House of Commons Environmental Audit Committee
Climate change and local, regional and devolved Government
Eighth Report of Session 2007–08
Report, together with formal minutes, oral and written evidence
Ordered by The House of Commons to be printed 8 July 2008
HC 225 Published on 28 July 2008 by authority of the House of Commons London: The Stationery Office Limited £23.00
The Environmental Audit Committee
The Environmental Audit Committee is appointed by the House of Commons to consider to what extent the policies and programmes of government departments and non-departmental public bodies contribute to environmental protection and sustainable development; to audit their performance against such targets as may be set for them by Her Majesty’s Ministers; and to report thereon to the House.
Current membership Mr Tim Yeo, MP (Conservative, South Suffolk) (Chairman) Gregory Barker, MP (Conservative, Bexhill and Battle) Mr Martin Caton, MP (Labour, Gower) Mr Colin Challen, MP (Labour, Morley and Rothwell) Mr David Chaytor, MP (Labour, Bury North) Martin Horwood, MP (Liberal Democrat, Cheltenham) Mr Nick Hurd, MP (Conservative, Ruislip Northwood) Mark Lazarowicz, MP (Labour/Co-operative, Edinburgh North and Leith) Mr Ian Liddell-Grainger, MP (Conservative, Bridgewater) Mr Shahid Malik, MP (Labour, Dewsbury) Mrs Linda Riordan, MP (Labour, Halifax) Mr Graham Stuart, MP (Conservative, Beverley & Holderness) Jo Swinson, MP (Liberal Democrat, East Dunbartonshire) Dr Desmond Turner, MP (Labour, Brighton, Kempton) Joan Walley, MP (Labour, Stoke-on-Trent North) Mr Phil Woolas, MP (Labour, Oldham and Saddleworth [ex-officio]
Powers The constitution and powers are set out in House of Commons Standing Orders, principally Standing Order No. 152A. These are available on the Internet via www.parliament.uk.
Publication The Reports and evidence of the Committee are published by The Stationery Office by Order of the House. All publications of the Committee (including press notices) are on the Internet at: www.parliament.uk/parliamentary_committees/environmental_audit_committee. cfm.
A list of Reports of the Committee from the present and prior Parliaments is at the back of this volume.
Committee staff The current staff of the Committee are: Gordon Clarke (Clerk); Sara Howe (Second Clerk); Richard Douglas (Committee Specialist); Oliver Bennett (Committee Specialist); Susan Monaghan (Committee Assistant); Stella Kin (Secretary); Elizabeth Gardner (Sandwich Student); and Ray Kennedy (Sandwich Student)
Contacts All correspondence should be addressed to The Clerk, Environmental Audit Committee, Committee Office, 7 Millbank, London SW1P 3JA. The telephone number for general inquiries is: 020 7219 6150; the Committee’s e-mail address is: [email protected]
Climate change and local, regional and devolved government 1
Contents
Report Page
Summary 3
1 Introduction 5
2 The role of local, regional and devolved government 5 The local government response 8 Barriers to action 9
3 The policy and performance management frameworks 10 Policy and policy coherence 10 Local Government Performance Framework 13 Local Area Agreements and indicators for local government 13 Comprehensive Area Assessment 16 Targets 17
4 Putting climate change on the agenda 20 The Nottingham Declaration 20 Engaging political leaders and senior staff 22 Making it part of the decision making process 23 Powers 24 The case for a statutory duty 24 Using existing powers effectively 25 Building knowledge and skills 27 Improving regional co-ordination 29 Regional structures and strategies 29 Review of Sub-National Economic Development and Regeneration 31 Devolved administrations 32 Adaptation 33
5 Conclusion 35
Conclusions and recommendations 36
Formal Minutes 40
Witnesses 41
List of written evidence 41
List of unprinted evidence 42
Climate change and local, regional and devolved government 3
Summary
Local, regional and devolved government all have distinctive roles to play in tackling climate change. A step change in the level of activity is needed at all levels and the Government has put in place a number of changes in the policy framework and performance management of local government that should help to bring this about. Having a coherent and co-ordinated approach to climate change policy from the centre will help, especially when balancing short-term economic pressures with longer-term questions about sustainable development. It is too early to say how effective the new performance management framework will be but the early indications are good. It will be vital to get the right targets in place to deliver the kind of action needed on both mitigation and adaptation.
The Nottingham Declaration, and its Scottish and Welsh equivalents, has been useful in raising awareness but more could be done to make sure that public commitments result in action. Spreading best practice and providing advice and guidance are also important. Making carbon impact assessments part of the decision making process could throw light on some of the issues around longer-term sustainability questions, particularly in relation to investment and planning decisions. The climate change agenda is a challenging one, especially for local authorities, and will depend on having people with the right skills and knowledge in place. Advice is available from a number of sources but the capacity of local authorities to respond is limited; the Government will need to think about how skills gaps are addressed and what support is needed.
A great deal of attention is being paid to efforts to reduce emissions; much less is paid to adaptation. Even if we are successful in reducing emissions we will face changes in our climate and much more needs to be done to prepare for these. The Government will bring forward a national framework on adaptation; it will need to ensure that greater attention is paid to adaptation at all levels of government in the UK.
Climate change and local, regional and devolved government 5
1 Introduction
1. The UK is unlikely to meet its domestic targets for reducing carbon emissions without greater emphasis on the behaviours of individuals and communities.1 Defra has recognised that action by local, regional and devolved bodies will be crucial to the achievement of targets.2 Local authorities, regional government and devolved administrations are well placed to play a significant part in reducing emissions; they manage large estates, provide services and act as community leaders. We welcome the final report from the Local Government Association’s Commission on Climate Change, published in December 2007, which said that local government was uniquely placed to tackle climate change.3 It recognised that local government had a democratic mandate for action, close proximity to citizens and a strategic role in leading public, private and voluntary sector partners. Local, regional and devolved governments will also have a key part to play in ensuring that the UK adapts to a changing climate; even if efforts to reduce emissions are successful some climate change is inevitable. The Governance of Britain Green Paper said, ‘The devolution settlement across the United Kingdom reflects the Government’s wish to ensure that decision-making is done at the right level: whether national, regional or in the local community’.4 The key question, within the context of the devolutionary agenda that is being pursued, is whether the policy framework the Government has put in place will deliver the step change in action on climate change needed in local, regional and devolved government.
2. We launched our inquiry on 28 November 2007 to assess the Government’s efforts to create the conditions in local, regional and devolved government where measures to address the challenge of climate change can be effectively supported and rewarded; we are grateful to all those who contributed and have acknowledged them at the end of our Report. The evidence we received and our Report deal mainly with the areas where there has been significant change and thus focus to a great extent on local authorities in England. The general principles underpinning our recommendations are more widely applicable. 2 The role of local, regional and devolved government
3. It is clear that the different levels of government in the UK all have distinctive roles to play in driving forward action to reduce emissions, supporting the move towards a low- carbon economy and adapting to changes in climate. In this part of our report we look at the role of local, regional and devolved government, and in particular at the response of local government. We identify some barriers that inhibit effective action and look briefly at the relationship between central and local government in this policy area.
1 Ev 109 2 Ev 55 3 Final Report of the LGA Climate Change Commission, a climate of change, December 2007 4 Ministry of Justice, The Governance of Britain, CM 7170, July 2007
6 Climate change and local, regional and devolved government
4. While the UK Government remains responsible for Kyoto targets and the programmes to deliver it, many of the policies implementing the UK’s climate change strategy are devolved matters.5 Devolution in the UK is asymmetric; there are different powers devolved to the administrations in Wales, Scotland and Northern Ireland. This inevitably means that each of the devolved administrations has a slightly different role to play with regard to climate change and a slightly different relationship with central Government. In England, regional government continues to evolve; through Government Offices in the regions certain administrative functions are decentralised and Regional Development Agencies (RDAs) were established in 1998. RDAs have a role in ensuring co-ordination of action on climate change across a region.6 It is only since 2006 that central Government has acknowledged the potential impact of local government.7 Local authorities can take action on their own estates but more importantly, they can help to lead and encourage work within the communities they serve.8 The part they play in leading and galvanising local partners and residents is probably more significant than their work to reduce their own emissions.9 In England, local authorities control significant expenditure; planned expenditure for 2006–07 was about £145bn, of which £110bn (76%) was provided by central Government.10
Figure 1: Local authorities can influence carbon emissions through their roles as estate managers, service providers and community leaders11
Role Examples of activities that can influence carbon emissions
Estate manager − Energy use − Procurement − Staff travel
Service provider − Management of social housing − Waste management − Local transport planning and infrastructure − Enforcing building regulations − Responsibility for the planning system − Responsibilities for schools and care homes
Community leader − Advice and information to local citizens − Advice and information to local businesses − Advice and information to other statutory and non-statutory organisations
5. Local, regional and devolved government all have distinctive roles in relation to climate change. Each must show leadership in tackling it, showing within their own operations what can be achieved12 but also influencing the communities they lead, co-ordinating
5 Ev 55 6 Ev 55 7 Q104 8 Ev 56 9 Q104 10 NAO, Central Government Support for local authorities on climate change, Briefing for the EAC, April 2007 11 Based on NAO, Central Government Support for local authorities on climate change, Briefing for the EAC, April 2007
12 Ev 24
Climate change and local, regional and devolved government 7
action and engaging with partners. There are important differences between bodies like local authorities, regional assemblies and devolved administrations, which have a democratic mandate and are ultimately accountable to their electorates, and bodies like Government Office and Regional Development Agencies, which have a key role to play in the delivery of Public Service Agreements and in championing action on climate change and bringing partners together. However, not all of the evidence presented to us showed a clearly defined role for local, regional and devolved government.13 It is vital that local, regional and devolved government have a clear understanding of their role in tackling climate change. We commend the work the Government has done in collaboration with the devolved administrations. We recognise that the Local Government Association’s Commission on Climate Change has helped to raise the profile of climate change and has made some important recommendations. However, central Government has a duty to co-ordinate how the different spheres of government in the UK interact and to integrate, within the context of devolution and localism, action on the issue of climate change.
6. The Department for Communities and Local Government and Defra have produced guidance jointly to help local authorities make the most of the new local government performance framework in taking forward work on climate change and sustainability.14 The Local Government Association’s Commission on Climate Change set out five major areas where councils could make real progress: adaptation to climate change, existing housing stock, planning, transport, and procurement.15 We were surprised that waste management did not feature in the list of priorities but agree that all of these are important areas for action by local authorities. We welcome the work of the Communities and Local Government Committee on climate change and existing housing and we have conducted a separate inquiry on new housing. Procurement is a key issue. Hilary Knox, Deputy Director, Association of North East Councils, said that local authorities were not only large estate managers but were large procurers of goods and services. She told us that if more of the £8bn spent procuring goods and services in the North East could be targeted towards sustainable procurement it would make a real difference.16 We were told that the scale of local government procurement was the order of £50bn17 and several of those submitting evidence to our inquiry agreed that procurement should be a priority area for action by local authorities.18 Procurement, housing, transport and adaptation are obviously areas where local authorities could expect to make significant progress but how these are balanced will depend on local circumstances. The Government made clear its national priorities in the Comprehensive Spending Review and has put real effort into cascading these to local government through Government Offices and the guidance it has produced. The selection of priorities by local authorities will be determined by their scope for action and any particular competency they have. But it is important that
13 Ev 133 14 DCLG and Defra, Climate change and sustainability: the crucial role of the new local performance framework, December 2007 15 Final Report of the LGA Climate Change Commission, a climate of change, December 2007 16 Q50 17 Q1 18 Q26, Q130 and Ev 28
8 Climate change and local, regional and devolved government
efforts to spread best practice and to provide advice and guidance draw their examples from the agreed priorities.
The local government response 7. A systematic, consistent and urgent response is needed from local government. There is some evidence that this is beginning to happen with:
• public commitments to tackle climate change;
• recognition for good practice through the Beacon Council Scheme;
• impact studies for each region, recognition of climate change in Regional Spatial Strategies and Regional Economic Strategies; and
• the development of climate action plans.19
8. However, the Environment Agency described the response as patchy and said historically there had been a rather poor picture; action has not been consistent or co- ordinated, and there is considerable variation in the quality of outcomes.20 A significant number of local authorities in England have yet to make a public commitment to tackle climate change.21 Follow-up has been poor even where public commitments have been made. Adaptation was often overlooked in plans and, where it was not, action has tended to be weak.
9. Today, the policy landscape is changing rapidly and greater attention is being paid to climate change in the policies and priorities of central Government. This will have a significant impact on the profile that climate change has at a local, regional or devolved level. Philip Mind, Senior Policy Consultant at the Local Government Association, told the Committee,
A lot will change over the next few years, as a number of policy drivers that have been put in place at the national level start to be implemented. For the first time, we will have carbon reduction performance indicators in the performance management framework. The largest local authorities will be subject to a carbon trading regime. We have a sustainable energy measures report which brings together best practice. There are a number of things which are happening now, therefore, which will encourage local action.22
The Local Government Association has recognised the pivotal role local authorities have to play and has made climate change one of its priorities for 2008.23 The work of the LGA’s Commission on Climate Change has helped to draw attention to the issues. Changes to the local government performance framework, the Sub-National Review of Economic
19 Ev 2 20 Ev 145 21 See paragraph 39. 22 Q4 23 Ev 1
Climate change and local, regional and devolved government 9
Development and Regeneration, changes to Planning Policy Statements, and new legislation, such as the Planning Bill, the Energy Bill, and the Climate Change Bill will all encourage action.24 We discuss some of these changes later in our report. It is too early to say whether changes in the policy framework, regional co-ordination and the performance management of local authorities will bring about the step change in activity on climate change that is needed.25 It is clear, however, that support from central Government will be crucial in making it happen.26
Barriers to action 10. It was clear from the evidence we received that there are several barriers to action on climate change. Professor John Chesshire OBE, Chairman of the Local Government Association’s Climate Change Commission, told us that local authorities had the discretion to act but lacked the motivation.27 The Association of North East Councils made a similar point.28 Other barriers identified include:
• cost and lack of capital;
• lack of political support;
• lack of people (staff and staff time) and skills (particularly project management and related skills);
• lack of recognition of climate change as a significant issue;
• resistance by the local community;
• lack of incentives and clear responsibility; and
• conflicting priorities29
11. Local, regional and devolved government will never be successful in overcoming barriers to progress on climate change if they lack the motivation to take action or the barriers they face are too high. External inspection, audit and challenge will undoubtedly play an important part in providing motivation, as will changes to the policy and performance management frameworks. The Government must look carefully at the incentives and encouragements it can offer to local, regional and devolved government and the steps it can take to help them overcome barriers to action.
24 Ev 146-148 25 Q119 26 Ev 3 27 Q2 28 Ev 30 29 Ev 107, Ev 93, Ev 111, Ev 46-47, Ev 134
10 Climate change and local, regional and devolved government
3 The policy and performance management frameworks
Policy and policy coherence 12. The draft Climate Change Bill will set legally binding nation-wide targets to reduce emissions of CO2 by 26-32% by 2020, and 60% by 2050. There are a number of different policy measures to deliver emissions reductions that will impact on local, regional and devolved government, including:
• the carbon reduction commitment;
• support for distributed energy;
• a duty in the Sustainable Energy and Climate Change Act 2006 on councils to ‘have regard’ to Government guidance on sustainable energy when ‘exercising their functions’;
• a climate change duty in the Greater London Authority Act 2006 on the Greater London Authority that includes both mitigation and adaptation;
• proposals in the draft Local Transport Bill to increase flexibility for councils to introduce local road user charging pilots; and
• a UK Adaptation Policy Framework.30
13. Other instruments with an impact on local or regional action on climate change include:
• Planning Policy Statement 1 on sustainable development, the new supplement to it on climate change and planning policy statement on economic development, development and flood risk (PPS25) and on Renewable Energy (PPS22);
• the Code for Sustainable Homes;
• Building a Greener Future: Towards Zero Carbon Development (consultation on proposals to reduce the carbon footprint of new housing development);
• the Energy Efficiency Commitment;
• the Home Energy Conservation Act 1995 and the duty to prepare an energy conservation report on residential accommodation;31
• the Decent Homes Standard;
• the DfT’s Smarter Choices initiatives (promoting more sustainable forms of transport);
30 LGA, Strengthening local action on climate change, Interim report by the Commission on Climate Change, July 2007 31 This is subject to a consultation by Defra. The Association for the Conservation of Energy indicated Defra was minded to repeal the legislation. (Ev 162)
Climate change and local, regional and devolved government 11
• the Sustainable Travel Towns initiative;
• Local Transport Planning guidance (LPT2-2004); and
• the Climate Change and Sustainable Energy Act (2006).
14. The Government has recognised that an integrated approach to economic growth can provide opportunities to increase local prosperity through jobs in new cleaner, greener technologies.32 But it must have a strategic framework with clear and coherent policies on climate change; climate change priorities need to be applied consistently across the breadth of policy development and the PSAs.33 The Green Alliance told the Committee this was needed to bring about a step change in action at a local level.34 The East of England Regional Development Agency stressed that the policy framework had to be underpinned by robust evidence and intelligence.35
15. Some of those who submitted evidence, like Hilary Knox from the Association of North East Councils, argued that there was already clarity and coherence in the policy framework and suggested the focus should be on helping local partners find an appropriate balance.36 In contrast, others, like WWF and the South East Climate Change Partnership, argued policy tensions made progress difficult. Some saw tensions in policy at a national level. WWF said the Government’s over-riding focus on economic development lead to a position where action on climate change almost impossible.37 Others saw a tension between policies focused on economic growth and those aimed at achieving sustainable development.38 The South East Climate Change Partnership said,
Short-term economic decision making is perhaps the key barrier to delivering the necessary changes, both locally and nationally. The regional bodies are taking steps to overcome this through setting long-term regional strategies, including action on climate change. However, there remains some tension between the sustainable development objectives in these strategies and national policies, especially regarding housing development, transport and energy policies.39
Warwickshire Council said there was a serious lack of management in the deployment of short- and long-term economic advice. It cited the conflict between Kate Barker’s report on short-term housing supply, which called for the planning system to have a lighter touch on development, and Stern’s work on the longer-term impacts of climate change on the economy, which called for more requirements to be imposed on development.40
32 Department for Communities and Local Government and Defra, Climate Change and Sustainability: the crucial role of the new local performance framework, Dec 2007. 33 Ev 97 34 Ev 133 35 Ev 105 36 Q67 37 Ev 113 38 Q30 39 Ev 129 40 Ev 171
12 Climate change and local, regional and devolved government
16. The Society for Motor Manufacturers and Traders said mixed messages from different levels of government could cause confusion and lessen the impact of climate change policies.41 WWF said,
Government consistently sends confusing messages to Regions with conflicting policy requirements. This is most obviously seen in the conflict between the support by central Government for regional airport expansion with the expectation to reduce climate change emissions.42
The Wildlife Trusts criticised the extent to which Government policy was joined-up. Giving planning as an example, they said, ‘Proposed reforms in planning and regional governance for example within CLG, threaten to undermine the concept of environmentally sustainable development by giving disproportionate weight to economic growth’.43 Several witnesses were concerned about the impact of the Sub-National Review and the Planning Bill. WWF said the proposed reorganisation of regional government structures emphasised economic development rather than sustainable development.44 The South East Climate Change Partnership saw changes proposed in the Planning Bill as reducing local participation on major infrastructure projects.45
17. The Minister of State at the Department for Environment, Food, and Rural Affairs, Phil Woolas MP, said there was no policy inconsistency; climate change had been taken into account in both the Sub-National Review and the regional priorities built into the PSA for regional economic achievement.46 He argued that public sector leadership and management understood the arguments presented in the Stern Report but that this understanding did not translate into decision making. In our Report on the structure of Government and the challenge of climate change we found that in the past policy had failed to coherently address the need to reduce emissions.47 We believe that local and regional government has in the past faced contradictions in national policy on climate change. Some problems with cross-government policy co-ordination remain; there are tensions between regional airport expansion and the need to limit emissions from aviation; it is not clear how the targets to build more homes will be compatible with efforts to lower emissions; increased road building and lack of a national strategy on road pricing are incompatible with the need to reduce emissions from road transport; it is unclear how district renewable energy and district heating are to be taken into account.
18. The Climate Change Bill will help but the Government must minimise the inconsistencies between policies and ensure departments across Whitehall have a joined up approach to climate change. Government must also provide clear advice and
41 Ev 153 42 Ev 113 43 Ev 122 44 Ev 113 45 Ev 129 46 Q163 [Woolas] 47 Environmental Audit Committee, Ninth Report of session 2006–07, The structure of Government and the challenge of climate change, HC740, para 26.
Climate change and local, regional and devolved government 13
help local, regional and devolved government understand how tensions in policy are to be reconciled, particularly how economic growth and sustainable development are to be prioritised. Economic and environmental policies must be integrated if we are to successfully move to a low-carbon economy.
Local Government Performance Framework 19. Climate change has not been an explicit priority for local government. However, the new local government performance framework will set new requirements for local authorities, and explicitly includes action on climate change. In the Local Government White Paper, Strong and prosperous communities, the Government set out its vision for a new local government performance framework.48 Under it local authorities must develop a Sustainable Community Strategy for which Local Area Agreements would be the ‘delivery plan’.49
Local Area Agreements and indicators for local government 20. Local Area Agreements (LAAs) are three-year agreements between central Government, the top tier of local government and their partners specifying performance measurement indicators, agreed outcomes, and funding. A local authority’s principal improvement targets will be negotiated with central Government within its LAA. Each LAA will include up to 35 national priority targets, selected from 198 indicators, along with 16 statutory targets on educational attainment and early years.50 The indicators within the LAA will be the only ones on which central Government will be able to set targets for local government.51 LAAs will be specific to a locality and outcome-based so that, while central Government is interested in what is delivered, it will be up to local partners to decide how to do it. Multi Area Agreements (MAAs) use the framework and principles of Local Area Agreements but facilitate cross-border working and collaboration at sub-regional level particularly on economic development.52 MAAs are at an early stage of development but could become important as they become more established. Local Area Agreements will be an important route for central Government funding of local authorities. Councils will receive an area based grant not tied to any specific programmes.53 With LAAs funds previously allocated for specific purposes can be ‘pooled’; local authorities, in partnership with a Local Strategic Partnership, can decide how the money is spent, so long as they meet the outcome targets specified in their LAAs.54 A reward grant is available for good
48 Department for Communities and Local Government, Strong and prosperous communities, Cm 6939, 26 October 2006 49 Department for Communities and Local Government and Defra, Climate Change and Sustainability: the crucial role of the new local performance framework, Dec 2007. 50 Department for Communities and Local Government and Defra, Climate Change and Sustainability: the crucial role of the new local performance framework, Dec 2007. 51 Department for Communities and Local Government, National Indicators for Local Authorities and Local Authority Partnerships: Handbook of Definitions, April 2008. 52 Library Research Paper 07/06, Sustainable Communities Bill (Bill No. 17 of Session 2006–07), Jan 2007 53 “Putting all the pieces in place”, Local Government Chronicle, 5 June 2008, pp18-19 54 NAO, Central Government Support for local authorities on climate change, Briefing for the EAC, April 2007
14 Climate change and local, regional and devolved government
performance against an LAA. Ministers are expected to sign off the LAAs in June and any announcement on them is likely to be made at the LGA’s conference early in July.55
21. The involvement of local partners, including the third sector and the private sector, will be important in mobilising local action on climate change.56 Local Strategic Partnerships (LSPs) bring together public, voluntary and private local organisations. The Environment Agency, Natural England, the National Parks and Broads Authority are all under a statutory duty to co-operate with local authorities to agree LAA targets, and to have regard, in the course of their business, to those they have agreed.57 Local authorities with their partners can agree additional targets in their LAA to support improved local delivery and outcomes, though these will not be subject to performance monitoring by the Government. This means that local strategic partnerships producing LAAs can, if they wish, increase the profile given to climate change in their LAA. The LGA Chair, Simon Milton, has called for all local authorities to have indicators on climate change at the core of their LAAs.58 Climate change is an area where one might expect to see priorities for local government being set nationally. Targets can be justified for local government on issues of national or international importance that may not be driving local priorities. All local authorities should be obliged to include the climate change indicators in their Local Area Agreements, either as negotiated targets or as voluntary targets.
22. The new performance framework reduces the number of indicators for local government from around 1200 to 198. They reflect priorities identified for central and local government in the 2007 Comprehensive Spending Review.59 A number of the indicators in the national set specifically address climate change and environmental sustainability. The three climate change related indicators are:
• NI 185: CO2 reduction from local authority operations
• NI 186: Percentage reduction of the per capita CO2 emissions in the Local Authority Area
• NI 188: Planning to Adapt to Climate Change.
23. The Energy Saving Trust felt the new performance indicators, Local Area Agreements and the Comprehensive Area Assessments (see paragraph 27) would help to ensure climate change was on local authorities’ agenda and would drive up performance across the board.60 The East of England Regional Development Agency felt the performance indicators would provide a real impetus for action at a local level through LSPs and LAAs.61
55 “Putting all the pieces in place”, Local Government Chronicle, 5 June 2008, pp18-19 56 Ev 109 57 Department for Communities and Local Government and Defra, Climate Change and Sustainability: the crucial role of the new local performance framework, Dec 2007. 58 Ev 3 59 Department for Communities and Local Government, National Indicators for Local Authorities and Local Authority Partnerships: Handbook of Definitions, April 2008. 60 Ev 42 61 Ev 106
Climate change and local, regional and devolved government 15
24. However, the Nottingham Declaration Partnership said that with 198 indicators competing for attention, the inclusion of 3 on climate change would not guarantee action.62 The UK Climate Impacts Programme (UKCIP) thought the new indicators were unlikely to have much impact locally unless taken up as one of the 35 priorities.63 The South East Climate Change Partnership noted that the lack of any requirement for them to be included in LAAs might affect the chance of meeting regional and national targets.64 Warwickshire Council pointed out that the way the indicators were handled made the whole issue discretionary and therefore one that would lose out against the inevitable budget process.65 Bob Fiddik, Sustainability Manager at Southwark Council, said if climate change was included in the community strategy then all three indicators should be selected in the Local Area Agreement.66
25. The Government has been careful to point out that all the priorities identified in the Local Area Agreement can make a contribution to tackling climate change and protecting the environment.67 The Wildlife Trusts argued that climate change indicators should be seen as underpinning activity in other areas like planning, transport, waste and water.68 Early indications are that large numbers of local authorities were adopting or intending to adopt performance indicators related to climate change.69 Phil Woolas said,
I believe [the indicator on percentage reduction of the per capita CO2 emissions in a local authority] is one of the most empowering articles for local government that there has been for many decades within the context of the international recognition of climate change and the domestic policy statutory and financial changes which are going on. That will allow, say, a council in the North East to work with ConocoPhillips, who have the largest combined heat and power plant in Europe, to have a strategy to do more, to the benefit of that area and the UK economy, so I am very, very excited. I hope we get 150 local authorities signed up to [it] and we will be watching DCLG’s statements very closely70
26. Defra seems to have been successful in persuading councils to include the climate change indicators; the indicator on emissions in a local area is one of the top three indicators selected by local authorities.71 Councils have clearly responded to the fact that the Government has made climate change a national priority. But there was also some evidence of tensions over the inclusion of indicators; Barking and Dagenham Council, a council that has been awarded beacon status for its work on climate change, has resisted pressure from the Government Office for London to include the climate change indicators
62 Ev 141 63 Ev 46 64 Ev 127 65 Ev 171 66 Q79 67 Department for Communities and Local Government and Defra, Climate Change and Sustainability: the crucial role of the new local performance framework, Dec 2007. 68 Ev 123 69 Q124 70 Q165 71 “Putting all the pieces in place”, Local Government Chronicle, 5 June 2008, pp18-19
16 Climate change and local, regional and devolved government
in its LAA. They argued that it would be impossible to reduce emissions given the current regeneration of the Thames Gateway.72 Whether or not a local authority has included the climate change indicators in its LAA, thinking about actions to reduce emissions and to adapt to the likely changes in climate should be part of the warp and weft of decision making in local authorities. The Government must make sure that local authorities are acting to reduce emissions and adapt to climate change across their full range of activities, and that the introduction of the indicators does not compartmentalise thinking about these issues. It is not just actions taken specifically in relation to the climate change indicators that have a role to play in reducing emissions or adapting to climate change. What is important is making sure that local authorities are considering the need to reduce emissions and to adapt to climate change in all of their investment and development plans.
Comprehensive Area Assessment 27. Central and local government have a shared objective of ensuring that public money is spent effectively and efficiently and that outcomes for local people are improving.73 Regular self-assessment will play an important part in the new performance management framework. However, external challenge is important. The Comprehensive Area Assessment (CAA) will measure performance in an area against all 198 indicators,74 not just the 35 (plus 16 educational and early years) indicators selected as local priorities for improvement in the LAA.75 Local authorities will be able to ‘monitor’ performance across all 198 indicators but their primary focus will be on the 35 indicators selected as part of their LAA. The Comprehensive Area Assessment will be carried out by local public service inspectorates, including the Audit Commission, working together. Their role is important.76 The Audit Commission and six other inspectorates are jointly developing an approach, which will be introduced from April 2009. As part of the CAA, the Audit Commission will ask if organisations are making effective use of their resources. This includes reducing greenhouse gas emissions and adapting to climate change. There is a growing commitment from the Audit Commission to addressing climate change in its assessments, and it had indicated in its ‘Use of Resources Assessment’ that it would look at how well an authority was tackling climate change in its use of resources.77 A focus on resource efficiency is useful but it should be remembered that it does not necessarily equate to lower carbon emissions. Each year’s CAA will have four elements:
• an area risk assessment identifying risks to outcomes and the effectiveness of their management;
• a scored use of resources judgement for public bodies in the area;
72 “Putting all the pieces in place”, Local Government Chronicle, 5 June 2008, pp18-19 73 HMG and LGA, An Introduction to the Local Performance Framework—Delivering Better Outcomes for Local People, November 2007 74 HMG and LGA, An Introduction to the Local Performance Framework—Delivering Better Outcomes for Local People, November 2007 75 Q108 76 Q43 77 Ev 141
Climate change and local, regional and devolved government 17
• a scored direction of travel judgement for each local authority in the area; and
• publication of performance data for each area against the set of national indicators.78
28. The LGA recognised that the Audit Commission needed to develop its capacity to help it meet its stated desire of placing greater emphasis on sustainability as long-term value for money requires the sustainable use of resources.79 The Energy Saving Trust also stressed the importance of ensuring that staff of the Audit Commission had the necessary skills.80 The assurance that the new performance framework is delivering will come from the independent Comprehensive Area Assessments carried out by the Audit Commission and other local inspectorates. We commend the work done by the Audit Commission and its partners to develop the framework for inspection. The Government must ensure that this work is adequately resourced and that the Audit Commission and the other inspectorates are able to recruit and develop the skills and expertise they will need.
Targets
29. Defra publishes annual experimental statistics on CO2 emissions at local and regional level in the UK. These provide estimates of total CO2 emissions and per capita emissions. They provide a breakdown of emissions into three key sectors—‘industrial, commercial and public’, ‘domestic’ and ‘road transport’. This data is intended to be used by local authorities and regional bodies to inform target setting81 and local targets could help drive local action.82
30. Groundwork, an environmental regeneration charity, said that the new indicators on climate change were welcome but argued that local targets might do more to stimulate action than inclusion of the indicators in Local Area Agreements.83 Clearly there will be targets agreed with central Government on the indicators in Local Area Agreements and local authorities and their partners could agree voluntary targets over and above those agreed with central Government in the LAA. It is important to remember that the Comprehensive Area Assessment will report on all indicators not just those for which an improvement target has been agreed.
31. The Government is not in favour of disaggregated targets but recognises that ‘the target at a local level needs to take account of what can be done at that local level’.84 The Government argued that there were sectoral and spatial approaches to reducing emissions. It did not matter that the sum of the spatial targets might be less than the national target because of the other approaches. They argued that cascading national targets was not
78 Department for Communities and Local Government and Defra, Climate Change and Sustainability: the crucial role of the new local performance framework, Dec 2007. 79 Ev 3 80 Ev 42 81 Ev 61 82 Ev 61 83 Ev 111 84 Q133
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consistent with greater devolution to local authorities;85 Iain Wright said the Government did not want to dictate to local government.86 Phil Woolas acknowledged that the statutory framework imposed by the Climate Change Bill would force the government of the day to address overall whether targets were being met by the different sectoral and spatial contributions.87
32. WWF said a clear message was needed about what was expected of local authorities, especially with regard to targets.88 In the absence of disaggregated national targets local, regional and devolved government have been free to set their own targets. Scotland has indicated its own emissions target for 2050 will be an 80% rather than 60% reduction. The Greater London Authority has committed itself to making a 60% cut by 2030. The South East Climate Change Partnership said local targets were being set by local authorities and regional bodies and it was only when national targets were clear that it would be possible to see how the local targets fitted with them.89 Any delay in setting national targets could lead to some authorities delaying action until they are sure it will be recognised.90 The Regional Development Agencies were clear that National Climate Change Programme targets and regional targets must knit together.91
33. The LGA does not support desegregation of targets but saw national targets guiding local targets.92 WWF thought local authorities should contribute to emissions reductions in-line with or exceeding national targets,93 while the North West Regional Development Agency said national targets must be disaggregated. It saw the proliferation of local targets (driven in part by the new indicator set) as potentially damaging because they could ‘drive a wedge between local and regional aspiration’.94 The East of England Development Agency said there was a need for clarity about whether targets would be cascaded or whether targets set locally, in the absence of targets set by Government, would be accepted.95
34. Accurate and reliable data are essential to support targets.96 It will be difficult to set baselines against which to measure progress in the absence of reliable data, especially on adaptation.97 There are some steps that can be taken to improve the information available. Bob Fiddik wanted councils to have better access to data on the use of electricity and gas locally; issues around confidentiality could be addressed by removing certain elements of
85 Q133 [Hughes] 86 Q126 [Wright] 87 Q134 88 Ev 113 89 Ev 127 90 Ev 127 91 Ev 100 92 Ev 3 93 Ev 114 94 Ev 94 95 Ev 106 96 Ev 100 97 Ev 126
Climate change and local, regional and devolved government 19
the data.98 National roll-out of smart meters could help to provide more accurate consumption data.99 There are other sources of data. The Energy Saving Trust has a Homes Energy Efficiency Database, which provides a picture of energy efficiency measures taken in UK housing stock;100 the LGA’s Commission on Climate Change noted that access to the database was more difficult than it needed to be.
35. We would expect that where the climate change indicators on reducing CO2 are included in a Local Area Agreement they will be accompanied by improvement targets that would be in line with, or run ahead of, national targets. It is important that targets are based on good data. Baselines will need to be set carefully. Targets for the adaptation indicator are much more difficult to construct; the indicator is about planning to adapt rather than measuring an outcome. The Government will need to help local authorities develop appropriate targets on adaptation. We discuss this at paragraph 74. Bob Fiddik argued that in reporting on the indicators councils should be able to provide a commentary.101 This would allow councils to explain and perhaps make adjustments for the weather but also put progress, or the lack of it, into some context by explaining the impact of, for example, local regeneration. We see no barrier to councils producing this kind of commentary.
36. We are encouraged that many of those who have set targets have demonstrated clear leadership and set targets that are more ambitious than the national targets. We understand the concerns the Government has about disaggregating national targets. The Committee on Climate Change will need to assess whether the sum of all the different spatial and sectoral approaches puts the UK on track to meet its targets for reducing emissions. If national targets are not disaggregated they should at least inform local target setting; regional government has a particular role to play in ensuring that local targets take account of both local factors and national targets.
37. It is important that local, regional and devolved governments do not focus exclusively on targets for reducing emissions in their efforts to tackle climate change. They have important contributions to make to other national targets such as those on use of renewable energy. The Renewable Energy Association said that local authorities needed to have targets for the use of renewables on their own estates and in households in their area so that their contribution to the UK’s proportion of the EU’s 20% renewables target could be assessed.102 Clearly, it is important that targets are stretching; in London the target for renewables in new developments was routinely met at 10% and has been increased to 20%.103 The Government should ensure that local, regional and devolved governments are aware of the range of targets beyond those on emissions and adaptation that action on climate change supports, like for example indicators on biodiversity, energy and energy efficiency.
98 Q79 99 Ev 120 100 Ev 42 101 Q84 102 Ev 154 103 Ev 101
20 Climate change and local, regional and devolved government
4 Putting climate change on the agenda
38. Iain Wright stressed the importance of getting climate change on to the mainstream agenda, saying ‘Sustainable development and thinking about climate change should be at the heart of what we do’.104 The Local Government Association said there should be proper mainstreaming105 and Councillor Paul Bettison, Chairman of Local Government Association Environment Board, argued that climate change needs to be ‘embedded within local authorities and, indeed, in all organisations’.106 Phil Woolas said that the Government was doing a number of things to help ensure climate change was on the agenda of local authorities, such as spreading best practice through the Beacon Council Scheme.107 Changes in the policy framework and the performance management of local authorities will do a great deal to put consideration of climate change on the mainstream agenda in local and regional government. In this section of our report we examine some of the other efforts to raise awareness of climate change issues and to make them part of the mainstream agenda, including the Nottingham Declaration, efforts to engage political leaders and senior staff, the powers local authorities have and the case for a statutory duty, efforts to address skills and knowledge gaps and work to improve regional co-ordination.
The Nottingham Declaration 39. The Nottingham Declaration is a commitment by local authorities in England to ‘develop plans with our partners and local communities to progressively address the causes and the impacts of climate change, according to our local priorities, securing maximum benefit for our communities’.108 The LGA has called on all councils to sign the Nottingham Declaration.109 All Scottish and Welsh Councils had signed their equivalent of the Declaration and the Nottingham Declaration Partnership said more that 280 English councils had signed the Declaration. At the time we took evidence, around 100 councils in England had not signed it.110 Since then the Local Government Association has launched its ‘Small Change, Big Difference’ campaign and by May more than 330 councils had signed the Declaration.111 The Partnership argued the benefit of the Declaration lay in committing senior management (both political leaders and chief executives) to take action.112 Steve Waller said,
[The Declaration’s] value is in the numbers that have signed it. It is a single side statement of a local authority’s commitment at the most senior level to address climate change, to work with partners and to address key elements of local
104 Q162 [Wright] 105 Ev 2 106 Q37 [Bettison] 107 Q127 [Woolas] 108 The Nottingham Declaration. See www.energysavingtrust.org.uk/housingbuildings/localauthorities/NottinghamDeclaration/ 109 Ev 2 110 Q88 111 LGA Press Release, 9 May 2008. See www.lga.gov.uk/lga/core/page.do?pageId=545773 112 Ev 140
Climate change and local, regional and devolved government 21
government responsibility to both reduce carbon emissions themselves, to reduce carbon emissions within the community and then also to integrate adaptation measures, both internally and externally as well. At its minimum it is just that, it has clearly been attractive to local authorities as a way of making a public statement, and I visit many councils who have a framed copy of it, signed, hung up in their reception as just that, as a public statement of their commitment to addressing climate change.113
Some of the evidence presented to us said the Nottingham Declaration had been successful in raising awareness.114 Hilary Knox said it helped ensure real commitment; all councils in the North East had signed it and had developed climate change action plans.115
40. However, some of those giving evidence to us found there were more effective ways of raising the profile of climate change within a council; Warwickshire Council told us they found that the Carbon Trust’s Local Authority Carbon Management Action plan had generated more discussion and engagement within their council than signing the Nottingham Declaration.116 Signing the declaration is just the first step; co-ordinated local and regional action is needed to deliver and move beyond commitments.117 Some councils have taken little or no action since signing the Declaration.118 Steve Waller accepted that the response of signatories had been varied.119 The North West Regional Development Agency pointed out that signing the Nottingham Declaration proved nothing if it was not backed up by the resources to turn commitment into action.120
41. The Nottingham Declaration Partnership proposed a new voluntary accreditation scheme to encourage action beyond the initial public commitment.121 Such a scheme could provide the Audit Commission with useful evidence of how well a council was responding to adaptation and mitigation and provide assurance about local actions.122 Any accreditation scheme would have to be voluntary. Councils could progress through different levels of achievement (for example, bronze, silver and gold) based largely on self- assessment but with external assessment at the higher levels.123 In this way costs associated with the scheme could be kept to a minimum. The costs associated with external verification might be covered by councils as they do for similar schemes on equalities or environmental management.124
113 Q86 114 Ev 26 115 Q66 116 Ev 171 117 Ev 126 118 Ev 171 119 Q100 120 Ev 94 121 Ev 140-141 122 Q92 123 Q87 124 Q90
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42. The Nottingham Declaration has been useful in providing a starting point for action by local authorities but these public commitments must be turned into real actions; this must be about more than a framed copy of a declaration hung in the reception area of a council building. Assessment and verification is important and the Government should work with the Nottingham Partners to develop a scheme that combines self-assessment and external verification of actions. The Government and the Audit Commission should examine what role such a scheme could play in assessing the performance of local authorities as part of Comprehensive Area Assessments and therefore what priority should be given to developing some kind of externally verified scheme.
Engaging political leaders and senior staff 43. In many local authorities climate change is still seen as a purely environmental issue and is dealt with by a small team rather than being integrated into decision making and policy across the board in the local authority.125 Dr Chris West, Director, UK Climate Impacts Programme, said one of the reasons councils failed to make progress was, ‘… that although climate change is acknowledged to be a central cross-cutting issue it actually has a home in many organisations, in councils in particular, in the environment directorate’.126 He said, ‘When the finance director takes notice we know that they have taken a quantum jump in dealing with the issue’.127 He argued that at top board level the issue was not appreciated because senior staff had no experience of it.
44. There is an over-reliance on wilful individuals.128 ‘Wilful individual’ is a term, that has been used to describe determined individuals who have been effective at bringing about change or delivering projects and activities, often in the face of barriers and obstruction.129 Philip Mind told the Committee that ‘Most of the action that has taken place so far in the exemplar authorities has been attributed […] to wilful individuals’.130 Iain Wright, while recognising the importance of mainstreaming climate change issues,131 stressed the importance of ‘wilful individuals’ and encouraging people to recognise that they could make a difference on an individual level.132 We acknowledge the impact and contribution ‘wilful individuals’ have made and they have a role to play still in championing the issue. But mainstreaming action on climate change must be more than this; it must get beyond ‘wilful individuals’ if it is to bring about the step change in the level of activity that is needed.
125 Ev 129 126 Q115 127 Q115 128 Q114 and Ev 133 129 DEFRA, Mobilising individual behavioural change through community initiatives: Lessons for Climate Change, A Report by the Centre for Sustainable Energy (CSE) and Community Development Xchange (CDX) for DEFRA, DCLG, DTI, DfT and HMT, February 2007 130 Q4 131 Q125 [Wright] 132 Q126 [Wright]
Climate change and local, regional and devolved government 23
45. Developments in the policy framework will have an impact on how the climate change agenda is seen. Phil Woolas thought the Climate Change Bill would have a major impact.133 He also said that the Carbon Reduction Commitment, which starts in April 2010, would make the response to climate change a ‘matter of financial interest’, changing the way it was viewed.134 He said, ‘We believe the carbon reduction commitment will change the way in which public sector management behaves because it will make it part of the balance sheet and the income and expenditure account’.135 He thought this would be the tipping point at which the issue moved from ‘the Cabinet Member or chairs of environment committees’ in-trays to the lead Member on finance, the chief executive and leaders’ in- trays’.136
46. The Government must ensure policies, like the Carbon Reduction Commitment, make a difference to the way climate change is handled in local government so that it becomes an issue that engages the political leaders and senior officials and not just the band of ‘wilful individuals’ in environment teams.
