildings, so that local citizens can see and be inspired by visible evidence of change.

It is important to remember the vital role-played by local government in ensuring that the planning process supports local engagement and democratic accountability. Nowhere is local action more evident today than in public participation in planning. Kate Barker’s review of planning must take this into account. If planning reforms aimed at accelerating development have the effect of restricting local participation this could fatally undermine the objectives of double devolution and community empowerment. It will also cut off a key avenue for engaging people in preparing for the impacts of climate change and understanding the local solutions that are needed. housing a low carbon society 30 clima housing andtheDecentHomesProgramme for existingsocialandrented housing, the more for than£2billionallocation totheHousingCorporation new affordable including ODPM’s programmes ofdirect investment inhousing, bid for resources. and itssubsequentrevisions toreflect targets beyond 2010. forand theDepartment Trade PSA, uptotheclimate insigning andIndustry change invest-to-save: aspendingreview for 4 Spending Review 2007. andtomake thecasefor resources in appropriate tothischallenge climate change, is therefore thetimefor ODPMtounderlinetheleadershiprole itneedstoplay on Now that willshape Comprehensivemajor challenges thecurrent SpendingReview. when thethreat becomesimpossible toignore. toourcomfort andsecurity asmore radicalcutsbecomeneeded punitive future costsofcarbonabatement, buildings andbiodiversity.The thesaving thirdconcerns onthepotentially health, damage remediation ifwe fail toplannow for on theimpactsofclimatic change secondisthesaving onexpensiveefficiency gainsandreduced energy bills.The improvements inbuilding fabric andenergy intheformofsustained infrastructure sa investment Butsuch isaninvest-to- bothinmitigation andadaptation. investment, ve proposition, in three senses.The firstthesaving concerns that results from inthree senses.The ve proposition, l following bidfor conceptswithinitsdepartmental SpendingReview 2007: ODPMshouldincludethe ofthisinvest-to-saveIn support proposition, spending r l l l l Leadership on climate change willalsoneedtobereflected inthedepartment’sLeadership onclimate change A The asoneofthefive Treasury identifies andnatural resources’ ‘climate change As this pamphlet has shown, real action on climate change doesrequire real actiononclimate change As thispamphlethasshown, te c is motn tpwl et onwt h eatetfrTasot Defra forfirst stepwillbe tojoinwiththeDepartment important Transport, draught-pr microgeneration onpublic buildings orsetupcommunity energy schemes. r pr CavityNorthumberland Wall Project -for pragmatic street-by-street Warm like Front Gloucestershire schemes Warm and Well and the calculate thecapital costandpayback –basedonbestpractice EECand shouldbecommissionednow Research to homes below aSAPrating of30. given to withimmediate priority measures inallsocialhousingby 2015, par A A A A An Invest-to-Save and localcouncils FundtohelptheHousingCorporation housing alow carbonsociety eac ogrammes f , will be a crucial componentofaninvest-to-save willbeacrucial approach totackling , national loan facility for local authorities to pump-prime infrastructure national infrastructure loanfacility topump-prime for localauthorities national procurement facility toinstall for localauthorities doubling ofresources for building inspection. Challenge Fund for the Housing Corporation to support developersChallenge Fundfor tosupport the Housing Corporation in hange tner withener hing le eview 2007 . oof v el 5oftheCodef rfligalcvt al,installingtop-uploftinsulation and or filling allcavity walls, ing allsocialhousingb gy supplierstoinstallcost-eff or Sustaina y 2015. ble Homes. ectiv e ener gy eff iciency 31 investment by new local energy agencies in support of a leadership duty on climate change. y t e i l A central fund to enable local authorities to give one-off Council Tax rebates c o to encourage home-owners to install cavity wall insulation. s n

A public-private green mortgage fund to support first time buyers of homes o l b r

scoring level 4 or 5 on the Code for Sustainable Homes. a c l Funding increase for the Empty Homes Agency to support a new target of w o 100,000 empty homes occupied by 2010. l a l VAT equalisation on demolition and new build (alternatively this could be g n i

made as a revenue-raiser or revenue-neutral proposal) s u

Joint with Defra, invest in land management regimes that minimise the risk o l h of flooding.