Making it part of the decision making process 47. One of the recommendations of the Local Government Association’s Commission on Climate Change was that every major policy planning or investment or spending decision should have a carbon impact assessment. Philip Mind said such a mechanism could help ‘mainstream tackling climate change right across a council’s functions’.137 The Local Government Association supported the call for the introduction of a whole-life cycle costing approach.138 Both the North West Regional Development Agency and WWF made similar points about embedding carbon reduction criteria in decision making and funding processes.139 WWF argued that an approach that used embedded carbon could even be used to ensure emissions generated outside an authority’s geographical area were counted.140 Bob Fiddik said that buying the best environmental product or service depended on being able to compare whole-life costs, not just the up front capital costs; but that this approach was not common in the public sector. He noted that the way financing in local authorities was structured did not help; separate capital and revenue budgets meant that savings from revenue could not easily be transferred back into capital budgets to help pay for more environmental sustainable products, which often had higher up front capital costs. The organisation of funding streams in local government reflected the way funding was arranged and passed down by central Government.141 The Government should consider what part carbon impact assessments should play in local, regional and devolved government. It should assess what support would be needed to allow carbon
133 Q126 [Woolas] 134 Q125 [Woolas], Q130 135 Q130 136 Q158 137 Q28 138 Ev 2 139 Ev 94 and Ev 114 140 Ev 114 141 Q51
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impact assessments to play a central role in local, regional and devolved government decision and policy making process and then issue guidance to encourage their use. It must also look at the extent to which the organisation of budgets and funding streams is a barrier to a whole-life costing approach.
Powers
The case for a statutory duty 48. One of the LGA’s Commission on Climate Change’s key recommendations was the need to consider the statutory underpinning for local government action on climate change.142 Some of the evidence presented to us argued for a statutory requirement for action to be taken on climate change or for the statutory basis for action to be strengthened in a number of areas.143 Groundwork cautioned against imposing a one-size fits all solution; they said local areas should have the autonomy to decide what action to take on climate change.144 Professor Chesshire said, ‘I am not yet convinced that […] slapping a statutory duty on anybody necessarily accelerates momentum or achieves an outcome.’145 He argued it would be more meaningful, particularly in terms of encouraging action, to have a number of specific powers.146 He said the aim should be to provide a ‘richer statutory context in which local authorities are empowered to act’ and suggested to us that the opportunity presented by legislation currently before the House should be used to ‘pepper’ the statute book with requirements on local authorities that would focus attention and increase activity.147 There are plenty of opportunities to do this. For example, the Environment Agency said the Climate Change Bill should place a duty on all public bodies to take future climate change impacts into account when exercising their functions.148
49. There are other examples. Concepts in the Civil Contingencies Act 2004 could be extended to climate change by adding a provision to the Climate Change Bill to require specific bodies, including local authorities, to undertake a climate change risk assessment of their planning and investments and to identify an action plan to address the risks.149 The Planning Bill, currently before the House, contains a provision to ensure that development plan documents included policies to ensure that the development and use of land in a local authority’s area contributes to mitigation of and adaptation to climate change.150 The Environment Agency argued that there was a case for a similar provision aimed at regional bodies.151 Iain Wright said this was unnecessary because Regional Development Agencies had a duty with regard to sustainable development, by virtue of the RDA 1998 Act,152 and
142 Q29 143 Ev 148 144 Ev 112 145 Q45 146 Q45 147 Q33 148 Ev 146 149 Ev 146 150 Ev 147 151 Ev 147
Climate change and local, regional and devolved government 25
the Sub-National Review would ensure that sustainable development was properly embedded.153
50. Phil Woolas said that the combination of the new Local Government Performance Framework and a duty to co-operate with partners would provide the necessary underpinning.154 The Local Government’s Commission on Climate Change recommended that over the next two years, there must be a significant and measurable improvement in the local government response to climate change and that a statutory duty should be imposed on those councils that fail to respond.155 Phil Woolas said that if the UK was not able to show that the reduction of greenhouse gas emissions was in line with requirements the question of a statutory duty to tackle climate change would have to be re-examined.156
51. By and large, we believe that the current approach to a statutory power to tackle climate change is correct. There are already powers for local government that permit action and the lack of a statutory duty does not seem to be holding back the more innovative local authorities. The Government should examine carefully the case for improving the statutory underpinning for action on climate change; each new bill should be examined to see what scope there is for requirements on local, regional and devolved government to be inserted in order to focus attention and increase activity. The Government should be ready to intervene early if there are any indications that the steps it has taken are not delivering the kind of change in the level of activity on climate change that is needed.
Using existing powers effectively 52. Echoing what the Secretary of State said when the Local Government White Paper was launched, Phil Woolas said,
Characteristic of that new regime is the requirement for a management and leadership culture which says, ‘We can do things,’ rather than, ‘Government won’t let us do things’157
Local authorities have powers that they can use to take action on climate change. Some councils have applied themselves to the issue of climate change and the barriers to action creatively. For example Kirklees Council has launched a scheme to promote renewables. Their scheme tries to address the principal barriers to the uptake of renewables by homeowners such as cost, confidence in the technology, its capabilities and how it was installed. Private householders will be able to install up to £10,000 of renewable technology in their homes and pay for it when their home is sold via a second charge on the property.
152 Q128 153 Q128 and Q129 154 Q142 [Woolas] 155 Final Report of the LGA Climate Change Commission, a climate of change, December 2007 156 Q144 157 Q147
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The Renewable Energy Association called on the Government to encourage local authorities to set up schemes like Kirklees’ Recharge Scheme.158
53. Some legislation has helped to simulate action on climate change. The Home Energy Conservation Act 1995, was the result of a Private Members Bill sponsored by Diana Maddock MP, now Baroness Maddock. It required all UK local authorities with housing responsibilities to prepare an energy conservation report identifying measures to significantly improve the energy efficiency of all residential accommodation in their area and to report on progress in implementing the measures. In their memorandum, the Association for the Conservation of Energy (ACE) said HECA was the only legislation- backed policy on climate change mitigation specifically addressing local government. Groundwork said HECA had created a climate change capacity in some councils although others saw the legislation as a burden rather than a platform for further action.159 ACE argued the legislation was being allowed to ‘wither on the vine’ despite the Energy Saving Trust showing it to be by far the most effective energy saving programme before the introduction of the Energy Efficiency Commitment. They said Defra seem to have little interest in enforcing HECA, had not effectively pursued those who do not submit reports in time, were late in publishing figures and seem unconcerned about the accuracy of returns.160 In 2007, Defra reviewed HECA to assess its contribution in delivering improvements in energy efficiency for households.161 The review informed a consultation on HECA in which the Government set out its preference for HECA to be repealed. Defra has said that the majority of respondents supported the Government’s preference but that some favoured other options, including repeal contingent on other developments, such as progress on the new local government performance framework. Defra continues to consider the future of HECA.
54. The Local Government Act 2000 introduced a new power for local authorities to promote the ‘environmental, economic and social well-being’ of their communities. It provides local authorities with a discretionary power to undertake any action to promote or improve the social, economic and environmental well being of their area.162 The wellbeing power provides an opportunity for councils to tackle complex problems in a sustainable way.163 It encouraged councils to look beyond their immediate service delivery responsibilities to the wider well-being of their areas. It could, for example, be argued that work on adaptation should be a major component of well-being. However, these new well- being powers are not well understood.164 Dr Chris West said, ‘councils struggle with the concept of delivering well-being in the community’.165 Research suggests few local
158 Ev 155 159 Ev 110 160 Ev 161 161 Defra, Summary of responses to the consultation on the Review of the Home Energy Conservation Act 1995 (HECA) 11 October 2007– 3 January 2008, June 2008 162 Office of the Deputy Prime Minister, Formative Evaluation of the Take-Up and Implementation of the Well Being Power, 2003–2006, A baseline report for ODPM from the School of Public Policy, University of Birmingham and the Cities Research Centre, University of the West of England, April 2005 163 Improvement and Development Agency website. See www.idea.gov.uk 164 Q58 165 Q119
Climate change and local, regional and devolved government 27
authorities are actually using them to support sustainable energy initiatives.166 Although Christine Seaward, Environment Futures Manager at Hampshire County Council, welcomed these powers she said they needed to be linked to other roles and responsibilities within councils and with local partners.167 Phil Woolas thought that well-being powers were recognised by senior people in local authorities but had not filtered down enough.168 Guidance on the well-being powers will be published shortly following an evaluation of them.169
55. There is a difference between a discretionary power, like the well-being powers introduced by the Local Government Act 2000, which allows a council to take some action, and a statutory duty that forces them to take some action. With discretionary powers advice, guidance and action to spread best practice become crucial. The poor take up of the well-being powers shows there are lessons to be leaned from their introduction and welcome the fact that guidance will be published shortly following on from an evaluation of them. The Government should take steps to encourage councils to use the powers available to them creatively and innovatively to reduce emissions and drive forward work on adaptation.
Building knowledge and skills 56. Sharing best practice is a key part of overcoming some of the barriers identified in paragraph 10. The Beacon Councils Scheme, set up to disseminate best practice in service delivery across local government, now includes climate change.170 Iain Wright stressed its importance as a means of highlighting best practice.171 Steve Waller said that 26 councils applied for beacon status in the ‘Tackling Climate Change’ theme in round nine of the Beacon Councils scheme.172 Nine were short-listed and five were awarded beacon status.173 The Energy Measures Report is another example of provision of advice to councils on what could be achieved.174 Published on 18 September 2007, it set out the steps that local authorities could take to:
• improve energy efficiency;
• increase the levels of microgeneration and low carbon technologies;
• reduce greenhouse gas emissions; and
• reduce the number of households living in fuel poverty.
166 NAO, Central Government Support for local authorities on climate change, Briefing for the EAC, April 2007 167 Q61 168 Q150 [Woolas] 169 Q155 [Wright] 170 Q100 and Q88 171 Q145 172 Q 88 173 LACORS, ‘Tackling climate change’ Beacon Award winners announced, See www.lacors.gov.uk/lacors/NewsArticleDetails.aspx?id=18912 174 Q155 [Hughes]
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57. Local authorities will have to ‘have regard’ to the report when exercising their functions. In addition to spreading best practice, building knowledge and understanding of what is achievable is important and demonstration projects in, for example, low-carbon buildings and technologies, have an important role to play.175 Allied to best practice is the need for better information on the impact of a range of interventions on emissions. Steve Waller said that Defra was considering whether better advice could be provided on the kinds of emissions or emissions reductions associated with different measures and interventions at different spatial levels.176
58. A number of bodies provide assistance on climate change:
• the Carbon Trust and Energy Saving Trust offers advice and support on reducing greenhouse gas emissions to local authorities through schemes such as the Carbon Trust’s Local Authority Carbon Management Programme and the Energy Saving Trust’s key account programme;
• the Improvement and Development Agency supports and promotes local authority action on climate change; and
• UKCIP offers advice on regional impacts and adaptation.177
59. The skills and capacity within local authorities to address climate change issues needs to be considered.178 In Woking, a knowledge base was built up over a number of years by starting with small-scale actions on its own estate. Woking is now one of the leading councils on climate change and says it was the first UK authority to have adopted a comprehensive Climate Change Strategy on a scale likely to meet The Royal Commission on Environmental Pollution targets of 60% reductions of CO2 equivalent emissions by 2050 and 80% by 2100.179 There are concerns about the ability and capacity of the various bodies with a remit to support local authorities if the changes in the policy framework bring about a step change in activity and demand for their services increases significantly. The South East Climate Change Partnership said the UK Climate Impacts Programme did not have sufficient staff to provide the kind of support on adaptation that was available on emissions.180 The Association for the Conservation of Energy said agencies, such as the Energy Saving Trust (EST), were setting up and abandoning successful local government programmes and pilots for budgetary reasons.181 The LGA thought that current support for local authorities could be more effectively targeted and said that support could be easily be overstretched as councils start to place more emphasis on climate change.182 The Energy Saving Trust told us that,
175 Ev 96 176 Q95 177 NAO, Central Government Support for local authorities on climate change, Briefing for the EAC, April 2007 178 Q36 179 Woking Borough Council website. See www.woking.gov.uk/environment/climatechangestrategy 180 Ev 128 181 Ev 161 182 Ev 4
Climate change and local, regional and devolved government 29
Whilst the Energy Saving Trust and the members of the Nottingham Declaration Partnership are providing support to LAs to deliver climate change action, the resources required to cover all LAs is well beyond what is currently available. For example, the Energy Saving Trust’s key account management for LAs, at the current level of 30 LAs per year, would take 12 years to cover all LAs.183
60. The Green Alliance told us work was needed to increase skills and ensure that sufficient resources were available.184 The Local Government Association called for a review of the quality of the level of support available and action to address the skills gaps.185 Phil Woolas said because capacity within local authorities was not ‘significant enough’ partnership approaches at a regional and sub-regional level and with the private sector were all important.186 Regional Development Agencies could play a useful part in developing skills and capacity.187
61. Building skills and knowledge in local and regional government is key. There is a real risk that, if the changes in the performance management and policy frameworks deliver a step-change in activity, the bodies providing support could be overwhelmed by demand. The Government should review the level of support available and ensure that action is taken to address any gaps in skills, including identifying how this extra support and action to address gaps in skills is to be funded. This will be vital in the priority areas identified by the LGA’s Commission on Climate Change.
Improving regional co-ordination
Regional structures and strategies 62. There are a number of different regional bodies with an involvement in climate change.
• Regional climate change partnerships bring together public, private and voluntary organisations with the aim of understanding the likely impacts of climate change in the geographical area they cover and then adapting and mitigating the effects of climate change in an integrated way. Not all local authorities belong to regional climate change partnerships.188 They vary in scope and there is uncertainty about their funding in the longer-term.189
• Government Offices (GOs) represent 10 central Government departments in the regions. They work with regional and local partners to ensure that the principles of sustainable development and the priority areas for action, including climate change, are incorporated into all regional strategies and programmes. They have been involved in negotiating and managing elements of the new performance framework.
183 Ev 44 184 Ev 134 185 Ev 2 186 Q161 [Woolas] 187 Ev 107 188 Ev 128 189 Ev 146
30 Climate change and local, regional and devolved government
• Regional Development Agencies (RDAs) have an established role in shaping strategies and are already acting on climate change.190 They have a remit to improve regional economic performance. The Environment Agency said insufficient attention was paid by RDAs to the economic risks posed by climate change impacts.191 Regional assemblies currently have responsibility for Regional Spatial Strategies but must be consulted by RDAs on the development of Regional Economic Strategies. From 2010, their role will be transferred to Regional Development Agencies.
63. RDAs and Government Offices have a key role to play in the delivery of several PSA targets. They have a strategic responsibility for economic development, transport, housing and spatial planning, including regeneration and the environment. Regional Sustainable Development Frameworks (RSDFs) set out priorities for action and climate change features specifically in some of these frameworks as a theme, objective or indicator. The Regional Economic Strategy sets out a vision for the strategic development of a region while the Regional Spatial Strategy addresses housing, transport and environmental issues. The 2005 guidance on developing Regional Economic Strategies said,
The RES must have a clear focus on economic development, and both it and actions to implement it must be based on sustainable development principles set out in the March 2005 Sustainable Development Strategy. The RES should help advance the shared priorities for UK action set out in the strategy—Sustainable Consumption and Production, Climate Change and Energy, Natural Resource Protection and Environmental Enhancement, and Sustainable Communities—in terms that reflect regional distinctiveness. In developing the RES a full sustainability appraisal should be carried out in order to identify how the RDA and its partners will contribute to sustainable development. The appraisal should be informed by the Regional Sustainable Development Framework or the equivalent in the region, and should be published alongside the RES.192
64. It is important to consider how what happens at a local level feeds into the national picture. Clearly, devolved administrations and regional bodies should play their part in ensuring that action at a local level is taken jointly and is well co-ordinated.193 The Environment Agency said that regions should have a strategic overview of climate change.194 The East of England Development Agency told us it was important that the targets in Local Area Agreements were aligned with Regional Economic Strategies and national Climate Change Programme targets.195 They said that Regional Climate Change Action Plans were an important means for ensuring effective co-ordination.196
190 Ev 96 191 Ev 146 192 HM Treasury, BERR and CLG, Review of sub-national economic development and regeneration, July 2007. Available at www.hm-treasury.gov.uk. 193 Ev 113 194 Ev 151 195 Ev 106 196 Ev 106
Climate change and local, regional and devolved government 31
65. Some witnesses told us that there was good regional and local co-operation on climate change issues.197 For example, London’s sustainable development plan (London’s Plan) has helped to promote energy efficiency, renewables and microgeneration.198 It promoted standards of sustainable building and forced developers to connect to ‘decentralised’ energy supplies.199 Others were less certain about how effective co-operation was. EAGA plc said there was a ‘troubling level of uncertainty in the relationship between [local authorities] and regional bodies’ in terms of responsibility for action on climate change.200 The South East Climate Change Partnership said there was ‘some way to go’ in developing joined up strategy between regional agencies.201
66. Regional co-ordination is important and the Government must ensure that the different players are all clear about their respective roles. We believe that as well as co- ordinating action on climate change between the different spheres of government in the UK, it is important that there is a joined up approach between local, regional and devolved government and other public service provision. For example, local authorities have little control over the decision of a health authority to reconfigure local hospitals but the resulting changes in traffic flows could have an impact on emissions locally.202 Another example is support by central government for regional airport expansion with the expectation that local authorities will reduce climate change emissions.203
Review of Sub-National Economic Development and Regeneration 67. Treasury guidance on the Review of Sub-National Economic Development and Regeneration stresses that ‘Economic development needs to be taken forward in the context of the challenges of environmental constraints, including the issue of climate change, described by Lord Stern as the greatest global market failure the world has seen’.204 The Government has proposed that there should be a single integrated regional strategy setting out the economic, social and environmental objectives for each region. This will be formed by bringing together the Regional Economic Strategy and the Regional Spatial Strategy. Climate change must be a part of RESs, RSSs and, going forward, the single regional strategies.205 Some witnesses saw these changes as an opportunity. Groundwork said the sub-national review, new planning guidance and proposals for the local government performance framework all offered opportunities to get greater action on climate change.206 The South East Climate Change Partnership said the review offered an opportunity to get regional agencies working more closely together with local authorities.207 The Review says ‘The Government will significantly reform the RDAs’
197 Q110 198 Ev 131 199 Ev 131 200 Ev 139 201 Ev 126 202 Q22
203 Ev 113 204 HMT, Review of sub-national economic development and regeneration, July 2007 205 Ev 111 206 Ev 111 207 Ev 126
32 Climate change and local, regional and devolved government
objectives, replacing their current tasking framework with a simplified outcome and growth-focused framework defined by a single over-arching growth objective’.208
68. RDAs will in future have their performance assessed solely in terms of economic growth. RDAs will have to have regard to sustainable development objectives, but they will be focused on economic growth. The Environment Agency was concerned that the Sub- National Review reforms focused too narrowly on economic growth. They argued that the primary aim of the Single Regional Strategy should be to achieve sustainable development and that in addition to economic objectives there should be:
• an overarching objective to tackle climate change (especially adaptation);
• a statutory duty for Regional Development Agencies to deliver sustainable development; and
• a requirement for the Comprehensive Area Assessment to track delivery on climate change.209
69. We urge the Government to review how the Review of Sub-National Economic Development and Regeneration addresses sustainable development and ensure that the opportunities it offers for improving local and regional co-operation on climate change issues are taken.
Devolved administrations 70. The Scottish Parliament, the National Assembly for Wales and the Northern Ireland Assembly have the legislative competence to introduce their own policies and measures in devolved areas. But the three devolution settlements are different and each administration has a distinct set of responsibilities, and powers to act, to tackle climate change.210 Indeed in some areas they have set targets that are more ambitious that the national targets; In the Scottish Executive has proposed an 80% emissions reduction target and targets for Scottish renewable generation to account for 31% of whole Scottish electricity demand by 2011, rising to 50% by 2020.211 The UK Climate Change Programme 2006 was developed in partnership with the devolved administrations, which have all set out their own strategies in Scotland’s Climate Change Programme, the One Wales Agreement and the Northern Ireland Sustainable Development Strategy.212 The memoranda submitted to us by the devolved administrations indicated there were few problems in the relationship between them and central Government on the question of climate change. There appears to have been good co-operation with the administrations in Wales and Scotland over the Climate Change Bill and on key areas for joint working, including the EU ETS and the Carbon Reduction Commitment.213 What issues there are appear to be around communication and
208 HMT, Review of sub-national economic development and regeneration, July 2007 209 Ev 142 210 Ev 55 211 Ev 175 212 Ev 56 213 Ev 184
Climate change and local, regional and devolved government 33
the nature of the devolution settlement. The Scottish Executive said there were a few examples of issues where it was not fully engaged or consulted late by counterparts in central Government.214 They also made the point that under the Scotland Act 1998 the division of responsibility between central Government and the devolved administration was complex. Their scope for action in some areas, like energy policy, was limited by the devolution settlement. They argued that further devolution would make a valuable contribution.
71. We commend the good co-operation between central Government and the devolved administrations on climate change. The Government must maintain the good will that exists in this area is by ensuring it consults the devolved administrations as early as possible on cross-border issues. The Government, in consultation with the devolved administrations, should review the devolution settlements to see if there are any areas where action on climate change is being hampered either by asymmetric devolution or by the way reserved and devolved powers interact.
Adaptation 72. Local authorities have a long standing responsibility to protect their communities from risk. The Environment Agency noted that climate change posed a direct risk to regional agencies, local authorities and devolved administrations and will affect how they exercise their functions and deliver their services.215 The LGA told us work on adaptation is ‘immature’ and lacked a national policy framework.216 The UK Climate Impacts Programme (UKCIP)’s evidence supported this saying Defra had not yet promoted significant action on adaptation.217 The Association of British Insurers (ABI) said that greater attention had to be paid to adaptation and noted there was a piecemeal approach to tackling flooding.218 The ABI noted that there was scope for actions on mitigation to aid or complement actions on adaptation. For example, planting forests to sequester carbon could stabilise soils and prevent flooding, rural electrification can support sustainable development and planting trees can help reduce the urban heat-island effect. Building design must tackle better temperature modulation without resorting to an energy dependant system.219 The Wildlife Trusts argued that adaptation needed to be given greater attention and should be given the same priority as mitigation.220 According to Local Government Analysis and Research’s survey:
• only about 15% of councils have included adaptation of their own buildings and facilities in their climate change strategy/policy and about 7% have included adaptation of their own housing stock, the two most popular adaptation elements in relation to councils’ own activities;
214 Ev 177-178 215 Ev 142 216 Ev 3 217 Ev 45 218 Ev 135 219 Ev 136 220 Ev 122
34 Climate change and local, regional and devolved government
• 62% of councils are developing or intend to produce a climate change strategy or policy;
• 80% of respondents to the LGAR survey said that overall, in their opinion, their local authority had been not very effective, or not at all effective, in adapting to climate change.221
73. The Government needs to clarify the differing roles of regional and local bodies in taking forward work on adaptation.222 A national policy framework that puts in place the necessary resources is needed.223 Effective adaptation strategies need to be tailored to local communities. Action on adaptation and mitigation must be a key element of sustainable community Strategies, LAAs, Local Development Frameworks and other local and regional strategies.224
74. There is currently no statutory duty on councils to take action on adaptation—other than to ensure that flood risk is taken into account at all stages in the planning process to avoid inappropriate development in areas at risk of flooding, and to direct development away from areas of highest risk. Although from 2008, local authorities will have to report on an adaptation indicator in the new performance framework.225 The Regional Development Agencies said the indicator on adaptation should drive action but only where it is selected.226 UKCIP said it was too early to say how effective the new adaptation indicator would be but it was not likely to be particularly effective unless taken up as part of the 35 indicators for local target setting within Local Area Agreements.227 The Wildlife Trusts also welcomed the climate change adaptation indicator within the local government performance framework but noted it was a process target for producing adaptation strategies; it required complementary outcome targets to make a difference. The indicator on local biodiversity could provide such an outcome, highlighting the performance of Local Wildlife Site systems but only where the two indicators were used together. The climate change adaptation indicator should be seen as an underpinning measure which influences activity in other areas such as planning, transport, waste and water.228 Measuring progress on adaptation will be difficult229 and creating a measurable performance indicator on adaptation remains a challenge.230
75. The UK is a world leader in terms of the kind of support for adaptation available through UKCIP.231 The information available on, for example, local impacts in the
221 Final Report of the LGA Climate Change Commission, a climate of change, December 2007 222 Ev 142 223 Ev 19 224 Ev 111 225 Final Report of the LGA Climate Change Commission, a climate of change, December 2007 226 Ev 100 227 Ev 46 228 Ev 123 229 Q95 230 Ev 19 231 Q111
Climate change and local, regional and devolved government 35
UKCIP02 scenarios (soon to be replaced by UKCIP08 scenarios)232 are seen as important.233 However, support for councils in this area is outstripped by the support for mitigation.234 UKCIP argued that more resource was needed to support work on adaptation.235 Central Government has a role to play in supporting the development and implementation of adaptation strategies.236 UKCIP is not sufficiently staffed to provide the kind of support on adaptation that is available on mitigation through the Carbon Trust and Energy Savings Trust. There is a need to increase support at national and regional level for adaptation and to integrate it more closely with mitigation.237
76. Phil Woolas said an adaptation framework was to be published and noted the Climate Change Bill would strengthen action on climate change.238 However, Dr Chris West, Director, UK Climate Impacts Programme, said the Government did not see a need for coercion on adaptation because it was something that would benefit the adapter and would therefore be done; people were assuming it was not a problem because they were not required to look at it.239 He set out a number of reasons why adaptation remained invisible to management boards in local authorities. There are other barriers too; the skills and knowledge of staff, a lack of focus on adaptation in decisions on procurement or building plans and the short-term nature of decision making in local government that does not look at costs over the whole life-cycle of an investment.
77. Adaptation must be a higher priority. We are concerned that adaptation has been treated as the poor relation of work on mitigation and not nearly enough attention has been paid to it. The Government must accelerate plans to bring forward the national adaptation framework and then ensure that adaptation is properly reflected in the work of local, regional and devolved government across the UK. 5 Conclusion
78. Overall we are encouraged by the efforts that the Government has made to raise the profile of the need to address climate change at the different levels of government in the UK. It has put in place a number of changes that should bring about a step change in the level of activity at a local or regional level. It clearly has an effective dialogue with the devolved administrations on climate change issues. However, it is too early to say whether changes to the policy and performance framework will bring about change on the scale that is needed; the Government will need to monitor activity closely and must be ready to intervene early if it looks like insufficient progress in being made. Work will need to continue on the Sub-National Review. There have been significant changes for local authorities and the Government will need to continue its efforts to build skills and
232 Final Report of the LGA Climate Change Commission, a climate of change, December 2007 233 Ev 107 234 Ev 3 235 Ev 45 236 Ev 128 237 Ev 128 238 Q141 [Woolas] 239 Q107
36 Climate change and local, regional and devolved government
knowledge in local government so that they can meet the aspirations set for them by the Government. Setting baselines and targets will be challenging but is crucial if the changes to the performance management framework in England are to deliver the step change in the level of activity that is needed. A great deal is said about spreading best practice but there will be a real challenge in making this relevant to local experience. Above all Government must ensure that this agenda is about real change. Conclusions and recommendations
1. It is vital that local, regional and devolved government have a clear understanding of their role in tackling climate change. We commend the work the Government has done in collaboration with the devolved administrations. We recognise that the Local Government Association’s Commission on Climate Change has helped to raise the profile of climate change and has made some important recommendations. However, central Government has a duty to co-ordinate how the different spheres of government in the UK interact and to integrate, within the context of devolution and localism, action on the issue of climate change. (Paragraph 5)
2. Procurement, housing, transport and adaptation are obviously areas where local authorities could expect to make significant progress but how these are balanced will depend on local circumstances. The Government made clear its national priorities in the Comprehensive Spending Review and has put real effort into cascading these to local government through Government Offices and the guidance it has produced. The selection of priorities by local authorities will be determined by their scope for action and any particular competency they have. But it is important that efforts to spread best practice and to provide advice and guidance draw their examples from the agreed priorities. (Paragraph 6)
3. Local, regional and devolved government will never be successful in overcoming barriers to progress on climate change if they lack the motivation to take action or the barriers they face are too high. External inspection, audit and challenge will undoubtedly play an important part in providing motivation, as will changes to the policy and performance management frameworks. The Government must look carefully at the incentives and encouragements it can offer to local, regional and devolved government and the steps it can take to help them overcome barriers to action. (Paragraph 11)
4. We believe that local and regional government has in the past faced contradictions in national policy on climate change. Some problems with cross-government policy co- ordination remain; there are tensions between regional airport expansion and the need to limit emissions from aviation; it is not clear how the targets to build more homes will be compatible with efforts to lower emissions; increased road building and lack of a national strategy on road pricing are incompatible with the need to reduce emissions from road transport; it is unclear how district renewable energy and district heating are to be taken into account. (Paragraph 17)
5. The Climate Change Bill will help but the Government must minimise the inconsistencies between policies and ensure departments across Whitehall have a
Climate change and local, regional and devolved government 37
joined up approach to climate change. Government must also provide clear advice and help local, regional and devolved government understand how tensions in policy are to be reconciled, particularly how economic growth and sustainable development are to be prioritised. Economic and environmental policies must be integrated if we are to successfully move to a low-carbon economy. (Paragraph 18)
6. Climate change is an area where one might expect to see priorities for local government being set nationally. Targets can be justified for local government on issues of national or international importance that may not be driving local priorities. All local authorities should be obliged to include the climate change indicators in their Local Area Agreements, either as negotiated targets or as voluntary targets. (Paragraph 21)
7. Whether or not a local authority has included the climate change indicators in its LAA, thinking about actions to reduce emissions and to adapt to the likely changes in climate should be part of the warp and weft of decision making in local authorities. The Government must make sure that local authorities are acting to reduce emissions and adapt to climate change across their full range of activities, and that the introduction of the indicators does not compartmentalise thinking about these issues. It is not just actions taken specifically in relation to the climate change indicators that have a role to play in reducing emissions or adapting to climate change. What is important is making sure that local authorities are considering the need to reduce emissions and to adapt to climate change in all of their investment and development plans. (Paragraph 26)
8. The assurance that the new performance framework is delivering will come from the independent Comprehensive Area Assessments carried out by the Audit Commission and other local inspectorates. We commend the work done by the Audit Commission and its partners to develop the framework for inspection. The Government must ensure that this work is adequately resourced and that the Audit Commission and the other inspectorates are able to recruit and develop the skills and expertise they will need. (Paragraph 28)
9. We would expect that where the climate change indicators on reducing CO2 are included in a Local Area Agreement they will be accompanied by improvement targets that would be in line with, or run ahead of, national targets. It is important that targets are based on good data. Baselines will need to be set carefully. Targets for the adaptation indicator are much more difficult to construct; the indicator is about planning to adapt rather than measuring an outcome. The Government will need to help local authorities develop appropriate targets on adaptation. (Paragraph 35)
10. We are encouraged that many of those who have set targets have demonstrated clear leadership and set targets that are more ambitious than the national targets. We understand the concerns the Government has about disaggregating national targets. The Committee on Climate Change will need to assess whether the sum of all the different spatial and sectoral approaches puts the UK on track to meet its targets for reducing emissions. If national targets are not disaggregated they should at least inform local target setting; regional government has a particular role to play in
38 Climate change and local, regional and devolved government
ensuring that local targets take account of both local factors and national targets. (Paragraph 36)
11. The Government should ensure that local, regional and devolved governments are aware of the range of targets beyond those on emissions and adaptation that action on climate change supports, like for example indicators on biodiversity, energy and energy efficiency. (Paragraph 37)
12. The Nottingham Declaration has been useful in providing a starting point for action by local authorities but these public commitments must be turned into real actions; this must be about more than a framed copy of a declaration hung in the reception area of a council building. Assessment and verification is important and the Government should work with the Nottingham Partners to develop a scheme that combines self-assessment and external verification of actions. The Government and the Audit Commission should examine what role such a scheme could play in assessing the performance of local authorities as part of Comprehensive Area Assessments and therefore what priority should be given to developing some kind of externally verified scheme. (Paragraph 42)
13. We acknowledge the impact and contribution ‘wilful individuals’ have made and they have a role to play still in championing the issue. But mainstreaming action on climate change must be more than this; it must get beyond ‘wilful individuals’ if it is to bring about the step change in the level of activity that is needed. (Paragraph 44)
14. The Government must ensure policies, like the Carbon Reduction Commitment, make a difference to the way climate change is handled in local government so that it becomes an issue that engages the political leaders and senior officials and not just the band of ‘wilful individuals’ in environment teams. (Paragraph 46)
15. The Government should consider what part carbon impact assessments should play in local, regional and devolved government. It should assess what support would be needed to allow carbon impact assessments to play a central role in local, regional and devolved government decision and policy making process and then issue guidance to encourage their use. It must also look at the extent to which the organisation of budgets and funding streams is a barrier to a whole-life costing approach. (Paragraph 47)
16. We believe that the current approach to a statutory power to tackle climate change is correct. There are already powers for local government that permit action and the lack of a statutory duty does not seem to be holding back the more innovative local authorities. The Government should examine carefully the case for improving the statutory underpinning for action on climate change; each new bill should be examined to see what scope there is for requirements on local, regional and devolved government to be inserted in order to focus attention and increase activity. The Government should be ready to intervene early if there are any indications that the steps it has taken are not delivering the kind of change in the level of activity on climate change that is needed. (Paragraph 51)
17. There is a difference between a discretionary power, like the well-being powers introduced by the Local Government Act 2000, which allows a council to take some
Climate change and local, regional and devolved government 39
action, and a statutory duty that forces them to take some action. With discretionary powers advice, guidance and action to spread best practice become crucial. The poor take up of the well-being powers shows there are lessons to be leaned from their introduction and welcome the fact that guidance will be published shortly following on from an evaluation of them. The Government should take steps to encourage councils to use the powers available to them creatively and innovatively to reduce emissions and drive forward work on adaptation. (Paragraph 55)
18. Building skills and knowledge in local and regional government is key. There is a real risk that, if the changes in the performance management and policy frameworks deliver a step-change in activity, the bodies providing support could be overwhelmed by demand. The Government should review the level of support available and ensure that action is taken to address any gaps in skills, including identifying how this extra support and action to address gaps in skills is to be funded. This will be vital in the priority areas identified by the LGA’s Commission on Climate Change. (Paragraph 61)
19. Regional co-ordination is important and the Government must ensure that the different players are all clear about their respective roles. We believe that as well as co-ordinating action on climate change between the different spheres of government in the UK, it is important that there is a joined up approach between local, regional and devolved government and other public service provision. (Paragraph 66)
20. We urge the Government to review how the Review of Sub-National Economic Development and Regeneration addresses sustainable development and ensure that the opportunities it offers for improving local and regional co-operation on climate change issues are taken. (Paragraph 69)
21. We commend the good co-operation between central Government and the devolved administrations on climate change. The Government must maintain the good will that exists in this area is by ensuring it consults the devolved administrations as early as possible on cross-border issues. The Government, in consultation with the devolved administrations, should review the devolution settlements to see if there are any areas where action on climate change is being hampered either by asymmetric devolution or by the way reserved and devolved powers interact. (Paragraph 71)
22. Adaptation must be a higher priority. We are concerned that adaptation has been treated as the poor relation of work on mitigation and not nearly enough attention has been paid to it. The Government must accelerate plans to bring forward the national adaptation framework and then ensure that adaptation is properly reflected in the work of local, regional and devolved government across the UK. (Paragraph 77)
40 Climate change and local, regional and devolved government
Formal Minutes
Tuesday 8 July 2008
Members present
Mr Tim Yeo, in the Chair
Mr Martin Caton Mr Graham Stuart Colin Challen Jo Swinson Mr David Chaytor Dr Desmond Turner Mr Liddell-Grainger
Climate change and local, regional and devolved government
The Committee considered this matter.
Draft Report (Climate change and local, regional and devolved government), proposed by the Chairman, brought up and read.
Ordered, That the draft Report be read a second time, paragraph by paragraph.
Paragraphs 1 to 78 read and agreed to.
Summary agreed to.
Resolved, That the Report be the Eighth Report of the Committee to the House.
Ordered, That the Chairman make the Report to the House.
Written evidence was ordered to be reported to the House for printing with the Report.
Written evidence was ordered to be reported to the House for placing in the Library and Parliamentary Archives.
Ordered, That embargoed copies of the Report be made available, in accordance with the provisions of Standing Order No. 134.
[Adjourned till Wednesday 9 July 2008 at 3.15pm
Climate change and local, regional and devolved government 41
Witnesses
Tuesday 15 January 2008 Page
Professor John Chesshire OBE, Chairman of the Climate Change Commission, Councillor Paul Bettison, Chairman of the Local Government Association Environment Board, and Philip Mind, Senior Policy Consultant, Local Government Association Ev 5
Tuesday 22 January 2008
Christine Seaward, Environment Futures Manager, Hampshire County Council, Bob Fiddik, Sustainability Manager, Southwark Council and Hilary Knox, Deputy Director, Association of North East Councils Ev 32
Lewis Morrison, Head of Community Advice, Energy Saving Trust, Steve Waller, Sustainability Advisor, Improvement and Development Agency for Local Government, and Dr Chris West, Director, UK Climate Impacts Programme Ev 47
Wednesday 2 April 2008
Phil Woolas MP, Minister of Sate (Environment), Mr James Hughes, Head of Climate and Energy: Strategy and Public Sector, Department for the Environment, Food and Rural Affairs, Iain Wright MP, Parliamentary Under- Secretary of State and Andrew Campbell, Director of Local Strategic Partnerships and Performance, Department of Communities and Local Ev 75 Government
List of written evidence
1 Hampshire County Council Ev 18 2 The Nappy Alliance Ev 88 3 Scotland & Northern Ireland Forum for Environmental Research (SNIFFER) Ev 89 4 Environmental Services Association Ev 91 5 Salix Finance Ltd Ev 92 6 North West Regional Development Agency Ev 93 7 Regional Development Agencies Ev 96 8 East of England Development Agency Ev 102 9 Groundwork UK Ev 109 10 WWF Ev 113 11 Energy Saving Trust Ev 42 12 Energy Retail Association Ev 119 13 The Wildlife Trusts Ev 121
42 Climate change and local, regional and devolved government
14 South East Climate Change Partnership Ev 125 15 Micropower Council Ev 130 16 UK Climate Impacts Programme Ev 44 17 Association of North East Councils Ev 23 18 Green Alliance Ev 132 19 Association of British Insurers Ev 135 20 Waste and Resources Action Programme Ev 136 21 eaga plc Ev 138 22 London Borough of Southwark Ev 20 23 Local Government Association Ev 1: Ev 17 24 Nottingham Declaration Partnership Ev 140 25 Environment Agency Ev 142 26 Society of Motor Manufacturers and Traders Limited Ev 152 27 Renewable Energy Association Ev 154 28 City of London Ev 155 29 Defra Ev 55 30 Association for the Conservation of Energy Ev 159 31 Warwickshire County Council Ev 170 32 Department of the Environment (Northern Ireland) Ev 173 33 Scottish Government—from Minister for Transport, Infrastructure & Climate Change Ev 175 34 Welsh Assembly Government Ev 182
List of unprinted evidence
The following memoranda have been reported to the House, but to save printing costs they have not been printed and copies have been placed in the House of Commons Library, where they may be inspected by Members. Other copies are in the Parliamentary Archives, and are available to the public for inspection. Requests for inspection should be addressed to The Parliamentary Archives, Houses of Parliament, London SW1A 0PW (tel. 020 7219 3074). Opening hours are from 9.30 am to 5.00 pm on Mondays to Fridays.
Calor Gas Ltd
Climate change and local, regional and devolved government 43
List of Reports from the Committee during the current Parliament
The reference number of the Government’s response to each Report is printed in brackets after the HC printing number.
Session 2007–08 First Report Are biofuels sustainable? HC 76-I & -II (HC 528) Second Report Reducing Carbon Emissions from UK Business: The HC 354 (HC 590) Role of the Climate Change Levy and Agreements Third Report The 2007 Pre-Budget Report and Comprehensive HC 149-I & -II (HC 591) Spending Review: An environmental analysis Fourth Report Are Biofuels Sustainable? The Government Response HC 528 (HC 644) Fifth Report Personal Carbon Trading HC 565 Sixth Report Reaching an international agreement on climate HC 355 change Seventh Report Making Government operations more sustainable: A HC 529 progress report Eight Report Climate change and local, regional and devolved HC 225 government Ninth Report Carbon capture and storage HC 654 Tenth Report Vehicle Excise Duty HC 907
Session 2006–07 First Report The UN Millennium Ecosystem Assessment HC 77 (HC 848) Second Report The EU Emissions Trading Scheme: Lessons for the HC 70 (HC 1072) Future Third Report Regulatory Impact Assessments and Policy Appraisal HC 353 (HC 849) Fourth Report Pre-Budget 2006 and the Stern Review HC 227 (HC 739) Fifth Report Trade, Development and Environment: The Role of HC 289 (HC 1046) FCO Sixth Report Voluntary Carbon Offset Market HC 331 (HC 418) Seventh Report Beyond Stern: From the Climate Change Programme HC 460 (HC 1110) Review to the Draft Climate Change Bill Eighth Report Emissions Trading: Government Response to the HC 1072 Committee’s Second Report of Session 2006–07 on the EU ETS Ninth Report The Structure of Government and the challenge of HC 740 (HC 276) climate change
44 Climate change and local, regional and devolved government
Session 2005–06 First Report Greening Government: the 2004 Sustainable HC 698 Development in Government Report Second Report Sustainable Timber HC 607 (HC 1078) Third Report Sustainable Procurement: the Way Forward HC 740 Fourth Report Pre-Budget 2005: Tax, economic analysis, and climate HC 882 (HC 195) change Fifth Report Sustainable Housing: A follow-up report HC 779 Sixth Report Keeping the lights on: Nuclear, Renewables, and HC 584 (HC 196) Climate Change Seventh Report Sustainable Development Reporting by Government HC 1322 (HC 1681) Departments Eighth Report Proposals for a draft Marine Bill HC 1323 (HC 1682) Ninth Report Reducing Carbon Emissions from Transport HC 981 Tenth Report Trade, Development and Environment: The Role of HC 1014 (HC 197) DFID Eleventh Report Outflanked: The World Trade Organisation, HC 1455 (HC 354) International Trade and Sustainable Development Twelfth Report Transport Emissions: Government Response to the HC 1718 Committee’s Ninth Report of Session 2005–06 on Reducing Carbon Emissions from Transport
Environmental Audit Committee: Evidence Ev 1 Oral evidence
Taken before the Environmental Audit Committee
on Tuesday 15 January 2008
Members present
Mr Tim Yeo, Chairman
Mr Martin Caton Mark Lazarowicz Colin Challen Jo Swinson Mr David Chaytor Joan Walley Martin Horwood
Memorandum submitted by the Local Government Association 1. While climate change aVects the whole world it is only by taking local action that we can best help defeat it. Local government has a pivotal role in leading this action in both reducing carbon emissions and preparing the local area for the potentially devastating eVects of a changing climate. 2. Many councils are leading the way in responding to climate change. For example, Merton Council on the provision of renewable energy, Kirklees on domestic energy eYciency, Hampshire County Council on adaptation and Nottingham City Council on sustainable transport. 3. The independent Climate Change Commission delivered its report last month, with recommendations on how councils can best tackle climate change. The LGA will be making climate change a major priority in 2008 and we will continue to help councils lead the way in helping the UK meet its carbon reduction targets. 4. In the last year there have been significant changes to the way local authorities are encouraged to tackle climate change and how their performance will be judged. It is too early to say what impact these have had on work on the ground. 5. Councils will need the support of national government if they are going to eVectively tackle climate change. The government needs to recognise the role councils play in engaging their communities to help stop climate change and remove key barriers to local action. Developing the skills and capacity of local government to improve their response to climate change is key.