Many of the above proposals are loan funds. Sources of revenue in support of capital funds could include: l Planning Gain Supplement. l VAT equalisation on demolition and new build. l Community Infrastructure Fund (currently £2 million). l Enhanced climate change levy. l Auctioning of allowances for proposed UK emissions trading in the commercial sector. housing a low carbon society 32 l progress made: existing stock l l l l l l l l l l l Building Regulations Part L: measur l l l progress made: new build 2050. Set awhole housecarbonreduction target for allhousingstock ofat least30percentby 2020andat least60percentby top recommendation: building standards Introduce aleadershipdutyfor localgovernment onclimate change. 5. climate-proof Declaredevelopment. the Thames Gateway acarbonneutral, 4. and Produce andpublish thenew PlanningPolicy climate change Statement by of2006, theend 3. Setawholehousecarbonreduction target ofat for least30percentby allhousingstock 2020, 2. Join thejointDefra-DfT-DTI Public Service Agreement onclimate change. 1. ofrecommendationsannex 1summary l l l l Code f launch it through a high-profile, cross-departmental statement cross-departmental by ministers. itthrough ahigh-profile, launch and at least60percentby 2050. Proposed energy mandatory auditof allexistinghomes. Code Mandatory assessmentofallnew homesandzero starrating donotmeetthe for homeswhich Giv Requir Stamp Dutyrebates onnew andexistingCodehomesat level 3orabove. on theCodefor Sustainable Homes. A A should bera which Strong incentives for microgeneration orconnection toacommunity energy network, funded housing Revised level 3(40percentsaving over Part L2006)tobeminimum requirement for publicly- Le Announce requirement for closetozero carbonspaceheating by 2015. 25percentefficiencyFurther improvement at 2010review. Good. commitmenttoEcoHomes2006 andEnglishPartnershipsHousing Corporation interim Very Commitment toastrengthened Codefor Sustainable Homesfollowing aweak early draft. 18-20percentenergy efficiency improvement. Building Regulations Part L2006: Green Landlord scheme proposal. Green Landlordscheme Home ConditionRepor replacement boiler specification. Building Regulations Part L2006: Sustainable andSecure Buildings Act. oryasntpsil orahlvl3 withoutmicrogeneration orcommunity energy.four years notpossible level toreach 3, reviews. Le v e orqiezr msin.Linklevels clearly tofive-yearly BuildingRegulation Part L vel 5torequire zero emissions. public-private green mortgage first fundtosupport timebuyers level ofhomesscoring 4 or5 Challenge Fundfor developments meetinglevel 5. els 1, or Sustainable Homes: e es needed: . the ement tomeetlevel 3shouldbeaconditiontothecontractsaleofpublic land. Academy for Sustainable Communities amandate todeliver skillsfor meetingtheCode. ,3ad4t eur abnsvnso 0 5 40and60percentover Part L2006. 25, 3and4torequire carbonsavings of10, 2, tc heted upsotha . ts from 2007. t after oney ear itshouldnotbepossib le tor ahlvl4 andin leveleach 4, measures needed: 33 l Building Regulations to require cost effective improvements at change of occupancy and when homes are extended. y t

Introduce a Code for Sustainable Homes for existing homes by 2007 and a timetable for upgrade e l i c

by 2020, as a basis for improved Decent Homes Standard, Home Condition Report A-G energy o s

ratings, Housing Market Renewal and Green Landlord scheme. n o b l Fiscal incentives r a

• Central funding for one-off Council Tax rebates for energy efficiency measures using the £20 c w

million Local Authority Fund announced in Budget 2006. o l

• Stamp Duty rebates as a complement to Building Regulations to promote more ambitious a g n

energy efficiency improvements at point of sale. i s

• Encourage local authorities to introduce Code-based Council Tax banding system from 2010. u o l Equalise VAT on renovation and new build. h l Revise rent capping rules for Registered Social Landlords, to enable them to recoup savings from energy efficiency investment while sharing these with tenants. l Require the use of community heating with CHP in all high rise blocks over six floors under the Decent Homes Standard. l New target of 100,000 empty homes to be occupied by 2010. planning top recommendations: Produce and publish the new climate change Planning Policy Statement by the end of 2006 and make a cross-departmental high profile ministerial statement to launch it.