Background Local government is uniquely placed to tackle climate change—both mitigation (cutting emissions) and adaptation (preparing for the worst). Councils help reduce carbon emissions and manage the risks of climate change in five ways: — By leading action in their communities through example. Councils can take action in their buildings, transport fleets and as a housing provider to reduce energy usage, use energy more eYciently and use renewable energy sources. Kirklees council are investing in the energy eYciency of the area’s entire housing stock (see Annex A). — Through service delivery. Councils in England have a procurement budget of around £50 billion per annum. There are some obvious opportunities in the procurement of buildings, transport, goods and services to reduce carbon emissions. For example, to buy or lease energy eYcient vehicles and other energy eYcient products. Westminster City Council has installed over 50 electric vehicle charging points into council car parks. West Sussex County Council have written carbon management into contract specifications (see Annex A). — By regulating for a low carbon economy—councils can use their building control and planning powers to reduce carbon emissions. Merton Council led the way a few years ago requiring all non- residential developments to secure 10% of their energy from renewable sources and now 166 other councils are looking at implementing the “Merton rule”. Uttlesford Council requires homeowners to take cost eVective energy eYciency measures as a condition of planning consent for home extensions (see Annex A). — By making Local Area Agreements with other local bodies to work together to tackle climate change. — By helping communities assess and guard against the major risks of a changing climate and maintaining services during emergencies. Hampshire County Council has held a commission of inquiry into the impact of climate change for the county (see Annex A). Ev 2 Environmental Audit Committee: Evidence
There are a number of councils that have led the way in acting on climate change and have developed innovative approaches that have been adopted by other councils. Over 280 councils have now signed the Nottingham Declaration on climate change with the council leader and chief executive giving top level commitment to put in place strategies to tackle both mitigation and adaptation. There is a growing recognition within local government that climate change needs a systematic, consistent and urgent response from all councils.
LGA Response to the Committee’s Questions
How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government? 1. There are a number of ways in which the LGA’s Climate Change Commission has suggested that central government could support local action more eVectively. These include: — First, by ensuring that all levels of government, all departments and the public sector consider climate change in all policy development and action, for example, through carbon impact tests. — Second, by ensuring that opportunities aVorded by the legislative programme are taken to strengthen the statutory underpinning for local government action. — Third, by reviewing the quality and level of support available to local councils to tackle climate change and supporting local government to develop a suite of interventions, such as peer reviews and leadership training, to help drive improvement in local government and the wider public sector. — Fourth, working with the regional development agencies, and skills bodies, to identify the skills gaps that are constraining local action and to take action to close them. There is, for example, a shortage of skilled energy managers in the public sector. — Fifth, working with the LGA, CIPFA, Audit Commission and National Audit OYce to introduce a whole-life cycle costing approach into procurement practices that takes account of the costs of carbon and overcomes the tension with short-term financial eYciency.
Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? 1. It is not yet clear how the targets in the Climate Change Bill will be delivered and what contribution could be made by diVerent sectors. There needs to be flexibility in what can be delivered at the local level. 2. All councils will be required to report on the reduction of carbon emissions relating to both their estate and the local area as part of the CAA. The same level of accountability and transparency should apply across the public sector. 3. In many areas councils are co-ordinating their response to climate change. The Association of North East Councils has set up a council member led group on climate change to work collectively and collaboratively to tackle climate change. 4. Over 280 councils have signed the Nottingham Declaration which has been highly eVective at mobilising council’s commitment to tackling climate change. The LGA is calling on all councils to sign the declaration or make an equivalent commitment. The LGA, as part of the Nottingham Declaration Partnership, is also proposing an accreditation scheme where councils would provide evidence to demonstrate their action on climate change. The partnership is talking to the Audit Commission about how such a scheme could complement the Comprehensive Area Assessment.
What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? 1. In the last year there have been significant changes to the way local authorities are encouraged to tackle climate change and how their performance is to be judged. These include new indicators for the Comprehensive Area Assessment (CAA) on climate change; the Carbon Reduction Commitment, a mandatory cap and trade emissions trading scheme that will apply to larger authorities; and the Energy Measures Report which councils must “have regard to” in exercising their functions. 2. The Audit Commission has said that it will place much more emphasis on sustainability as long-term value for money requires the sustainable use of resources. They are also consulting on how a council deals with climate change will be considered in its “Use of Resources Assessment”. Environmental Audit Committee: Evidence Ev 3
3. It is too early to judge the impact of the new performance indicators and the approach to the CAA taken by the Audit Commission. This change will require it to develop its capacity to make judgements on issues of sustainability. Other agencies, such as government oYces and the Environment Agency will also need to improve their capacity to engage with local strategic partnerships on climate change.
To what extent should there be disaggregated targets for diVerent levels of government? How should independent targets, for example Scotland will set its own emissions target for 2050 (80% reduction rather than UK target of 60%) and the Greater London Authority has committed itself to making a 60% cut by 2030, fit together with national carbon targets and budgets? How can Government monitoring and forecasting of emissions be improved so as to disaggregate emissions, and the impact of carbon reduction policies, in diVerent regions and nations? 1. Sir Simon Milton, chair of the Local Government Association, has called on every council to have climate change targets at the core of their local area agreements. He emphasised their choice about how they tackle climate change, but they should make it central to what they do. 2. Targets should be set at the local level by bringing together the public, private and voluntary sectors in Local Strategic Partnerships. They need to be evidence based and tailored to local conditions—we could not support a crude disaggregation of national targets. The LGA does however support the national targets which serve as a guiding ambition for each local area and have already informed local target setting in many areas. 3. We support the need to develop more sophisticated national data collection where it does not impose new burdens on local government. There are however a number of technical issues with the current area based emissions data, in particular, the way in which the data takes account of transport related emissions.
How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are local authorities, regional government and devolved administrations? 1. It is clear that policy and action on adaptation is relatively immature compared to mitigation. There are no national measures or benchmarks of a well adapted organisation or area. Neither is there a national policy framework on adaptation. 2. It is important therefore that central government place a much greater emphasis on adaptation, and provide much more support to councils in identifying risk and mapping vulnerabilities. The support available to councils to develop approaches to adaptation is small in contrast to the support available for mitigation.
How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK? 1. Given the importance of local action to tackling both mitigation and adaptation, it is essential that the Committee on Climate Change has a deep understanding and knowledge of the local government role. It is essential that it is able to access local government expertise.
What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? 1. The most significant barrier to local action is skills and capacity. This varies in nature—from a small district council lacking the oYcer capacity to develop action on climate change to the need to significantly scale up the sustainable building and energy eYciency skills in the design, planning and construction industries—both for new build and to address the energy eYciency of the existing housing stock. It is an issue that applies to other sectors—the economy needs to skill up for a low carbon future. 2. The LGA would therefore like to see a national strategy to identify the skills gaps and specific sectors and geographical areas. Some work has been done by the DTI (now BERR) with the regional agencies. But it needs to be expanded and pick up key issues such as developing local energy supply.
What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions? 1. We are pleased that the new Planning and Policy statement embeds at the heart of the planning system a focus on the need to minimise greenhouse gas emissions in new developments and to ensure that development decisions reflect risk assessments of the impact of climate change. Critically both are to be assessed together rather than seen as separate issues for planning consideration. Ev 4 Environmental Audit Committee: Evidence
2. Importantly the PPS recognises the role of planning in minimising emissions through encouraging low carbon and renewable energy supplies. Locally produced energy and decentralised energy systems are given a specific focus through various provisions in the PPS. The PPS reiterates the central role that councils have in determining the sustainability of their areas and provides for the flexibility for locally determined approaches where appropriate and justified. 3. However there needs to be clear guidance from the government that the provision for “testing local requirements” in paragraph 33 of the PPS does not allow developers to unnecessarily challenge the decisions of councils. 4. The impact will also be dependent on the capacity within councils to undertake complex assessments across a range of technical areas. We will work with CLG and stakeholders on improving councils capacity to respond to the PPS. It is imperative that all players, including developers and the construction industry, are pro-active in responding positively to the PPS.
Are local authorities meeting their duty to enforce building regulations in relation to environmental measures? Does the enforcement regime discourage non-compliance? 1. The move to place energy eYciency at the heart of the building regulations was widely welcomed. However, whilst the new requirements are relatively immature, there have been problems with the practical implementation. 2. There is concern that enforcement of the building control regime, in particular the energy eYciency requirements in Part L of the Building Regulations, is not functioning eVectively. This is acknowledged by DCLG who are looking at the future of building control. The LGA is particularly concerned that the current regulatory regime—with a dual and competitive public and private sector market for building control—is undermining compliance with building standards.
What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? 1. There are many examples of local best practice, some are included in annex A. Within local government, the IDEA plays the leading role in both capturing and spreading best practice. The LGA has worked with the Nottingham Declaration Partnership, the Energy Saving Trust, IDEA and Carbon Trust to provide practical support and advice to councils. 2. Many local authorities are working very successfully with the agencies the committee lists. But the support could be more eVectively targeted on councils that would like to raise their performance on climate change, and that for “entry” level councils there was a need for a simple one-stop shop oVer. There is also a concern that as councils place more emphasis on climate change that the available support would be over stretched. 8 January 2008
Annex A
BEST PRACTICE EXAMPLES
Kirklees Council Kirklees Council’s new Warm Zone Plus was set up in 2007. It oVers all homes the opportunity to have loft and cavity wall insulation installed free on a systematic, house by house basis. Contact is by a personal visit oVering energy eYciency advice, low cost insulation and grant aided measures. Over the three years of the programme, the council expects more than 40,000 homes to install energy eYciency measures under the first scheme in the country to oVer all households in one area free insultation. Warm Zone Plus which will cost £21 million over three years is being funded through capital borrowing (using prudential borrowing powers) with the interest paid from revenue. This is being supplemented by funds from Warm Front and CERT. Warm Front Plus builds on many years of targeted energy eYciency work. Kirklees has around 26% of its population aVected by fuel poverty (ie people who have to spend more than 10% of their gross income on fuel to keep their home adequately warm). The council has therefore run a variety of schemes over a number of years including Keep Warm and Warm Homes Kirklees to help raise home energy eYciency levels. In April 2008 Kirklees Council will be launching a £3 million scheme to promote householder renewables. The principal barriers to the uptake of renewables by homeowners is cost, confidence in the technology, its capabilities and how it is installed. The scheme aims to address these barriers. Environmental Audit Committee: Evidence Ev 5
Private householders will be able to install up to £10,000 of renewable technology on their homes and pay for it when their home is sold via a second charge on the property. The scheme is funded through capital borrowing. Kirklees Council will administer the scheme providing tendered prices from approved installers. Once the property is sold and the original loan recovered it will be recycled into a revolving loan fund. It is expected that this relatively simple scheme will attract additional finance from energy suppliers through the Carbon Emissions Reduction Target scheme. The RE-Charge scheme is one of the schemes which will demonstrate action to reduce household carbon emissions as part of the Council’s action plan to address carbon emissions targets in the new Local Government Performance Framework along with the Warm Zone Plus scheme.
Uttlesford District Council Uttlesford District Council’s Supplementary Planning Document on home extensions is an example of how the planning system can be used to reduce carbon emissions from existing homes. The SPD requires cost eVective energy eYciency measures to be carried out throughout the existing building as a condition of planning consent for a home extension. The installation of energy eYciency measures is designed to: mitigate the additional energy requirements that result from the house being extended; help reduce the household’s energy consumption; and reduce energy bills and improve comfort levels. The scheme was designed by the councils’ building control and planning functions.
West Sussex County Council Tendering for new service partners is an ideal opportunity to engage your supply chain in achieving your carbon and wider sustainability goals. A recent tender for the provision of managed desktop services by West Sussex County Council required all tendering parties to, “demonstrate their carbon management plans in respect of services being provided to the Council”. The Council shared their goals and the Council’s Sustainability Action Plan, inviting potential partners both to innovate and to demonstrate their commitment to the low carbon agenda.
Hampshire County Council Hampshire County Council signed the Nottingham Declaration in 2001 and was a pilot in Councils for Climate Protection and the Carbon Management Programme. It was a founder member of the South East Climate Change Partnership, leads the ESPACE European project, part of the Advisory Group to the EU on adaptation to climate change, and a founder signatory to the Aalborg Commitments in 2004. In 2006 the Council adopted the vision “within a decade Hampshire will prosper without risking our environment”. Recognising that climate change is probably the biggest threat to achieving that vision, a Climate Change Commission of Inquiry (COI) was established with commissioners drawn from business, academia, media and councillors from all the political parties on the County Council. Four themed hearings were held between May and September 2007, where evidence was presented by external experts, and key findings were agreed by commissioners. A meeting of the Council considered a report and recommendations at the end of November.
Witnesses: Professor John Chesshire OBE, Chairman of the Climate Change Commission, Councillor Paul Bettison, Chairman of the Local Government Association Environment Board, and Mr Philip Mind, Senior Policy Consultant, Local Government Association, gave evidence.
Q1 Chairman: Good morning. First of all, my area the better, I think. Before I answer that specific profuse apologies that you have been waiting question, we focused a lot on the general framework outside. Our private session went on much longer really: how could we seek assurance that there would than we anticipated. I understand that Paul Bettison be a positive local government response, was that is on his way. As we are running a bit behind time, I coming from local government itself, by the various think we will crack on straight away. We know who routes we have suggested, and to what extent was it you are, so perhaps we could skip introductions. dependent upon more eVective collaboration Could I start by asking you why the Commission— between central and local government and reform of whose report obviously we have now seen and have the strategy process? But, to illustrate some of the hopefully absorbed—chose the five major areas that issues, we then chose the five areas, that is quite it did as the key priorities? right. Adaptation was chosen because, from the Professor Chesshire: Good morning, Chairman and evidence we received, much less progress was being others. Could I say, first of all, that I am delighted made on adaptation. I will not say hardly any at all, personally that you are undertaking this inquiry because momentum was building up during last because the more momentum we can build up in this year, partly in response to the floods and the flood Ev 6 Environmental Audit Committee: Evidence
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind inquiry and measures from Brussels and so on, but Q3 Chairman: Where councils are shaping up very that is an ill-formed area of policy, I think, both well, and you have mentioned some of them, is that centrally and locally, and was one we anticipated because of the individual interest of either oYcers or before the floods occurred. We thought that was an members of those councils? Is that the primary exposed Achilles’ heel that needed urgent attention. reason why some are so far ahead of the others? In terms of some of the other areas: transport and Professor Chesshire: The evidence we had, certainly housing were the two largest single areas of from the Centre for Sustainable Energy, suggested emissions and were chosen for that reason because that it was down to what they called “wilful we had some expertise; planning because we are individuals”—the individual oYcer in a transport looking long term, as it were, at how do we “green” function, a housing function, a renewables function the built infrastructure within local government and who was driving this agenda forward. I think that is via its leaders on the wider community; procurement true. But certainly from my Beacon council because I think there was concern that there might experience I would also complement that by the be a response from local government that it had no important role of leadership, either from the incremental resources to drive the agenda forward, political leadership of the council or from an active so procurement and the fuel poverty agenda were chief executive. I think both bottom-up and top- V two areas on which we wanted to focus. Perhaps I down can be important, and most e ective when might add just one more thing on procurement. I they are combined. think procurement has been studied by others. My personal impression, as Chairman, is that the bits Q4 Chairman: We have some that are doing very are still on the garage floor: we do not have a vehicle well. How do we get to the point where that becomes to drive out, so there is need for more attention. I much more widespread mainstream practice? would emphasise its scale and its weight, to Mr Mind: It is important to put this into context. conclude, Chairman. Procurement per se is about Most of the action that has taken place so far in the £50 billion per year and capital spend is about £17 exemplar authorities has been attributed, as John billion per year. Rounding those up to £70 billion has said, to wilful individuals. We have not had the over 20 years, we are talking about one year’s UK kind of policy drivers in place that encourage council GDP. If one uses the role of local government, action. A lot will change over the next few years, as through local strategic partnerships and so on, to a number of policy drivers that have been put in engage with the police, education, fire, health, other place at the national level start to be implemented. public sector players, we might be talking about two For the first time, we will have carbon reduction years’ GDP through procurement over a 20-year performance indicators in the performance period. That is beginning to have a major footprint, management framework. The largest local we think, on green supply chains. Those were some authorities will be subject to a carbon trading of the reasons. regime. We have a sustainable energy measures report which brings together best practice. There are a number of things which are happening now, Q2 Chairman: Do you think that local authorities therefore, which will encourage local action. have enough discretion to make a diVerence? Professor Chesshire: I think they have the discretion Q5 Chairman: Paul, welcome. I gather you have had but they do not have the motivation. They do not some trouble getting here. always have the expertise or the resources generally. Councillor Bettison: Yes. Thank you. Clearly, from my experience evaluating Beacon Chairman: We have not been going as long as you councils two years ago, where local authorities have might have feared because we were somewhat seized the initiative in this area—and I do not want delayed ourselves. We are delighted to see you. We to keep quoting Woking, but Woking and Leicester have just opened the session really. and even unsung heroes like High Peak and the Cornwall Strategic Energy Partnership—they have Q6 Joan Walley: You mentioned just now about made quite considerable contributions in specific leadership and how this whole issue gets translated areas, some in renewables, some in transport, some into local action. Perhaps I could take that down to in the procurement area, but that has not really the housing policies that local authorities have. permeated very far and I am still concerned how What do you feel the main action that local long the tail is in local government. That is my major authorities should be taking on housing should be? concern. This best practice, despite Beacon toolkits How do you distinguish between council housing and many other toolkits, does not penetrate very and between the whole housing sector, between quickly. My conclusion is there has not been a managements. How do you feel that a real diVerence strategy framework for local government but, also, can be made as far as the housing sector and the it is a question of motivation, to be honest. It has not housing functions of local authorities? been a door-step issue, I am told by many Professor Chesshire: I agree it is a critical sector. My councillors, until very recently. Clearly the public expertise is not particularly strong in housing. My expenditure settlements and so on mean there is not other colleagues might want to come in. One area a vast amount of money for government, so they are over which I have been very concerned over three or constrained in what they do, but certainly where four years—and not just wearing this hat, in this local government has expressed an interest in this role—is the issue of compliance. The problem of the they have made rather impressive progress I think. housing sector, I think, is that of sloppy standards Environmental Audit Committee: Evidence Ev 7
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind and poor training and lack of skill on site, as it were, Q8 Joan Walley: Do you feel that the reduction there so that, even when you have fairly tight is in the Warm Front money is linked with the extra specifications for the envelope of the building, money that is coming through? Do you feel that the experience suggests that they are not always put up extra money that is coming through from the other to those tight specifications. As we are going to place sources is more than compensating for the changes greater demands on the construction sector to in the Warm Front scheme? Do you feel there is improve its thermal eYciency, to lower its carbon enough co-operation on the ground between these footprint, to familiarise itself with a range of diVerent schemes? renewables and low carbon technologies, unless we Professor Chesshire: I must answer the first part of get compliance right we are going to start missing a your question wearing my Fuel Poverty Advisory lot of opportunities, because, as the housing Group hat, I think. No, I am very disappointed that construction rate increases, we are going to be left government has chosen to reduce government with opportunities which we could have taken at a support, public expenditure, to fuel poverty when very low cost which if we have to go back in, say, 20 there was a firm statutory framework in place to years time to retrofit will be extraordinarily remove the vulnerable from fuel poverty in 2010 and expensive. I regarded that really as a kind of leading- all others by 2016 as far as reasonably practical. It edge indicator of the role the local government can certainly seems to me in the Fuel Poverty Advisory have. I realise competition was introduced in these Group that was not reasonably practical. They had functions and, in my own personal view, it was not applied the tests. Certainly recent statements in competition downwards rather than competition the House by the relevant minister almost evaded upwards, so I would want to emphasise the role of reference to the 2010 vulnerable target which building control. In other areas, I would think in the government has. planning function, for example, it is going to be crucially important to ensure the use of access to public transport in new housing developments—this Q9 Joan Walley: Do you think that the 2010 target places an emphasis on brownfield developments can be met? rather than greenfield developments—and, also, of Professor Chesshire: I do not think so, with the sums course, the extension of rules like the Merton rule to of money now available, and the fact that energy domestic and not just non domestic properties. prices have risen considerably last year and are likely There is a very wide agenda. to rise this year from the point of view of most commentators. In terms of co-ordination, we will Q7 Joan Walley: We would like to press you a little come back to the local government Climate Change bit more on the building control and planning Commission. We did make some proposals—from aspects of it, but, just dealing with the housing memory at pages 32 to 33 of the report, in the green functions specifically that the local authorities have, boxes—on ways in which local authorities and you are talking about non-compliance presumably Registered Social Landlords (RSLs) could work in relation to the construction of new properties but more closely with energy suppliers to maximise the there are whole programmes going on, with Warm take-up of energy eYciency measures. Front, with Warm Zone, with insulation. How do you feel that achieving greater energy eYciency in carbon reduction is being hindered at the moment? Q10 Joan Walley: Your report says that all councils Y Professor Chesshire: That topic is close to my heart. should contribute to the Home Energy E ciency I do see this as a rather crucial area but also one Database and should have access to energy where very significant resources are already performance certificates in their area so that they can Y available and will become available. We were a bit build up a better picture of energy e ciency of local disappointed—wearing my Fuel Poverty Advisory housing stock. What do you think is preventing that Group hat—with the funding from central from happening at the moment? government for Warm Front, which is going to fall Professor Chesshire: Parallel to my work, I a little bit. But, as you may well know, through the undertook quite a few meetings with CLG, seeking Energy EYciency Commitment but particularly to have access to energy performance certificates for through the Carbon Emission Reduction Target local government. which comes in on 1 April next year,1 with £1 billion a year for CERT and £300 million a year for Warm Q11 Joan Walley: CLG is? Front and Decent Homes and one or two other things on top, we are talking about the best part of Professor Chesshire: Communities and Local £1500 million a year probably over each of the next Government, the former ODPM as was. three years. I regard that as a major opportunity to Communities and Local Government is the lead Y department on measures of that kind. It seems to me begin to improve the energy e ciency of the housing st stock, particularly addressing it towards the fuel that we need to move towards a 21 century poor, because I think there is a tension, as the Domesday book—I mean, nothing very clever— Committee will know, between rising energy prices where we can quickly categorise the housing stock: and the impressive impact those have on those green because reasonable measures have been suVering from fuel poverty. implemented; amber where some of the basic measures have been put in place but there is scope 1 Note by Witness: The Carbon Emission Reduction Target for more activity; and red where a property was in will come in on 1 April 2008. dire need of refurbishment or application of cavity Ev 8 Environmental Audit Committee: Evidence
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind and loft insulation or more eYcient appliances. That Councillor Bettison: It certainly will do, yes. is a fairly simple kind of measure. The reason that is so important strategically is that all of the evidence Q14 Joan Walley: In what way? from BERR and Defra is that the “lowest hanging Councillor Bettison: Not least of which in terms of fruit” in terms of pounds of expenditure per carbon the provision of oYcers available. Because, as John capture is in the housing stock. There is a lot of low- said, this sort of thing requires oYcer input. If local hanging fruit there. This was a mechanism I was authorities do not have the oYcers, then the hoping to see developed between Defra and CLG. It likelihood of them wanting to go out and create new is a case of providing as much information as posts against the background of the most constricted possible to local government in standardised form to settlement for some time is most unlikely. I think develop this Domesday book over time. Also, an over the next few months we are going to see local alternative route would be to use the Energy Saving Y authorities shedding posts rather than creating new Trust’s Home Energy E ciency Database. Again, ones. that would require access by local government to data. They need it operationally, do they not, to implement programmes on the ground? Q15 Mr Caton: Could we come back to planning and building control, which you have already referred to, Professor, and in particular compliance. Q12 Joan Walley: What has happened to stop that In your report2, you referred to BRE research at the moment? Presumably local authorities which showing that one-third of new homes failed to meet have taken up energy eYciency carbon issues can do building regulations. Can you expand on why you that themselves at the moment, but you are saying think that is? Also, the Commission’s report raises that it needs to be done on a national basis for the concerns about the regulatory model associated with national framework. Part L of building regulations. What needs to change Professor Chesshire: My colleagues from the LGA to ensure we have something nearer 100 per cent can speak with more authority on this point but I compliance and proper enforcement? think that certainly some of the local authorities Professor Chesshire: My personal judgment is that with housing responsibilities are comparatively local authorities have taken their eye oV the ball in small organisations—you know, district councils. I terms of this function. Much more emphasis has know from my work with the Home Energy gone to the health and safety aspects of construction Conservation Association (HECA) that very often in my view and less weight has been placed on Part those are part-time posts, maybe one afternoon a L. To be fair to the local authorities, that reflects the week, one day a week, one and a half days a week. fact that, by and large, there were not enormous pressures on them to meet specific carbon targets. I Those posts are under threat as a result of Defra’s Y review of HECA, and I think a consistent concern chair something called the Energy E ciency we had expressed in the evidence from local Partnership for Homes. We funded BRE on two government was the need both in qualitative terms occasions—I think four years ago and two years and in quantitative terms to improve the human ago—to undertake fairly modest surveys of newly constructed properties. That is the reference that resource available to tackle this agenda. Some of it you have there. We found a messy picture. It was not is a shortage of oYcers’ time, at a time when there just that roof voids had not been completely filled or are a lot of other competing claims, but I would defer bad workmanship on site and missed opportunities to Paul and Philip on that specific point. and so on, but even light fittings had not been Councillor Bettison: Of course with a lot of local installed properly, especially high eYciency light authorities having disposed of their stock to RSLs, fittings and so on. We are in the course of negotiating the former housing department in those authorities with Communities and Local Government to jointly reverts to being essentially a client role and there are fund a study of homes via the Partnership over the just no spare bodies around these days. Also, one next few months, to see to what extent compliance must not forget that local authorities themselves with Part L (April 2006) is now being met, so we will have been incredibly squeezed. I was saying only the have a more sensitised context, I think, both in local other day in my own authority that we now have authorities and in the construction industry and so many one-person departments, which never used to on. I would hope that we can report in July or be the case. For example, when our “tree person” is September, something of that time horizon, to see on holiday, we are essentially just not in the tree whether there has been any learning. As to why there business. is not compliance, we are beginning the study I just referred to with a number of discussions with stakeholders to see if there are underlying reasons Q13 Joan Walley: Finally, do you have any why they are unable to build, to plan, and are there comments on the Comprehensive Spending Review some quick wins we can identify, as it were, before process 2008-2011 in respect of the shift that there is we go on to measure the exercise itself. I hope that of the share of funding? As I understand it, more will inform us a lot more than the two previous now goes to the RSLs, something like 69 per cent, as studies, which were just doing the “pressure testing” opposed to local authorities in the past getting the survey of houses. largest share of that funding. Is that going to have any bearing on this? 2 http://campaigns.lga.gov.uk/climatechange/home/ Environmental Audit Committee: Evidence Ev 9
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind
Mr Mind: I am not an expert on this but, if you want Councillor Bettison: I have concerns that if Merton chapter and verse, there is an organisation called were to become a site-by-site negotiation it would Local Authority Building Control which represents put quite significant strains on planning oYcers, building control inspectors around the country. One who are in short supply anyway, and that, in turn, important point to make is that the building control would make the planning process less eYcient. I function is not just delivered by local authorities, it think it would also lead in some cases to certain is also delivered by the private market, so you have developers doing better than others because they quite an unusual form of regulation where you have were able to lean more eVectively on the local a competitive market of provision of inspection, and authority. I do not think that is what the essence of I think local authority building control, if they were the Merton rule is. As the professor has indicated, here, would say that has an impact on the quality of there are diVerent opportunities for renewable inspection. I think they would also say, if they were energy sources in diVerent parts of the country, but here, that the Part L requirements are relatively new. I am not sure that we are ready to say that there is There is—and this goes right across action on adiVerent opportunity at one end of the street from climate change—a skills capacity issue, in so far as another or on diVerent sites. I do have concerns building control inspectors have had to up-skill in about the deliverability of that in local authority relation to energy eYciency requirements as they terms. have been raised by government. Q18 Caton: Do you think more renewable energy applications could be regarded as permitted Q16 Mr Caton: You have already mentioned with developments? approval the Merton rule. There is quite a bit of Councillor Bettison: You mean in order to speed up controversy at the moment about how the the process? My initial response to that would be yes. Government in its planning policy statement is I think the LGA would want to look at that a little addressing what the Merton rule does for those more closely to make sure the law of unintended authorities which follow it. Do you think the consequence does not arise. planning policy statement, as is, is going to provide Merton on a wider scale? Professor Chesshire: Again, I do not know why there Q19 Mr Caton: I am thinking in particular of micro- has been hesitancy in central government on this. I generation. would prefer to see scope for innovation. It seems to Councillor Bettison: Certainly micro-generation, me that in diVerent areas of the country one has yes. vastly diVerent opportunities to exploit renewables Professor Chesshire: And some roof-mounted and the kinds of renewables one can exploit. Clearly, panels and so on, subject to basic standards. I think in rural areas, there are opportunities for ground- that is disruptive. I do not want to be too critical of source heat pumps and for biomass combustion. A local authorities, obviously. There is a whole range vast number of technologies can be brought to bear. of technologies becoming available—many of them Even wind technology may well perform better oversold by particular installers, particularly as to outside dense urban areas, as all the scientific their output and performance in specific urban evidence is suggesting. On the other hand, inner circumstances. I have chaired for the research urban local authorities have diVerent opportunities. councils, a group of universities (Imperial, I am concerned with the impact of lobbying, really, Southampton, Sussex and others), looking at the from the construction industry. I see that as being a performance of wind generators in urban areas, for significant brake, both on the compliance issue and example, and their sensitivity to the wind speed: output is the cube of the wind speed. It is incredibly on debates such as Merton and so on. I appreciate diYcult to measure, as it were, and that level of that the Government, coming under pressure from knowledge and expertise has not cascaded down into the construction industry, says that there is a need the planning system of local authorities as yet. It will for some certainty and you should not have diVerent do and quickly. I have one final thing to say, if I may, standards being imposed in diVerent locations; on Chairman, in response to Merton. I would also want the other hand, many of the options are locally to insist that, before the renewables were taken up, determined, in my view, and therefore you need all cost-eVective energy eYciency measures were first innovation. I would want the planning guidance to installed, because the way you increase the share of provide a great deal of positive framework and not renewables is by lowering demand for the output of to be too restrictive, as it were, as to how it is applied. those renewables. The building industry will just have to learn to innovate. It is time we used a bit more of the stick and a bit less of the carrot with the construction Q20 Mr Caton: Do you think local authorities sector. That is my personal view. should be free to use planning to encourage higher standards of energy eYciency than those set out in building regulations? Q17 Mr Caton: At the moment Merton tends to be Professor Chesshire: I find it diYcult to speak for 10 per cent across the whole authority. The local government as a whole. I like innovation, and Government seems to be resisting that. How is that a lot of this is about innovation, of getting going to be resolved? The Government says it is experience on the ground, of getting skills and going to improve things; others certainly think they labour forces familiar with it, and what is leading are going to get less of that sort of action. practice today will be bog standard, mainstream Ev 10 Environmental Audit Committee: Evidence
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind practice in five years/ten years’ time and so on. As I practice emerging. Again I do not want to cite said at the outset, that is an area where there is a lot particular examples, but I was struck on a Beacon of opportunity for cost-eVective, energy eYciency visit to Nottinghamshire by the Robin Hood line improvement. That cost-eVectiveness will be and so on. That had depended on quite a lot of expanded as we get more technologies developed public support outside the council’s own resources and so on, and then costs fall. I would have thought, but it had led to a significant modal shift in the for example, that there may be some local Nottingham area. I live in Brighton, where they have authorities who would want to emphasise their eco- decided to ration road space, so that, as you get near credentials in particular housing estates or towards the city centre—maybe four miles out particularly new industrial estates, for example, or in –what was a four-lane road becomes a two-lane road the development of schools, and integrated public with bus lanes and we have had a sustained increase provisions in libraries, schools, swimming pools and in bus transport use of between 15 and 20 per cent so on, where you could even out your heat loads by per year, I think for the last six or seven years. There combining heat and power and so on. I think there is zoning. There is parking. There is road pricing. would be a lot of appetite for that as well, from some There is a whole series of agendas which politicians parts of the construction sector, to showcase, not at can seize locally. There is diVerential in parking the Ideal Home Exhibition but on the ground, on a tariVs, adjusted by engine capacities and emission modest or a substantial scale. I cannot see what the levels. There are the snake schemes, for walking disadvantage of that is, because I think it provides an children towards schools. There are cycle routes. enormous learning opportunity for everybody. There are 101 things that local government can do, Councillor Bettison: Again, any such innovation as I am sure the Committee is aware, but they cost would need to be applied transparently across the quite a lot of money and local government does not piece rather than attempt to be negotiated site by have a lot of money. Philip can give you some site. That is really, if you like, the beauty of the examples of the diVerence between how revenue Merton rule and the fact that the council itself, in expenditure and capital expenditure is treated in the developing that rule, produced such an elegant way transport sector. There is one other example I can forward. It would not have been the same if it was a give you of crassness, absolute crassness, from the case of “where we can manage it, in negotiation”. evidence we were given concerning public transport provision to a new factory space: the traYc islands Q21 Colin Challen: What are the most eVective ways were made so tight that you could not negotiate a bus around them. That is absolutely absurd. I have local authorities can address transport emissions? V Do you have some examples of good practice? no time for that at all, people taking their eye o the Councillor Bettison: As the professor indicated ball in terms of long-term provision and so on. earlier, the use of brownfield sites, where often those Absolute crassness. But there are some funding sites are within the transport structure, is better than issues with which I am not familiar. greenfield sites in that respect. Obviously on the Mr Mind: There is a range of measures that councils greenfield sites, one needs to develop additional can take to reduce transport-related emissions. We routes and that is not always easy in an environment do not have a hierarchy of being able to say that V where you do not have the custom for full buses on certain measures are more e ective than other day one. It is the same with any new development measures but there is a number of measures like that, from scratch, on greenfield sites. It is the described as “smarter choice measures” or “soft same, of course, with the provision of most services, measures” which encourage people to travel more including schools. Do you open the schools first and sustainably. They range from improving cycle paths, run them mostly empty for a while or do you open to reallocating road space, to visiting households the schools later and then find that the early pupils and conducting travel planning sessions with the occupying properties have gone out to your existing household to show them how they can save money schools and you then split siblings? and save time by travelling more sustainably. The Professor Chesshire: I do not think local politicians problem with all these measures is that they cost are being any braver than national politicians in money. They have costs attached to them. The way tackling transport. Quite frankly, it is one of those the funding regime is currently structured is that areas where you read how every vehicle has two most of the funding for transport-related measures is votes attached to it. Let us be honest, it is the capital funding. Only certain types of scheme qualify Cinderella of both climate change and energy for capital funding—which encourages investment eYciency policy. It has been all the time I have been in infrastructure and encourages investment in road in this field—which predates 1973. I think we need to building. The Commission therefore argued in their recognise the nervousness with which politicians of report for being able to capitalise on some of the all flavours and at all levels approach tackling smarter choice measures. Some of those schemes transport. The thing that can be done in house is to which are about working with people to encourage have staV transport plans. As we emphasised in our them to choose more sustainable modes of transport report, they have 2.1 million employees, so there is actually count as capital schemes because they have a hell of a footprint, particularly for travel in urban been shown to be very eVective. For example, car areas—because most oYce buildings tend to be in sharing schemes, which a number of councils run, urban areas, libraries, central facilities run by local have been very eVective in encouraging people to governments—so encouraging modal shift there share cars and thereby reduce their carbon should not be impossible. One is seeing some best emissions. Environmental Audit Committee: Evidence Ev 11
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind
Q22 Colin Challen: In the Commission’s report there Professor Chesshire: The Energy Saving Trust—and is a case study which is looking at London, and there I am not familiar with the detail, Chairman—have is a heavy emphasis, of course, on what buses can do. reached about 40 or slightly more local authorities. I am just wondering whether the deregulation of From the case studies we have read about as part of buses outside London is an issue in tackling our inquiry, the savings were well worth reporting, emissions. Should we not be able to tell those as it were. We are recommending that all local companies more about what they should be doing, authorities should take up their scheme by the end of rather than just developing schemes which if they this calendar year. increase the usage of their buses simply increase their Mr Mind: In relation to the Sustainable Travel profits, possibly with no payback to the community Towns, they are pilots. There has been funding for by making a bigger contribution to it? those pilots. The big question is how you Professor Chesshire: I do not have any operational mainstream those pilots, which I understand have experience. been broadly successful. Mr Mind: It is a bit out of my competence but my understanding is that Transport for London have Q24 Martin Horwood: This is at the even more greater powers than most local authorities in expensive end of sustainable transport, but do you relation to the power they exercise over, for example, think enough is being done to support radical the frequency of buses, the timetabling. Certainly alternatives, like light rail or trams and so on, which there is an argument for giving local authorities have been implemented in a few places in large urban more power over the bus companies, to encourage a areas but not on a very widespread basis? service that would enable people to travel more Councillor Bettison: The more radical schemes, of sustainably. course, tend to involve considerable capital Professor Chesshire: Could I give you another expenditure. Whilst under prudential borrowing it is example which struck me, which I do not think is in possible for authorities to borrow capital, given that our report. We had some technical sessions with very few have any of their own any longer—and that transport planners and one example was the closure is fine; indeed, often the borrowing is supported with of general hospitals or the relocation of functions to central government essentially paying the interest— general hospitals. We learned that one general the trouble is that if you are a “floor” authority— hospital normally generates three million journeys a V and one-third of all authorities now are on the year. That is the daily travel of all the sta on the floor—you may notionally get that interest paid to three shift pattern, all the food supplies, all the you but, in reality, you do not get a penny because medical supplies, all the patients, the specialists, the you are on the floor or beneath the floor. The reality day visits and the rest of it. That is an enormous is you would then have to make cuts in services to footprint. I have never been aware, for example, in give yourself suYcient headway with your funds to the hospitals in Brighton, of cycle-rack provision be able to support the interest on that loan. The oVer being integrated or of adequate cycle-rack provision of the central government to support borrowing for at railway stations. It is developing. No-one is really local government for one-third of all councils has no realising that a journey has two points and is merit whatsoever, so we do come back again to the working only on the start point. I think people are availability of capital. frustrated, in that they might choose to go green by mode of transport but when they arrive at a publicly- owned site there is no facility for them. I think it is Q25 Colin Challen: We have heard about the huge incumbent on local authorities through strategic procurement footprint of local authorities and, also, partnerships and other public sector players, as it about the very tight budgets that authorities have to were, to ensure joined-upness in that way: not just in deal with. Is that a conflict which really prevents the railway timetables and bus timetables but in basic eVective implementation of green procurement infrastructure provision, which itself is not very activities because the people who are having to buy expensive. Local authorities have no control, as I things are always being told, “You have to spend understand it, of a decision by a health authority to less” and some green things may cost a bit more? close down a general hospital, but the impact in Professor Chesshire: Our judgment was that, terms of traYc generation is absolutely enormous. initially, first-oV costs might be higher down the There is an example—and I do not want to be too green route. We do not always accept that is the case local here—of closures in West Sussex moving traYc and there are examples where it is not the case, but into Brighton—which is congested enough, thank we think some combination of smart procurement, you very much indeed. These kinds of decisions are by which we mean getting volume eVects/economies well outside the control of the local authority but the of scale eVects by joint procurement, should more local authority ends up with the implications of it. than oVset the green costs, as it were, the premium as That is why we are asking for a joined-up approach a result of being green. We did take evidence, I think between the local authority and other public service from an east of England partnership, but correct me provision, particularly in the transport area. if I am wrong, where they are experimenting themselves, in combining economies of scale Q23 Colin Challen: How useful has the Energy through smart purchasing and, also, a degree of Saving Trust green fleet programme been or, indeed, assurance from the supply chain by trying to smooth the Department for Transport’s Sustainable Travel the orders over a period of time to extract lower Towns programme? Have they made impacts of costs, whereas, at the same time, moving towards any value? greater green procurement in the hope that they keep Ev 12 Environmental Audit Committee: Evidence
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind their costs fairly level. They are not suggesting early “The expectation is for procurement to require a one on that they will be able to reduce costs, because the watt standby” or “for all appliances to have an on/ green products are coming in at a bit of a premium, oV button” or some fairly basic statements. I have but as that market expands I would hope that that just bought a modern scanner. It has no on/oV premium becomes a discount. I do not have any switch. It is not available in the range. Surely there practical experience of procurement/ordering inside are fairly basic statements one can say about what a local authority. kind of product would be acceptable in three to five years. I do not mean just the energy eYciency label of the Energy Saving Trust. That can apply in the Q26 Colin Challen: I was thinking of another short term and so on, but it is broad statements example, which may also apply in local authorities. about the level of expectation which public sector The example is from central government, where, in procurement oYces are going to be placing on the Whitehall, the local government buildings are supply chain. heated by a district heating scheme from a boiler in the MoD building and, therefore, to implement an initiative in your building you have to get the Q27 Mr Chaytor: Does the LGA have any idea of approval of another department, as it were, and if the amount of money that is currently being spent by that approval is not forthcoming you get into this local authorities on climate change policy, either really deep and impenetrable bureaucratic maze. adaptation or other forms of policy? Does that happen in local authorities? Are local Mr Mind: I do not think we do have an estimate of authorities in a better position to sweep away those that nature. In fact, it would be very diYcult to sorts of bureaucratic issues? undertake that kind of calculation. From the Councillor Bettison: There is no doubt that conversation this morning you get a sense of the partnerships bring challenges, but the procurement range of local government functions on which partnerships that are in place in most parts of the climate change has an impact: transport, country now, as regional procurement initiatives procurement, housing, planning. Within each of and sub-regional procurement initiatives, seek to those functions there is an opportunity both to smooth out those lumps and bumps, depending on reduce carbon emissions and build that into policy the vagaries of individual organisations. Certainly and practice and make decisions that are resilient to with partnerships, you are absolutely right, in that climate change, which is already happening. We there are challenges. It is always a challenge when know that the number of authorities which are one partner suddenly decides, for reasons best appointing specific climate change oYcers is known to themselves, to withdraw. Certainly for growing, but we only know that anecdotally. If we much of what local authorities purchase, they have were able to measure that—which of itself I think little choice over purchasing. If the partnership is might be quite diYcult—it would only give us a working well and it is being managed well, then there small part of the picture. should be no or fewer surprises in that regard. We hope, as the professor said, we can get not only lower Q28 Mr Chaytor: What is the view about the value costs but improved eYciency and sustainability in of targeted funding streams from central our procurement in that way. government or individual local authorities carving Professor Chesshire: I think it can be done indirectly. out a special budget for climate change measures, as To give an example, West Sussex County Council, as against mainstream climate change into all policy a condition of bidding, require their subcontractors areas and all funding streams? Should every funding or contractors to identify their carbon best practices, stream now have a climate change component? as it were. You build it in as part of the process. I am Should there be climate change implications before a bit concerned if you think everything falls on a the new policies are considered? local authority, as it were. I think there are things Mr Mind: One of the recommendations in the local authorities can do in saying, “If you want to Commission’s report is that every major policy negotiate and tender with us for a contract or be on planning or investment or spending decision should our bidding lists and so on, here are some of the have a carbon impact assessment, which is a minimum requirements that we are seeking. Do you mechanism through which you could mainstream measure your own footprint? Do you belong to tackling climate change right across a council’s environmental standards organisations?”—those functions. In relation to your earlier point, I think sorts of things. We will have to see to what extent there are several things that councils can do and have that does lead to higher costs. I think central and done in relation to funding. One is to create an local government could say to the oYce industry, as energy budget. By creating that energy budget and central government is beginning to say, “We are only then making savings against that budget, you create likely to occupy buildings that are amongst the top funding for climate change initiatives. In terms of quartile of energy eYciency and carbon the need for more resources—and this is the one performance”. You just make the statement and that thing that councils say they need to be able to tackle begins to create its own bow wave of expectation in climate change more eVectively—there are broadly the sector. I think we also need to be a little more two options. Do you invest generically in capacity anticipatory. I see no reason why one should not, for across councils or do you invest in achieving example—although there may be European particular policy objectives (which might be building restrictions of which one needs to be careful—have the number of councils who operate green negotiations with the oYce machine sector and say, procurement or building the number of Environmental Audit Committee: Evidence Ev 13
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind demonstration schemes in terms of decentralised it into a system of carbon accounts. It is the old energy)? There are options really, whether you make adage: “What you don’t measure you can’t manage” the investment generically or targeted. as it were. A tighter carbon accounting framework is going to assist. It will take some time to develop. We Q29 Mr Chaytor: Are there any obvious gaps in the are beginning to get information from Defra and so powers currently available to local authorities or do on, which will be refined this year and go you think that for a local authority with the right operationally live next year, but we need it at a lower determination they have suYcient powers to move level as well. We need carbon declarations on major forward? assets, like oYce computer equipment and so on. I Mr Mind: Another key recommendation of the think many of the guidebooks and handbooks could Commission which the Local Government be much more explicit as to the operating and the Association is thinking about is that we need to end-of-life carbon footprints, such as in materials consider the statutory underpinning for local separation. There are a whole lot of things worth government action on climate change. The transparency of decision making, in my view, and it Commission itself floats some specific ideas about would not always be a question of “Do we have new powers that councils might have. explicit targets built into our monetary budgeting to address carbon?” Greater transparency, as it were, Q30 Mr Chaytor: Such as? Could you give us one or will steer the market and decision makers—and I two examples? think more usefully. Mr Mind: In the sub-national review, for example, the Government announced that it would be Q32 Jo Swinson: I would like to investigate the creating a duty for councils to consider the economic relationship between central government and local development of their areas and the Commission government. Have you found that there are argued that that duty should consider the conflicts—and, if so, what are they—between what sustainable economic development. That is one central government asks local government to do, so possibility. Another, which John has touched on, is certain things which are negative towards the strengthening local authorities’ powers to challenge environment while at the same time there is this decisions made by other agencies, particularly public general push towards reducing emissions and sector agencies, in an area that might have a very improve environmental policy? high carbon impact—and the closure of a critical Mr Mind: I think there are a number of quite big piece of community infrastructure might be an policy tensions, and they are well rehearsed, in terms example—and having an opportunity for the local of the national framework. In terms of procurement council perhaps to scrutinise and challenge that and whole-life costing, the drive from central decision. There are examples in the planning government towards local government is very much framework, for example, and a number of councils around financial eYciency and quite challenging are arguing for being able to require developers to short-term financial eYciency targets. When we talk connect to particular sources of local energy about whole-life costing and investing upfront in, if generation. I can describe them in this way, “green alternatives”, then that is a barrier, and procurement oYcers in Q31 Mr Chaytor: In terms of the well-being powers local government would describe short-term in the Local Government Act 2000, is there any financial eYciency as the biggest barrier to realising evidence of these well-being powers being used whole-life costing. That is one example. imaginatively or creatively? Councillor Bettison: If you are looking for specific examples, then I would be happy to submit some to Q33 Jo Swinson: Are there any other the Committee afterwards3 and we could take that recommendations on how these conflicts can be on board. So far as using that particular power, we better managed by central government? have to bear in mind that the reality is that that Professor Chesshire: I do not think there is a conflict, power has tended to be a power of last resort but it is to provide a richer statutory context in which whereas I believe it was intended to be a power of local authorities are empowered to act, as it were. I first resort, but it is coming up the list of reasons to have mentioned the role of innovation and initiative. do things. I am sure we can come up with some Clearly there is a very long tail. The suggestion is examples for you4. that better performance is broadening it out but I am Professor Chesshire: I am sorry if we are fluYng personally still very concerned that some local around the exemplars. I tend not, when I chair authorities do not really seem to have discovered committees, to flash up lots of examples, as it were. climate change yet, and amongst some of those We do have toolkits and we do have evidence where leaders there are some deniers—which is probably there are examples and we do quote them, but we true of the population at large. We give some have not drawn much attention to them in our examples in our report of where government could summary report. The second point I would make in use opportunities, as legislation goes through the response to the question you asked originally, is that House this year, to pepper that legislation with transparency in the carbon accounting framework is measures which would focus local authorities and going to inform decisions as well. You have to build incentivise local authorities, as it were. Outside the narrow statutory framework is a broader statutory 3 See Ev 17 framework which would be relevant to local 4 See Ev 17 government. From my experience, partly as Ev 14 Environmental Audit Committee: Evidence
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind
Chairman of this but also from other opportunities tackling climate change in the new performance in local government, local government is not always framework where the Local Government seen as being competent by central government. Association was calling for national outcomes and LGA would not bless me for saying this: my indicators on climate change. I think that is one observation is that local government is at least as dimension and I could make reference to several competent as central government. But there is a kind others. We have a long way to go in getting the policy of disdain, somehow, I notice, in central civil framework right in tackling the existing housing servants, in the way they commented to me when I stock, in planning, in procurement, all the areas we met them bilaterally—“Oh, well, you can try it, have discussed this morning. There is a very positive John, but don’t expect to great deal. You could be dialogue between national and local government losing nine months of your life chairing that about how we do it and increasing recognition in Commission” and those kinds of very friendly, well central government of the local role. Of course, we directed comments and so on. My experience of would say that recognition is stronger in some having advised select committees for 22 years is that departments than others but there is some exchange central government is not doing a much better job between central government and local government. itself, quite frankly. I would hope we can encourage I came from the Treasury to the LGA. a more grown-up dialogue between central and local government. One other thing I would note as well is Q35 Jo Swinson: Very good. In terms of the support that as government finds challenges more and more Y that councils have to address climate change, I think di cult to tackle, be they fuel poverty, transport or it was mentioned earlier that there are some climate change, they have a more mature dialogue departments in your authority with one member of with local government because they realise they are staV. How much is that a barrier to councils being on the ground, they have a lot of powers, they have able to act well to tackle this problem? more opportunities, they can seek initiatives and Councillor Bettison: Whilst it is only right that this build it into greening local communities, planning morning we should have emphasised, where processes and so on. Whitehall is largely blind to appropriate, the financial diYculties and challenges those processes. These are the fundamental change V facing some authorities, we should not dwell processes actually on the ground a ecting buildings, unnecessarily long on that because there are planning decisions, transport infrastructures and considerably brighter areas as well. Certainly local even behaviours. That is all at arm’s-length to Sir authorities by and large realise that they are on the Humphrey in my experience. frontline when it comes to climate change in terms of both mitigation and more especially adaptation Q34 Jo Swinson: Obviously that is quite a good because much of what local authorities do as our characterisation of the diYculties but are there everyday business will need to adapt in the future synergies, are there examples where there are good and has had to adapt. Local authorities are not shy connections between local and national policies and in stepping forward there within their constraints. actions taking place at the moment, or is that what Certainly there is a wish amongst most authorities to we are aiming towards? work with central government. There is certainly a Professor Chesshire: One thing that astonishes me, wish within the LGA to establish good links with and I will let the professionals in the LGA comment, opposite numbers in central government at member is I am not aware of any exchange between central level. I certainly meet Defra ministers on a regular and local government staV, for example, none at all. basis in order to see how we can work together. An If you are a bright bunny, fast stream going into the example of that was putting into the Bill the pilot Civil Service you can get quite far up the system scheme for waste charging which we lobbied hard without knowing how to add up in my experience. for and we worked hard with the relevant minister to Going into a big housing department in Birmingham get that one through. or to a renewable energy division in Cornwall might just be a rather useful experience, and vice versa. Q36 Jo Swinson: At oYcer level as well, how easy is Unless we do join up in dialogue, unless we get rid it for the advice, information and support to be of this haughty disdain, which I sensed actually, of gained by the oYcers in what can sometimes be quite central policy wonkers for local policy wonkers, I do a complex area? not think we are going to get very far in this Mr Mind: First of all, a really key point is just the particular area. I am going well beyond my brief as number of functions across local authorities that are Chairman of the Local Government Commission. impacted by climate change and increasingly That is a very powerful observation which I have. continuing professional development is embracing Mr Mind: If I could paint a slightly more positive climate change. There is certainly no shortage of picture. conferences and events and networks are Councillor Bettison: Please do. strengthening. There is a skills and capacity issue but Mr Mind: In terms of tackling climate change we are it is beginning to be addressed and we need to think at the early stages of a long journey and over the last more systematically about how we address that two years there has been a dramatic intensification issue, not just in local government but right across in setting the policy framework for both national the public sector. To give you an example, from 2010 and local action on climate change. We have had a the 100 largest authorities will be subject to a carbon very positive dialogue with national Government, trading regime whereas at the moment there is just for example, in setting the policy framework for one local authority, Kirklees, that is carbon trading. Environmental Audit Committee: Evidence Ev 15
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind
In the next couple of years the finance function, and Councillor Bettison: Could I just add that both the I assume it will be the finance function, of local mitigation of climate change and adaptation to it is government has got to gear up in that area and there not so much a subject as more an ethos and needs to are many other areas where you could cite similar embed within local authorities and, indeed, all examples. We need to do that systematically across organisations. I should point out that I spent five the public sector. years within the LGA as their e.government champion working then with central government on the implementation of electronic government which Q37 Jo Swinson: Is there additional support that was a programme that very closely monitored local local government will be looking for from authorities over a five year period as they began their organisations like the Energy Saving Trust, the journey towards electronic governance. The big Carbon Trust, IDeA and so on, that would be useful diVerence between the two programmes, because to look towards developing that support actually there are an awful lot of similarities, is there mechanism? was annual funding for IEG and there is no annual Professor Chesshire: We would certainly argue that funding for local authorities to adapt to climate this upskilling, as it were, as Philip very properly change. says, both in range and depth is a constraint on some local authorities at the moment. I would particularly instance small district councils. Possibly it is Q38 Colin Challen: Can I follow on this point of unrealistic in any circumstances to expect them to skills for a very brief moment. In the report it says have a full range of capacity across planning, that 86 per cent of councils identified insuYcient renewables, transport, housing, waste and all the staV and staV time to tackle climate change and you rest of it. One of the things we were talking about in mentioned energy management as one of these key the report, and certainly in our discussions with local areas where there is a shortage of skills. I cannot authorities, was the extent to which it might be really understand how anybody today involved in possible for contiguous local authorities to actually energy management cannot themselves understand do a specialisation, as it were, an enhanced what they need to do to tackle climate change, it networking, although it might be seen as a loss of must be integral to their jobs. How can that be a sovereignty, I appreciate, for one particular district skills shortage? council to realise that not all of them can have Mr Mind: It is a general shortage of energy expertise across the whole waterfront, as it were, and managers, as I understand it, and the fact that the certainly in areas like adaptation contiguous local private sector is able to provide more competitive authorities are likely to face a similar problem, be salaries than local government. There has been a they on the coast or on a river plain that is prone to move of trained and skilled energy managers who flooding or whatever. In some areas one can have this skill set from the public sector to the rationally justify some sharing of expertise and so private sector. on. The same may well be true in some transport infrastructures as well away from the city areas, with Q39 Colin Challen: Is it safe to assume that those common nodes and so on across a county council councils that do not have energy managers do not area which might be exploited in that way. I do not have energy management? Somebody must do it think it is realistic to expect councils to have an surely, or do they just pay the bills as they come in oYcer for every function we have identified, I cannot and do not ask any questions? imagine that their time would be very usefully or Professor Chesshire: I think, as you will be aware, if fully deployed. I want to avoid giving the impression one looks back over 15/20 years a lot of energy that councils need to appoint a climate change management functions in local government, oYcer. They probably do to be the central point of universities and the private sector were either contact to track inquiries like your own and reports abandoned or transmogrified into purchasing oYcer like ours, but we want to embed those kinds of skills, functions, as it were, where the skills one had as an those sensitivities, as it were, across the accounting energy manager to reduce the size of the bill function, planning function, all the diVerent previously had focused on cutting quantity but functions in local government. That may mean that suddenly only concentrated on price and negotiating we do not need such specialised oYcers operating at price. In my close observation of this field over a district council level. There is a lot of CPD. We give period the age profile aged quickly and those who examples in the report, and I do not think there is have got used to dealing with quantities of energy, time to give more, but we certainly suggest the the technical side as it were, are leaving the field and Carbon Trust, IDeA, EST and a number of others, the procurement people are those who have been in Skills Councils and so on, that need to be aware of the majority because they know how to negotiate this agenda. One thing we have not talked about on with competing energy suppliers. The second skills, just before I finish, is certainly in the planning problem of concern about energy managers and function I know there is a very, very severe concern carbon oYcers and so on is that they should not be given low recruitment in the past that a lot of seen as “nerds” within their organisations and well experienced planners are now at the age of 55 or so, within a silo as a technical specialist. Unless they can so the Beachy Head retirement eVect is going to be be brought out of those silos and impinge on a major concern here unless we get it right, so some planning decisions or do a carbon evaluation of a succession planning is critical in some of these more planning decision my fear is we are not going to see strategic functions. the level and quality of change, the speed of change, Ev 16 Environmental Audit Committee: Evidence
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind which I very much hope we will see. My experience which of those indicators it selects as stretch of energy management functions, and I do not mean improvement targets. Regardless of whether or not to demean the people who do them, they are it does that, and that will depend on its decision absolutely skilled resources, is they do not usually about local priorities in negotiation with have much projection higher up the organogram and Government, all councils will be measured on those they need to have that in the future. It is a finishing carbon reduction indicators, so we have that and school extra. that will be very powerful in generating change. There is a wider comprehensive area assessment that Q40 Colin Challen: What role has the Nottingham the Audit Commission will undertake in relation to Declaration played in those councils who have area performance, which includes the local council signed up to it? Has it made a big diVerence? performance, and the Audit Commission have made Councillor Bettison: I tend to view the Nottingham some very powerful statements about the extent to Declaration as the first rung on a ladder for local which they will look at the sustainable use of authorities because it is a very easy thing to do to resources, so there is some consultation on the say, “We have signed up to the Nottingham comprehensive area assessment and they have said Declaration”. It is considerably harder, of course, to quite clearly that the way a council uses energy and begin to implement the diVerent facets of that reduces carbon emissions will be part of the view Declaration within one’s authority. That requires a they take on how eVectively a council is using its lot more commitment than we have seen from some resources, so that will be a really powerful driver as authorities who have simply signed up to it and the well. only thing they seem to have done subsequently is bought a frame for it. Q44 Joan Walley: Just to cut you short, powerful drivers, yes, but are we not perhaps at a stage Q41 Colin Challen: It does beg the question how they whereby the traditional way in which what local are held to account when they do sign up to it? authorities do is discretionary according to local Should they be strengthened? need, should there not be some kind of trumping Councillor Bettison: Indeed, in a conversation that I card which says that on all the services, given the had earlier with the chairman and chief executive of short amount of time that there is to deal with the Environment Agency we were looking at ways in climate change, we cannot leave it to whether or not which the Nottingham Declaration may be “beefed- they pick up one of these 198 performance indicators up”. Obviously it is not for us to say what should but that whatever is done should be underpinned by happen because it is not our Declaration, as such, this duty in respect of carbon? but there are a number of ways in which one could, Professor Chesshire: This occupied my brain a lot if Nottingham were minded, take it a stage or two or during the Commission inquiry and a lot of us were three further in terms of implementation of the items vexed about it. It is really assurance. We want an within the Declaration and then allow peer pressure assurance that there will be this response. In our to take over in terms of it is not just good enough to evidence, as we say in our report, many, many have signed up because we have got about two- thirds of all authorities that have now signed. people gave the response, “The local government needs a statutory duty, just slap a statutory duty on them”, but some of us are wiser old owls than that. Q42 Joan Walley: A couple of very quick questions. The numbers of statutory duties local government Are we relying on the goodwill of authorities to have can be measured in the thousands, many of follow Nottingham’s example or should we not be them forgotten quite frankly. In central government, looking towards mandatory outcome-based targets an area close to both of our hearts—fuel poverty— for action on climate change in the local government I draw the analogue between the Fuel Poverty performance framework? Strategy and the Climate Change Strategy, both Councillor Bettison: The LAAs will give local have statutory frameworks and both have advisory authorities the opportunity to set targets and then be groups, report to Parliament, et cetera. One is judged against those targets, so we see that local ignored as Government says, “No, we are the first authorities will be stepping up to the plate. country in the world to put in place a statutory framework with binding targets” and I tend to laugh Q43 Joan Walley: But is there not a diVerence a little bit from my fuel poverty perspective. between an opportunity to do something and a statutory duty to act on climate change? Mr Mind: The policy in this area is fairly recent. You Q45 Joan Walley: So what should happen? have to have a bit of a technical understanding of Professor Chesshire: The nearer they come to be how Local Area Agreements work to fully achieved and being measured on a target, the more understand it. Basically there are 198 performance it is dismissed or re-interpreted or whatever. I do not indicators that apply to every local council. They are think it is an honest response to say that we need a out to consultation now and two of them relate to statutory duty and that will solve the problem. What carbon reduction, one in the local authority estate, we have to do is say how do we seek to achieve some the other in the community, and a third in relation assurance of an eVective response from local to adaptation. It is for local strategic partners to government and we have suggested lots and lots and decide, in negotiation with the Government OYce, lots of diVerent ways. As a fallback, and this is for Environmental Audit Committee: Evidence Ev 17
15 January 2008 Professor John Chesshire OBE, Councillor Paul Bettison and Mr Philip Mind the LGA to respond to, we have said as the a bit of a chance. I am not yet convinced that this Commission, as you probably know, we would like slapping a statutory duty on anybody necessarily to be reconvened in six months’ time to see to what accelerates momentum or achieves an outcome. extent the LGA, through its consultation with its membership, is beginning to put a framework in Q46 Chairman: We are going to have to draw this to place, and we would like to be reconvened in two a close, I am afraid, although there are other areas years’ time to measure on the basis of a new local we might have covered had we had more time. We government survey actual practice on the ground. are very grateful to you for coming in. If there are Before the cynics think we are all after fees, this is further points, perhaps we might deal with those pro bono work, but we think we do need to show through correspondence at a later date. Thank you some momentum. The final point I would make on very much indeed. that one is a lot of measures are being put in place as Professor Chesshire: Good luck with your inquiry. we identify in the report and we ought to give them Chairman: Thank you.
Supplementary memorandum submitted by Local Government Association Many thanks for inviting the LGA to give evidence to the EAC enquiry on Climate Change and Local, Regional and Devolved Government. During the evidence session we promised to write to the committee on the issue of whether any councils has specifically used wellbeing powers to help them tackle climate change. We have talked to a number of our member councils who have been innovate in tackling climate change, and the Energy Savings Trust, to see if the wellbeing power has been instrumental in their success. We were interested to discover that the wellbeing power has indeed been used by a number of councils. I have enclosed a brief describing how these councils have used the power and what success they have achieved with it. I was very pleased to see that the EAC is undertaking this enquiry as local goveernment has a key role in tackling climate change. This March the LGA is planning to launch a major new campaign to help councils better tackle climate change, and we will be happy to keep you and the committee updated on its progress.
The Well-being Power has been an Important Tool for Councils to Tackle Climate Change
Islington Council The well-being power allowed Islington Council to enter a contract to provide services to a charitable organisation advising them on energy savings projects. Without the well-being power it is not clear how the council could have entered the contract with the charity which was not a “public body” as defined in the Local Authorities Goods and Services Act 1970. Islington Council were also able to use the well-being power to give a legal justification to their agreement to create a £3 million Climate Change Fund. This fund will be used to pay for capital projects that will reduce CO2 emissions in the borough.
Fenland District Council Using the power of well-being, Fenland set up FenESS, an energy services scheme combining energy supply with the provision of measures concerned with eYcient use. FenESS oVers a range of benefits to registered social landlords and public and private sector landlords, whilst helping energy conservation authorities to achieve their environmental targets.
Kirklees Metropolitan Borough Council The power of well-being enabled the local authority to join the UK Emissions Trading Scheme. The UK ETS oVered an opportunity for the council to secure additional funding over the next few years to reduce the amount of carbon dioxide emissions from its corporate operations. In return, it has signed up to a legally binding reduction of 1,000 tCo2e for part of its municipal buildings by December 2006; representing a 12% reduction.
Nottinghamshire County Council The power enabled the creation of Renewable Nottinghamshire Utilities Ltd (ReNU), which aims to develop the physical and commercial infrastructure necessary to encourage the wood heat industry in the East Midlands. Ev 18 Environmental Audit Committee: Evidence
Tuesday 22 January 2008
Members present
Mr Tim Yeo, in the Chair
Mr Martin Caton Mr Ian Liddell-Grainger Colin Challen Mr Graham Stuart Mr David Chayter Jo Swinson Martin Horwood Dr Desmond Turner Mark Lazarowicz
Memorandum submitted by Hampshire County Council The Environmental Audit Committee is asking some very important questions, answers to which will need investment of time and expertise in order to reach meaningful conclusions. Hampshire County Council has developed some expertise which may be helpful in reaching these conclusions.
1. Organisation Profile — High performing Authority, recent corporate assessment rating of 4/4. — Budget of £1.4 billion per annum. — Capital Programme spend of £200 million over the next five years. — Population 1.25 million residents. — Over 525,000 households. — 541 schools serving over 170,000 pupils. — Largest employer in Hampshire with around 35,000 employees. 1.1 Hampshire County Council has been engaged with climate change issues since the late 1990s, developing its role as a community leader on climate change. Early commitments were made to reduce climate change, eg signing the Nottingham Declaration in 2001, being a pilot in Councils for Climate Protection and the Carbon Management Programme. It was a founder member of the South East Climate Change Partnership, leads the ESPACE European project and has been part of the Advisory Group to the EU on adaptation to climate change. 1.2 Hampshire County Council recognises that it has a vital role to play in responding to the challenges of climate change. Hampshire is within one of the most dynamic and productive regions in Europe. A region that makes a significant contribution to the prosperity of the UK. It is also a region that is likely to be most aVected by climate change. The County Council recognises that climate change will impact upon the social, economic and environmental well-being of Hampshire and its community. There is a need to develop integrated responses to reduce the risks and seize the opportunities that climate change will bring. 1.3 The climate change programme for Hampshire County Council covers three main areas of work: — Mitigation. — Adaptation. — Change Management. This work includes projects which focus on actions to benefit the community, on corporate issues to improve our own performance and in some cases, those which address both. Hampshire County Council has a number of partnerships at local, regional, national and EU levels, which allow the exchange of information and experience on mitigating and adapting to climate change. We are also directly involved in developing our own projects to address climate change issues both within the County Council and in the community of Hampshire.
1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government? As a local authority and the democratic interface between Government and the community we need a number of things to carry out our role eVectively. Amongst these are: — Information—we need to keep up to date with current developments and research and be able to provide advice to the community and to organisations we work with. Environmental Audit Committee: Evidence Ev 19
— Tools—in order to deliver our climate change programme we may need additional tools/ methodologies/models; some of these may be existing ones developed by others that we can adapt for our use, some may be new ones that are developed jointly through working with partners. — Policies—we need to adapt or create policies to address climate change issues both of mitigation and adaptation. We also need to be able to influence policies that are developed at the regional, national and European level to ensure maximum beneficial impact on Hampshire’s community. — Resources—one of the barriers to local administrations participating in the development of research, methodologies and strategic policies, is the availability of suYcient resources. One way of facilitating this work is the opportunity to participate in funded programmes. — Joint working—local authorities and Government need to work together more closely to develop solutions and programmes.
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? — The role of local authorities is not explicit with regard to tackling climate change. — Creating a vision—Hampshire County Council has adopted a goal that within a decade Hampshire should prosper without risking our environment. Climate change is likely to have the greatest potential for threatening the successful achievement of this goal. — Local leadership—Hampshire County Council, has developed a climate change programme by largely acting on its own initiative and as a champion organisation for climate change. This approach develops a response that suits the needs of our community and takes account of local challenges and opportunities in Hampshire. — As early signatories to the Nottingham Declaration Hampshire County Council has been able to harness the opportunities of this initiative in a pro-active way.
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? — Identifying local needs and priorities—through our Commission of Inquiry in Hampshire we have been able to identify issues and challenges that are particularly relevant to our county. We aim to continue this work and engage with key organisations to deliver a programme of actions. — Performance Frameworks—need to take account of local distinctiveness and be better integrated. — Measuring adaptation—Creating a measurable performance indicator remains a challenge for adaptation. The change management tools we are developing may provide a useful aid here.
4. How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are local authorities, regional government and devolved administrations? — Planning and implementing change— eVective adaptation responses at a local level will need to be supported by eVective national policy frameworks and resources. — Developing expertise—We recognise that a certain amount of change is already inevitable and we need to plan to do things diVerently so that we are well-adapted and prepared for the consequences of these changes. As a coastal county we face challenges in the coastal zone with rising sea levels that will aVect coastal communities, as well as the leisure, ports and other marine industries. — Identifying local needs and priorities—through our Commission of Inquiry in Hampshire we have been able to identify issues and challenges that are particularly relevant to our county. We aim to continue this work and engage with key organisations to deliver a programme of actions. — Developing cost-eVective solutions—timely decisions and implementation strategies will be needed to achieve this. — Working to achieve change—we have developed some techniques and tools to help us manage change. We will need to work closely with key stakeholders to gain and maintain their support. — Assessing vulnerability—Combine change management and risk management approaches. These two complementary approaches must work together to ensure that adaptation is firmly embedded into spatial planning. — Civil Contingencies Act—has the potential to provide statutory duty to plan for climate change events and link to emergency planning powers and responsibilities. Ev 20 Environmental Audit Committee: Evidence
5. How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK? Working together—by bringing policy makers and policy implementers together the work of the Committee should seek to ensure that national policy frameworks are practical in their application and take account of local distinctiveness.
6. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? Working together—by bringing policy makers and policy implementers together the work of the Committee should seek to ensure that national policy frameworks are practical in their application and take account of local distinctiveness. Supporting change—national government needs to develop a vision and a framework to enable, support and deliver adaptation to climate change.
7. What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions? ESPACE—the work undertaken by the ESPACE Project that Hampshire County Council leads has contributed some useful work here. Further work is to be delivered in 2008 that examines barriers to eVective change.
8. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? As a local authority and the democratic interface between Government and the community we need a number of things to carry out our role eVectively. Amongst these are: — Information—we need to keep up to date with current developments and research and be able to provide advice to the community and to organisations we work with. — Tools—in order to deliver our climate change programme we may need additional tools/ methodologies/models; some of these may be existing ones developed by others that we can adapt for our use, some may be new ones that are developed jointly through working with partners. — Policies—we need to adapt or create policies to address climate change issues both of mitigation and adaptation. We also need to be able to influence policies that are developed at the regional, national and European level to ensure maximum beneficial impact on Hampshire’s community. — Resources—one of the barriers to local administrations participating in the development of research, methodologies and strategic policies, is the availability of suYcient resources. One way of facilitating this work is the opportunity to participate in funded programmes. — Joint working—local authorities and Government need to work together more closely to develop solutions and programmes. 31 December 2007
Memorandum submitted by the Sustainability Manager, London Borough of Southwark
Executive Summary and Recommendations
— District heating and combined heat and power (CHP) has great potential for reducing CO2 emissions and providing energy security across an increasingly urbanised UK. — The planned route to zero carbon homes (via the Building Regulations and Code for Sustainable Homes) places too much emphasis on eliminating heat demands, while not tackling the growing electricity demands until after 2013. This will limit the potential CO2 savings that CHP could deliver in new developments. Some portion of appliance electricity use should be addressed in the next update of the Building Regulations. — There is currently a gap in UK policy for supporting development of CHP/district heating. — Local authorities should be given an explicit energy planning role—with particular emphasis on heat network planning. Environmental Audit Committee: Evidence Ev 21
— Government should re-introduce funding to “pump prime” investment in heating networks (building on the experience of the previous Community Energy Programme). — Government should introduce much stronger policies to re-direct investment from heat dumping thermal electricity generation plant to CHP and district heating.
Submitter Introduction
The Sustainability Manager is responsible for development and co-ordination of Southwark Council’s Climate Change Strategy. In December 2006 Southwark Council agreed a climate change strategy based on achieving a borough wide 80% reduction in carbon dioxide emissions by 2050 (from a 2003 baseline). Energy used within buildings is responsible for 85% of the borough’s (direct) emissions, and detailed analysis identified the optimum CO2 reduction path to be widespread adoption of CHP and district heating. This approach is being pursued in the regeneration of the Elephant & Castle where a target of zero increase in CO2 emissions has been set, despite a planned increase of 300% in building floor space.
Importance of CHP and District Heating in Reducing CO2 Emissions
1. UK power stations waste around two thirds of the input energy as heat. The heat wasted by UK power generation is more than is required to heat every building in the UK (and to provide the hot water). Modern combined cycle gas turbine plant can achieve eYciencies of around 50%, but these are still typically located remotely from electricity users and further losses (around 7%) occur through the transmission and distribution networks. These ineYciencies result in grid electricity having the highest CO2 burden among the fuels used within buildings. 2. CHP can typically achieve eYciencies of over 80% by using the “waste” heat from power generation to provide space heating, hot water or heat for industrial processes. Availability of indigenous coal, oil and natural gas led the UK to opt for centralised heat dumping power generation, along with a separate nationwide gas network for providing space heating via individual building boiler systems. Hence there has only been significant use of CHP for industrial use in the UK. 3. CHP generates heat and electricity at the same time, but building demands for heat and electricity vary according to the use of the building, time of day and season. For this reason, CHP is most eVectively deployed at a “neighbourhood” level supplying a mix of building types where the varying energy demands are aggregated to make a more even profile (eg dwellings have complementary “evening/weekend” demands to oYces and schools). 4. To operate at a neighbourhood level, CHP requires a “district” heat network. The costs of installing this network are typically the largest capital costs of any CHP/district heating scheme. This is a long-term investment with returns typically made on a 20–30 year basis (however, modern heat pipe lifetimes are around 100 years). 5. District heating also oVers greater fuel security and flexibility to move to lower carbon and renewable fuels as the network supplies energy as hot water. It is technically and economically more feasible to convert a neighbourhood “energy centre” to run on bio-fuels, waste derived fuels or even a hydrogen fuel cell than convert hundreds of individual properties. The natural gas network “locks” consumers into using a single fuel resource which is finite and rising in price. 6. With high heat network costs and the need for a mix of energy demand profiles, CHP/district heating is mostly suited to dense urban areas. As 80–90% of the UK population now live in urban areas this sustainable energy supply option should be given priority. 7. Micro-CHP has been developed for individual dwellings, but this is not the best approach as plant will be idle during weekdays and summer when heat is not required (see paragraph 3 above) and users are still locked into the natural gas network. 8. 70% of the homes that will be using energy in 2050 have been built already. For a large portion of this (and non-domestic) stock it will be diYcult to reduce the energy demand (eg solid walled buildings, listed buildings etc). District heating could easily be supplied to these buildings providing further use for the “waste heat” from electricity generation.
CHP and District Heating Not Supported by UK Energy Policy
9. Current UK energy policy provides little support for CHP/district heating. In fact, in the absence of any real incentives to develop CHP/district heating in existing stock, current policy seems most likely to minimise development of CHP/district heating. Ev 22 Environmental Audit Committee: Evidence
Building Regulations and the Route to Zero Carbon Dwellings
10. Over the last decade the Building Regulations have been improved but have focussed on reducing CO2 emissions resulting from the provision of heating and hot water demand, while leaving the energy and CO2 emissions from appliance use (or ICT equipment in non-domestic buildings) untouched. 11. This approach is understandable as it is easier to regulate higher standards of building fabric insulation along with more eYcient boiler systems than to try to tackle the wide range of electrical appliances and ICT equipment that fill our homes and workplaces. This “unregulated” consumption is almost all electricity, which has the highest fuel CO2 content. As a result almost 50% of the total emissions from new homes is beyond the control of the Building Regulations. 12. An additional problem is the presence of a “fuel factor” within the Regulations which allows dwellings that are electrically heated to meet a less stringent CO2 reduction target, than buildings using other fuels. 13. The Government expects organisations to use the voluntary “Code for Sustainable Homes” to accredit new homes that go beyond minimum Building Regulations. Each level of the Code sets an incremental reduction in the emissions from the “regulated” energy demands covered by the Building Regulations (heating, hot water and lighting). Code Level 5 requires zero CO2 from all regulated energy demands, the highest Code Level 6 is a fully “zero carbon” dwelling (eg estimated electricity consumption from appliances must also be supplied by zero carbon sources). 14. The Department for Communities and Local Government (DCLG) have stated that the route to zero carbon homes in 2016 will be implemented through the Building Regulations, based on the incremental Code Levels. But domestic appliance use will only be addressed after the 2013 update of the Building Regulations. 15. The overall eVect of the Building Regulations and the Code for Sustainable Homes is to design heat demand out of dwellings, while leaving the emissions due to the rapidly growing electricity demand from appliances untouched until 2013. CHP is the most cost eVective means of providing low carbon (or zero carbon, if biofuels are used) electricity. But if there is little heat demand, then CHP will be unviable. The only other on-site options for low carbon electricity supply are solar photovoltaics and wind turbines (both of which are more costly and practically limited in urban settings). 16. An emissions reduction “hierarchy” has rapidly become an unquestioned tenet of energy planning— this puts the minimisation of energy demands as a priority, before designing low and zero carbon systems to meet the remaining demand. This may well be an entirely rational approach, but it makes less sense where it is exclusively applied to one type of energy demand, ie heat. 17. It is perfectly possible to eliminate most of the heat demand of a dwelling via “super-insulation”. However, the same cannot be achieved for the dwelling’s lighting and appliance electricity use. Where these loads are met from a national electricity generation system that dumps vast quantities of heat, it does not seem rational to spend significant capital on insulation to eliminate the heat demand. An optimum carbon saving (per £ invested) is more likely to be achieved through a balance of insulation and deployment of CHP to oVset the heat dumping, CO2 intensive grid electricity.
The Route to Zero Carbon Non-domestic Buildings
18. The energy demand patterns of non-domestic buildings are far more diverse and complex than for dwellings. The Government has yet to set the route map and timescales for zero-carbon new non-domestic buildings, there is no equivalent to the Code for Sustainable Homes for these buildings. A recent DCLG report prepared by the UK Green Building Council1 (UKGBC) has highlighted that it will be much more diYcult for non-domestic buildings to reach zero carbon than domestic buildings as their ratio of electricity demand to heat demand is much higher. 19. The analysis contained within the report challenged the zero carbon approach where each new building is considered in isolation. Due to diVerent consumption patterns for heat, electricity and cooling (as highlighted in paragraph 3) a “community” based approach would be more appropriate—a CHP driven district heating network linking diVerent building types. 20. In the case of non-domestic buildings, cooling represents a growing demand and this is usually met via electric chillers. An alternative would be to use the waste heat from CHP (during the summer when there is no space heating demand, but still electricity demand) to provide cooling via absorption chillers. While such equipment has lower eYciencies than electric chillers, it would be eVectively making use of the waste heat from electricity generation.
1 Report on carbon reductions in new non-domestic buildings: December 2007. Environmental Audit Committee: Evidence Ev 23
Lack of Support for CHP/District Heating in Existing Stock 21. The “designing out” of heat in new dwellings would not pose a problem for development of CHP/ district heating if there were suYcient support for developing heat networks among the existing stock. The only such support mechanism, the “Community Energy Programme” has been closed, with no equivalent scheme taking its place. 22. Hence, new development currently presents the best opportunity to develop CHP/district heating which could later extend to supplying surrounding existing stock. However, the planned route to zero carbon homes is in danger of designing out CHP from any energy solution as there is an imbalance between tackling heat and electricity demand (until after 2013–16). 23. Local authorities with urban regeneration schemes have made some progress in supporting CHP/ district heating schemes. This has largely been achieved through planning policy. In the case of Southwark’s Elephant & Castle scheme, the Council is fortunate in owning a significant portion of the land and can therefore oblige plot developers to connect to the proposed CHP heat and power network. Section 106 agreements have been used to oblige connections where the Council does not own the land. 24. However, without a secure (and stable) national policy framework to support CHP/district heating investors are likely to view the risks of long term investment in heat networks as being too high.
Major Gap in UK Energy Policy 25. There are a number of imbalances in current UK energy/climate policy as it applies to the built sector: — focus on heat demand rather than electricity demand; — focus on domestic rather than non-domestic (for both new-build and existing); and — focus on zero carbon new build rather than “lower carbon” existing buildings. 26. In particular there is a gap in policy for community level energy systems. Policy is still focused on the opposite ends of the centralised energy supply model—eg on individual buildings and what kind of centralised power plant should replace those being decommissioned. 27. Local authorities (and their Local Strategic Partnerships) could be given an explicit role in local heat planning. This would be similar to the responsibilities given to Danish local authorities in the 1979 “Heat Supply Act” which also gave powers to oblige consumers to connect to heat networks. 28. Heat networks, like any other utility network are a natural monopoly so such powers should be balanced by adequate consumer protection (eg in Denmark there is a requirement for consumer control and price transparency, in the UK this could be achieved through the use of “Community Interest Companies” which would ensure that the network assets are retained by the local community). 29. Investment in heat networks yields returns only on a long term basis, there is therefore a need to drive private sector investment into such schemes. This could be achieved through the “carrot” of funding (similar to the axed Community Energy Programme) and through the “stick” of deterring further investment in “heat dumping” centralised generation plant (eg in Denmark a simple ban was put in place on further non- CHP thermal generating plant). 3 January 2008
Memorandum submitted by Association of North East Councils
Introduction
The Association of North East Councils (ANEC) is the political voice for local government in the North East, representing all 25 local authorities in the region, throughout Northumberland, Tyne and Wear, Durham and the Tees Valley. It is a cross-Party organisation with all of its Members being democratically elected and accountable politicians. The Association welcomes the opportunity to respond to the Environmental Audit Committee’s request for submissions on its forthcoming inquiry into climate change and the role of local, regional and devolved government. Members of the Association, at its Plenary meeting in January 2007, gave their commitment to tackling climate change as a key policy priority. As part of this, they endorsed the creation of a member- led Climate Change Task and Finish Group. The Group was tasked with looking at how local government in the North East can work collectively and collaboratively to improve its performance, reduce its impact on climate change and add value to current initiatives aimed at tackling this issue. Ev 24 Environmental Audit Committee: Evidence
Summary
Local government in the North East has made a political commitment to tackling climate change through each of the 25 local authorities signing the Nottingham Declaration on Climate Change. This public commitment has been taken a step further through the Association, on behalf of the 25 local authorities, signing the North East Declaration on Climate Change, alongside a range of partners from the public and private sector. This is the first regional declaration in the country and demonstrates the political lead being taken in the region. In tackling climate change, local authorities in the North East have recognised that winning the hearts and minds of individuals is essential. A consistent and clear message can encourage action to be taken by individuals, a vital component in mitigating the impact of climate change. In order to convey this message successfully, North East local government has engaged successfully with the regional media to publicise the numerous green initiatives being undertaken and the benefits of these. In particular, local government has recognised the importance of engaging with young people. As part of this, the Association recently arranged a debate with young people which provided young people with an opportunity to question elected politicians about their role in tackling climate change, whilst ensuring that their views were heard and politicians were able to recognise what is important to young people. Furthermore, local government can play a leading role through its own actions and operations. As large estate managers, local government has the opportunity to improve energy eYciency and reduce carbon emissions considerably. The improvement of housing stock is a key goal for local government in the North East. Furthermore, there is recognition that collaboratively the local authority sector can influence suppliers and producers of goods through its collective procurement spend. The memorandum demonstrates that local government has a central role in tackling and adapting to the impact of climate change. Through its strong community leadership role, it has the ability to forge and develop local partnership and is also ideally placed as the closest democratic link to the communities that they service. Within the North East, local government has taken the initiative and made several significant strides towards adapting to the challenges posed by climate change.
Q1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government?
1. Central government oVers the opportunity for local government to play a greater role in the tackling of climate change, through its legislative capacity to empower local authorities with powers and resources to make a diVerence at a local level.
UK Climate Change Programme
2. The Association welcomes the UK Climate Change Programme, which recognised the crucial role that local government can play in reducing emissions and adapting to climate change. 3. Furthermore, the Local Government and Public Involvement in Health Act 2007 gave local government new opportunities to drive forward local action on climate change mitigation and adaptation, leading by example and through its own practices and the services it delivers, as well as placing the environment as a core theme in the third generation of Local Area Agreements (2008). The expectation from Defra that all local authorities should agree a climate change mitigation target for inclusion in their Local Area Agreements is a move that the Association supports and will ensure that climate change, and adapting to its eVects now and reducing its impact in the future, is a central focus for local authorities across the region.
Comprehensive Area Assessment
4. From 2009, with the Comprehensive Area Assessment (CAA) taking over from the Comprehensive Performance Assessment (CPA) of local government and the measurement of performance against a single set of outcomes through 198 national performance indicators the Association supports the inclusion of climate change targets being incorporated into the performance framework. A more specific consideration of the individual performance measures in given in response to question three, but the Association supports the move to further embed the reduction of greenhouse gases into the mainstream of local authority activity through the introduction of indicator NI185; “the CO2 reduction from Local Authority operations”. Environmental Audit Committee: Evidence Ev 25
Waste 5. The Association, in its response to the National Waste Strategy (July 2007) supported the approach outlined and the underlying principles behind the strategy, the key objectives of which are to incentivise eVorts to reduce, re-use, re-cycle waste and recover energy from waste. 6. Measures such as these indicate that within the context set out by national government, local government has an important role to play in leading its many partners to make a real diVerence. Members of the Association feel that they will encourage mitigation and also adaptation to climate change.
Transport 7. One of the major ways in which local authorities can reduce the carbon emissions in their areas is through transport. However, tackling transport’s contribution to climate change requires the involvement of a number of partners at all spatial levels. But councils can take action strategically to reduce transport related carbon emissions across each of their roles, in particular, through engaging the local community to take tough decisions, for example, on diVerential car parking charges. They can green their own fleet; encourage their suppliers to reduce transport related emissions; ensure that eVective spatial planning promotes walking, cycling and the use of public transport; and engage with their wider community to help them travel sustainably. 8. Reducing carbon emissions and improving resilience need to become a feature of local strategic thinking on transport (through Local Transport Plans) using the measures that have already been developed such as the promotion of walking and cycling, 20 mph speed limits, workplace parking levies, road space re-allocation, travel planning (both individual and workplace), promoting car share schemes, eco-driving, and congestion charging with diVerentiation for vehicle emissions. 9. Multi-area Agreements (MAA) have the potential to produce an eVective structure within which to develop strong levels of sub-regional co-operation in tackling climate change. Within transport they provide the opportunity to tackle carbon emission requires sub-regional co-operation to have a significant impact, such as, for example, the co-ordination of car parking charges. The MAA provides a mechanism for cross council co-operation. As local government with other strategic partners, negotiate LAAs and experiment with MAAs we will have hard evidence of local government’s intentions and progress.