Declare the Thames Gateway a carbon neutral, climate-proof development. progress made: l Commitment to preparing a climate change Planning Policy Statement and revised guidance. l Ten per cent Growth Area Fund earmarked for green space. l Flooding Direction to call-in proposals with inadequate flood risk assessment. l PPS 22 allows positive planning for on-site renewables. l PPS 1 calls on local and regional bodies to address climate change. measures needed: l Draft climate change Planning Policy Statement to be out for consultation by Summer 2006 and launched by ministerial statement with cross-departmental support by December 2006. l Make climate change mitigation and adaptation central to the Barker review of planning, and to Design Coding. l Strengthen and broaden PPS 22 (renewable energy) into a planning statement on sustainable energy that requires positive planning policies for on-site renewables, energy efficiency above Building Regulations and community energy. l Introduce planning incentives for the Code for Sustainable Homes. • PPS 3 to require Local Development Frameworks and Regional Spatial Strategies to use the Code. • Planning gain supplement rebate for levels 4 and 5. housing a low carbon society 34 l l l l l l l l l l spending review 2007 l l l l l measures needed: l l l progress made: Introduce aleadershipdutyfor localgovernment onclimate change. top recommendation: local government l l l l l include: Sourcesofrevenue ofcapital insupport fundscould Many oftheabove proposals are loanfunds. and draught-proofing allsocialhousingby 2015. installingtop-uploftinsulation pragmatic street-by-street programmes for filling allcavity walls, like Gloucestershireschemes Warm and Well Cavity andtheNorthumberland Wall Project -for now tocalculate thecapital costandpayback –basedonbestpracticeEECand Warm Front shouldbecommissioned Research given tohomesbelowimmediate priority aSAPrating of30. on ihDfa invest inlandmanagement of flooding. regimes that minimisetherisk Joint withDefra, V to beoccupiedby 2010. Funding incr on theCodef A owners toinstallcavity wall insulation. A local energy agencies of aleadershipdutyonclimate insupport change. A b A A Code for Sustainable Homes. A suppliers toinstallcost-eff An In andtelecommunications infrastructure. electricity water, granted for theoperators ofgas, Community heating developers similartothose shouldbegiven rights statutoryundertaking with cost-effective measures. Powers torequire owners grossly tobring energy inefficient housing(

1

A number of organisations signed up to this pamphlet have proposals of their y t e own which go further than those that are recommended here. For these i c o

organisations the recommendations in this pamphlet are important but only part s n

of what is needed. o

2 b The Public Service Agreement on climate change, which is jointly owned by the r a Department for Environment, Food and Rural Affairs, the Department of Trade c w o

and Industry and Department for Transport is ‘To reduce greenhouse gas l emissions to 12.5 per cent below 1990 levels in line with our Kyoto a g n commitment and move towards a 20 per cent reduction in carbon dioxide i s u