Adaptation 10. One power that the Association would wish to see in place is a further policy that encourages adaptation. Currently there is no statutory duty on councils to take action on adaptation, other than to ensure that flood risk is taken into account at all stages in the planning process to avoid inappropriate development in areas at risk of flooding, and to direct development away from areas of highest risk. From 2008, there will be an adaptation indicator in the new performance framework for local authorities. DEFRA is expecting at least one climate change target to be included. By ensuring that both mitigation and adaptation targets are embedded, this will ensure that partners will need to work collaboratively to achieve the required outcomes.
Q2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? 11. Within the North East, the role of local authorities in tackling climate change is well established. The range of partnerships established across the public, private and voluntary sectors to tackle climate change ensure that a strong degree of co-ordination exists.
Communication 12. Key to eVective coordination is eVective communication which is central to winning the hearts and minds of stakeholders, citizens and communities. The North East Local Government Communications Network is a tremendous resource to pool experience and expertise in order to develop eVective and consistent messages about climate change, aimed at a wide range of audiences. It was a key recommendation of the Task and Finish Group that the Communications Network is utilised to explore the development of a single message for communications on climate change. 13. This has been developed alongside a campaign which the Association, on behalf of North East local authorities has endorsed. Local government has recognised that the regional media in the North East has a fundamentally important role in communicating positive messages about climate change to a mass audience. As part of a commitment to educate and raise public awareness of environmental issues, the ncjMedia “Go Green” campaign is focusing on the themes of “Think Global, Act Local” and “Renew, Reuse and Recycle”. Ev 26 Environmental Audit Committee: Evidence
14. The campaign provides an imaginative and eVective platform for encouraging families, schools and communities to renew, reuse and recycle. The campaign also aims to recognise and award achievement and best practice through publicity and awards. It is already acting as a catalyst to encourage people to save energy, persuade businesses and regional organisations to play their part in a greener future, as well a galvanising communities into action. Engaging within this campaign has allowed North East local government to ensure clarity exists across the region about the role of local government in tackling climate change. On the back of the success of this coordinated campaign, the Task and Finish Group have recommended that all opportunities to work with the press and broadcast media in the North East are explored to promote the climate change agenda. 15. The presence of a strong communications message brings about the element of transparency and accountability. The challenge of tackling climate change is one that everyone needs to be a part of, but yet, local authorities need to be accountable for their own actions to draw support and other organisations into taking up the challenge themselves.
Co-ordinated approach 16. An example of a coordinated approach in action is the recognition by the Association’s Climate Change Task and Finish Group that local government has a further opportunity to stimulate the region’s economy by using its collaboration to articulate a collective voice to influence markets. For example, whilst production facilities are available on Teesside for bio diesel, bio diesel is not readily available to buy locally. In considering the fuels for council fleets of vehicles to run on bio diesel in the North East, there is a need to be able to source it locally. The fact that it is not available in the North East inhibits local authorities’ ability to play their full role in tackling climate change. Local authorities could have a key role to play in opening up markets in the North East. 17. Further demonstrating the strength of local partnerships, the North East Climate Change Partnership was formed in July 2007 to ensure the development and delivery of a co-ordinated regional response to tackling climate change. The focus of North East Climate Change Partnership, through the development of the North East Climate Change Action Plan is to identify, agree and prioritise a range of actions required across the region; and, to identify key responsibilities for delivery within diVerent sectors. These two examples indicate the level of success of a coordinated approach.
Young people 18. There are tremendous opportunities for local authorities to work with and have dialogue with young people on a broad range of issues relating to climate change and their local environment. The engagement of young people is one of the Association’s key Manifesto commitments. Young people’s general enthusiasm and engagement with this subject is an important resource as local authorities seek to develop policy and influence and win the hearts and minds of older generations and decision-makers, as well as children and young people themselves. 19. The Association is participating in a steering group which is implementing the regional “Climate Change Schools Project”, which includes the Science Learning Centre North East, amongst other partners. Its overall aim is to steer the development and implementation of a standardised package of climate change school resources and professional development opportunities for school teachers in all local authorities across the North East. 20. In December 2007 the Association organised a debate with young people on tackling climate change, involving members of the Task and Finish Group, in order to capture the views and opinions of young people from schools and organisations across the region on tackling climate change and reducing the region’s carbon footprint, improving the local environment, recycling, energy eYciency and renewable energy. The panel was composed of members of the Association’s Task and Finish Group as well as the Rt Hon Phil Wilson MP for Sedgefield. Young people took the opportunity to hold elected representatives to account for local government’s approach to climate change.
Nottingham Declaration on Climate Change 21. A particularly eVective tool that local government in the region have used to display their strong leadership in tackling climate change, as well as to begin to work collaboratively through networks and through the Association of North East Councils, has been the Nottingham Declaration on Climate Change. 22. The Climate Change Task and Finish Group recommended that all North East local authorities commit themselves to signing the Nottingham Declaration. In becoming signatories, local authorities are committed to eVecting positive change and are, importantly, perceived and seen to be taking responsibility and action by the citizens and communities they represent. Environmental Audit Committee: Evidence Ev 27
23. The Declaration has been particularly useful since, in demonstrating clear visible leadership through committing to the aims contained within. Local authorities have provided their community with the opportunity to be held to account for their actions in reducing their carbon emissions. Local authorities in the region have taken the opportunity to be seen as visible leaders in the region and this is something which has allowed a stronger partnership to develop between regional partners. 24. On 17 December, the Association of North East Councils, on behalf of local authorities in the region, signed the North East Declaration on Climate Change. This commitment was signed alongside a host of regional partners from the private, public and voluntary sectors and is a regional recognition and commitment to work collaboratively to tackle the causes and eVects of a changing climate on our region. It also commits all the signatories to monitor the progress of their plans against the actions needed, and then publish the results, thereby demonstrating a strong element of accountability and transparency about the actions being undertaken. 25. This is something which the Association believes fosters good practice in tackling climate change and demonstrates that with strong determination to succeed, good communication with all sectors and groups within the community and a clear demarcation of the roles and responsibilities of the diVerent bodies. 26. Local government is at the very heart of tackling climate change and in the North East local authorities have taken up the initiative to clarify its role regionally, to build its relationships with partners to deliver a strong collaborative and coordinated approach to reducing carbon emissions, whilst retaining a high profile to demonstrate that the local government community is leading by example and be held to account for the measures undertaken to deal with climate change.
Q3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? 27. As previously detailed, local government is already taking several positive steps towards reducing the impact of climate change, as well as tackling the causes of climate change. As part of this, the Association welcomes the move by Government to push climate change to the very heart of the local government performance framework.
Energy eYciency 28. During its work, the Climate Change Task and Finish Group discussed the need to ensure energy eYciency is achieved in local authorities’ own buildings and capital programmes as well as its housing stock. Specifically regarding housing, the Group discussed this in the context of the ‘Decent Homes Standard’ to which all local authorities have to adhere. Whilst funding is made available to explicitly improve the standards of social housing stock, the Group noted that this does not include criteria for energy eYciency. The Task and Finish Group recognised that whilst it is easier to set energy eYciency standards at the planning and development stage of new build capital programmes, the funding criteria for existing capital renovation and new build programmes is inadequate as energy eYciency is not a pre-requisite for spend. The net eVect is that the investment cannot be channelled to focus on energy eYciency measures in refurbishing existing housing stock. They would wish to see energy eYciency become a pre-requisite for spend.
Performance framework 29. The Association supports the development of performance indicators (PI’s) which highlight the carbon dioxide emissions not just from local authority operations but also per capita in the local authority area. This demonstrates the strong leadership role of local government in coordinating a reduction in carbon dioxide emissions. Furthermore, as already stated, communication of the key messages regarding climate change is seen by North East local government as absolutely vital to bringing about real change. These two “headline” indicators are ones that can be used by local authorities when they are reported to demonstrate their success, but also to drive home to individuals within the area the role they too can play in tackling climate change. 30. The Association particularly welcomes PI NI187, which is concerned with the progress made towards tackling fuel poverty. During its work, the Climate Change Task and Finish Group strongly considered the issue of fuel poverty and its impact on climate change. The Association supported a major conference earlier this year, organised by the leading fuel poverty charity National Energy Action and sponsored by the Improvement Partnership for North East Local Government. “Leading Energy EYcient Communities” raised awareness of the issue of energy eYciency and how actions and behaviours from the top down can lead the way to real change. Ev 28 Environmental Audit Committee: Evidence
31. National Indicator 188—“adapting to climate change” is a welcome addition to the new set of performance measurements. Measuring the integration of incorporating action into local authority strategic planning is very important if local authorities are to move towards adapting to the eVects of climate change which are beginning to emerge rather than simply mitigating the causes. 32. From the work of the Task and Finish Group, the Association feels that perhaps there is an opportunity to consider monitoring of green procurement. As a sector local government procures over £8 billion per annum. Therefore the ability to influence the market in order to encourage suppliers to adopt greener practices, whilst contributing to the growth of the economy is immense. 33. Within the North East local government sector much positive work has already been done. The North East Improvement and EYciency Steering Group has recently endorsed the production and adoption of a Collaborative Procurement Concordat between all 25 local authorities, which includes sustainability as a core principle. In March 2008, the Local Government Procurement Action Plan shall follow which; through its flexible framework shall help local authorities harness the sustainability potential from their procurement spend. In particular, the Group felt that construction should be a central focus of green procurement due to the level of regeneration and new build within the North East. The potential exists through this new build to reap the benefits of green procurement. Therefore, based on the positive work of the Task and Finish Group, the Association feels that adopting a measure of green procurement could be a beneficial way of mainstreaming greener procurement practices at all levels of government.
Q5. How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are local authorities, regional government and devolved administrations?
Strong Regional Coordination 34. As detailed earlier local programmes in the North East are well advanced and strongly coordinated. Local authorities find themselves very vulnerable to the impact and eVects of climate change, due to the wide-ranging role and remit authorities have, such as in planning, housing and transport. However, this presents an opportunity as local government is ideally placed to lead the challenge. Seizing the initiative is something that local government in the North East have done, and united many partners in resolving to tackle climate change. 35. A prime example of the level of coordination that can take place locally and regionally, is the recent signing of the North East Declaration on Climate Change with the Association, on behalf of all 25 North East local authorities, along with a range of partners from the public, private and voluntary sectors. 36. A further sign of the strong coordination that takes place was demonstrated through the Association supporting a major conference earlier this year, organised by the leading fuel poverty charity National Energy Action and sponsored by the Improvement Partnership for North East Local Government. “Leading Energy EYcient Communities” raised awareness of the issue of energy eYciency and how actions and behaviours from the top down can lead the way to real change. 37. Therefore, the programmes of adaptation towards climate change in the North East are particularly well advanced and strongly coordinated. Strong commitment exists across the various sectors which recognises the impact they have on the environment, the benefits to be made from tackling climate change and the positive role they can play in engaging the hearts and minds of people across the region.
Support for adaptation 38. As part of these aims, the Association feels that there is a whole range of support for local authorities to engage with, and utilise the expertise of. The example of the conference held by National Energy Action demonstrated the support that existed, with funding from the Improvement Partnership for North East Local Government, to raise awareness and inform local authorities managers on how to initiate action from the top down. 39. The Carbon Trust also oVer support to local authorities, which they outlined in discussions with the Association’s Climate Change Task and Finish Group. As a result of these discussions, the Group have recommended that any remaining North East local authorities that have not already adopted the Carbon Trust’s Carbon Management Programme, do so at the earliest opportunity. This ensures that local authorities are supported by technical and change management support and guidance, to deliver reductions in their carbon emissions from the Carbon Trust and the support they have already provided in the region has been of great benefit to local authorities. 40. Within the North East and indeed across the whole of the UK, fuel poverty is a particular issue of concern for local authorities. Within the region approximately 450,000 homes require cavity wall insulation and a further 500,000 require loft insulation. An estimated £300 million of investment is required over 10 years for traditional insulation measures. By gaining consensus and support across the region, the North Environmental Audit Committee: Evidence Ev 29
East Homes insulation Partnership (NEHIP) is confident of being able to draw significant amounts of funding into the region to achieve its objectives. The Climate Change Task and Finish Group, on behalf of all 25 local authorities have committed to support NEHIP in its objectives.
Support for local authorities 41. During its work, the Group was also advised that there are many initiatives and organisations across the region whom can be of enormous benefit to local authorities in tackling climate change. These include the Domestic Energy Solutions project “Go Warm” which is looking to cut fuel poverty and increase energy eYciency for up to 150,000 homes in the region and reduce CO2 emissions by up to 100,000 tonnes a year. 42. The Group also recognised the need for local authorities to work more closely with the Environment Agency which has a significant role to play in adaptation. The Group also heard from the Energy Saving Trust, which has developed a regional network and brokerage service providing energy advice and guidance to all markets, domestic households, local authorities and house builders. Working with a range of delivery partners to ensure that services are available to all households, the Group recognised the need for local government to work collaboratively to tackle fuel poverty. 43. Within the North East region there are also several ground-breaking and successful initiatives that oVer advice and support to improve energy eYciency and reduce energy consumption, increasing the percentage of energy consumed from renewable sources. The Association is undertaking to champion the North East as a key location for the new and renewable energy industry based on these initial projects. Local government has a major role to play in promoting these opportunities, which are oVered by organisations such as the New and Renewables Energy Centre (NaREC) in Blyth and RENEW Tees Valley. 44. As stated above in response to question 1 the Association would urge Government to ensure that organisations such as these are fully supported in their actions, and that the expertise they bring is utilised.
Q6. How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK?
Independence and transparency 45. The Association of North East Councils supports the establishment of a Committee on Climate Change. Such a body is important if the challenging targets set out in the Government’s Climate Change Bill, of 60% reduction in CO2 emissions are to be achieved. As the principal role of the Committee, as set out in the legislation, is to advise the Secretary of State on carbon emissions, it is essential that local government plays a leading role on the Committee. We consider the committee’s advisory function to be incredibly important in helping to determine how the long term targets will be achieved, and developing options/ scenarios and the long term trajectories. The Committee should be available to provide transparent and objective advice and guidance to all sectors of UK society. 46. Its independent status and transparency of operation will play a crucial role in securing credibility and buy in from all sectors of UK society in striving to deliver the 2050 CO2 emissions targets. In addition, we feel that the Committee should be politically accountable rather than the proposed unaccountable Committee, and that it should also hold some form of responsibility for monitoring procedure eg Select Committee.
Role of local government 47. As noted earlier, government ministers have acknowledged the central role that local authorities have to play in tackling climate change. Furthermore, local government is the closest branch of government to communities, who have equally as important a role in reducing carbon emissions and adapting to the eVects of climate change. Therefore, in representing the views of people, local government clearly has a strong role to play in the Committee on Climate Change. 48. Whilst the Bill discussed the need to incorporate the contributions of devolved administrations, surprisingly there is no reference to the role of local government as the accountable and local level of government in this process. Local government in the North East contributes over £8 billion to the economy. It has the will and the ability to directly deliver and influence the achievement of the proposed UK targets (see section on “Other responses or comments”). 49. We would urge Government to consider further the sectoral contributions (statutory and non statutory role) of local government before finalising the factors and indeed the membership of the Climate Change Committee. In addition, we would urge Government to ensure that local government is involved in developing the targets and flexibilities and that it has the necessary budget to deliver the national targets. 50. The work which local government in the North East has led in confronting climate change demonstrates the pressing case for this work to be fed into the Committee on Climate Change. The Association believes the level of engagement, collaboration, innovation and commitment to the challenge in the North East demonstrates the ability of the region to lead the way. Therefore, we would wish to see the Ev 30 Environmental Audit Committee: Evidence
Committee on Climate Change undertake to ensure the views and work within each region are considered as a matter of course in its duties. It would allow the sharing of good practice and ensure that collectively the United Kingdom can reduce the impact of climate change.
Q7. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well?
Communication
51. The principal barriers to greater action include motivation amongst the diVerent sectors and ensuring that communication and dialogue can take place, to ensure that collaborative working can take place. This is an essential barrier that needs to be overcome to facilitate organisations working, complementing one others actions and sharing each others experiences. Local government alone can make a diVerence to reversing the impact of climate change, working collaboratively across diVerent sectors, the impact of the leadership displayed by local government can be immense. 52. Without question, scientific evidence supports the view that climate change is making an impact. Fortunately one of the key barriers to greater action, is now beginning to be removed. Before any action needs to be taken, there needs to be recognition of the challenge posed by climate change and a resolution to take necessary steps to overcome the consequences of climate change at the present time and in the future. 53. From this recognition, actions building on this commitment, and utilising the skills and knowledge, real positive action can take place. The example of actions being taken in the North East, led by local authorities is evidence of the success that can come from overcoming the barriers that prevent decisive action.
Media engagement
54. From the example of the North East, the single most successful practice and policy that has been undertaken is the engagement of the local and regional media. Combined with the collaborative working, which has been highlighted already, this has enabled a single and sustained consistent message to be conveyed to the people in the region, whom have an important role to play in the actions required to lessen the impact of the changing climate.
Engagement with young people
55. In particular, it has been recognised in the region that it’s absolutely vital to engage with the media to attract and engage with arguably the most important group of people in the community when it comes to mitigating and adapting to climate change; young people. Central to this has been the recent debate with young people—which provided them with an opportunity to question elected politicians about their role in tackling climate change, whilst ensuring that their views were heard and politicians were able to recognise what’s important to young people. 56. It has also been recognised that North East local government has a tremendous opportunity to raise the awareness and understanding of climate change within schools. This has been developed through the regional “Climate Change Schools Project” which includes local government and other partners such as the Science Learning Centre North East. The aim of this initiative is to deliver and implement a standardised package of climate change resources for schools and opportunities for development amongst teachers in all local authority areas.
Carbon Trading
57. The Climate Change Bill introduced the concept of carbon trading schemes. The Association, in its response to the Draft Climate Change Bill endorsed this principle. However, the Association would urge, however, that the flexibilities of the system are made on a long term basis, and not short term, reactive responses. Consideration must be given to the impact and costs associated with the implementation of such measures. Therefore, they must both be transparent and robust where necessary, with a limited life span. Environmental Audit Committee: Evidence Ev 31
Q8. What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions? 58. The Association supports the new Planning Policy Statement (PPS) which places the need for local plans to have strong carbon ambitions and targets. During its work, the Climate Change Task and Finish Group recognised the importance of new build in reducing the impact of emissions on the environment. 59. Furthermore, the emphasis in the PPS on renewable energy is a move that the Association endorses. As previously discussed, the North East has the ability to lead the way in renewable energy, and the focus within the new PPS for local authorities to consider low carbon energy and renewable options is a move that local government in the region welcomes.
“Merton rules” 60. As part of this the Association welcomes the news that the “Merton Rules” are being enhanced by the new Planning Policy Statement (PPS) on climate change. The Task and Finish Group considered the role of renewable energy sources during its work and found that the North East region, which provided so much of the carbon fuel our nation’s industrial strength was built on, has the potential to lead the way in the new and renewable energy revolution. The North East already possesses a proud history of sustainable, renewable energy and possesses excellent examples of wind, wave and solar power, which we need to continue to develop and encourage. The Task and Finish Group discussed renewable energy in the context of energy eYciency and the potential economic benefits to the region. The Association is committed to the greater use of renewable energy and the promotion of energy eYciency as two key components in the battle to tackle climate change and recognises that local authorities need to work together, cross-boundary, to ensure that opportunities can be fully exploited.
Energy consumption and use 61. In light of its energy consumption, local government needs to fully consider the potential use of renewable energy to ensure that the sector is better placed to reduce its dependency on energy sources that contribute to climate change, and at the same time, help to make a significant contribution to the energy eYciency of its housing stock and buildings. In light of this, the Association welcomes this recognition from Government in the PPS for local authorities’ role in making use of renewable energy sources. 62. In gathering evidence, the Task and Finish Group was advised that there needed to be a more consistent approach to renewable energy solutions across the region’s local authorities. At the planning stage of new developments; an approach which engages with developers to ensure that a common methodology and language is used when councils are considering the most eVective energy solutions for respective sites. The Group was informed of the “micro-renewables toolkit” that will assist planners and developers to embed renewable energy sources within new developments. This had been led by the New and Renewable Energy Centre (NaREC) working with the region’s local authority planning oYcers to develop a functional web-based toolkit that would assist in the assessment and suitability of renewable energy options. 63. As statutory planning authorities, councils are instrumental in maximising the planning potential in their localities, through their ability to reduce carbon emissions of new homes and buildings, but also to ensure that the impact of changing weather patterns are considered and embedded into local and regional planning frameworks. As well as enforcing existing powers, additional powers may be needed by local authorities to successfully tackle climate change, such as promoting the local development of micro- generation and eYciency standards. 64. Whilst some adaptation measures, such as not building on flood plains can be easily implemented, there are other issues which local authorities have no control over, such as surface water flooding caused by, for example, individuals paving over front gardens and areas of land, resulting in surface water being unable to drain eVectively, potentially leading to serious flooding. Local authorities currently have limited jurisdiction (with the exception of conservation areas and local development frameworks) to enforce planning consents for individual driveways, but they can play a role in educating citizens about the impact of their actions and providing advice and guidance to ensure solutions are provided.
Q10. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? 65. As previously stated in response to question 6, the Association believes that best practice could be shared through the Committee on Climate Change, which would be able to oVer advice and expertise to sectors and regions in improving their performance in climate change. It would also provide an opportunity to, on a national level, share best practice through the networks established across sectors. Ev 32 Environmental Audit Committee: Evidence
66. The best method through which to share best practice on a wider level is through engaging with local and regional press. The media has a fundamentally important role in communicating positive messages about climate change to a mass audience. Within the North East the ncjMedia campaign provides an excellent basis on which to develop a regional wide understanding of environmental issues through the promotion of a consistent message. This campaign is already successful in that it is encouraging people to save energy, persuading businesses and regional organisations to play their part in a greener future, as well as galvanising communities into action. 67. Furthermore, from the North East, as detailed throughout this response, there is a wealth of good practice to be shared. The signing of the Nottingham Declaration on Climate Change by all 25 local authorities has been taken a step further through the North East Declaration on Climate Change, a commitment on a regional level by the diVerent sectors and bodies within the region. 68. In terms of fuel poverty, the North East has committed to eradicating this from the region’s housing through the North East Fuel Poverty Declaration, an initiative which is being supported in the region by the work of Energy Saving Trust, the North East Home Insultation Partnership and Domestic Energy Solutions. The Association feels that the role played by organisations such as these are vital to the local government sector in adapting to climate change and overcoming the challenges posed by adapting to its implications and consequences. Their expertise can add considerable value to the work of local authorities and the live of people within communities across the North East. The Association believes that other organisations such as IDeA and the UK Climate Impacts Programme can help share the good knowledge and good experience of adapting to climate change, making sure it is disseminated around the country, and promoted on the international stage. 8 January 2008
Witnesses: Ms Christine Seaward, Environment Futures Manager, Hampshire County Council, Mr Bob Fiddik, Sustainability Manager, Southwark Council and Ms Hilary Knox, Deputy Director, Association of North East Councils, gave evidence.
Q47 Chairman: Good morning and welcome to the Q48 Chairman: Thank you very much. We are Committee. As I think it may be the first time you grateful to you for coming in. Could I begin with a have appeared before us, certainly in my time, would general question about where you see the main you just like to introduce yourselves so we know obstacles to more eVective action on climate change exactly who you are? at the local level? Ms Knox: Good morning. I am Hilary Knox, Ms Knox: Chairman, I think perhaps one of the not Deputy Director with the Association of North East “obstacles” but fundamental challenges in Councils, which is a cross-Party organisation addressing climate change is in winning hearts and representing councils in Northumberland, Tyne and minds; encouraging citizens and communities to Wear, County Durham and the Tees Valley. My role make lifestyle changes and choices that cumulatively within the Association of North East Councils is will make a real diVerence. The approach that is very broad. I have a role in relation to a number of being adopted by councils in the North East of areas of policy. My professional background is in England is very much around how local councillors communications, media relations and external can exercise their strong leadership role, engaging aVairs. eVectively in partnerships, and also engaging with Mr Fiddik: Good morning. I am Bob Fiddik and I young people through debate and with the media to am the Sustainability Manager at the London get across a message that climate change is real and Borough of Southwark. My role there has evolved that it is happening now. One of the particular over the last few years. I started oV my professional actions I wanted to bring to your attention this morning was the way in which all 25 councils cross- background in energy management, and I still have Party have come together to work in partnership as a role in buying utilities for the Council; but I am a sector, which we believe is quite unique. We are the more getting involved in major regeneration first region to have signed a North East Declaration projects, and trying to steer low carbon development on Climate Change, which involves not just the through regeneration projects. public sector but also a range of private sector Ms Seaward: My name is Christine Seaward and I organisations. am from Hampshire County Council. My role Ms Seaward: Could I oVer a couple of thoughts within the Council is as Environment Futures there. One would be the lack of powers where there Manager. What that means is looking at the longer- are some of the biggest impacts: for example, term implications of the decisions that we make. flooding and coastal defence; and reducing CO2 Hampshire County Council is involved in its own emissions from existing building stock. I know we programme of work, particularly on adaptation. We have got carbon reduction targets coming in, but have recently had a commissioner of inquiry of our actually we have got a lot within the building stock own looking at what these issues mean for that sits there and it is quite a challenge to sort that Hampshire; and we are an active member within the out. The powers there are, at best, unclear and South East Climate Change Partnership. probably non-existent for local authorities. Environmental Audit Committee: Evidence Ev 33
22 January 2008 Ms Christine Seaward, Mr Bob Fiddik and Ms Hilary Knox
Mr Fiddik: Certainly I would echo those two. Q50 Mr Caton: The Local Government Association Certainly behaviour change issues are a diYcult one Commission on Climate Change identified five to tackle but through partnership I think it is particular areas where councils could make progress something local authorities and their local strategic in: adaptation, existing housing stock, planning, partnerships are just learning how to do properly. I transport and procurement. Do you agree with those think a particular weakness in our own local priorities; and should they be added to? How are strategic partnership is that they tend to be very your councils active in delivering in this areas? much public sector based; and it is very diYcult Mr Fiddik: Broadly, yes, I do agree on those getting engagement of the business sector. An issue particular areas. Again for us our Climate Change certainly for us, speaking as an urban local Strategy has been divided into three broad areas: our authority, is that the majority of our emissions, 85%, own operations; action through our services; and come from the built sector, from buildings; of that then there is the wider partnership activity through 49% of the direct emissions within our borough the LSP etc. Broadly that covers those particular come from non-domestic buildings; so it is not areas. I think it will be diVerent from local authority actually the domestic sector that predominates for to local authority. For instance, as an inner London us. I think behaviour change takes a long time to borough I would say something like 70%1 of the eVect and we do not seem to have that time, as far as London Borough of Southwark is undergoing some I am concerned. One issue is actually making sure sort of regeneration. In that case planning policy is the systems that we are putting into our buildings, of paramount importance. That does bring up the and also existing buildings retrofitting, are issue of skills: are the skills there when developers delivering low carbon. I believe that the current set- come forward with plans? Do we have the right up of the energy infrastructure that we have in this people at the other end checking those plans? country is not really ideally suited to doing that. Conversely, developers themselves, do they have the Speaking from an urban perspective, it is delivering, skills to deliver low carbon developments? At the quite frankly, combined heat and power for us. We moment there are so many major projects in the have done endless studies on this and that is pipeline, from the Olympics, to Building Schools for probably the most beneficial measure we can take; the Future etc, that there really is not the skill sector but it is incredibly diYcult doing that in the context to deliver low carbon projects. Certainly our of an existing gas network and existing electricity experience is that at the first meeting with the network. developer they often have their Team C graduates, as it were, who do not actually have much experience of delivering low carbon developments; and we have Q49 Chairman: It seems to us that some of the most to eVectively go back and ask them to bring up their eVective action at a local level has been the result of Team A. an individual who has been very determined to drive Ms Seaward: I think the only other one I would add the agenda forward. How can we translate that sort would be infrastructure—it is a big issue for us— of good achievement, good practice, into a more whether that is roads, railways or drainage, all that consistent approach across local government; or type of infrastructure. If it is not a priority area, a perhaps we cannot and we need more good individuals? priority for action, I think other things will not follow. Ms Seaward: We have done some work looking at that type of model. I think it is finding ways to Ms Knox: I think central government policy has set a support what we call “champions”, also what other very clear policy framework on what it expects from people call “wilful individuals”; because that does local government as a sector to help deliver its seem to be where change happens; where you have a vision. In that regard we have had running for the champion who steps outside or puts that extra eVort past six months a Task and Finish Group which is in. My suggestion would be a way of supporting member-led cross-Party, which operates rather like what we have called “an ecosystem of champions” a select committee, and has been taking evidence on because it works. You can have the policies and the how local government in the North East can work in practices to support that, and that is a stage that is partnership across a whole range of issues that will very important, but it is almost that you need the fundamentally address climate change, which has pioneer. I do not know whether there are other resulted in 45 recommendations. I would very much 2 models, but certainly that is a successful model that like to submit this as additional evidence to you. It is replicated in many diVerent places. will be considered for endorsement this Friday, but Mr Fiddik: I would certainly add that the new the recommendations are very action-orientated, performance framework is going to be vital in this as and will have significant impact on the ground. I well. I think for a long time many of us have thought think we have to recognise that as large estate that actually having indicators that we are measured managers, and as significant procurers of services on, that relate directly to climate change, will be an and goods, local councils do have an important role important driver. We certainly fully support that to play in this whole area, particularly in relation to move of having the new indicators and the procurement of goods and services, which I would performance framework. I think you will probably like to highlight as being particularly important. come on to questions about the actual indicators, 1 Note by Witness: Currently, 40% of Southwark is how they are constructed and whether they will undergoing regeneration, not 70%, as stated during the oral deliver any of those outputs but certainly that is a evidence session. good start. 2 Not printed. Ev 34 Environmental Audit Committee: Evidence
22 January 2008 Ms Christine Seaward, Mr Bob Fiddik and Ms Hilary Knox
Councils in the North East spend something in the purchaser and you are trying to put something like region of £8 billion per annum on procuring goods photovoltaics up on your roof even with, say, 50% and services. A diVerent proportion of that could be funding, the pay-back time is still incredibly long. targeted towards sustainable procurement that could make a real diVerence. I would also like to suggest that local government can be supported in its Q53 Martin Horwood: That was a grants attempts to eradicate fuel poverty, which is programme. A Partnership for Renewables is about fundamentally linked to energy eYciency of homes. getting private sector finance in, is it not? In the North East region we do have a programme Mr Fiddik: Yes, absolutely. I think initiatives like for achieving that, but it will require something like that are absolutely essential across the board, and £300 million of investment over the next ten years. also for domestic customers as well. I think the Holy That is an area where I think local government Grail in providing low carbon energy services is the would wish to see central government supporting its provision of energy services. That we move from just eVorts on. simply selling units of electricity and gas to actually providing a service. Yes, the private sector will come along and finance the photovoltaics on the roof and Q51 Mr Caton: You made a valid point about then you will pay back from your energy savings variation amongst local authorities and, therefore, over a course of time. It is still an emerging area. I inevitably diVerent priorities. The experience in the do not see any sign of that quickly appearing on the North East is that you have at least have found some market. Certainly if there is pump-priming and common priorities, by the sound of it. Thinking schemes like that available I think it is an essential nationwide, are there some areas where the issues are step. so important that every local authority should be prioritising? Q54 Mr Stuart: Hilary, if I could just you back to Mr Fiddik: As my colleague just mentioned, your remarks about tackling fuel poverty and the procurement is a common area across the whole of £300 million. Could you tell us precisely what that the public sector. I think one issue there, which is would provide for, and perhaps comment on the perhaps an issue for the whole of the public sector, Warm front and current funding. I think that is an is we know that getting the best environmental important part of this report. There are many areas product, service, building or whatever actually that are expensive and hard to get into the system, depends on having a full whole-life cost of that but energy eYciency is economically sound, as well particular service in your procurement. In other as having all the other benefits. words, not just the up-front capital cost; you should Ms Knox: I would like to preface my comments by be evaluating the ongoing running costs given that saying this is an area where councils are seeking to most environmental preferables, buildings, devices, drive their own improvement. We do have a North pieces of equipment, generally end up with lower East Improvement Partnership which was set up running costs but they might incurred additional three years ago as a result of government funding of higher capital costs. Putting that into practice I think £5 million to help local authorities improve their has not been widespread across the whole of the performance across a whole range of areas. We public sector. One of the issues which is a problem organised a conference last year on energy eYcient is the way we arrange our budgets and our funding communities which was sponsored by the streams. This is clearly an issue for local authority Improvement Partnership, which we ran in finance oYcers—that the capital budgets are often conjunction with National Energy Action and the very separate from the revenue budgets. It is not Energy Saving Trust. That, first of all, helped to usually possible to transfer the revenue savings you create awareness amongst all 25 councils of the would incur back to the capital budget to buy a more importance of this issue, which means that it is now expensive building or more expensive product. I right at the forefront of the agenda. I am pleased to think that is also an issue for central government, say that there has been a very successful submission because the funding streams that are passed down to to the Energy EYciency Fund by an organisation us are also arranged in that way. called Domestic Energy Solutions in the North East, who have received a tranche of funding which has Q52 Martin Horwood: There is at least one project of enabled it to get a programme up and running, which was rolled out at the end of last year for regenerating from a national level if not from a delivery by 2010; which will fundamentally help to national government, which is the Carbon Trust provide wall insulation, cavity insulation and loft Partnership for Renewables which is designed to get insulation for homes in the North East that require some of those capital costs out of the private sector. some support. Are you aware of that initiative? Do you think it is going to make a diVerence? Do you think it is a good route to start to go down? Q55 Mr Stuart: All homes, or are we talking about Mr Fiddik: Yes, in short. I think any pump-priming council homes and social housing only? of especially emerging technology is always going to Ms Knox: It is a combination. Clearly in terms of the be very welcome. I think I would still highlight areas I represent we are dealing with a lot of older initiatives such as the Low Carbon Buildings housing stock, indeed properties in rural areas as Programme. There have been problems and, quite well as urban areas. Housing in rural areas does frankly, at the end of the day, if you are a building present a diVerent set of problems to address. We do Environmental Audit Committee: Evidence Ev 35
22 January 2008 Ms Christine Seaward, Mr Bob Fiddik and Ms Hilary Knox have something in the region of 450,000 homes in the Q57 Dr Turner: That is right. You have just region requiring cavity wall insulation, and a further described the sort of creativity which is needed to 500,000 requiring loft insulation. fight your way through the current system. It is an excellent example. In fact I live there myself! We do have central government funds available to local Q56 Dr Turner: Like a lot of the old lags in this Place, government for specific programmes; admittedly, in I did my time in local government as a councillor comparison to the scale of local government finance, before coming here, so I am very familiar with the they are miniscule. Have you tried to use these constraints on councils caught between statutory targeted funds? Have they been of any use? Would duties and tightly controlled funding, so funding is you like to see this expanded? What do you think is quite important. People like Mr Jones, with their needed to make a real impact? history at Woking and the GLC, have to be highly Mr Fiddik: Unfortunately I think the case with creative given the current situation. How useful combined heat and power, which is our particular would it be if we reformed to some degree the system solution there, there is at the moment very limited of local government funding in order to give councils funding for that particular technology. In fact the far more flexibility, so that they could build energy Y only scheme, which was community energy, e ciency et cetera into their policy actions? What obviously has folded with no intention of it being set would you like to see? You have a blank canvass! up again. I would like to see some form of Mr Fiddik: I am just thinking of our specific case. In community energy started up again. In terms of Southwark we are in the middle of setting up a whether the private sector will put money into heat similar scheme to Alan Jones’s in Working; it is for networks—because eVectively you are competing the Elephant and Castle regeneration and we want against a pre-existing gas network which was to set up a energy service company. Essentially it obviously put in there more or less by the public would be running a concession, because we are not purse—if you are trying to drive private sector the main consumers of energy in that area. There is development down that path on heat networks, you the registered social landlord sector; private sector have to deal with the central item. You have to make dwellings; and a significant commercial sector. The it more diYcult for, say, a private sector idea is that it will be a combined heat and power organisation to build a heat-dumping centralised plant with private wires; but we are also adding in plant. At the moment it is just more cost-eVective for some other areas of infrastructure which I think are them to build, say, a combined cycle gas turbine in V quite innovative. There will e ectively be a the middle of nowhere, connected to no heat groundwater/green water supply; so buildings will networks, at most 50% eYcient. Therefore, you do have dual plumbing. They will have untreated need some form of stick, either a tax on dumped heat groundwater for flushing toilets; and there are or just a simple moratorium on new heat-dumping obviously some carbon savings in there as well. In plant, and that would drive investment into addition to that there is data cabling. In setting up combined heat and power, for instance. that it is fair to say that the Council would prefer to take a risk-free approach, and for that to be delivered more or less by the private sector totally. It Q58 Dr Turner: You have just brought me neatly to would be a private sector company running as a what I was going to as you next, which is: there are concession. What the council brings to the table is certain, not statutory demands, sadly, on local our planning policy. What the private sector partner government, such as HECA and so on, but there are needs is the certainty that they will have revenue some powers that councils have got. Do you think coming from heat sales; so we are using section 106 councils at large are making full use of the powers agreements to oblige the developers to link into the that they have got to influence climate change? system. We are lucky in that area that we own a Mr Fiddik: I guess I would have to say, no. Again, significant proportion of land, and therefore can it is probably the well-being powers—although they have even more cast iron guarantees there will be have been around for a few years now, I think the revenue through our land sale agreements obliging knowledge of how to use them and what we should the plot developers to link up. In the ideal world I be using them for is still not widespread. It was would like to have the local authority to have a precisely because of those powers that I purposely larger stake in that vehicle; because the real carbon wrote into our community strategy, knowing that if savings come not necessarily from that development the setting up of a local energy service company, but from what surrounds it from existing stock. My specifically looking at combined heat and power, colleague mentioned existing homes, especially solid was written into our community strategy then we wall buildings, listed buildings for instance; it is very would have the power to do that at a later date. V diYcult to add insulation to those to actually bring E ectively, we have made use of that power to do carbon emissions down. Combined heat and power what we are doing now. can help with that. I suspect that we will not get that massive development outside the development area Q59 Dr Turner: How helpful would it be to councils without a certain amount of pump-priming of public if those powers were to be strengthened? If so, how money. You ask what ideally I would like: how do would you like to see them strengthened, and would you make it less risk for a local government head of you like to see any additional powers? finance oYcer to actually put some money into a Mr Fiddik: Speaking personally, and I have put this vehicle like that? I am not sure. Ideally that is what in the written evidence I provided to the Committee, I would like to be the outcome of that. I would like to see some form of energy planning role Ev 36 Environmental Audit Committee: Evidence
22 January 2008 Ms Christine Seaward, Mr Bob Fiddik and Ms Hilary Knox given to local authorities, and for it to be mandatory. importance of young people as part of the solution. This would cover looking at what are the local It has been very encouraging to see the extent to renewable resources; and how can we do heat which this is right at the top of young people’s planning? For instance, as I mentioned before, in the agenda. Recently in December we had 200 young existing stock you may have a large business existing people at St James’s Park for a debate and as a building sitting next to a school, next to a housing citizen, as a representative of local government, I estate, and at the moment it is very diYcult to link was very reassured and impressed by how up these buildings together perhaps with a new knowledgeable young people are about this issue. development that is happening beside. A lot of our They are in a position to actually create that cultural, policies are actually focussed on individual buildings behavioural and attitudinal change that really needs or, alternatively, on the large-scale other end of the to happen. Also the North East is leading the way in system which is putting power into the system; and terms of the first ever Climate Change Schools there is very little looking at neighbourhood Project, which has support from Durham approaches. I think an energy planning power would University; from the Environment Agency; and be very useful. It is also something which has been Defra has a representative on the steering group recommended in a report the DCLG commissioned alongside the Association of North East Councils. from the UK Green Building Council, which came That is about providing a tool kit, a standardised up with the conclusion that we have already looked package of actions and behaviours measures that at the route to zero carbon homes; when you look at can be adopted by schoolteachers and by children as zero carbon non-domestic buildings it is even more part of Key Stages 3 and 4 of the curriculum in every Y di cult because there is so much more electricity school in the North East. It is not yet something use. Therefore, trying to achieve that on a building- Y which has mainstreamed into the national by-building basis is extremely di cult. One of their curriculum, but if the pilot project is successful then recommendations is precisely that the local potentially it is something that the Government authority should be engaged in energy planning. might look towards in terms of integration of those principles into the National Curriculum. The Q60 Dr Turner: Hilary, you were talking about the position our politicians are adopting right now is problems of encouraging behavioural change that their local leadership role as elected councillors amongst local residents. What are your feelings, any is perhaps much more important than looking at of you, about the use of fiscal incentives to help this fiscal measures; but not to say that we would not, as process, such as council tax reductions in exchange part of the work we are doing, look at what some of for investing in energy eYciency measures and so those fiscal tools might be. on? Have you any experience of using this kind of measure? What do you feel about it? What kind of measures, beyond the one I have just mentioned, do Q61 Jo Swinson: I was interested that Bob you think you might consider? mentioned the well-being powers and just wanted to Ms Knox: Before I respond specifically to that, may probe a little further, particularly to hear Christine I just make a comment in response to your earlier and Hilary’s views on what is happening within question about: do local authorities exercise Hampshire and the North East. What impact have suYciently the powers that they have? I am not sure those powers made? Are they being used to support that the Association of North East Councils shares sustainable energy and other projects? Are there any in entirety the views expressed by Bob, in the sense limitations to using those powers? that we very much welcome the Government’s new Ms Seaward: We welcome the powers that are within PPS planning and climate change document, which that package. Certainly the role of the county we will be considering the full implications of; council being a medium within the region and within because that does potentially give local authorities our own county it is important to us, and also to our much greater powers. Also it is really important to citizens. To reflect that through well-being powers is reflect on the Government’s sub-national review and something we are striving to do. The clever bit here the local government White Paper which recognises is joining it all up, because all of these strands make powers and actions at a range of diVerent spatial sense in their own way; but actually if we are going to levels, not least at a very local level, through Local get a cohesive response to climate change we actually Area Agreements, Local Strategic Partnerships and have to link up across several disciplines. The well- Multi Area Agreements. The indicators on climate being powers are welcome but if they are used in change that have been introduced into the new isolation they are not going to bring the rounded performance framework do provide regulatory result that we would like to see. That is also reflected powers for local authorities working in partnership in the work we have done on behaviour change as with those organisations that it has a duty to consult part of our ESPACE project because what we have with and work with to take forward some of the looked at there is that climate change oVers a new actions around climate change. We very much challenge to influencing the way people change their welcome the recognition of local government’s role behaviour, or in the way their attitudes are held. in that scenario. You are talking about fiscal powers Some of the work we have done might be of interest and additional powers, and I think from our to the Committee because it actually looks at three, perspective it is about the carrot and stick approach. four or fives steps you would need to take in order to I would like to come back to the issue of winning be eVective in the round. Going back to where you hearts and mind and, if I may, to highlight the were, well-being powers are welcome but they have Environmental Audit Committee: Evidence Ev 37
22 January 2008 Ms Christine Seaward, Mr Bob Fiddik and Ms Hilary Knox to be linked up with other roles and responsibilities sure how you can easily tackle it, given that there is of the council. We have to do that internally and we an overall UK problem with people not going into have to do that within partnerships as well. engineering subjects as a whole and building services Ms Knox: Local authorities have a strong role as as a whole. Yes, it is an issue. As I mentioned before, place-shapers, as recognised by Sir Michael Lyons, it is a problem from the supply side of the providers; and we define place-shapers as having responsibility from developers coming forward; it is a problem of for the economic, social and environmental well- even small-scale renewables installations where being of citizens and communities. In the context of there are not the people with the skills to fit solar how we might ensure that those principles are photovoltaics or solar thermal. There are things you embedded in what we do regionally as well as locally, can do. We have had projects which have looked to Government as you know has recently through the try and cross-train and say, “It’s much easier to get sub-national review given a responsibility to local an electrician trained to install photovoltaics”; but I government for the scrutiny of a single integrated think what we have found so far is that they are not regional strategy. We do currently have a regional doing that until they can see the demand there. So economic strategy which is the role of the RDA One there is a bit of a chicken and egg issue there. For the North East to progress. Going forward we would planners, I think the London Energy Partnership anticipate that local government would have a key has made some progress by providing training role to play working with one One North East, the sessions for planners. Actually that is something that Regional Development Agency, and other partners has worked very well on a London regional basis. to make sure that in addition to economic We have had quite intensive training for our development, which is vitally important, we have the planners so they are skilled up; they are given opportunity to bring about societal change, which toolkits to understand; so when the developers come ensures that the principles of environmental and forward with planning applications that they do social well-being are integrated into policies that understand what are the low carbon systems there. aVect citizens and communities. Ms Seaward: I would just like to add that capacity and skills, within our authority, is actually look at Q62 Jo Swinson: Do you think the fact the quality where climate change sits. It is still considered by of life indicators are voluntary, compared to all the many people to be an environmental issue, so it gets other mass of indicators that local government has priority consideration within those areas. What we to report on, has aVected the amount of weight given are seeking to do is to place climate change to the well-being powers? considerations at the heart of all policy making. Ms Seaward: I think the way we have picked it up as That is quite a challenge. Somebody spoke earlier an authority is actually it has become one of our about champions and wilful individuals, but we actually need those within our diVerent departments corporate priorities. Maybe in other areas where V they have not picked it up as a priority that might be and our di erent disciplines, so there is not the the case; but certainly in Hampshire it is a central capacity issue there. We also feel that we want to be driving force to our own carbon policies. able to develop solutions that are not reinventing the wheel at every stage; and that we can work with central government departments so that we can Q63 Mark Lazarowicz: Overall, do councils have the share the expertise we have got and learn from other necessary skills, capacity and indeed staV resources people’s experience. That is an attempt to address to address climate change? I realise it will obviously the capacity and skills issue, but I certainly support vary from authority to authority. Overall, what is what has been said. the picture of diVerent areas where there are gaps and local government has got to address this issue? Mr Fiddik: Again, I think this issue will be highly Q64 Mark Lazarowicz: What about the North East variable from region to region and certainly within of England? London amongst local authorities. I mentioned the Ms Knox: Three things really: firstly, we support importance of planning. Planning and building having a climate change champion at member and control oYcers are in short supply; energy senior oYcer level, so potentially the leader and chief management oYcers are in short supply; there is a executive of every council, so that climate change, as major skills gap there. One of the areas where we are Christine was saying, is not just the remit of the fortunate in London is with our cooperation with climate change oYcer, or the person with it in their the Greater London Authority and the London job title, but that climate change is embedded Development Agency. There is the London Energy throughout the whole of councils’ organisational Partnership which is a cross-sectoral group that planning and operations; secondly, partnerships, essentially tries to implement the Mayor’s energy really vitally important. Although we do recognise strategy for London, and that does have specific that in local government we are continually driving working groups looking at the skills gap. It is a up our improvement and performance across a major problem; and it is something we have also whole range of areas, and have funding and support tried to address, not only an inner-London basis, but from central government to achieve that, as well as through our own LSP as well, because we are an appetite and drive to do that for ourselves, we fortunate that we do have, within our borough, recognise that there is a huge resource invested in a London South Bank University, for instance, which number of our partners: the New and Renewable does training of a significant proportion of building Energy Centre (NaREC) in Blyth in service engineers. It is a large issue but I am not quite Northumberland is a world-class institution which is Ev 38 Environmental Audit Committee: Evidence
22 January 2008 Ms Christine Seaward, Mr Bob Fiddik and Ms Hilary Knox looking at a range of diVerent new and renewable education, awareness and understanding, building energy technologies; and we are very much drawing capacity. They are working with us to produce a on the resource they are able to oVer in terms of web-based tool kit which will be rolled out across all solutions for ways forward. We work very closely local authorities, which will provide a resource tool with organisations like the Carbon Trust, with the for elected members in terms of what support they Environmental Agency and with others. I think the can access through Energy Saving Trust’s services. partnership working that is happening already is not only achieving a consistency of approach and a common message, but is allowing us to use those Q66 Mark Lazarowicz: Finally, could I ask you to resources to help with the way we should go forward. assess the significance of the Nottingham We have not mentioned adaptation, Chairman. I Declaration to provide leadership, and what more wonder if I might just mention this because it does could be done to build upon that? sometimes feel a bit like the poor relation compared Ms Knox: I think the Nottingham Declaration has with mitigation measures. We have participated in a been very important in the North East in terms of piece of work which is around a regional adaptation ensuring a real commitment to getting every council study, which will provide us with some to have a climate change action plan. It is a very recommendations at the end of this month on how public declaration that this is vitally important to we can be working not just as local councils but with local government and sends out a very positive and other partners around managing flood risk, the compelling message to the citizens and communities impact of weather changes for infrastructure and on whom we are seeking to influence in terms of people. That piece of work is being done by an encouraging them to make lifestyle changes and organisation called Royal Haskoning which has got choices that cumulatively will make a real diVerence. expertise in this area. Again, it comes back to working in partnership with organisations which do have technical expertise and resource to bring. Q67 Colin Challen: How consistent do you find the policy framework from central government to be? For example, if there is an emphasis on encouraging Q65 Mark Lazarowicz: You mentioned the Carbon regional airport expansion that probably is going to Trust and I am interested in knowing briefly, from win out against a local authority’s ability to those of you who wish to answer, how you assess the prioritise policy on climate change, is it not? There is support you receive from what is now the Carbon a choice. You may say it is a false choice but do you Trust, EST and other national UK organisations. feel there is consistency in the Government’s policy What more could they do to assist you as a local framework? government more generally in what you are doing in Ms Knox: I think there is a high degree of this area? consistency between central government policy Mr Fiddik: We participated in the actual pilot framework in relation to this issue with a wide range Carbon Trust Support Programme and, again, it of documents which are very clear about local V V was just starting o and e ectively learning itself, I government’s role including: the climate change guess. Obviously I do not have experience of the programme; the Local Government White Paper; later incarnations of the Carbon Trust Support the Comprehensive Area Assessment; the Stern Programme but, certainly from meetings I have had Review; the Climate Change Bill; the Energy White with other boroughs, that is particularly useful. Paper; the Government’s National Waste Strategy; Especially for those boroughs that have not quite and the latest PPS climate change. It is a very clear got their heads around what they need to tackle with framework. There is a high degree of consistency climate change, it provides some very useful tool kits about just sitting down, looking at their services, between national and local actions and priorities. their operations, their partnership working and Specifically in relation to airport expansion, the seeing more or less where they can make the first Association of North East Councils in its current quick wins. It has provided a very useful framework manifesto has pledged to support the sustainable for local authorities. development of both of the North East regions Ms Seaward: We too were part of a pilot study with airports recognising their economic, social and the Carbon Trust. Rather than taking on specifically environmental aspects; very important for the their plan and tools, we felt it was not entirely economy of the region in terms of job creation, appropriate as it stood to take that on board; but it attraction of inward investment and inbound has been an inspiration to actually develop tourism. Local authorities do own 51% of the shares something for our own measures. We are an upper in Newcastle Airport and 25% of the shares in tier authority so many of the tools are developed Durham Tees Valley Airport. So there is always an specifically at a borough level or a district level. opportunity for local authorities to have a very Nevertheless it was an inspiration to actually get our close, strong dialogue with airport operators; and energy managers and so on providing and placing certainly Newcastle Airport—which is perhaps in a their own plans forward. diVerent paradigm to some of the larger airports, Ms Knox: We are working very closely particularly such as Heathrow, Gatwick, Stansted or perhaps with the Energy Saving Trust, not just in terms of the Birmingham and Manchester—they have a very actions to eradicate and address fuel poverty but responsible approach towards the development of coming back to a theme I have mentioned a couple the airport. Newcastle has a climate change action of times around winning hearts and minds, about plan. So we do recognise that sustainability does Environmental Audit Committee: Evidence Ev 39
22 January 2008 Ms Christine Seaward, Mr Bob Fiddik and Ms Hilary Knox have those three strands, and we do attempt to work policies coming down from central government through regional and other partners to find an waste strategies, and yet we heard from Bob just now appropriate balance. about the need to tax or find other ways of stopping power just venting oV heat; and yet we have local Q68 Colin Challen: That sounds very familiar in the authorities right across the country going ahead with sense that it sounds very similar to the Government’s building incinerators, driven by a policy supposedly own sustainable development indicators, where the linked to climate change to stop landfill, which will environment tends to come bottom. Sustainable vent 65% of the energy up into the sky. In my development is seen as the things you have constituency, just to the east of Hull, there are vast mentioned which, in the past, we have always council estates which could do with being warmed, thought were good and still do: economic and there are horticultural businesses going bust development, jobs, industry and so on, and people’s because of the cost of heating their glasshouses; and mobility as well. Climate change really comes yet Government policy seems to be leading to bottom of the list, does it not, because the expansion forcing the councils in that area to build incinerators V will take place? which vent their heat o . Is that really consistent? Ms Knox: That was not what I said. I did not say that Mr Fiddik: Obviously I do not know about that climate change does come bottom. I think what I particular individual case. was intending to convey was that there was an imperative for us as local government, working with Q71 Mr Stuart: There are lots of them all over the other partners, to ensure the sustainable country! development of both of the North East airports, Mr Fiddik: I think there are going to be inevitable which recognise that there are the three strands to tensions. Energy policy eVectively seems to be consider, and to get that balance right between all of divided between DBERR, DCLG and Defra and I the economic development benefits that flow from think there will be inevitable tensions. Historically having direct regional air services into key European the DTI and DBERR have focussed on the price of destinations. The North East is relatively peripheral energy, to get prices low to ensure security of supply in relation to global markets and does rely very and obviously to increase competition, and that has heavily on regional air service access to those eVectively filtered down to the regulator. Those are markets. I think that is consistent with national the main aims of Ofgem. I think there has been some government policy. The Eddington Report on call for Ofgem to have sustainable development transport does highlight the importance of gateways written into its main aims, because it currently is not; in and out of the UK, with airports and ports being it is more or less a secondary one. I think there is very important. However, as I said earlier, we do evidence, quite frankly, that the emphasis on recognise that there needs to be sustainable competition and fuel switching is to some extent, I development and local authorities are in a position would argue, illusory from an energy buyer’s to influence that. perspective. You do not get lower prices in the energy market from competition, it is when you buy Q69 Colin Challen: If the Government’s policy and how you buy, because the market is incredibly framework supports that view, and I guess you are volatile and it is your decision on when you buy. For saying it does, how does that square with the calls of the domestic customer more or less they are at the many people to improve the domestic rail network? mercy of this volatile market at the end of the day. I Many of these flights will be to hubs like Heathrow think there does need to be a much greater emphasis or perhaps Manchester, short journeys which could on this concept of energy services, of not just simply be easily dealt with by rail. How can you square the selling units of energy but actually going in and two policies? saying, “I’m can spend some capital inside your Ms Knox: It is an absolutely fair question, and one home, your business, to reduce energy demand”, which is currently the subject of debate in the region and that then becomes a business proposition. I in connection with sustainable transport, whereby as mentioned before this is the Holy Grail. The a region we recognise we need good road, sea and air Government has said they wish utility suppliers to links. Rail plays an important part in that equation. become energy service companies but it is not there We have been keen to explore the possibility for high yet. I suspect that that is partly to do with speed rail, which has been very successful in other regulatory issues. parts of Europe particularly in Lille in France, linking Denmark and Malmo¨ in Sweden. Lots of Q72 Mr Stuart: I just want to get clarity from the evidence of high speed rail having strong three of you. The Climate Change Bill is going environmental benefits. One of the things that the through Parliament it sets targets for reductions for Association of North East Councils would urge 2020. Can we be clear, do you believe that local central government to do is undertake a UK-wide government is in a position to help deliver its part of study which looks at the environmental, social and that target; and are you getting the clarity and, economic benefits of high speed rail. indeed, support from central government to deliver it? Yes or no, if you had to summarise it. Q70 Mr Stuart: You suggested there was Ms Seaward: Rather than clarity I think there is consistency. The Environment Agency have told us confusion, and I think it is actually about which they think there are conflicting signals. You policies have the most strength and which ones are mentioned in your list of marvellously coherent the priorities; and that is particularly when you look Ev 40 Environmental Audit Committee: Evidence
22 January 2008 Ms Christine Seaward, Mr Bob Fiddik and Ms Hilary Knox at the economic policies for a region as opposed to Q77 Mr Stuart: Is there not a danger in the high the adaptation to climate change issues. Where are pressurised position local government finds itself in, the priorities there? I think we are in a situation of having to deliver these targets in order to keep where we are having to argue and develop those funding, that it will be stuck in the box with the arguments so that the climate change issues have a young oYcer with “environment” written on his or similar sort of weight. her forehead? Ms Knox: Obviously my politicians are not here today but I am speaking on their behalf. They have Q73 Mr Stuart: I accept that, Christine, but the given a commitment to place climate change at the question was: there are all those things to be done, heart of its vision for change. This document with are we in a position, are you in a position, to deliver 45 recommendations will make a diVerence on the the targets that are in the Climate Change Bill by ground, locally, but also nationally and globally 2020 without a serious change of direction in terms when they are adopted by all 25 councils, soon of funding, in terms of regulation, in terms of drive however to move to just 12 strategic authorities as a from central government and the removal of result of local government reorganisation in obstacles to getting there as far as you are Northumberland and Durham with elections in concerned? May this year. With just 12 top tier strategic Ms Seaward: As far as I am concerned, no, but I authorities, there is a real opportunity for the think we are getting there. Particularly with the 12 councils to come together in a very consistent way national indicators and those targets that are coming to address this. through, that is a way in which we can prioritise our own activities to respond to that; but there is a lot more work to be done. It is that whole thing of Q78 Mr Stuart: Can I ask you then about Local priorities. Which is more important: risking the Strategic Partnerships and Local Area Agreements. environment; working out the tensions within the In your three areas, will your Local Area climate change polices; or the economic prosperity? Agreements include targets on climate change? Ms Knox: Yes. Q74 Mr Stuart: The Government has said it was going to meet the target by 2010, which will now be Q79 Mr Stuart: What drove the thinking behind the missed. I am just trying to find out from you whether selection of those targets? or not you think the 2020 targets from where you are Mr Fiddik: If climate change is mentioned in your sitting are going to be met, or not? community strategy as something that you are going Ms Seaward: My view is they are very challenging to tackle and it is a top priority I do not think there so, probably, no. is any excuse for not having those three indicators there. I certainly support the introduction of these indicators. Certainly they are very welcome. Q75 Mr Stuart: Thank you for touching on the three Particularly the indicator for the council’s own indicators that will be part of the Comprehensive operations, yes, I will be the person who is Area Assessment. Can you tell me your views on responsible for producing that; but it will not be those? somehow stuck down in the organisation because I Ms Seaward: Very much welcome the indicator on will need to argue for that release of the data; and if adaptation. That is an area of work that Hampshire people are not collecting it we will have to know, County Council has been engaged in for some time. “Why aren’t you collecting it?” It certainly is an I think we need to be very clear about how we report incentive to make sure that data within the council is progress on that. I would welcome further clarity; in place. We have some technical issues with the and I think there is some work to be done with the indicators and of course it is still waiting for a government departments to actually work out response from the consultation. The community exactly how we are gong to do that. At the moment it is a case of us judging ourselves on our own indicator, which is obviously for the whole performance, and I think we need some independent community in an area, is something that we indicators as to how our performance is moving ourselves will not be responsible for collecting forward. because it will be collected centrally by Defra. It is worth pointing out that I think there is a missed opportunity there in terms of what the data can tell Q76 Mr Stuart: Hilary, do you think having a focus us; at the moment it is a rather aggregate piece of on these three may take away from integrating carbon dioxide information which essentially just climate change across a broader range of indicators says for the whole area this is what domestic use is, and targets? this is what non-domestic sector use is, this is what Ms Knox: I would think it is an either/or. I think the transport sector use. If we with our local strategic way local government is seeing this problem is by partnerships can identify which areas are needed for looking to have climate change mainstreamed by action, we need more disaggregated data, and the embedding it into the culture of local councils at fact that this data is essentially coming from two every single level and, at the same time, making sure large databases which hold the estimated electricity that it adopts the indicators that have been included and gas consumption for ever single meter within within the new performance framework. our areas, we could argue for more release of that Environmental Audit Committee: Evidence Ev 41
22 January 2008 Ms Christine Seaward, Mr Bob Fiddik and Ms Hilary Knox data. I believe that the only obstacle to that are the as well as, where necessary, having a much more utilities who argue that there is some sort of regulatory approach, but that is not representative commercial confidentiality; I would have thought if of the approach that we are adopting in our region. the nominated supplier on those databases is stripped from that data, I would have thought that Q84 Mr Stuart: Is that a view that you share, that in there is no obstacle for us to use that and it is fact there is suYcient momentum growing that, certainly absolutely essential for local energy hopefully, more sticks may not be necessary and planning to have better access to that information. encouragement and best practice sharing from the Chairman: I do not want to interrupt the flow of Audit Commission or anyone else could be enough? questioning, but I have to leave. I am going to ask Ms Seaward: What I would like to see first is some Mr Chaytor to take the chair. improvement in understanding on how people are reporting progress. One of the big issues on the In the temporary absence of the Chairman, community target for reduction of CO2 for example Mr Chaytor was called to the Chair for the is, within a growth area, how do we take account of remainder of the meeting. trying to map an overall reduction alongside economic growth? There are some tensions in there and there are certainly some in the adaptation Q80 Mr Stuart: Should the inclusion of climate indicator where we have some work to do to actually change targets be mandatory, do you think? make it comfortable and doable for everybody Mr Fiddik: Personally I would say yes. before we could move to making it compulsory. I support what Hilary was saying about sharing best Q81 Mr Stuart: What do you think, Hilary? practice and actually using those champions that we Ms Knox: I think the commitment that has been have already got in the system to actually lead and given in the North East speaks volumes. inspire other people to do it rather than make it mandatory. Mr Fiddik: I would still be quite happy for the Q82 Mr Stuart: It is not just the North East though; reporting on those targets to be mandatory, simply there are other areas and there is a widespread because there are diVerences amongst local Y problem that there are some senior o cers and some authorities and regions but they all have operations senior councillors in some authorities who are way and they all produce carbon dioxide emissions, so behind others and they have inconsistency. If it is a there must be some way forward to report on those, national problem, which it is, or an international and I think it is quite natural that they should be problem, then could there not be a case for making asked to report on those emissions. As for the it mandatory? community, the borough indicator, I think that is a Ms Knox: There is an opportunity for local area valid point but that is down to how we are using that agreements, multi-area agreements and strategic indicator; what commentary is allowed to explain partnerships to deliver the Government’s ambition whether emissions have gone up or down? As it and visions on this without over-prescription, and stands at the moment, neither indicator for instance this is partly what the sub-national review accounts for weather, which is rather a simple recognises, that it is about action at a range of adjustment to make, but at the moment as it stands diVerent spatial levels and over-prescription you will end up with the CO2 indicator going up and through national targets may not necessarily down according to weather conditions. There is the produce the best results or the right results because issue of growth; again, as a London borough we all regions of the country are diVerent, despite this have an incredible amount of growth, an incredible being a global and a national challenge. increase in floor space through regeneration. Again, if you are able to explain that that can be adjusted by per capita emissions, you would expect from a new Q83 Mr Stuart: If it is not made mandatory what development the per capita emissions should should happen in order to basically pick up the actually go down because you have more eYcient laggards, because what we would need to do if we are buildings. So there are ways, at least, to account for going to deliver a national strategy is at least why emissions have gone up or down, which is why highlight those areas where action is not being taken we return to the importance of having accurate, and bring measures forward to help encourage the reliable data and making sure you are able to explain take-up of activity there? exactly why certain sectors are going up or down. At Ms Knox: We have not talked about sharing best the end of the day, however, we should be reporting practice this morning and that really is an important on these. tool, which is perhaps more of a carrot than a stick, Mr Chaytor: I am going to have to bring this first but it is about identifying where there are some really part of the meeting to a close now, otherwise we will compelling examples of good practice which can be not have time for our second set of witnesses. There widely disseminated, and the Government has a role are one or two more questions that we would have to play in helping to do that nationally. Certainly, we wished to ask you to do with adaptation, but maybe are doing that locally through a number of award I could ask the clerk to write to you on that. Thank schemes and through media campaigns and it is you very much indeed for your evidence, it has been about often encouraging and bringing people along extremely helpful. Ev 42 Environmental Audit Committee: Evidence
Memorandum submitted by Energy Saving Trust The Energy Saving Trust is pleased to respond to the Environmental Audit Committee’s Inquiry into climate change and local, regional and devolved government. Our response focuses on the relevant areas of the Energy Saving Trust’s expertise and we do not attempt to answer questions outside our area of expertise. We believe that all levels of government have an important role to play in helping to reduce carbon emissions. In particular, those levels closest to the community—namely, local government,—are in a prime position to take a leadership role and engage with citizens to reduce individual emissions. We are also of the view that local government’s capacity, both financial and skills, needs to be significantly improved in order to successfully lead their communities on climate change action.
1. Introduction 1.1 The Energy Saving Trust was established as part of the Government’s action plan in response to the 1992 Earth Summit in Rio de Janeiro, which addressed worldwide concerns on sustainable development issues. We are the UK’s leading organisation working through partnerships towards the sustainable and eYcient use of energy by households, communities and the road transport sector and one of the key delivery agents of the Government’s climate change objectives. Our response focuses on the key areas of the Energy Saving Trust’s activities and related issues that are relevant to the inquiry. We do not attempt to answer questions outside our area of expertise. Please note that this response should not be taken as representing the views of individual Energy Saving Trust members.
2. Performance Framework 2.1 The Energy Saving Trust strongly supports the inclusion of climate change mitigation indicators in the new performance framework for local authorities—the Comprehensive Area Assessment (CAA). 2.2 Until now, climate change has not featured in the Comprehensive Performance Assessment and as a result, LA performance in the area has been patchy. In the absence of any performance indicators, initiatives such as the Nottingham Declaration and activities of the Energy Saving Trust have sought to stimulate interest and encourage LAs to take action. However, climate change indicators within the CAA and LAAs will help ensure that climate change is on the LA agenda and will encourage improved performance across the board. 2.3 We are strongly supportive of the community climate change indicator as it seeks to embed local government’s role as an influencer and community leader, and provides a useful link to central government climate change initiatives. However, as this is a particularly new area of LA activity, additional support and resources will be necessary for LAs directly and for those organisations providing services to support LAs in meeting their targets. This is particularly the case for those LAs which have yet to engage with climate change. 2.4 In addition, the role of the Audit Commission in climate change will significantly increase. As a result, it is vital that Commission staV, particularly those involved in LA risk assessment, have the appropriate skills and knowledge to analyse LA performance. 2.5 The Energy Saving Trust strongly supports the proposed central reporting approach as it will focus eVorts on climate change action rather than measurement and reporting, and will ensure a national consistency and comparability of data. However, the accuracy and timeliness of current data could be improved to assist LAs in responding to variations as necessary. LAs will also need additional tools to target their activity and to monitor its eVectiveness at a greater level of detail. This is where tools, such as the Homes Energy EYciency Database (HEED),2 could helpfully be employed to support targeted LA action.
3. Leadership 3.1 The Energy Saving Trust undertook its LA segmentation research of 368 local authorities in 2006, which highlighted the importance of councillor involvement in tackling climate change. 3.2 When asked if there was an elected member who holds a portfolio for sustainable energy and climate change, or who is allocated with specific responsibilities, 83% of the highest performing group of local authorities answered yes. This compared to 37% in the low performance/low motivation group. 3.3 When asked what diYculties the council faced now and in the future with regard to climate change planning an average of 43% stated the answer as no nominated champion, but this fell to 22% amongst the high performing group and increased significantly to 78% amongst the lowest performing group.
2 The Homes Energy EYciency Database (HEED) has been developed by the Energy Saving Trust on behalf of Government to register the uptake of sustainable energy measures and related survey data throughout the UK housing stock. The database registers these installations on a property-by-property basis with data from a wide variety of sources including energy suppliers, government scheme managing agents, local authorities and other landlords, EEAC home energy checks as well as Energy Saving Trust programmes. Environmental Audit Committee: Evidence Ev 43
3.4 Along with the Carbon Trust, IDeA and LGA, the Energy Saving Trust launched the Nottingham Declaration on Climate Change in 2000 (and re-launched in 2005) to secure high level local authority commitment to take action on climate change. Signatories now exceed 280. As the Nottingham Declaration Partnership has submitted evidence separately, the Energy Saving Trust will not be providing a detailed submission on the Declaration. 3.5 With the recent Local Government White Paper, much greater recognition has been given to LAs’ role as community leaders generally, and specifically in relation to climate change action. LAs are in a good position to take the lead, because: — Local knowledge—a much better and more detailed understanding of its community/people/etc than central government. It can target areas/homes/people more eVectively. — Trust—local government is considered more trustworthy than central government and other sectors. It holds a position of authority and is generally well regarded by the people who live in the area. — Lead by example—key to any leadership role is leading by example. Many local authorities have been working hard to get their own house in order, working with the Carbon Trust’s LA Carbon Management Programme. — Partnerships—opportunity to bring key stakeholders in energy in the area together. This includes businesses, supply chain, schools, voluntary sector, etc. All these parties are key to action across a local area. Local Strategic Partnerships, with clear guidance on how to use them, are integral to this. — Engagement—All of these combined put local government in a strong position to engage with people/community to tackle climate change. In particular, LAs are in a strong position to help facilitate the engagement with children through schools, which is an important activity that is currently neglected. Children are the decision-makers of the future and it is easier to inform behaviour at an early stage rather than have to attempt to change embedded climate-damaging behaviour at a later stage. Further evidence can be found in the Energy Saving Trust’s recent report The role of education and schools in shaping energy-related consumer behaviour (http:// www.energysavingtrust.org.uk/uploads/documents/aboutest/Schools%20report.pdf). 3.6 LAs have an important role to play in encouraging and persuading behaviour change—by both leading by example and working in partnership with a range of organisations, including community groups, to bring about more energy eYcient behaviour within its area. LAs are trusted more within their area than central government and also have a better knowledge of their communities. This puts them in a strong position to help catalyse behaviour change and act as an important delivery agent for achieving Government carbon reduction targets. 3.7 Balancing the need to take action on climate change and encourage behaviour change against the desire to be re-elected is one of the genuine challenges of community leadership. However, now more than ever, there is a groundswell of public support and expectation for action on climate change. There are also opportunities to form partnerships with other organisations in order to deliver change. For example, British Gas is working with 16 local authorities oVering council tax rebates to people who install insulation in their homes and are now trialling the programme with some microgeneration technologies. There are also opportunities to use incentives/disincentives such as CO2 emissions based parking charges to raise funding to invest in carbon reductions action elsewhere within the local authority area. 3.8 The work of the Energy Saving Trust and the Beacon Council scheme has provided a range of case studies on high performing local authorities. The lessons learned so far are: — Action has to be tailored to local circumstances. — There is a range of action which LAs can take. — It is important that policy translates to action. — Leadership is a must.
4. Energy Saving Trust Work with Local Authorities
4.1 The Energy Saving Trust has a number of programmes targeted at LAs to assist them in increasing their carbon savings. For the most part, they have been targeted at councils’ housing stock, fleets and sustainable energy strategies. These currently include: — An advice and information service for local authorities (Practical help). — The Energy EYciency Best Practice for Housing programme which provides excellent technical information and training around the improvements that can be made to housing. LA oYcers are regular users of the service. Ev 44 Environmental Audit Committee: Evidence
— The Energy Saving Trust Advice Centres (ESTACs), Energy EYciency Advice Centres (EEACs) and the Energy Saving Trust’s centralised consumer marketing campaigns directly engage householders and many EEACs work with LAs to run targeted advice and communication campaigns to local residents. This has helped to develop LA capacity in tailoring outgoing communications more eVectively. — From April 2008, the ESTACs will bring together key partners in the area to deliver household sustainable energy and transport. It will work closely with local authorities and others to engage citizens to change their behaviour. — Key account management for 30 LAs to provide intensive support for the development of a strategy and action plans for their local areas. We have also been marketing to targeted LAs on their role as community leaders and what that role might look like. — Community Action for Energy (CAfE) which provides training, support and networking for community organisations wishing to undertake sustainable energy projects.
5. Capacity,Skills and Training
5.1 In light of the increasing role of regional and local government in climate change mitigation, there is an urgent need to improve their capacity, through increased funding and skilled staV. The new performance framework will significantly increase the requirements on local government, especially those which have yet to engage with climate change in their area. They will need to acquire the necessary skills and expertise rapidly in order to catch up those LAs which have been active in the area for sometime, and to meet targets. 5.2 Regional government will similarly need to enhance the skills and expertise of its oYcers as the Government OYces in the regions have an important role in negotiating LAAs with LAs. 5.3 Whilst the Energy Saving Trust and the members of the Nottingham Declaration Partnership are providing support to LAs to deliver climate change action, the resources required to cover all LAs is well beyond what is currently available. For example, the Energy Saving Trust’s key account management for LAs, at the current level of 30 LAs per year, would take 12 years to cover all LAs. 2 January 2008
Memorandum submitted by UK Climate Impacts Programme (UKCIP)
Executive Summary
The UK Climate Impacts Programme (UKCIP) welcomes the Environment Audit Committee’s inquiry into climate change and local, regional and devolved government. This submission focuses on the challenges for local authorities rather than other tiers of governance. UKCIP was established in 1997 by the UK Government to help organisations assess how climate change might aVect them and how they might adapt to climate risks. We co-ordinate and integrate stakeholder-led assessments of climate risks at a regional and national level, assist the Devolved Administrations in responding to climate and weather risks, and work extensively with English local authorities. UKCIP is an active member of the Nottingham Declaration Partnership where our responsibilities include preparation of the adaptation content of the website.
Key Issues and Recommendations — Important that the diVerences between adaptation and mitigation responses to climate change are clearly recognised across all levels of government. — Adaptation has received significantly less attention than mitigation—although awareness of adaptation has increased more recently, it still frequently tends to be marginalised in considering responses to climate change. — The simple message to all levels of government is that adaptation will be required to maintain, and enhance, well-being in the face of unavoidable climate change. — The starting point for local authorities is to understand and adapt to current climate and weather risks. — Changes to climate and weather impact locally and, therefore, local authorities have a vital role in adapting their local communities to a changing climate and extreme weather events. Environmental Audit Committee: Evidence Ev 45
— However, there is still a strong role for UK government and Devolved Administrations in providing leadership and through policy and regulation — We welcome the recent increase in resources for adaptation at Defra. However, this must be accompanied by additional resources at both regional and local levels if the UK is going to adapt successfully to the changing climate.
Introduction to UKCIP
UKCIP was established in 1997 by the UK Government to help UK organisations assess how climate change might aVect them and how they might adapt to the unavoidable impacts. We co-ordinate and integrate stakeholder-led assessments of climate change impacts and adaptation at a regional and national level, and provide tools (such as the UKCIP02 climate change scenarios; a risk, uncertainty and decision making framework; and a costings methodology) and guidance throughout the process for both stakeholders and researchers. Within the UKCIP framework, regional scoping studies on climate change impacts have been undertaken for all parts of the UK, and regional climate change partnerships have been established. Sectoral studies focused on a number of areas of activity have also been undertaken. Further information on the UKCIP tools and studies is available from our website (www.ukcip.org.uk).
Some General Responses
A. A general response to the EAC from UKCIP is to request that, in making its recommendations, due attention, focus, priority, resource, etc is given to what is still recognised as the Cinderella issue of climate change viz Climate Impacts and Adaptation. Although general awareness of Adaptation has increased considerably, even in the past 12 months, it is still treated as an afterthought to the mitigation agenda in considering policy, governance, regulation, technology, resources, etc. Even in the simple issue of documentation the text on adaptation continues to be treated as an appendage to much more considered text on mitigation. Unfortunately this list of EAC questions displays some of these characteristics. So, one question addresses both mitigation and adaptation specifically (Q1), one question (Q5) addresses adaptation specifically and the remaining questions are either specific to mitigation (Q4, Q8) or non-specific. In some cases it is sensible to consider together the implementation of policy on mitigation and adaptation. However, in most cases it is sensible to consider them apart. So our strong recommendation is to ensure that all levels of government clearly ascribe climate change actions to either: (a) adaptation; (b) mitigation; or (c) adaptation and mitigation.
B. The motives for adaptation at all levels of government are diVerent from the motives for mitigation. So support and encouragement for adaptation needs to be oVered in recognition of the diVerent benefits that will accrue. For example adaptation is not a moral issue, nor a CSR issue, nor is it one that needs global action to be eVective. Its purpose is simply to maintain, and where possible enhance, the quality of life in the face of changing climate and weather. For government at national, regional and local level the simple message is to achieve resilience to climate change in order to maintain the service provision to those communities for which it has responsibility. This simple message is often lost in the confusion of the wider debate on mitigation. C. The climate impacts locally, and its eVects are experienced locally. Therefore, policy with respect to adaptation needs to be developed from the bottom up as well from the top down. Resources applied at the local level in undertaking vulnerability assessments and exploring adaptation options will generally provide good value for money. (See further examples below).
D. On the other hand there are some sectors which will be dependent upon top down changes, for example through regulation. The built environment is a particular instance. Our built environment will only be fit for purpose through the remainder of the century if Building Regulations, Eurocodes, BREEAM, Code for Sustainable Homes, etc are developed to include resilience to climate change in their specifications. This issue is complicated by the need to influence the adaptation (retrofit) of existing buildings as well as newbuild.
E. Resources. UKCIP welcomes the recent increase in resource for adaptation at Defra and the way that the LGA Commission on Climate Change has highlighted the importance of Adaptation. This new level of attention needs to be reflected in additional resource to support government at all levels. For example, local authorities will need additional support in seeking to honour the commitments made through the Nottingham Declaration. UKCIP is keen to explore ways in which this additional resource can be provided, and how support on adaptation can be best delivered. The timing is particularly appropriate as UKCIP reviews its forward programme with Defra. Ev 46 Environmental Audit Committee: Evidence
Responses to Individual Questions
1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government? It is important that the diVerences between adaptation and mitigation responses to climate change are recognised clearly across all levels of government and that adaptation is given greater attention and resources than hitherto. Local authorities need clear messages and policy drivers for climate change adaptation from central government. Consideration of adaptation has been lacking until recently and even with greater recognition recently, for instance, the CC programme, LA White Paper, etc. still have a much greater emphasis on mitigation than adaptation.
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? The Nottingham Declaration has been extremely eVective as an awareness raising initiative for Las. It has been eVective at engaging members and senior management with CC issues as evidenced by sign- up numbers—more than 280 to date. However, it has not promoted significant action on adaptation to date. The planned update of the Nottingham Declaration website (scheduled for Apr 08) is intended to provide improved and clearer guidance for local authorities tackling both mitigation and adaptation.
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? More explicit reference to climate change adaptation in the new performance framework would be useful as a driver for local authority actions. It is much too early to say how eVective the new adaptation PI will prove—but our experience with working with local authorities and LSPs suggests that it is not likely to be particularly eVective unless taken up as part of the 35 PIs for local target setting within Local Area Agreements (LAAs). Initially we need to see how many LA/LSPs are adopting that adaptation PI as one of their local priority targets.
4. How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are local authorities, regional government and devolved administrations? Poorly advanced—typically something of the order of five years behind mitigation. UKCIP is the only specialist agency concerned specifically with climate change adaptation. Regional partnerships and their co- ordinators, supported by UKCIP, provide support, networking and a modest regional resource which we are keen to enhance. It is not possible to generalise about vulnerability of LAs to climate change as vulnerability varies with location, demography, timescale and other socio-economic factors. But all, or most, are likely to be vulnerable to some aspects of CC. UKCIP has developed a new tool (Local Climate Impacts Profile) which will help Las understand their own vulnerability.
5. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? Now main barriers tend to be conflicting priorities leading to: — Lack of resources being applied to adaptation. — Lack of experience of adapting to climate change (in UK and globally) and lack of skilled staV. Environmental Audit Committee: Evidence Ev 47
Need for stronger central govt drivers for LA activities on CC, particularly adaptation, including: — Allocation of resources. — Building of capacity through improved provision of research and training capacity. This is something that UKCIP could provide with greater resources. There has been insuYcient attention paid to adaptation to be able to point to policies that are working well, although emergency responses to extreme weather events are receiving more attention and are probably rather more advanced than systematic adaptation to longer term climate changes.
8. What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions? In common with most policy, the PPS is much stronger on mitigation than adaptation. It must also be remembered that PPS only eVect new developments, and major changes requiring planning permission, and so does not cover the vast majority of the built environment. Given the current rate of replacement, this is likely to continue through this century—hence need to consider retrofit adaptation of most existing buildings.
10. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? Most good practice in adaptation is in the realm of Building Adaptive Capacity rather than in Delivering Adaptation Actions. This will continue to be an appropriate emphasis for the forseeable future UKCIP already maintains an adaptations database on behalf of Defra, and provides case study material for NDAP, so is well placed to facilitate the sharing of good practice as more examples begin to emerge. 9 January 2008
Witnesses: Mr Lewis Morrison, Head of Community Advice, Energy Saving Trust, Mr Steve Waller, Sustai- nability Advisor, Improvement & Development Agency for Local Government, and Dr Chris West, Director, UK Climate Impacts Programme, gave evidence.