emissions below 1990 levels by 2010, through measures including energy o efficiency and renewables’. h 3 These targets may have to be scaled up in the future if overall carbon reduction targets change. Moreover, if sectors like aviation fail to deliver on fuel efficiency and are treated as premium users of carbon absorption capacity, sectors like housing will need to over-achieve against the 60 per cent target to compensate. 4 A carbon neutral Thames Gateway would mean there would be no net increase in carbon as a result of development. Developments would be as close to zero carbon as possible but unavoidable carbon increases from growth would be offset via efficiency improvements in existing homes, and linking to new sustainable energy and transport infrastructure. For a fuller explanation see Sustainable Development Commission, 2006, Home Truths: our advice to Government on UK housing. 5 Independent Scientific Steering Committee, May 2005, Avoiding Dangerous Climate Change International Climate Change Taskforce, January 2005 6 World Health Organisation, 2003, Climate Change and Human Health – Risks and Responses 7 www.stopclimatechaos.com 8 See note 2. 9 See note 3. 10 See note 4. 11 Defra, 2004, Study into the environmental impacts of increasing the supply of housing in the UK 12 Environmental Change Institute, 2005, 40% House 13 We have set the target at ‘close to zero’ because we can get close to zero carbon more quickly than zero carbon. Removing the last 5 per cent can be difficult and expensive and efforts would be better spent in other areas, such as refurbishment. 14 Sustainable Consumption Roundtable, 2005, Seeing the Light: the impact of microgeneration on how we use energy 15 Carbon Trust/Energy Saving Trust, December 2004, Community heating for planners and developers 16 Sustainable Development Commission, 2005, Climate Change Programme Review position paper 17 Institute of Public Policy Research, 2006, Gateway People 18 Architecture Week, November 28, 2001, Erskine’s Millenium Village 19 Building Research Establishment, Energy Efficiency Best Practice Programme, 2001, General Information Report 89 20 Greater London Authority, 2004, London Energy Strategy 21 http://www.wwf.org.uk/news/n_0000002327.asp 22 Bulk-buy initiatives such as the One Planet Products group set up by WWF and BioRegional aim to improve economies of scale and offer discounts, see housing a low carbon society 36 2 23 49 48 47 46 45 44 43 42 41 40 39 38 37 3 3 3 3 3 31 3 29 28 2 26 25 4 6 5 4 3 2 0 7 Our_Work/Environment/Nottdeclaration.pdf Government Association website at www.lga.gov.uk/Documents/Briefing/ Clima Housing Supply Housing Supply Z www.oneplanetproducts.com demand ofzer The ECImodellingshows that allnew homeswillneedtohave aspaceheating See note3. www Managed Realignment andObstaclesto, Drivers of, O’Riordan, 2005, Jackson,T., Defra’ February 2006. by RtHonDavidSpeech MilibandMPat Sustainable Communities Summit, T 2005, Sustainable ConsumptionRoundtable, J 2006, Town Planning andCountry Association, Office ofScienceand 2004, Technology, December2005, ODPM andHMT, 2005, October London Assembly, December2005, ODPM andHMT, EPSRC UKClima Consultation document: 2005, GO London, Englandsecondquarter Statutory homelessness: for 2003 Energy Saving Trust, Cambridge Research, Architectural 19January 2006 press release, Energy Saving Trust, 2006, Sustainable Development Commission, 2004 Development, Energy for Sustainable 2004, Johnston, 2005; Environmental ChangeInstitute, 2020. This figure assumesthat new homes are built toclosezero spaceheating from carbon emissions. SAP2005willtake more accountof for differentprices heating fuelsused. itsheating appliances andtheenergy performanceofabuilding, on thethermal SAPisbased rating (recalibration underSAP2005willgive atopscore of100). thebetter gives which ascore ofupto120–thehighernumber, (SAP), National statistics onenergy inhousingusetheStandard Assessment Procedure 2004, ODPM, 2003, ODPM, awareness. now apply for fundingfor messages promoting climate change toraise the Foresight programme sustainable consumptionthroughschoolmeals Guardian Development http://www.odpm.gov.uk/pns/DisplayPN.cgi?pn_id=2004_0216 September 13th ames MacGr he NottinghamDeclar Dtnad,2005, EDstandards, te .pect.net/index.html s Clima T gr(e oa oenetNtok,25January 2006, egor (New LocalGovernment Network), te ChangeComm et o A English HouseConditionSurvey al., Decent Home–thedefinitionandguidancefor implementation b te ImpactsPr y Motivating Sustainable Consumption a tion onClimate Change 2004, 2020 a A Low CarbonRoadmaptoaSustainable Future T t o ad utial lo n osa aaeet Identifying wards Sustainable FloodandCoastalManagement: the la gam,2005, ogramme, unica test. London underthreat? Floodingriskinthe Thames Gateway The Government’s response toKate Barker’s review of The Government’s response toKate Barker’s review of tions Initia 04 Statistical release 2004/2016, 2004. , The go can bedo uuefodn:executive summary Future flooding: Adapting to Climate Change:A Checklist for Adapting toClimate Change:A v Double Dividend?Promotingnutritionand ernment shouldsetatargeternment to Taking Stock tiv ESRC , Building Kno Sustainable Energy by Design wnloaded fr e means tha unpublished , wledg t om theLocal e local gr for aChanging reportof , oups can T he achieve this by 2015, as new homes will have to compensate for the anticipated 37 challenges of delivering carbon savings in existing stock, which will be more difficult to upgrade. We have set the target at ‘close to zero’ because we can get y t

close to zero carbon more quickly than zero carbon. Removing the last 5 per e i c

cent can be difficult and expensive and efforts would be better spent in other o s

areas, such as refurbishment. n

50 o Ibid b r

51 a

ODPM Press Release, March 2006 c

52 Defra, 2004, Energy Efficiency: the Government’s Plan for Action w o 53 l

www.hm-treasury.gov.uk/media/726/37/greenlandord010805.pdf a

54 g

Cambridge Architectural Research, 2003, Refurbish or Replace? Context Report n i

55 s

Sustainable Development Commission, 2006, Stock Take, unpublished u

56 o ODPM and HMT, December 2005, The Government’s response to Kate Barker’s review of h Housing Supply 57 See note 4. 58 For a fuller explanation see Sustainable Development Commission, 2006, Home Truths: our advice to Government on UK housing 59 Volume 1 – Theme 5, Environment and meteorology, page 75. 60 ODPM, 2004, Greening the Gateway 61 ODPM and HMT, December 2005, The Government’s response to Kate Barker’s review of Housing Supply 62 Town and Country Planning Association and Friends of the Earth, December 2005, Climate change and Planning MPs briefing http://www.tcpa.org.uk/climate_change_files/20051214_BriefingNote_MPs.doc 63 Ibid 64 ODPM and HMT, December 2005, The Government’s response to Kate Barker’s review of Housing Supply 65 ODPM, December 2005, Consultation Paper on new Planning Policy Statement 3: Housing 66 Defra, April 2006, Climate Change Programme Review 67 Ibid 68 Speech by Rt Hon David Miliband MP at Sustainable Communities Summit, February 2006. Green Alliance 36 Buckingham Palace Road, London SW1W 0RE tel: 020 7233 7433 fax: 020 7233 9033 email: [email protected] website: www.green-alliance.org.uk