Q85 Mr Chaytor: Good morning, sorry about the background of six years in local authority within slight delay, welcome to the Committee. I wonder if London boroughs and prior to that I was in forestry I could start oV by just asking each of you to say, in and woodland management at Rural England and less than one minute, who you are and a brief word Wales. The Energy Saving Trust is primarily about your organisation and the general position in tackling climate change within homes and transport, terms of the responsibilities of local government and although my area in community advice deals with regional government in climate change policy. delivering programmes to primarily a local autho- Mr Waller: If I could start with myself, we are both rity audience, a regional government audience and a here really with two hats on. My first hat is as sustai- community audience. I too am wearing two hats, the nability adviser for IDeA, the Improvement & Deve- Energy Saving Trust but also the Nottingham lopment Agency for Local Government which, if Declaration Partnership. If I can say a quick word you know us, is a sister organisation to LGA who I about the partnership itself, as I am sure you are think you met last week, and we are the national aware there are other representatives and stakehol- improvement agency for local government improve- ders such as the Carbon Trust and the Environ- ment. In addition to that I chair the Nottingham ment Agency. Declaration Partners Group, I am also the author of the Nottingham Declaration as well, and I have been listening with real interest to the previous conversa- Q86 Mr Chaytor: Thank you very indeed. Maybe we tions about that. could start oV on the question of Declaration and see Dr West: I am Chris West, I am the Director of the if you could just tell us a little bit more about the UK Climate Impacts Programme, based at Oxford significance of the declaration as you see it and the and funded by Defra, with two goals: number one to progress that has been made in implementing the help decision-makers in this country to understand aims of the declaration by diVerent local authorities. the impacts of climate change and number two to I would like to ask also about the monitoring of that help them adapt to those impacts. We have been progress. working with EST and the IDA on local authority Mr Waller: If I cast my mind back to October 2000 adaptation to climate change and we are also when I first wrote the declaration, at that time it was partners in the Nottingham Declaration sensed in local government and particularly in Not- Partnership. tingham City Council where I was working at the Mr Morrison: Thank you, Chairman. My name is time that the time was now right to give local autho- Lewis Morrison, I am the Head of Community rities an opportunity to put a marker down in terms Advice for the Energy Saving Trust. I do have a of building commitment towards addressing climate Ev 48 Environmental Audit Committee: Evidence
22 January 2008 Mr Lewis Morrison, Mr Steve Waller and Dr Chris West change. It was an up and coming issue for local themes where they are relevant to climate change. authorities, but little did I think or dream that by You may well know that round nine includes a today—or by the end of December last year—we theme called “Tackling Climate Change” and we would have 285 English councils having signed it have just finished the assessment of the 26 councils along with all councils in Wales and Scotland having that it applied to for that beacon status. When that signed their own version and it having permeated is launched on 4 March we will have at least a year into the private sector as well. Its value is in the num- of using those best practitioners to promote good bers that have signed it. It is a single side statement practice to English local authorities. of a local authority’s commitment at the most senior level to address climate change, to work with Q89 Mr Chaytor: Finally, can I ask what would hold partners and to address key elements of local a council back from signing the Nottingham Decla- government responsibility to both reduce carbon ration? Why are some not signing? emissions themselves, to reduce carbon emissions Mr Waller: That is a very good question and that within the community and then also to integrate troubles us as well because there are around 100 adaptation measures, both internally and externally councils that have not signed it. Whether that is the as well. At its minimum it is just that, it has clearly same thing as saying there are 100 councils who have been attractive to local authorities as a way of made no action on climate change we are not quite making a public statement, and I visit many councils sure, but I suspect it is the idea of making a public who have a framed copy of it, signed, hung up in statement, they perhaps do not quite feel that their their reception as just that, as a public statement of actions give them yet the confidence to make a public their commitment to addressing climate change. statement. Most of them, if they think long and hard, whether it is action on waste or managing Q87 Mr Chaytor: Councils like hanging framed energy are making some contribution to either miti- copies of things in their receptions, but what I am gation or adaptation. really interested in is the progress being made and Mr Morrison: If I could step in to quantify that a who is responsible for monitoring that progress. little bit in terms of the eVect that the Nottingham Mr Waller: We have only monitored really the num- Declaration has had on local authorities, the Energy ber of signatories. We have taken as a campaign Saving Trust undertook a survey of signatories last amongst the partnership to encourage as many year. We had 127 responses from, at that point, 237 councils as we could to make that first step in com- signatories around England, so representing around mitment. We realise though that in having got the just over half of signatory local authorities. In terms councils to sign that their next question to us was of dealing with your last question first, in terms of what do we need to do, what actions do we need to what barriers there may have been, over 80% said take in order to address it, and that is why with the that there is no negativity regarding signing the help of the All Parliamentary Group in 2006 we declaration, they were happy to do it and wanted to launched our on-line web advice to councils which do it, but I have some information here and 10% we called the Nottingham Declaration Group cited such factors as lack of understanding about Action Pack, which is a web tool hosted by EST, one what the Council could expect to achieve, added of our partners, and it is the only place that local little value as work was already being done and authorities can go to to get comprehensive advice on under way and question marks over the means of how to mitigate and how to adapt. We do realise as resources to deliver. However, I should say that over a partnership that that is not enough, which is why 80% said that they were happy to sign and then take we are considering launching some form of accredi- it forward. Of those 127 respondees, almost a quar- tation scheme which will be voluntary because ter since signing have adopted a climate change stra- signing the declaration is a voluntary scheme, so we tegy and just over another quarter are preparing one, will only have a voluntary accreditation scheme, but but obviously that leaves perhaps 50% that we are one that allows councils to progress maybe through not entirely sure where they are at, hence Steve’s bronze, silver and gold, but by the time they get to comments on the accreditation. the higher reaches of that, that will involve some kind of external assessment of their performance. Q90 Mr Chaytor: Can I ask another question on the The first stages, we envisage, will be self assessment accreditation scheme, can you say something about but the latter stages of that accreditation scheme, how that is going to be funded and what is your pro- which we are just working up, we expect to be some jected timescale for that to be implemented, when form of external assessment. I think at that point, will this see the light of day? which is some time down the line, we will know not Mr Waller: We expect to take the lead ourselves just who has signed it but who is doing what having within the partnership on defining exactly what signed it. would constitute achieving the individual levels of the accreditation scheme. I expect that for the self- Q88 Mr Chaytor: As things stand now is the EST assessment part, once we have provided guidance to website the best place to go to see what constitutes councils on exactly what that means then there will best practice in this field? be no external costs, the cost will really only come at Mr Waller: It is one of them, yes, and obviously you the latter stages of the accreditation scheme, silver will have heard talk of the Carbon Trust as well, and and gold, where we will insist on there being external I would add in also the work that we do, that IDeA verification. It will be providing that means of exter- my own organisation does, to support the beacon nal verification, that is where the costs will come. I Environmental Audit Committee: Evidence Ev 49
22 January 2008 Mr Lewis Morrison, Mr Steve Waller and Dr Chris West am in discussions with the Government at the Mr Morrison: The sources of data include, obviou- moment to see whether that is something they might sly, the data from Defra on emissions, burn emis- consider helping the partners with; if that does not sions. They hold themselves local authority emis- come through then our other option would be to sions, resources such as stock condition. The Energy invite local authorities to pay for that themselves, as Saving Trust has a Home Energy EYciency Data- they currently do with other verification schemes base which we may well talk about later, I am sure, such as those on equalities or environmental mana- which has information on energy eYciency measu- gement where this is quite a well-established process. res. In a sense there is perhaps a fear of lack of com- parability with all of these sources, so one of the motives I suppose for the Nottingham Declaration Q91 Mr Chaytor: And timescale? Partnership is to help address that issue and commu- Mr Waller: We would expect to hopefully launch nicate this issue up to government departments. this when we re-launch the website in April this year, 2008, so it is fairly imminent. Q95 Jo Swinson: You mentioned the Burr stuV; there is a lot of national data but how can that pro- Q92 Mr Stuart: It sounds like yet another organisa- perly be disaggregated to be meaningful for each tion setting up yet another accreditation scheme visi- individual local authorities, or can it be? ting councils. Surely you should be putting this to Mr Waller: It already is. You heard from previous the Audit Commission—I should declare an interest speakers that the indicator on spatial emissions is because my wife works for them—rather than crea- already available to local authorities. Burr already ting yet another duplication. make that information available in terms of energy Mr Waller: There are very important distinctions use and Defra pay AEA Technology to convert that between the role of the Audit Commission and what into a definition of carbon, so local authorities we are oVering here, and we have discussed it with already have access to that for that particular indica- them. Their response was that an accreditation tor, and Defra’s intention as we understand it is that scheme, if it was well thought-through and well exer- that will continue to be made available so that local cised, would provide them with the assurance that a authorities will be given statements about the council was actually tackling climate change, so it amount of carbon used or generated through use in might actually assist the Audit Commission, but we their local authority areas, but their responsibility do not want to set up, neither is it necessary to set will be to put forward actions which will seek to ourselves up, as a statutory auditing body. The Not- reduce them. I also understand again that Defra are tingham Declaration is a voluntary scheme and any- considering providing further guidance to councils thing we develop alongside it should also be volun- on what kind of carbon emissions or carbon reduc- tary as well, we feel, and it may well appeal to a tions could be expected from individual measures, diVerent audience as well. We may well find oursel- individual interventions, and that is a missing piece ves able to visit councils in a way in which the Audit of the jigsaw. As Lewis already mentioned, the EST Commission cannot. have their HEED database, which local authorities find very useful, but there is this missing gap on interventions for a spatial area and my expectation Q93 Jo Swinson: Sticking with the Audit Commis- is that Defra will plug that. Chris wants to talk about sion and the new indicators on climate change that adaptation as well. not necessarily all councils will choose to go with— Dr West: On the mitigation side, where you have got but clearly the members of the Nottingham Declara- a physical quantity that you can imagine measuring, tion might be expected to be more likely to—do you on the adaptation side we do not have the same thing Y think they are going to have su cient data for base- and we will not be able to have an outcome measure lines for those indicators, or is that going to be a pro- for decades. We do not have a baseline, we do not blem? know how well adapted any organisation is to the Mr Morrison: If I may begin with that one to provide current climate, so we are thrown back on some sort a bit of context to the answer the Energy Saving of process measure, an indicator based on process, Trust delivers programmes to local authorities, one and that raises the problem that we actually do not of which is currently called a key account pro- even know what is good practice. We have got prac- gramme, and we are currently working with 30 local tice and we can describe that and there are a number authorities and we are hoping to extend that to 68, of, if you like, sequelae that we can look for in a including the devolved nations, next year. What that council that is managing climate risk well, but they provides us with is soft intelligence and insight as to are only personal interpretations, we do not have the the dilemma facing local authorities in dealing with evidence base to start measuring adaptation. the indicators. Yes, they recognise it as a key step, a step change, but in terms of data there are concerns about it. Sorry, could you just repeat the final part Q96 Mr Caton: Continuing on the theme of the col- of the question so I can make sure I am on track? lection and use of data—this is primarily for Mr Morrison of EST—the Local Government Associa- tion Climate Change Committee’s report said all Q94 Jo Swinson: Really just about how will they councils should contribute to the Home Energy create baselines that then go forwards and measure EYciency Database and should have access to progression. energy performance certificates in their area so they Ev 50 Environmental Audit Committee: Evidence
22 January 2008 Mr Lewis Morrison, Mr Steve Waller and Dr Chris West can build up a better picture of energy eYciency of Q100 Mr Stuart: The Environment Agency, in its local housing stock. Why is that not happening submission to us, suggests that following the Nottin- already? gham Declaration the response has not been consis- Mr Morrison: The Energy Saving Trust holds the tent, nor has it been coordinated with considerable Home Energy EYciency Database and there is no variation in the quality of outcomes. That was in the mandate upon local authorities that they should context of the Nottingham Declaration, it is not an submit data; I suppose it is a goodwill gesture or attack upon the Nottingham Declaration, it was where they find the facility and the infrastructure about the response of regional and local authority useful to inform their own campaigns. I suppose it bodies. Do you accept that? goes back a little bit to the previous session in a sense Mr Waller: We certainly accept that the response of about a wilful individual, a wilful HECA oYcer for local authorities, even those who have signed it, has example in a local authority recognises the logistical been very varied, and you heard from the two here need for him or her to deliver a campaign and target earlier on who are amongst some of the frontrunners a campaign eVectively, and he or she will use that in performing on that. The Beacon Councils, when resource and in fact find that those more proactive we announce them, will all have signed the Nottin- local authorities will perhaps have on their database gham Declaration—most of them signed it several up to 60% of their housing stock in their local autho- years ago—and they will be exemplars in perfor- rity area, but local authorities who perhaps are less mance as well, but there is enormous variation. If I able or less keen to use the facility maybe have only 3 am honest, simply signing it is no guarantee of action or 5% population of the database representing their and that is clearly something that troubles us as well. housing stock. I suppose there is no prerequisite that they must use it, but we make them aware that they Q101 Mr Stuart: I was not quite sure what you were can use it and certainly with our one-to-one relation- suggesting in the evidence you gave a few minutes ships, with our programmes that we deliver to local ago, because the key thing a local authority signs up authorities, it is there as a resource for them if they to is that it will produce a strategy for climate change choose to use it. within two years. Local authorities, whatever else they can or cannot do, producing paperwork is nor- mally their forte and there is a risk that some of them Q97 Mr Caton: Do you know how many are using it? who signed the declaration have not even managed Mr Morrison: There are 125 local authority users of to write something with the words climate change 460 plus local authorities, English local authorities. and strategy at the top of a piece of paper. Mr Waller: Nothing substantial, yes. Q98 Mr Caton: Would actually providing this be one of the boxes that needed to be ticked in a certification Q102 Mr Stuart: They are not even doing the bare scheme for the Nottingham Declaration? minimum of producing a document, and that is what Mr Morrison: I will probably hand this to Steve but, they often specialise in. absolutely, it is something that the Energy Saving Mr Waller: Yes. Trust have put on the table as a resource that we would be happy to use cross-partner. Q103 Mr Stuart: That is a fairly desperate situation, Mr Waller: Our thinking at the moment is a bit broa- is it not, so can I note that and then ask you the ques- der than that. I am sure Lewis is right on the details tion I asked the earlier witnesses which is are we in a of what we might expect councils to show that they position to meet the Climate Change Bill aspira- are doing, but in simple terms as we envisage at the tions, the first set of targets, as far as local govern- moment the next stage of our accreditation scheme, ment is concerned. Are the incentives there in place? having signed the declaration, to achieve bronze will Mr Waller: Again if we are honest about the declara- be to develop actions or an action plan to address tion, one of the reasons it has flourished is because it mitigation and adaptation. The next stage, the silver has been a policy vacuum, local authorities have not stage, will be to have delivered on the ground actions been compelled, encouraged or even required to as a result of that and then we are still looking at address climate change by government and that quite what we would mean by a gold standard. It position has persisted until very recently until the would clearly be more than that plus it would factor announcement of indicators and until the racking up in at least at that point local authorities earnestly of a land use planning system, new PPSs and various engaging in reporting on the indicators, having other measures. What none of us can really tell is included those indicators or some of those indicators what the impact of this new policy climate will be. within their LAAs, so some kind of definition of at You met with John Cheshire, the chair of the LGA’s least above good practice, some kind of excellent Climate Change Committee last week, and they were practice, but at the moment we are looking at this in in this very same dilemma, trying to judge whether fairly broad terms. this new framework would actually deliver actions, let alone whether it would deliver actions at the kind of level envisaged nationally in the Climate Change Q99 Mr Chaytor: Chris, you are nodding vigorously. Bill. I do not know any of us will know but they were Dr West: I am agreeing; I do not have anything to willing and I think we are willing to take a deep add to that. The Nottingham Declaration, a bottom- breath on that and allow the Government’s new up initiative, has got to be seen to have these policy climate to take eVect over the next couple of benchmarks. years, to continue to revisit the situation during that Environmental Audit Committee: Evidence Ev 51
22 January 2008 Mr Lewis Morrison, Mr Steve Waller and Dr Chris West period and then at the end of a couple of years decide Q107 Mr Stuart: I am a critic of too many targets whether there are more draconian measures needed from the centre and one could be accused of to require or incentivise local authorities to address inconsistency, but a particular area where targets climate change. The short answer is that none of us would be justified would be something of national or can be entirely certain. international importance which may not be driving local priorities. Although setting local priorities nationally seems absurd, this is just the area where Q104 Mr Stuart: You wrote the Nottingham Decla- you would expect that targets set from the centre ration, you are with IDeA, close to Government would be precisely proper and reasonable and accep- thinking on local government; why has a govern- ted across the political divide as the right thing to do, ment which protests that it is a global leader in cli- yet this is the area where they are not being set. mate change so singularly failed in ten years to put Dr West: On the adaptation side there is certainly, I any kind of framework in place that leads to real have perceived, on the Government’s part a percep- change at local government level? tion that this is something that is going to benefit the Mr Waller: My interpretation of that, certainly on adapter and therefore there is no need for coercion. mitigation, would be that the Government in its That has led to a gap, because if people are not requi- earlier climate change strategies or performance red to look at it they assume it is not a problem. I see reviews saw what the impact of the public sector, the same thing in big business, they tend to devolve including local government, was and what our environmental management to a site level, and so the actual carbon usage is, which is fairly modest by impact of climate and weather on the company is comparison with industry and decided to target its again assumed to be dealt with at a local level. resources and energy at the main energy users. This Within local authorities I have certainly seen mana- was certainly the signal internationally and the gers dealing with environmental problems of Government responded to that. It is only since 2006, extreme weather, and because they are managers it since the publication in April 2006 of the most recent does not get reported upwards to the board so these climate change performance review, that the poten- problems are invisible to the board, and so the board tial impact of local government has been sees no requirement to adapt to climate change acknowledge by central government. Some would because they do not see the impact they are suVering argue that it is our local authorities’ role in galvani- at the moment. Where we have done experiments to sing other stakeholders in their area which is more uncover that and to show the economic cost of significant than simply reducing their own carbon extreme weather, then the council’s senior oYcers emissions, so it was the Government prioritising start to notice it. other more obvious carbon users than local authori- Mr Morrison: Certainly I would echo that in terms ties first. of the relationships that we have with local authori- ties in the North that were the subject of flooding Q105 Mr Stuart: Although they had given them a recently. They are responding positively to adapta- duty of community well-being specifically for the tion plans, whereas I would say that local authorities environmental welfare of the citizen, so it is rather that have not been subject to climatic catastrophe odd to do that years ago and then not do anything are less galvanised. If I could just get a point across to back it up. here about the spread of intelligent skills and capa- Mr Waller: Yes. city, not just within local authorities but with their Mr Morrison: I would just add to that in terms of my partners and perhaps going up to the regional level Y experience of working with local authorities. They as well and the government o ce level, in a sense we welcome the performance framework as a significant have all been scrutinising the consultation process step, but I think the litmus test really is on the latest on the local government performance framework round of negotiations on local area agreements and and what it is going to look like, submitting our own for the 150 or so negotiating local authorities at pre- responses as a partnership and as individual organi- sent quite how their local area agreements will mani- sations, hoping that the indicators will be there and fest themselves and whether they will include mitiga- they are. I could not give you statistics to support tion and adaptation as targets. We are waiting with this actually, this is just a notion that I have picked bated breath and certainly working through our own up from interfacing with local authorities, but I relationships with local authorities to assist that pro- sense that there are a number of local authorities out cess, whether it be on data, whether it be making there who are just waiting. There are some more gal- them more savvy to implementation further down vanised local authorities who are ahead of the game the line, but by the middle of this calendar year I in dealing with it, and the Beacon Councils would be think we will have a better idea. examples of that, so I would say that in terms of the local government performance framework being to a point finalised and this latest round of local area Q106 Mr Stuart: What do you think about the fact agreement negotiations, there is perhaps not quite that it is not mandatory that they have a local area enough time for the infrastructure to spread the agreement? intelligence and the resources and skills needed to Mr Morrison: There is potential for local authorities really make a diVerence on the ground. Again, I do if they recognise that other priorities take prece- not know what the results of the latest negotiations dence over mitigation and adaptation and they will look like, but I would say if there had perhaps choose those priorities. been a longer time or maybe looking forward to the Ev 52 Environmental Audit Committee: Evidence
22 January 2008 Mr Lewis Morrison, Mr Steve Waller and Dr Chris West consequent round of negotiation on local area go back a little bit to the knowledge within that both agreements, everyone will be a little bit more intelli- parties have, at a local and a regional level, and I gent as to what adaptation is, what mitigation is in sense that with the English regions we are working their own service areas and they will be much more with, broadly they might feel left out from target-set- enabled to act. ting. There are national targets set that can be calcu- lated at a local level, as Mr Waller has already Q108 Mr Stuart: But if specific targets are not in the explained, but quite where the regional spatial stra- local area agreements—this is a question I asked the tegies and targets and what have you fit in, the regio- earlier witnesses—what needs to happen to ensure nal strategies tend to be more aspirational rather that laggards are identified and can be brought on than quantitative and so I perceive a piggy in the board? middle scenario developing a little bit there. Again, Mr Waller: Defra still expects local authorities to I do not have statistics to support that, but I know report against all of the indicators, including the cli- we have hard of good practice from the North mate change one. Your question is around those East—if we can use them as an example—but I per- Y local authorities who choose not to or feel unable to ceive that from my government o ce contacts, that include it within their LAA. I worry particularly they feel perhaps a little bit left out of that communi- about those 100, as I said before, where we do not cation. know whether they have any commitment to climate change or not. Q111 Dr Turner: How do you think the eVectiveness of the approach we are taking in the UK compares Q109 Mr Stuart: I worry particularly about the ones with other countries, particularly Scandinavian who have signed, put it up in a frame in their recep- countries, but any examples you can choose to use? tion area and then cannot even be bothered to write Mr Waller: There is a perception certainly on miti- a strategy. gation that in terms of the quality of the buildings Mr Waller: The percentage of those in that latter that we have built in this country and the quality of state as suggested from the research that LGA and our planning and our building control process— EST have done is not very great, who having signed when I say the quality I mean the standards to which it have failed to act at all. As I said earlier, I think if it is achieved—we are 20 to 30 years behind the best they looked closely at what they have done they practice in Scandinavia. Clearly in terms of insula- would find they were actually doing more than they tion levels and in terms of defining what we mean by realised. What worries me is the 100 or so councils a zero carbon home we have still got a long way to that have not signed in and made no public state- go in terms of delivering on it. Maybe Chris is too ment about climate change; those are the ones that modest, but one thing that is worth reporting in my we will want to monitor quite closely. What LGA experience, having spoken to representatives from has oVered to do is to pitch in as well. EST have led the Canadian government and regional French the encouragement of local authorities to sign the representatives, is that they are very envious of the declaration and LGA have also oVered to explore work that we have begun, led by UKCIP, within the the opportunity of actually visiting and paying parti- UK on adaptation. One of the things that marks the cular attention to those 100 or so councils who have UK oV diVerently is the progress that we have made not signed it, in order to get them all to sign it within towards adaptation and the support provided to the next 12 months. That was one of the recommen- local authorities. That might seem a little incestuous dations that the Climate Change Commission made so perhaps I should shut up and let Chris say whe- to the LGA and that seemingly is the way they are ther my perception is held by UKCIP as well. going to respond to it, so perhaps within the next 12 Dr West: Yes, I believe we are doing something that months we will have as close to 100% signed up as the rest of the world has not caught up with. Other we can. countries are very good at doing academic studies of impacts; all over Europe it is being done, all over the Q110 Dr Turner: How do you see the relationship world people are doing lots of impact research. between what the local authorities are achieving in What we are doing that nobody else is doing is deli- terms of targets and the interface with the regional berately tying that research to decision-makers so and national targets? Do you think there is enough that it is led by decision-makers. Three years ago the support to help local authorities mesh with national last of the regional scoping studies on the impacts of and regional strategies? climate change were undertaken and all of those stu- Mr Morrison: I would say the infrastructure is there. dies were steered by steering groups, with the usual If we are looking at government departments, suspects—the Environment Agency, the regional pushing down through government oYce, there is a assembly, the RDA and the government oYces— clear flow of information on climate change. The always involved and others as well. Each of those Energy Saving Trust work with government oYces studies has led to a partnership of people picking up and RDAs through our regional support pro- the baton, trying to progress adaptation, and yet I gramme and we work to increase the intelligence, would say maybe one or perhaps two of those skills and capacity within those bodies. The infra- partnerships have got serious sustainable funding to structure is there as I say, also from the government maintain a single oYcer. For the other ones we oYce going down to the local authorities in negotia- constantly have stories: my secondment comes to an ting local area agreements, in putting together local end, I am being posted back to so-and-so; these development plans and what have you, but again I partnerships are not stable, they are not sustainable, Environmental Audit Committee: Evidence Ev 53
22 January 2008 Mr Lewis Morrison, Mr Steve Waller and Dr Chris West they are kept going by individual enthusiasm and in Nottingham, have managed to include green elec- little pots of money stolen from elsewhere. The tives within Masters programmes for planners, but if regions have immense power, as you suggested, to we are not careful then we certainly will find a natio- influence local authorities. I do not think they are nal shortage. The other thing to bear in mind is that able to do it in the current uncertainty about how climate change is often seen as a cross-cutting issue much the RDAs are going to pick up from the regio- and, as such, is not just looking at particular profes- nal assemblies—that has not helped. sional skill sets but looking at the skills that people need in order to negotiate across diVerent disciplines Q112 Dr Turner: We will come to that. Even if we within local authorities and to try and co-ordinate could provide stable and sustainable arrangements, work as well. Local authorities work on sustainabi- do councils have the necessary skills, capacity and lity and on local agenda 21—if your memories are staV time to do this properly, because it is quite a that good, ladies and gentlemen, you might remem- complex web of interactions that we are building ber some of the work that local authorities did in the here. Have councils got what is needed? late nineties on that. It is that kind of work, being able to work across diVerent departments, being Mr Morrison: I would say there is a vast spread, a V vast disparity, between local authorities. Through able to work across di erent sectors outside the our key account programme I have sat with some council, and those kind of skills we need for climate executive boards and management boards where cli- change as well as the energy manager type of skills mate change has been very much on the agenda of as well. the director of planning, director of transportation, director of waste, they have a sustainable develop- Q114 Mr Chaytor: Could I just come in on that ment director in post and the chief executive and the point? Do you see any evidence that universities are leader or the environment portfolio holder are all adapting the structure of their degree courses to well-switched on, and I could cite a few examples build in more training on climate change in planning around the country, but also there are local authori- degrees, or is it still assumed that they will train plan- ties that I have met with over this past six months, ners who will then have to learn about the climate certainly, where it is definitely down to the wilful change issues once they have graduated? individual, whether it be an over-taxed HECA Mr Waller: I can only really speak for the university oYcer or an over-taxed procurement oYcer who is I have had anything to do with which is in Nottin- dealing with energy on the side, so I would say there gham and certainly they abandoned a long time ago, is great disparity with local authorities and there is as did the other university, Trent University, the idea not really a formally recognised local authority of a planning degree in favour of bringing electives infrastructure, I suppose, a human resource infra- for planners into other degrees such as architecture. structure, to deal with climate change. I could not comment nationally, I have just not had enough experience. Q113 Dr Turner: Can this be helped by additional Mr Morrison: Pertinent to that point, I presented support from the Carbon Trust and bodies such as recently at the Sustainable Development Commis- yourselves? sion, their Working in Partnership Forum for the Mr Waller: Absolutely. There is a perception, as I Future. It was a scholars’ programme and they have think again you heard earlier, that for certain skill placed Masters degree students on sustainable deve- sets, certain functions in local government, energy lopment in local authorities and other places around management being one of them, there are insuY- the UK, and I have met one or two of their scholars ciently trained energy managers. The Carbon Trust out on site in fact. It is there, I think there is a gathe- have said they would work with what would be the ring base of knowledge, but again I could not com- Construction Industry Training Board in order to ment in the wider context. Could I very quickly try and fund additional in-house training courses for return to the gentleman’s point here on can we help that work. This is mirrored very closely, in my expe- in terms of a partnership in enabling local authori- rience, with the position that local authorities find ties with their own structures? Steve made a very on waste as well and part of that solution has been good point; climate change as an issue has centrality, for WRAP, the Waste Resources Action Pro- it is cross-sector, cross-theme and historically there gramme, a Defra-funded organisation to actually has been a perception or a culture within local constitute and organise in-house training courses for authorities that it is not my bag, I have got enough recycling oYcers and for waste oYcers and I suspect to do. Certainly, the shared insight of the partners on that that may well be the kind of solution we would the Nottingham Declaration is that we are helping be looking for. You also heard earlier, and again it local authorities through our own organisational would be my experience, that there is a national programmes, we are working with planners, we are shortage of planning oYcers as well. It is fairly well working with transport managers as well, we are understood that a land use planning system can deli- working with human resources et cetera across the ver huge potential for carbon homes, avoiding deve- board, so by bringing that insight together or next lopments in the wrong places and adaptation gene- stage of development of the Nottingham Declara- rally. Again, it is going to take increasing investment tion resources will be more service specific so that the in what universities have seen, which is planning language is understood by the audience. In the past, courses disappearing quite quickly, certainly as certainly, I have been a recipient of the Nottingham undergraduate courses. Nottingham University, Declaration when I worked in local authority; I was where I did some work myself because I used to live a wilful individual and found it very useful, but in Ev 54 Environmental Audit Committee: Evidence
22 January 2008 Mr Lewis Morrison, Mr Steve Waller and Dr Chris West translating that to other colleagues within a local Mr Morrison: Again, I speak outside of my remit authority it took a lot of convincing and an awful lot because I do not deal with adaptation, but what I of biscuit-buying. In a sense they need to understand perceive from local authorities is that I have not yet what is being said and the language needs to be right, identified one that is dealing with it perfectly across but, yes, we can help. the board. I do see good examples, for example, Bournemouth have got sustainable drainage systems to cater for floods and I know that Rotherham and Q115 Mr Chaytor: Before we finish there is one other Bolton are dealing very well with it. I could not cite area I really want to cover and this is about adapta- examples across the board; this is just some intelli- tion, which we touched on briefly earlier. What I gence I am picking up. would like to ask, if you can respond fairly quickly, Mr Waller: In terms of having visited ten councils is in terms of the specific actions needed to move for- recently as part of the assessment of those that have ward on adaptation, what are the most important applied for Beacon status, we were pleasantly surpri- areas; secondly, which local authorities have got the sed that most of those ten—which included Worces- best record on adaptation; and, thirdly, do you think tershire, Middlesbrough, several London boroughs, that there would be a value in having a statutory Eastleigh District Council—and these are all publi- duty on all local authorities to take action on adap- cly available so I am not sharing secrets with you tation? Chris, do you want to come in on this? here—most of those had done more on adaptation Dr West: Help me if I do not retain the three ques- than we perhaps had anticipated they would. The tions but, first of all, why they struggle I think that kind of actions that they had reasonably consistently although climate change is acknowledged to be a taken—which was what we wanted them to and central cross-cutting issue it actually has a home in most had begun to do—was to take an across-the- many organisations, in councils in particular, in the board risk assessment of the vulnerability of various services and the functions that they undertake to cli- environment directorate. One of the problems that mate change and then, hopefully, to respond to it. we have perceived is moving it outside that directo- Y That would characterise the ideal council respon- rate, so we can expect the environment o cers to ding on adaptation. know about it, to understand the issue. When the finance director takes notice we know that they have Q119 Mr Chaytor: That is very helpful. Finally, taken a quantum jump in dealing with the issue. I back to Chris on the final point, this question of the said before about how councils at a top board level statutory duty on councils, would that be useful or do not appreciate the issue because they do not expe- is it just another meaningless development? rience it. One of the things we are experimenting with Dr West: I believe it would. Councils struggle with is actually challenging the council to quantify their this concept of delivering well-being of the commu- vulnerability in the present with a view to helping nity. They all acknowledge they have it as a task but them think about their vulnerability in the future, how they actually deliver it, I think they struggle maybe by identifying the thresholds beyond which with that. You can argue that adapting to current they have a problem so that they can then ask sensi- and future climate must be a major component of ble questions about risk. that well-being of the community. Mr Waller: With my IDeA hat on I would have to go with LGA’s position which is to say let us give the Q116 Mr Chaytor: Could I just interrupt you there? new policy framework a couple of years to bed in I take your point about the need to spread the mes- and then review that question. sage across the organisation and particularly get the senior management to take it on board and not get Q120 Mr Stuart: The Climate Change Bill has got trapped within the environmental field, but I am adaptation in it; is there anything else in particular interested to see what you think, once the finance that you would like to see because it will be coming director and the chief executive take it seriously what here soon? are the main actions and adaptations that the local Dr West: I really think that the statutory duty to test authority needs to take, or have we got good exam- the vulnerability of public bodies is important. In an ples of local authorities already doing this? idea world everybody would do it anyway, but we Mr Waller: We have got some examples of local need the statutory duty to actually give people the authorities being active. push to undertake something which, yes, they pro- bably ought to be doing anyway.
Q117 Mr Chaytor: Who are the best ones? Q121 Mr Chaytor: Chris, Steve, Lewis, thank you Mr Waller: I am not going to answer that. I could very much indeed, it has been extremely interesting not say. and valuable. If there is anything that you feel you have not had the opportunity to say in the course of this session, because we were under some time Q118 Mr Chaytor: Would anybody on the panel pressure, please feel free to send us further evidence. answer that? Mr Waller: Thank you, Chairman. Environmental Audit Committee: Evidence Ev 55
Wednesday 2 April 2008
Members present
Mr Tim Yeo, in the Chair
Mr Martin Caton Martin Horwood Colin Challen Dr Desmond Turner Mr David Chaytor Joan Walley
Memorandum submitted by Defra
Introduction 1. The UK Government and devolved administrations believe that climate change is one of the greatest long-term challenges facing the world today. Avoiding dangerous climate change and adapting to unavoidable climate change is a huge undertaking that requires more pronounced and continuing cuts in emissions and more co-ordinated and concerted eVort on adaptation. 2. The UK is on track to meet, and exceed, its commitment under the Kyoto Protocol to reduce emissions of greenhouse gases to 12.5% below 1990 levels by 2008–12. The UK Government and devolved administrations recognise that they must continue to show leadership domestically and internationally on mitigation and adaptation. 3. The UK Government, working with the devolved administrations has put forward a Climate Change Bill which would put into statute UK targets to reduce carbon dioxide emissions, through domestic and international action, to 26–32% below 1990 levels by 2020 and by at least 60% by 2050. It will introduce five year carbon budgets and create the Committee on Climate Change to provide advice to the Government. The Bill also contains key provisions on adaptation, including commitments for five yearly assessments of risk to the UK and to publish a programme of action to tackle those risks. 4. In meeting our climate change goals the UK Government recognises that action by local authorities, regional bodies and devolved administrations will be crucial in helping to ensure that the UK meets its objectives. Establishing the correct frameworks to ensure that all levels of Government are able to reduce emissions and adapt to the climatic changes we are already experiencing in addition to those forecast for the future is a key priority for the UK Government. 5. The UK’s climate change strategy is heavily influenced by the scope and coverage of the constitutional framework. The UK Government retains overall responsibility for the Kyoto Protocol target and for putting in place a programme to deliver it. However, many of the policies implementing the climate change strategy are devolved matters. The devolution settlements, ie the Scotland Act 1998 and the Government of Wales Act 2006, provide the devolved administrations with a power to legislate in those areas which have been devolved. In such areas, the Scottish Parliament, the National Assembly for Wales and the Northern Ireland Assembly have the legislative competence to introduce their own policies and measures. The three devolution settlements are diVerent, with each devolved administration having a distinct set of responsibilities, and powers to act, to tackle climate change. 6. This memorandum has been jointly developed by the Department for Environment, Food and Rural AVairs (Defra) and Communities and Local Government (CLG) with input from Department for Business and Regulatory Reform (BERR) and the Department for Transport (DfT). It is understood that the devolved administrations of Scotland, Wales and Northern Ireland are considering submitting separate evidence to the inquiry. Views expressed in the rest of this memorandum on the role of local and regional bodies refer to policy in England and therefore may not necessarily represent those views and policies of the Devolved Administrations of Scotland, Wales and Northern Ireland.
How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government?
Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? Ev 56 Environmental Audit Committee: Evidence
What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? 7. UK Government supports local and regional bodies and the devolved administrations to take action on climate change through setting the overall framework for action, through setting out the policies and measures to meet UK goals and targets (and encouraging action in those areas that are devolved) and through providing incentives and encouragement for local action. 8. The 2006 UK Climate Change Programme was developed by the UK Government and devolved administrations in partnership and includes specific chapters setting out the action being undertaken in each devolved administrations. The 2007 Energy White Paper provides further UK policy proposals in relation to energy. These documents therefore cover measures relating to action in both reserved and devolved policy areas; some measures apply throughout the UK whilst others only within the territory of a devolved administration. Current action by the devolved administrations (in devolved policy areas) is set out in the following: Scotland’s Climate Change Programme,1 the One Wales2 agreement, and the Northern Ireland Sustainable Development Strategy (2006).3
Action by Local Authorities in England 9. While the UK Government and the devolved administrations have responsibility for setting the overall strategy for tackling climate change, establishing the right policy framework and ensuring that other policies do not cut across climate change and sustainable development objectives, local authorities have a special status as local, directly elected bodies. 10. Local authorities in England are uniquely placed to provide vision and leadership to local communities, raise awareness and help change behaviours. They can reflect the issue in: Sustainable Community Strategies; the discharge of their responsibilities on waste, local transport, housing, planning, fuel poverty and enforcement of building regulations; and in engaging and mobilising business, industry, communities and individuals to address the issue in the workplace and at home. Through actions on their own estate and working with communities they can have significant influence over emissions in their local areas. 11. English local authorities are encouraged to sign the Nottingham Declaration on climate change and to work with the UK Government to contribute, at a local level, to the delivery of the UK Climate Change Programme and to the achievement of the UK’s emissions reduction targets. Some local authorities have adopted targets to help guide the action that they are taking. Others have participated in the Carbon Trust’s Local Authority Carbon Management Programme, which requires them to set targets and to adopt a strategy for reducing emissions under the control of the local authority such as buildings, vehicle fleets, street lighting and landfill sites. 12. Some local authorities are already making a significant reduction in carbon emissions but all local authorities could do more to mitigate against and adapt to the eVects of climate change, with the right support. The policies outlined in the UK Climate Change Programme 20064 and the Local Government White Paper5 have or will give local authorities in England new opportunities to put climate change at the heart of their local priorities, and to lead action to make a diVerence to the local area, the country and the planet. Defra also provides funding to UKCIP, which provides advice and support to private and public sector organisations in assessing their vulnerability to climate change so that they can plan their own adaptation strategies. 13. The UK Government has recognised the need to help focus and give clarity to the role that local authorities can play. For the first time, indicators to measure the progress of local authorities in England to tackle climate change mitigation, adaptation and fuel poverty will form part of the Local Government Performance framework from April 2008. Progress to reduce emissions, adapt to climatic changes and reduce the incidence of fuel poverty will form part of the Comprehensive Area Assessment from 2009. This sends a clear message to local authorities as to where we expect them to focus their environmental actions— in their own operations and buildings, and as service providers and as leaders of their local communities. Through the performance framework local authority performance on tackling climate change will now be transparent. 14. Inclusion of climate change indicators in the performance framework is expected to stimulate further action at a local level. The UK Government and local government in England are also currently negotiating 150 Local Area Agreements where specific performance improvements are agreed for up to 35 national
1 www.scotland.gov.uk/Publications/2006/03/30091039/0 2 http://new.wales.gov.uk/about/strategy/onewales/?lang%en 3 http://www.ofmdfmni.gov.uk/economic-policy-sustainable-development 4 http://www.defra.gov.uk/ENVIRONMENT/climatechange/uk/ukccp/index.htm 5 http://www.communities.gov.uk/publications/localgovernment/strongprosperous Environmental Audit Committee: Evidence Ev 57
indicators (plus 16 from Department for Children, Schools and Families). Defra is working with Government OYces to ensure that both climate change mitigation and adaptation are properly represented in the agreements. 15. The Government is also currently negotiating a number of Multi-Area Agreements for sign-oV in June 2008. These are cross-boundary agreements between a number of local authorities and their partners and Government. Their overall objective is to improve economic performance by addressing issues that can be most eVectively dealt with at the sub-regional level, and may oVer opportunities to address issues such as climate change adaptation and mitigation. 16. As recognised by the LGA Commission on Climate Change, it will be important to review how local authorities have responded to the challenge over the next three years. It is currently too early to say if this will see a step change in action by local areas—but it is clear that if local communities acting in partnership prioritise action on climate change, they can begin to have a real impact in mitigating climate change and in adapting to its eVects. 17. A consultation on the technical definitions of the indicators has recently been concluded by CLG and it is expected that the final handbook of definitions will be published in February for implementation from April 2008. The new climate change indicators in England, subject to technical amendment following the consultation, are as follows.
National Indicator 185: CO2 reduction from Local Authority operations
18. The aim of this indicator is to measure the progress of local authorities in reducing emissions from their own operations which are directly under their control and to encourage them to demonstrate leadership on tackling climate change. Measurement against this indicator will require each LA to calculate their carbon emissions from analysis of energy/fuel bills and outsourced services using a prescribed methodology. 19. The following sectors are proposed for inclusion in the indicator: — council buildings; — streetlights; — leisure centres; — schools; — council vehicle fleet; — employee commuting; and — social housing. 20. The indicator has significant potential to act as a key driver for councils to improve their energy eYciency and the direct linkage between action and performance makes this a transparent indicator. This will be the first time that consistent data on CO2 emissions directly attributable to the activity of Local Authorities will be available for performance monitoring.
National Indicator 186: Per capita reduction in CO2 emissions in the Local Authority area
21. The aim of this indicator is to incentivise local authorities to take a lead role within their communities to encourage and facilitate reductions in CO2 emissions across an agreed set of sectors over which they have some influence. Although reductions in community emissions are diYcult to attribute directly to local authorities, action by local strategic partnerships led by LAs, should take joint accountability for CO2 reduction in the community, and action by all partners will be critical to the success of initiatives to reduce emissions. 22. The indicator will measure emissions in the local area from the following sources: — Business and public sector organisations, including agriculture (excluding those included under the EU Emissions Trading Scheme). — Domestic housing. — Road transport (excluding motorway traYc). 23. This data is already captured, analysed and published by UK government to produce area by area carbon emissions per capita. The data for 2005 will be used as the baseline for calculating annual reductions in emissions. Ev 58 Environmental Audit Committee: Evidence
National Indicator: 187 Tackling fuel poverty—people receiving income based benefits living in homes with a low energy eYciency rating 24. The indicator measures the proportion of households on income related benefits for whom an energy assessment has been carried out, and whose SAP rating meets the standard (eg, SAP rating of below 30). SAP is being used as a proxy for fuel poverty in households of people claiming income based benefit, given the link between income poverty and fuel poverty. 25. The data is intended to be captured as an annual random SAP survey of 1% of households, with an extra question to ascertain any benefit receipt of householders. Local authorities are then asked to complete a desktop exercise, using an agreed formula, which reports on the proportion of households in receipt of income benefits and a low energy eYciency. Good performance is shown by a reduction in the proportion of households with a SAP below 30. 26. Local authorities have an important role in tackling fuel poverty and this indicator enables progress to be measured in households most at risk of being in fuel poverty.
National Indicator 188: Adapting to climate change 27. The indicator measures progress on assessing and managing climate risks and opportunities, and incorporating appropriate action into local authority strategic planning. The risks and opportunities might include: flooding; heat waves; changing patterns of disease, impact on local ecosystems; and changing demand for and scope to grow new crops; reduction in heating bills and increased tourism. 28. We anticipate that a local authority in delivering on the 198 new LAA performance indicators and their 35 performance targets in the medium and long term will have to identify and manage risk related to a changing climate and extreme weather conditions. 29. This indicator, together with other climate change indicators will inform the Audit Commission’s risk assessment as part of the new CAA process regardless of whether they are included as one of the 35 performance targets. This will provide consistent and external challenge in the public arena improving transparency and accountability at the local level.
The National Improvement and EYciency Strategy 30. The National Improvement and EYciency Strategy agreed by the UK Government and the LGA has now been published. It will be supported by £384 million which was announced as part of CSR07 comprising Revenue Support Grant top-slice (£114 million) and CLG support (£270 million) for the period 2008–11. The strategy will support councils, as leaders of place, working with their partners, including regional bodies, to deliver outcomes on local priorities including climate change. It supports a devolved approach by placing local government led regional improvement and eYciency partnerships at the heart of delivery support arrangements. RIEPs have a key role in co-ordinating and ensuring that the right support is in place at the right time to deliver improved outcomes for local communities through the LAA. 31. In addition, the recent Local Government Finance Settlement included a continued real terms increase in fundingUwhich will allow authorities to continue to deliver eVective services at an aVordable cost, including action to tackle climate change.
The Carbon Reduction Commitment 32. The Carbon Reduction Commitment (CRC) is a new mandatory emissions trading scheme, announced in the Energy White Paper 2007, designed to deliver carbon emissions savings of 1.1 MtC/year by 2020. The scheme will cover large, non-energy intensive business and public sector organisations (such as supermarkets, hotel chains, large local authorities, banks and government departments), a sector which accounts for roughly 14 MtC per year, 10% of total UK emissions. We expect that most large top tier authorities will be included in the scheme when it is introduced in January 2010.
Action by regional bodies in England 33. Regional bodies work with local authorities and other partners to help coordinate local, sub-regional and regional activity to meet national policy objectives and reduce overlaps to optimise outcomes. Regional bodies have powers and responsibilities that will impact on the long-term shift to a low carbon economy such as the Regional Development Agencies (RDAs) responsibility for regional economic development (including Regional Economic Strategies) and the Regional Assemblies responsibility for the regional spatial strategy. Regional bodies also have a clear role to play in adaptation to climate change through supporting local government, identifying and taking forward economic opportunities and co-ordinating activity where adaptation needs to be considered at the regional level. Environmental Audit Committee: Evidence Ev 59
34. Regional Development Agencies are strategic economic development bodies, required to address the priorities identified in the Regional Economic Strategy (RES) for their regions, in a way that also contributes to the delivery of a number of Government’s national policy priorities. RDAs provide regional leadership, ensuring that development and delivery of the RES objectives are informed by sustainable development priorities and analysis; deliver carbon reduction in the business sector; champion sustainable design and construction methods; support research and development to help grow innovative businesses and sustainable energy markets and attract global investment in environmental products and services to our regions. 35. As part of their role in delivering the priorities identified in the Energy White Paper, RDAs have been given the key role in setting regional energy priorities and take forward initiatives to support national energy policy, for example by committing to set carbon reduction targets in their corporate plans, and to set out which energy technologies they intend to prioritise and support over the next ten years. Regional Development Agencies, through developing and helping implement the Regional Economic Strategies (RES), have taken steps to help address climate change within the regions. For example the South East of England RES, revised in 2006, has a headline target of reducing the rate of increase in the region’s ecological footprint, and stabilising and reducing it, by 2016. The West Midlands has just launched the first “low carbon RES”. 36. RDAs are sponsored by the BERR and receive £2.2 billion funding (FY 2007–08) from six Government Departments (CLG, BERR, Defra, DfES, DCMS and UKTI). This Single Programme (commonly known as the “single pot”) gives RDAs the flexibility to address regional priorities (set out in Regional Economic Strategies) in a way that also contributes to the delivery of the current suite of national PSA targets 2005–08. Currently there are overarching targets for: Regional Economic Performance, Sustainable Development and Productivity/Rural Productivity; which contribute to delivery of a range of supplementary PSA targets (for example Skills and Sustainable Farming and Food). The flexibility this has provided to RDAs has enabled them to take action on climate change in ways which are appropriate to their regions. 37. From 1 April 2008, RDAs will be tasked to address climate change (mitigation and adaptation) though their contribution to delivery of Government’s Regional Economic Performance PSA target, and adhering to cross-cutting principles of sustainable development, and economic opportunities for all. 38. Regional Assemblies currently have an important role to play in delivering climate change objectives. Regional Assemblies are voluntary bodies which comprise Councillors from a number of local authorities in their region, and also representatives from social, economic and environmental organisations. They are not directly elected bodies, but are multi-party political bodies. Regional Assemblies act as the voice of their region, bringing together local authorities and stakeholders in order to articulate their regions’ needs and priorities. A number of Regional Assemblies have worked in partnership to voluntarily prepare Climate Change Strategies for their regions and to demonstrate leadership on this agenda. They can help ensure a coordinated approach to action on climate change across their regions. Regional Assemblies also have a formal role in scrutinising Regional Development Agencies. A number of Regional Assemblies have used this role to provide constructive challenge and advice to RDAs about how they are addressing sustainable development and climate change. 39. In addition to these roles Regional Assemblies are the Regional Planning Bodies and have statutory duties in relation to planning, transport and housing, oVering significant opportunities to help deliver on our climate change priorities. Regional Spatial Strategies provide the planning framework for renewables and low carbon development as well as monitoring the progress against these targets. Planning policy is also important for enabling appropriate infrastructure for future energy needs as well as guiding development to reduce the need to travel. Regional Housing Strategies and investment are critical in delivering against fuel poverty targets and carbon emission reductions. Regional Assemblies are also playing a more important role in deciding transport priorities for the region.
The Sub-National Review of Economic Development and Regeneration (SNR)
40. Looking forward, the SNR published in July 2007, sets out a route map to deliver a progressive agenda of structural and strategic change enabling sustainable economic growth and neighbourhood renewal. One key reform that will impact on the delivery of climate change outcomes at the regional level will be the emergence of single integrated Regional Strategies. These new strategies will encompass the Regional Economic Strategies, Regional Spatial Strategies, Regional Transport Strategies, and Regional Housing Strategies. RDAs will become the Regional Planning Body with a new executive responsibility for developing single integrated regional strategies, working close with local authorities and stakeholders. Regional Assemblies will not continue in their current form. This reform will provide the opportunity to achieve true integration of economic, social and environmental interests at the regional, sub-regional, and local level. The primary aim of the regional strategy is to achieve sustainable development. Ev 60 Environmental Audit Committee: Evidence
The Greater London Authority Act 2007 41. The Greater London Authority Act 2007 has strengthened the requirement for London to act on climate change. The Act requires the Mayor of London to produce for London a statutory climate change mitigation and energy strategy and a statutory climate change adaptation strategy. In addition, the Act places a duty on the Mayor and the London Assembly to have regard to climate change and the consequences of climate change, and the Mayor has to have regard to climate change and the consequences of climate change in preparing other statutory Mayoral strategies. 42. The Mayor’s Climate Change Action Plan was published in February 2007 and sets a target for London of a 60% reduction in CO2 emissions by 2025.
Transport policies 43. The Department for Transport (DfT) ensures that transport policies balance the increasing demand for travel against protecting the environment and improving quality of life, including action on climate change. DfT have asked local authorities to consider the shared priorities of tackling congestion, delivering accessibility, safer roads and better air quality when setting their local transport plans. Local authorities were also asked to develop a cycling strategy and most have now done so. To support local authorities in delivering more cycling, which can assist with the shared priorities, the Department for Transport set up Cycling England in 2005 who provide free expert advice to local authorities. 44. The Department has also encouraged local authorities to consider the use of smarter choices in their local transport plans—soft measures to encourage greater use of public transport and increases in walking and cycling and reduce car use. The Department’s Sustainable Travel Towns initiative is trialling the use of smarter choices on a large scale across Darlington, Peterborough and Worcester to see what eVect they can have. A key element has been the use of Individualised Travel Marketing where households are contacted and given information on local travel options so that they can make better informed voluntary travel choices. This has shown startling results with a 10% reduction in car trips and 20% increase in walking, 30% increase in cycling and 16% increase in bus use across a total target population of around 180,000. The UK Government hopes to see more local authorities to make use of smarter choices over the coming years. 45. DfT is also emphasising the need for climate change adaptation to be integrated into transport policy at all levels, in terms of identifying both the biggest risks and the most cost-eVective remedies. This builds on work being carried out, for example, by the Highways Agency to identify and address the climate change risks to strategic roads. In setting aims for Local Transport Plans it is important that local authorities consider possible climate change impacts such as drier summers and wetter winters which could increase instances of subsidence, damaging infrastructure and leading to increased maintenance costs. Increased flood risk should also be considered when planning new transport infrastructure, as should measures, for example, to increase green space and tree cover, which can help to reduce the heat island eVect and surface run-oV.
The Waste Strategy 46. The Waste Strategy for England 20076 set out the vision, objectives and plans for managing waste. The overall impact of this strategy is expected to be an annual net reduction in global greenhouse gas emissions from waste management of at least 9.3 million tonnes of carbon dioxide equivalent per year in 2020 compared to 2006 (equivalent to annual use of around 3 million cars). The additional greenhouse gas emissions reductions result from an increase in diversion of waste from landfill of around 25 million tonnes of waste per annum. These benefits will be further boosted by significant extra greenhouse gas benefits from the waste prevention measures in the strategy. 47. Changing our waste management practices has already made waste management a more complex task. As waste is increasingly treated as a resource, a much wider range of actions by a larger range of players is required but these actions need to be coordinated. Local government and regional bodies have a vital role in providing advice and services to business and householders and developing partnership working. They need the right structures, tools and support to do their job. The Government is: — strengthening the ability of local authorities in two-tier areas to work together and encouraged partnership working between local authorities through: new powers in the current Local Government and Public Involvement in Health Bill; use of Local Area Agreements; and the new local government performance framework—resulting in better, more cost eVective local services; — establishing a new local performance package for local authorities to support delivery of the Government’s waste outcomes; — encouraging local authorities to take on a wider role (in partnerships) to help local (particularly smaller) businesses reduce and recycle their waste with cost savings through more integrated management of diVerent waste streams; and
6 http://www.defra.gov.uk/environment/waste/strategy/strategy07/index.htm Environmental Audit Committee: Evidence Ev 61
— encouraging the Regional Development Agencies and other regional bodies to coordinate business waste and resource management in partnership with local authorities and third sector organisations. 48. Over the summer, the Government consulted on proposals to allow local authorities to introduce incentive schemes to promote recycling and reducing household waste. 80.5% of respondents who addressed this question thought authorities should have the power to introduce financial incentives. Legislation in the Climate Change Bill, which is currently going through Parliament, will remove the ban on waste collection authorities charging for the collection of household waste in up to five pilot areas. However it places several restrictions on the way in pilot authorities may charge. These include the requirement that any revenue raised by the authority must all be paid back to residents through rebates, meaning that overall there is no new burden on householders. Furthermore, before introducing a pilot, authorities must ensure that householders in the scheme have access to a good kerbside recycling service; that the needs of potentially disadvantaged groups have been taken into account; and that there is a good fly-tipping prevention strategy in place. Government will report back to Parliament on the success of the pilots before deciding whether or not to roll out these powers more widely.
The Nottingham Declaration 49. The Nottingham Declaration on Climate Change has had a significant and positive impact in motivating local authorities to take action to mitigate and adapt to the eVects of climate change. Over 280 local authorities (over half the total in England) have now signed the declaration under which they agree to undertake a number of actions to help deliver the UK Climate Change Programme and to develop plans, within two years from signing, with their partners and local communities to address the causes and impacts of climate change. 50. The results of a survey of signatories of the Nottingham Declaration, conducted in September 2007 by the Energy Saving Trust, which provides administrative support for the Declaration, indicate that it has been eVective in facilitating local authority action on climate change. Around 80% of respondents said that signing the Declaration helped build member and senior oYcer momentum within their local authorities. This is important as commitment from members and oYcers is essential for enabling eVective local authority action. Signing the Declaration had helped get departments working together on climate change, according to 48% of respondents. Approximately 70% have either adopted a climate change action strategy or have undertaken preparatory work on one since signing, with 24% citing signing as the reason. It is also important to point out that around one third of respondents found that the Declaration had raised public expectations in the role of local authorities in tackling climate change, representing a key incentive for them to take further action.
To what extent should there be disaggregated targets for diVerent levels of government? How should independent targets, for example Scotland will set its own emissions target for 2050 (80% reduction rather than UK target of 60%) and the Greater London Authority has committed itself to making a 60% cut by 2030, fit together with national carbon targets and budgets? How can Government monitoring and forecasting of emissions be improved so as to disaggregate emissions, and the impact of carbon reduction policies, in diVerent regions and nations?
51. The UK Government recognises that some devolved administrations, regional governments and local authorities have or would wish to set targets to drive forward action on climate change within the areas they serve. While the Government does not envisage disaggregating the national target it does recognise that local targets can help drive action and that their achievement can make an important contribution to the delivery of our national targets. For example, the UK Government—via the Government OYce network—is currently working with local authorities to agree targets within Local Area Agreements. As part of this work, Defra is encouraging as many local authorities as possible to set targets for carbon reduction in line with the new performance indicators. 52. Greenhouse gas emissions data, disaggregated for England, Scotland, Wales and Northern Ireland was first published in 1999 and is now available for 1990, 1995 and annually from 1998.7 The disaggregated data is usually published six months after the UK inventory is submitted to the EU and UNFCCC. 53. Defra also publishes annual experimental National Statistics on carbon dioxide emissions at Local Authority and Government OYce Region level in the UK. For each Local Authority and Region, these provide estimates of total CO2 emissions, and emissions per capita of population. The statistics also provide a breakdown of emissions into three key sectors—“industrial, commercial and public”, “domestic” and “road transport”—together with further breakdowns into more detailed sub-sectors. This data is intended to be used by local authorities and regional bodies to inform target setting.
7 http://www.defra.gov.uk/environment/statistics/globatmos/index.htm Ev 62 Environmental Audit Committee: Evidence
How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are local authorities, regional government and devolved administrations? 54. Adapting to climate change is an issue which all levels of government need to address. Some are well advanced in assessing and addressing the risks they face, in conjunction with their partners. But many more organisations need to do more to embed these issues in their mainstream business planning, risk management, contingency planning and investment strategies. 55. The Prime Minister announced on 17 November the Government’s intention to further strengthen the adaptation measures in the Climate Change Bill, by introducing a risk based monitoring system and provision for statutory guidance. The Government will be tabling an amendment to create new powers to require public authorities to assess the risks of climate change and set out what action they need to take in response. The Government will also be publishing statutory guidance to help public authorities assess and address the impacts of climate change. This is in addition to the commitment to undertake a five yearly UK wide risk assessment and programme of action to address these risks in coordinate way. The Government’s adaptation policy framework, to be published in a few months, will set out future priorities for a cross- Government programme on adaptation. 56. The Government commends the LGA for the leadership they have demonstrated in this area through setting up a Commission on Climate Change, which reported in December 2007. We look forward to working with them in responding to some of the issues identified in the report. We continue to work with the 10 Regional Climate Change Partnerships (partnerships of the public, private and voluntary sectors across England) which work with Regional Development Agencies, Government OYces for the Regions and other regional partners. 57. The UK Climate Impacts Programme provides one of the most well developed and utilised sources of information on climate change impacts and adaptation for the UK including tools to address the risks. Other countries have taken an interest in UKCIP’s work as an example of best practice; for example in 2007 it hosted visitors from China and Finland. 58. All authorities and administrations have some level of vulnerability to the impacts of a changing climate. The important step is to look at the specific risks facing a particular area, the specific vulnerabilities and options for how to manage the risks.
How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK? 59. The Bill requires that the Committee on Climate Change is appointed with regard to the desirability of securing experience in, or knowledge of, various issues including “diVerences in circumstances between England, Wales, Scotland and Northern Ireland and the capacity of national authorities [ie devolved administrations] to take action in relation to climate change”. These diVerences must also be taken into account by the Committee in advising on, and the Government when setting, each budget.
What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? 60. A recent study carried out by the Centre for Sustainable Energy8 on behalf of Defra, concluded that local authorities and regional bodies do have significant opportunities to take action to reduce carbon emissions and to adapt to unavoidable climate change within their existing powers and responsibilities. 61. Regional Assemblies are able to help tackle climate change through their statutory powers and functions as the Regional Planning Body, in preparing Regional Housing Strategies and in scrutinising Regional Development Agencies. Nine regional Climate Change Partnerships have also formed across England which work with Regional Development Agencies, Government OYces for the Regions and other regional partners. 62. Local authorities have extensive powers in the area of planning, housing and transport, which allow them to take a lead in tackling climate change. Additionally the Local Government Act 2000 introduced a power to promote “well-being”. This discretionary power enables a local authority to do anything it considers likely to promote or improve the economic, social or environmental well-being of its area, provided that such action is not expressly forbidden elsewhere in legislation. 63. In addition, the Local Government and Public Involvement in Health Act 2007 introduced powers to enhance the ability of each local authority to lead their authority and local partners through: — empowering communities, involving local people and businesses in service delivery; — streamlining the current national Performance Framework and integrating it into Local Area Agreements;
8 http://www.cse.org.uk/cgi-bin/projects.cgi?policy&&1077 Environmental Audit Committee: Evidence Ev 63
— new governance arrangements (directly elected mayors or executives); — local authorities acting as place-shapers and leading the Local Strategic Partnerships (LSP); — changes to LAAs, replacing the four blocks with themes (including one concerned with economic development and the environment) and a single funding pot; — recognising that delivery of services to local communities is a partnership between local government and a range of other public sector providers (Duty to Co-operate on named partners); and — extending the power of wellbeing to town and parish councils, based on the Quality parish scheme. 64. The CSE study also found that examples of best practice to tackle climate change at the local and regional level are principally down to the extensive eVorts of “wilful individuals” who, through their commitment, knowledge and doggedness, have been able to secure local change. The study recommended the use of performance frameworks to mobilise all local authorities to improve their levels of performance. In the last year, the Government has therefore focussed on developing appropriate performance frameworks, coupled with support mechanisms, to improve future levels of performance both local authorities and regional bodies. 65. Incentivising increased action by LAs needs to be consistent with the Government’s approach to giving LA’s greater flexibility to deliver on national priorities in the most eVective way for that locality as outlined in the Local Government White Paper. The Government has stated that it is committed to a realignment of existing resources away from process, for example the preparation of reports, and towards outcomes such as measurable carbon savings, delivered in a way most appropriate for the local areas. Empowering LAs to address climate change also relies on a commitment by the UK Government to lift existing burdens and empower LAs to deliver according to local circumstance. 66. A table at Annex A summarises and evaluates key policies implemented in England to support and enable local and regional action on climate change.
What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions?
67. The new Planning Policy Statement (PPS): Planning and Climate Change puts tackling climate change at the centre of what Government expects from good planning. That is why the PPS has been issued as a supplement to PPS1: Delivering Sustainable Development, which is central to the entire series of planning policy statements. This new emphasis on planning’s role in helping to confront the challenges of climate change, is supported by our Planning Reform Bill which includes a new duty on local authorities to take action on climate change through local plans. 68. Climate change—both mitigation and adaptation—will now be a key and integrating theme in plans and planning decisions. In particular, the PPS sets out a significant role for both regional and local planning in helping to speed up the shift to renewable and low-carbon energy, supporting our ambitions on zero carbon development and helping shape places resilient to the impact of climate change. 69. Challenging councils to do more to support delivery of local renewable or local low-carbon energy is a key part of this. We expect councils to give a strategic lead through their spatial planning and developers to incorporate local renewable and low carbon energy, wherever viable. 70. The PPS builds on the “Merton rule” by requiring councils to have a policy which sets a percentage of the energy to be used in new development to come from decentralised and renewable or low-carbon energy sources. These policies should be flexible enough to allow for a range of local solutions including at the community level as well as those for individual homes or buildings. This means that Councils will still be able to continue with and adopt new “Merton style rules” although they must be tested as part of the development plan document. 71. We are calling our new policy in the PPS “Merton Plus” because we also expect tailored targets for sites where there are bigger opportunities than the council-wide target. 72. The preamble to the PPS makes clear that it does not seek to assemble all national planning policy relevant or applicable to climate change, and should be read alongside the national PPS/G series. Where there is any diVerence in emphasis on climate change between the policies in this PPS and others in the national series this is intentional and this PPS takes precedence. 73. The Impact Assessment supporting the PPS states that the primary benefit of the PPS will be to enable the planning system to support the implementation of the Government’s other climate change policies and associated emission reductions. These include the statutory emissions reductions set out in the Climate Change Bill and the reduction in emissions expected as a result of the timetable for getting to zero carbon homes by 2016 confirmed in Building a Greener Future. Ev 64 Environmental Audit Committee: Evidence
Are local authorities meeting their duty to enforce building regulations in relation to environmental measures? Does the enforcement regime discourage non-compliance? 74. Building Regulations and the Building Control system, unlike planning, is a fully devolved service to the Local Authorities which means we have little centralised data or evidence as there areUno mandatory reporting requirements. Anecdotal evidence has shown that building control professionals tend to focus on issues that are critical to safety at the expense of newer regulations but we believe that the situation is improving. A recent survey of LA showed that, of those projects approved with conditions, energy eYciency was the second most common issue highlighted, after structure. 75. Local Authorities adopt a variety of techniques to enforce compliance over the course of a project, namely site inspections, communication, advice alongside more formal measures such as oral and written warnings. 76. We are currently undertaking a review of building control and will be publishing a consultation paper in the new year on specific measures to help increase compliance. Enforcement options such as issuing of stop notices and fixed monetary penalties are being considered, along with extending the time limit for prosecution. 77. For a small number of cases mismanagement or deliberate evasion requires the LA to take formal enforcement action—either requiring alteration or removal of non compliant building work or taking forward criminal prosecutions in the magistrates’ courts. There are time limits on these activities which operate as a disincentive to local authorities and the government isUcommitted to extending these time limits to two years.
What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support?
UK Climate Impacts Programme 78. The UK Government and devolved administrations provide funding to the UK Climate Impacts Programme which will be publishing new scenarios on climate change in the UK, in autumn 2008 along with tools to help organisations across the public sector use this information to assess and address risks. 79. The UKCIP has identified local authorities throughout the UK as priority stakeholders with regard to its work on climate impacts and adaptation. It has developed diVerent support arrangements for the Local Authorities within each of the Devolved Administrations and worked with them and the UK government to produce a guidance document entitled “Climate change and local communities—how prepared are you?” (UKCIP 2003). 80. Since then UKCIP work in England has been channelled largely through the Nottingham Declaration Partnership. UKCIP was influential in the re-launch of the Declaration in 2005 and in the development of the Nottingham Declaration Action Pack (NDAP) tool. This was launched in Summer 2006 and is an online-tool oVering guidance on the development of an Adaptation Action Plan. The NDAP invites local authorities to make use of other UKCIP tools/publications including: Climate Change Scenarios, Risk and Uncertainty Decision Making framework, Adaptation Wizard, Adaptation Case Study Database, Business Areas Climate Impacts Assessment Tool, Local Climate Impacts Profile, etc. The potential of a Local Climate Impacts Profile (LCLIP) as a way of understanding local vulnerability has recently been recognised. Many authorities are now developing their own local profiles, with UKCIP encouragement and guidance. 81. In addition to the formal structured arrangements outlined above UKCIP oVers a range of training events for councils and is constantly responding to requests for presentations and advice on adaptation to local authorities. In some cases UKCIP is able to provide these itself. In others it can call upon the regional climate change partnerships to provide this service. These partnerships now exist in all of the English Regions and in each of the devolved administrations of Scotland, Wales and Northern Ireland, though in slightly diVerent formats.
RDAs 82. Regional Development Agencies have begun to share information on addressing climate change in the regions. In 2007 they launched a joint publication “Tackling Climate Change in the regions” which sets out examples of action being taken by RDAs9 and their commitments to addressing the climate change agenda.
9 http://www.englandsrdas.com/filestore/pdf/107639%20RDA%20Leaflet.pdf Environmental Audit Committee: Evidence Ev 65
The Local Government Best Practice Programme 83. The UK Government is currently developing the £4 million local government best practice support programme which was announced in the UK Climate Change Programme 2006, jointly funded by CLG and Defra, will be delivered in alignment with the National Improvement and EYciency strategy, through the new local authority led Regional Improvement and EYciency Partnerships and will aim to proactively benchmark the performance of local authorities on climate change and target those who need the most help to raise their performance to support delivery of local area agreements.
The IDeA managed Beacon Scheme 84. The Beacon Scheme identifies authorities and their partners that are delivering the best services to their local citizens and can teach others to do the same. In 2006 seven local authorities were successful in achieving beacon status for their work on delivering sustainable energy in their areas. 85. The beacon councils have demonstrated that authorities can be in the forefront of meeting the challenge of climate change. They are doing this in a number of ways, through developing innovative solutions to local generation and distribution of energy (Woking) through developing a holistic approach to community level approaches (Shropshire), through developing wide ranging delivery partnerships (Cornwall), through delivering better value for money in council services (Leicester and Lewisham) through using Eco-Management and Audit Tools to drive improvement (High Peak) and through developing public transport to help reverse growth in traYc levels (Nottingham). 86. These local authorities in partnership with the Improvement and Development Agency (IDeA), Defra and the BERR have worked together to produce a benchmark and toolkit that draws on their good practice. The benchmark and enables councils to evaluate their current performance against delivering sustainable energy and the toolkit provides specific guidance to make improvements. This was published in July 2007. 87. A new theme on Tackling Climate Tackling Climate Change in round nine of the Beacon Scheme will build on the success of the Sustainable Energy theme widening our knowledge of successful authorities work on adapting to the eVects of climate change. 88. The UK Government also supports the regional and local delivery of carbon abatement activity by oVering funding to bodies such as the Carbon Trust, Salix Finance and the Energy Saving Trust who all play a key part in supporting the public sector on delivering action to tackle climate change. We will continue to work with these organisations to encourage the development of support aligned to help local and regional bodies to improve their responses to climate change.
Energy Saving Trust 89. The Energy Saving Trust (EST) oVers a range of advice, support and information to local authorities and registered social landlords. EST administers a number of programmes including Practical Help which is a tailored source of information and support on delivering energy eYciency and sustainable energy to their communities. 90. The Energy Saving Trust website has a wealth of information including the latest news and events; a great number of publications including case studies, policy summaries and briefing notes; details of sources of funding and other relevant organisations.
Carbon Trust 91. As well as delivering support to public sector through its Carbon Management programme and site specific surveys the Carbon Trust also provides publications and web tools such as the online action planning tools, down-loadable sector based fact sheets and a range of sector case studies and best practise guidance notes. 92. Web-based online communities also facilitate opportunities to exchange best practice regarding carbon reduction in the public sector. Their Networks business area allows customers to discuss carbon saving technologies, debate solutions to successful behavioural change and react to incoming policy and legislation.
Salix 93. Salix Finance has an important role to play in providing financial support to public sector bodies to invest in energy eYciency. There is close working between the Carbon Trust and Salix, with many of the projects identified through the Carbon Management Programme going on to receive funding from Salix. 94. Salix shares best practice through the production of case studies and also through the relationship managers that work with public sector bodies to establish revolving loan funds and can share knowledge and understanding of what has or hasn’t worked in diVerent projects. Ev 66 Environmental Audit Committee: Evidence
The Climate Change and Sustainable Energy Act 2006—Energy Measures Report 95. The Energy Measures Report, published by BERR in 2007, seeks to pull together existing sources of help and advice to local authorities on climate change and fuel poverty, such as EST’s practical help service, into one place. The guidance will assist Local Authorities to perform well against the new performance indicators on climate change. In September 2007, BERR also made available a web-based report “Addressing Climate Change and Fuel Poverty—Energy Measures Information for Local Government” with various sections aimed at the parish and town council sector as well as various levels of English and Welsh Local Government. 96. Ministers from Defra, CLG and BERR recently wrote to local authority chief executives drawing the attention to their responsibilities under the Climate Change and Sustainable Energy Act 2006 and the Report. 97. Defra also published a document setting out how town and parish councils could exercise their powers under the Act. The booklet “Ways to tackle climate change—Parish and Town Councils—Act on CO2” briefly covered the Act including where further information could be obtained. Defra mailed a copy of the booklet all 8,700 parish councils and distributed it at a number of conferences. The booklet was packed with ideas and case studies on how local communities could get involved and take action on climate change.
Core Cities and Climate Change 98. Defra and CLG, working with the Core Cities Group, recently developed and signed a Joint declaration, which was launched at the Core Cities Summit in November. This document sets out how we will work with the core cities develop the type of leadership and innovation that is needed to meet the challenges posed by climate change in our major cities. 99. We are also providing £250,000 to pilot a new approach towards carbon management at a city level across the core cities and which will develop learning that will be of use to all cities. The Low Carbon Cities Programme (LCCP) The programme was developed (by EST and CT) and will provide lessons for local authorities which could assist in supporting their new climate change functions as a response to new local government performance framework.
Awards and recognition 100. In 2007 Defra sponsored the Local Government Chronicle sustainable community awards which contained a specific category on tackling climate change. This was aimed at those local authorities that have recently begun engaging in the climate change agenda not only to reduce their own carbon emissions but also those of their district. Recognition was given to councils that have shown local leadership and were able to demonstrate the benefits to their community. The winners were Mendip District Council with Guildford Borough Council being highly commended and Maidstone Borough Council and Middlesbrough being commended. It has continued its sponsorship of the event and the 2008 winners will be announced shortly. 21 January 2008 Environmental Audit Committee: Evidence Ev 67 is ´ cult Y cers and Y has helped individuals, community ´ across the UK, with membership on ´ ciency and carbon reduction areas. EST Y , housing, transport and policy inter-alia service continues to be well utilised, with 96% of ect to date? V Practical Help the field. Workshops are correspondinglyQuantitative becoming evaluation more is in-depth. currently inof progress, issue addressing of the how di to attribute direct carbon savings to advice services. and improving understandinig between regionalauthorities. bodies All and English local regional bodiese-news are publication. also provided with a regular track to grow to 4,500groups by and 2008. energy Cafe professionals equipsaving themselves solutions to on deliver the carbon ground,As such well as as local advice, micro-renewable guidance,also projects. support working and strategically signposting with to organisations funding, including cafe the Church of development. The Key Account programmeTrust compliments Carbon the Management Carbon programme, which focuses on own estate. service The Annex A Practical Help ectiveness of policy Quantifiable e V ering targeted Local Authorities the opportunity to help 2007–08 is the first year of full rollout of the Key Account programme, V addressing climate change through aapproach. 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To domestic date energy one for and region agreement climate (South by West) stakeholders. been has In held signed addition on up regional building to workshops action climate a have plan. change low Three into carbon further Local housing linking regions Area LAs are Agreements, with developing GOs, similar RDAs actionInformation, and plans Support, RAs, Advice, and Training a national conference There are 3,500 members of Cafe covered areas such as newbuild, planning, the performance framework EFFECTIVENESS OF KEY POLICIES SUPPORTING LOCAL AND REGIONAL ACTION ON CLIMATE CHANGE ´ PolicyEST Key AccountManagement Programme reduce carbon emissions and demonstrate leadership in O Comments and on 30 e Council’s are currently mid-way through the process of EST—Regional Support Energy Saving Trust has developed working partnerships Six regions have been selected for close work Regional Steering Group. EST—Cafe EST—Practical Help The Energy Saving Trust runs the Ev 68 Environmental Audit Committee: Evidence ´ ts online and over 2 ect to date? V 750 unique LA web registrations per year access the CT per survey. x 2 England and the Womens Instituteencourage to and utilise galvanise their action member onuse framework carbon of to reduction these by organisation’s leveraging infrastructures. the schemes with 33 implementation schemes still outstanding. ers free telephone saving advice and guidance from the Carbon Trust’s Contact Centre. V ciency in the UK. A significant number of LAs across the UK access practical carbon Y ciency implementation closed by the end of the financial year. As at the end of December the Y ectiveness of policy Quantifiable e V in all areas and importantly requires senior The LACM programme has to date identified 570,000 tCO V ers useful fora in which to discuss carbon saving served as an invaluable communication channel to and between LAs so V visit by a independent, accreditedenergy consultant savings identifies opportunities from simpleinvestments low that or pay no-cost for to themselves within 1–3 years. climate change. It’s a holisticinvolving approach sta per year. renewable energy or energy e schemes and feasibility studies programme had funded 160 feasibility studies and 68 implementation management support. Focusing on peerknowledge mentoring sharing and between public sectorprogramme bodies, brings the change management andexpertise technical to help LAs developcarbon long-term savings. strategies for £43 million. in-depth guides tailored to LAs.independent It advice is on the energy largest e The library Carbon of Trust’s Contact Centreadvice o on any aspect ofexperienced energy account saving managers. through Publications it on team sector and technology bases provide key advice to LAs. technologies; debate solutions for behaviouralreact change, to and incoming policy andparticipants. legislation. Free to all as to disseminate carbon saving opportunities. Policy Comments on e Carbon Trust-LocalAuthority CarbonManagement (LACM) This is a systematic five-step identifying programme the providing risks a and strategic opportunities view associated of with how carbon impacts the organisation by This Implementation programme of Plans. has the The grown LA programme substantially sector now over now supports the having 45 last developed large four Carbon councils years Management with EST Innovation Programme Grant support scheme to provide funding assistance toCarbon Trust—CarbonSurveys The Innovation Programme is Through now Carbon in Surveys its the last Carbon year Trust with provides all schemes to be CT have worked with over half practical of advice the and LA guidance sector to identifying Local on Authorities. average A free 1000tCO Carbon Trust—Web services,publications and telephoneadvice www.carbontrust.co.uk enables LAs to access a whole range of self-assessment tools, guides and directories. Currently Carbon Trust—OnlineCommunity “LA Network” website to utilise the online action planning tools and access which i o The CT Carbon runs Trust a publishes web-based fact online sheets, community, case the studies LA and Network, Over 1,000 subscribers guidance. participate within this online community. It has Environmental Audit Committee: Evidence Ev 69 , 50% of which has been 2 ect to date? V cient Y ering free or V ectiveness of policy Quantifiable e V ciency technologies through invest to save — Salix received a further £16m in funding for 2006/08 which allowed Y subsidised consultancy advice throughout thestages. project A free Building Designdetailed, Advice practical Guide advice contains about procuringbuildings—from energy deciding e on the rightcommissioning technologies and to maintenance—essential reading for anyone involved in creating orfriendly, adapting non-domestic environmentally buildings. renewable energy projects, with aprojects target in of development 500MW in of fiveprovided to £10 eight million years. by Defra wayremaining has of £500 seed million funding, of with investmentleveraged the required from being the private sector. set up in 2004, toenergy accelerate e public sector investmentschemes. in Salix has public fundingand from is the working Carbon across Trust theAuthorities, public NHS sector Foundation with Trusts, Local HigherEducation and institutions Further and Central Government.The role of Salix isreduce to carbon scheme help emissions — was public through launched sector capital with organisations investment the 19 in Salix pilot LAs are to in working be 2004. currently rolled with out 53 to LAs a across full England programme and and Wales to bring in other — parts of the public Across sector. the public with sector committed 900 place funding Salix that from energy are Salix saving saving of projects 180 £10.6 are 000 million. in tonnes of CO consultancy. It will help tonew identify and the renovation carbon building savings projects, in o energy saving projects. Salix providesmatched interest-free, funding, with the fundenergy structured savings so pay that the the capitalSalix project began cost as back a over pilotwas time. with a Local success Authorities. and The Salixpart pilot was of subsequently the made UK an Climatethe integral Change current Programme. financial By year the Salixfunds end expects worth of to up be to managing £40m saved in in total the in current 80–100 financial clients. year. Carbon Trust—Partnershipsfor Renewables (CarbonTrust Enterprises Carbon Limited) Trust Enterprises established Partnerships for Renewables sector (PfR) bodies to to work develop, in construct partnership and with operate public onsite PfR is currently workingSalix with Finance over 100 public sector bodies. Salix Finance is an independent, publicly funded company, — The £4 million Local Authority Energy Financing (LAEF) pilot PolicyCarbon Trust—DesignAdvice Available from the Carbon Trust, this specialist service Comments on Uptake e of this service has been strong with robust includes carbon a savings detailed being printed guide and face-to-face identified with very long associated persistence factors. Ev 70 Environmental Audit Committee: Evidence ective and creative approaches with a range V ect to date? cult to measure its impact at a local level. However energy V Y estimated to save more thanthrough 18 avoided million primary tonnes material of productionof carbon (equivalent 5 dioxide to million a annual cars year use or 14% of UK transport sector emissions). ciency among basis, it is di Y cient use of resources and year. Y ectiveness of policy Quantifiable e V or local requirements, but energyrange suppliers of work delivery with partners a including Local Authorities. of LAs eg council tax rebate schemes. materials. The landfill allowances tradingis scheme reducing (LATS) the amount oflandfilled methane by producing local waste authorities. Statutorytargets BVPI have recycling also increased Recycling therecycled. and amount The composting of national of household Waste household waste Strategy,2007, waste published increased has May the more focus than ofprevention future and actions minimisation. national on The household waste Waste newperformance waste Strategy local framework, quadrupled recycling 2000 government LATS, since and achieving removing 1996–97; composting 31% the localwaste target in ban authorities collection of 2006–07. on have authorities 25% exceeded charging set the for in household The 2005 the waste amount collection in of of up household toescalator waste 5 kilograms will not pilot per ensure re-used, areas head. that recycled and keymeasures or the municipal continue composted landfill waste in fell tax by performance the 23% right between direction. Less municipal 2000 municipal waste and waste between 2005–06 is 1998–99 from being and 450 landfilled—with considering 2006–07. kilograms falls themselves per from committed head Public 82% recyclers. to awareness to 367 of 58% recycling for has grown with over half the population Current UK recycling of paper, glass, plastics, aluminium and steel is controlled waste arisings. Local authoritiesdeliverers are of key improvements to municipalmanagement. waste Municipal waste contributes tochange climate directly through methane emissionsand from indirectly landfills through ine carbon equivalent in but 2006–07. average municipal growth waste over increased the at last about five 3.5% years per Municipal has year waste been up has less to grown than the significantly 0.5% millennium less per than GDP since 2000; ciency EEC is a legal obligation upon energy suppliers to meet As EEC is a national scheme, measured and monitored on a national Y Energy E Commitment (EEC)(2002–05 and 2005–08) targets households for in improvements Great in Britain. energy There e are no direct regional suppliers have developed e PolicyMunicipal Waste Policy Municipal waste contributes around 10% nationally to Comments Municipal on waste e treatment saved an estimated net 0.5 million tonnes Environmental Audit Committee: Evidence Ev 71 al 57 compared U ciency of approximately 19.26% as Y ciency of housing in the social sector. Y ect to date? V 47 in 1996 (2005 methodology). U cient heating and The Decent Homes programme has had a significant and demonstrable Y ciency for local authority action. in the period 1 April 1996 to 31 March 2006 reports an overall Y ectiveness of policy Quantifiable e V erent themes each year. A “sustainable energy” problem. These interrelated tools have helped councils evaluate their V ective insulation is an integral part of the Decent Homes impact on the thermal e V HECA has recently been reviewedcorporate/consult/heca/index.htm) (see: www.defra.gov.uk/ improvement in domestic energy e measured against a 1996 baseline. e standard.The Decent Homes Standard hashomes halved in the the number social of sectorcomfort. that provide inadequate thermalThe Building Research Establishment reportImplementing on Decent Homes in The thethat social Social private many sector Sector sector. of has stated the improved landlordshigher more surveyed standard than were than the working just private to basictrue sector a decency. in since This regards 1996, is to especially energyvast improvement majority works, of where landlords’ Almost the Decent all(over Homes social 90%) programmes sector included housing a (96%) provisionand has to loft points a to install insulation The over rating both well average the of cavity inin SAP same more wall excess the score period. than of standard. for 30. the social In minimums housing the set in social out 2005 sector been was the substantially number reduced of only since dwellings 4% 1996, with in from a 2005 over SAP [SAP 14% of 2005 of 30 methodology]. the or stock lesstheme to has in 2005 identified 7have Sustainable been Energy working Beacons with who DEFRA,disseminate CLG their and contribution the to IDeA thedebate to Climate and Change help own establish performance aLocal and programme authorities provide of are guidance peer The currently for support. social beingstatus improvement. sector assessed in These has for a an Beacon new average Beacons “tacklinglead rating have climate to of also change” awards 57, been theme in compared sharing which Marchwork to their will 2008. of 46 good This the learning in practice theme sustainable activities the in will energy including rising mentoring. for a build beacons articles 10 joint range on and and points CLG—DEFRA of the lead features, up £4 the websites, the millionPractice way events index. Climate programme. and The Change private Best sector has risen only five PolicyDecent Homes Ensuring that homes have both e Comments on e Beacons Scheme and ClimateChange Best PracticeProgramme The Beacons Scheme is a best practice programme that recognises and rewards excellence in best The value 2005 authorities “Sustainable Energy” Beacons have created a benchmark and toolkit to in help di others to provide local solutions to an internation Home Energy ConservationAct (1995) HECA has been successful in raising the profile of HECA data domestic as energy reported e by Energy Conservation Authorities in England Ev 72 Environmental Audit Committee: Evidence ect to date? V ective risk ciency the funding, however it is anticipated that these projects will reach over cers such as the V Y Y ectiveness of policy Quantifiable e V ective sanctions for Building Control O V power to issue stop notices and heavier fines. measures to vulnerable households.of funding (£6.3 million indelivery England) of to Warm improve Front the andCommitment, the at Energy the E local level. awarded during the current year it is too billion early will to have report been on spent the on impact the of Scheme. 600,000 households over the next three years. based approach to inspection ande a wider range of more regulations. Therefore meaningful evaluation cannotplace take for at least aintroduced. year CLG after and new Defra regulations arecontract are in for the an process independent of assessmentPart letting of L a compliance (2006). with This willPart inform L the that further the amendments GovernmentOther to has actions committed are to. also currentlycompliance underway across to the consider whole how ofcan the be building improved regulations through ourThis review review of includes building proposals control. for a more e ciency Fund (CEEF) developed in response to the Chancellor’s announcement 50 projects across England awarded funding. As this funding was only Y Warm Front and fuelpoverty programmesCommunity EnergyE Warm Front is a in key England instrument by in providing alleviating grants fuel for poverty heating and insulation CEEF is a Over competitive 1.6 funding million programme households which Scheme’s have was inception been in assisted 2000. in By England the since end the of this CSR period, over £1.6 A total of 119 bids were made with a value in excess of £11 million, with PolicyBuilding Regulations(enforcement) It takes about a year for the house-building industry to complete existing Comments developments on and e start working to new N/A Environmental Audit Committee: Evidence Ev 73 2 2 ect to date? V 32,666 tCO 1,466 tCO ers ers 43 86,000 2,747 (£207 million) 650 (£32.5 million) 323 (£11.5 million) 41 (£0.5 million) 500,000 538 431 % 7 328 (£30 million) 92 (£7.1 million) 49 (£1.7 million) 7 ((£0.1 million) 121 108 % V V % % % % % % % % % % % % % % % % Total LA’s Website hits to www.lowcarbonbuildingsphase2.org.uk Total Potential carbon savings (all public,technologies) non profit organisations, all Annual Expressions of interest Total LA’s Grant applications Total LA’s Grant o Total LA’s Grants paid Total LA’s Website hits to www.lowcarbonbuildings.org.uk Total No potential carbon savings undertowards Phase domestic. 1, and most promotion Grant applications Total LA’s Grant o Total LA’s Grant claims Lifetime Promotions to local authorities include £20 x culty obtaining match Y ectiveness of policy Quantifiable e V funding in addition to the LCBP grant; and promotional activities. amount of time, and thesince scheme December has 2006; only been open — framework suppliers have required time to set up their groups, public, private and thirdLCBP sector Phase organisations. 1, which isTrust, managed originally by had the a Energy £30million Saving million set budget aside with for non-domesticauthorities. projects Within including six local months ofallocation launch, for the domestic fund’s projects overcommitted three in years full. had As been athe result, re-allocation the of Government £6 approved millionfunding from streams the to non-domestic support theIn domestic the stream. Budget 2007, anwas additional made £6 available million to in domestichigher new projects than money as anticipated a demand. resultLCBP of Phase 2, managed bybudget, the providing BRE, grants has towards a themicrogeneration £50 installation technologies million of in public andorganisations. third sector Grants of between 30%–50% arethe available technology depending used, on with applicantsmatch needing funding to from secure other sourcesprogramme. before applying to the Uptake has been slower thanthat had this been may hoped. be We due— consider to LCBP the Phase following 2 planning factors: (public, for non this profit) scale of project takes a considerable — applicants are having di PolicyLow Carbon BuildingsProgramme LCBP provides grants towards the installation of Comments on microgeneration e technologies for households, community LCBP Phase 1 (non-domestic) Ev 74 Environmental Audit Committee: Evidence ect to date? V cient use Local and regional authorities have been allocated £4.656 million of the Y ectiveness of policy Quantifiable e V ective the projects have been in influencing attitudes. V of biomass-fuelled heat and combinedprojects. heat Projects and will power be evaluatedcriteria, against including a their range contribution of toemissions. reducing Projects carbon funded to datefollowing will completion, be most evaluated likely inexpects 2009–10. to Defra run further roundsMarch of 2011, the subject Scheme to up fundingthrough to being the 31 made Comprehensive available Spending Review. are sharing £10m from 2004-09programme to of look smarter at choices what measuresSmarter a can choices sustained achieve. include workplace andplanning, school car travel sharing schemes, increasedcycling, walking improved reduction and public in transport car provision tripsmarketing and and including a personalised 16% travel increase plans. in bus in use walking with and a a 20% 30% increase increase 10,000 in residents cycling. inwith club. Darlington its a has “Local 6th also Motion” town over sustainable Aylesburytest travel receiving the supporters £900k hypotheses (as of smaller) whethersuccessful to investing European at cycling levels cities seen wechange in can in start cycling to in see England. a step examine the data. Fund (CCF) run until thequarter end (or of every February six 2008. monthsthe Each for delivery smaller of projects) the we projectsThe assess against aim their of initial the proposals. CCFtowards is climate to change influence in people’s arequired attitudes positive to way. survey Each the collected project attitudebefore from is of and the their after projects target the in audience project.collate April. At and the analyse end this of evaluatione the data CCF to we gauge will how SchemesSustainable Travel Towns of biomass for energy by stimulating the early deployment Three towns of Darlington, Peterborough £9 and million Worcester available in 2007–08. Cycling Demonstration The programme hasTowns so Project far targeted 180,000 people and achieved a 10% Five towns of Brighton, Darlington, Derby, Exeter and Lancaster are A each monitoring receiving regime £1.5 has million been from established 2005–08 but it is too early to make an analysis of the results. After Summer 2008 will be in a position to PolicyClimate Challenge Fund The 83 grant-funded projects under the Climate Challenge An evaluation strategy has been drawn Comments and on the e evaluation dataBio-energy will Capital be Grants The purpose of this Scheme is to support the e Environmental Audit Committee: Evidence Ev 75
Witnesses: Mr Phil Woolas MP, Minister of State (Environment), Mr James Hughes, Head of Climate and Energy: Strategy and Public Sector, Department for Environment, Food and Rural AVairs, Mr Iain Wright MP, Parliamentary Under-Secretary of State, and Mr Andrew Campbell, Director of Local Strategic Partnerships and Performance, Department of Communities and Local Government, gave evidence.
Q122 Chairman: Hello and welcome. I apologise for with regard to that. So in terms of that overall having kept you waiting for a few minutes. We will framework and the tension we have, I do think we try and get through as much as we can. I am very have got it about right. glad to see two ministers here. We are delighted there is recognition that these issues cross departmental Q124 Chairman: One of the things that are lines. Do you just want to introduce your oYcials as noticeable is that some of the best performance by well before we start? councils is where you have got particularly Mr Woolas: Thank you very much indeed, Mr Yeo, committed individual oYcers or councillors who for the invitation to today’s session. I am joined by really grip the issue and regard it as crucially my colleague, James Hughes, who is Head of important. Are you relaxed about the sort of Climate Change: Strategy and Public Sector in variation that may lead to between one authority Defra, who is here to help the Committee with its and another, or are there ways of actually getting the inquiry. commitment which some people have made part of Mr Wright: I am joined, Chairman, by Andrew the mainstream agenda so that everyone starts to Campbell, who is in charge of Local Area share as climate change itself becomes a greater Agreements at the Department of Communities and priority in overall policy terms, both nationally and Local Government. internationally, whether that same process will happen at a local level? Q123 Chairman: Thank you very much. Could I kick Mr Wright: In preparing for this meeting, oV by asking how you think we could get more Chairman, I was looking at transcripts from your consistent action right across the whole of local previous evidence sessions and I was struck by the government and how we link the aspirational high- phrase which was coming through time and time level strategy with the actions every day on the again about “wilful individuals” and I do think that ground? at both a member level in local authority and at an oYcer level that is a major driver in terms of Mr Woolas: Can I try, Chairman, to answer that priorities. I think it is very clear. I am a former question? The thrust of government policy towards councillor and I saw it when I was a borough this issue is a devolutionary one and there is a councillor. I think in many respects, because of the paradox between consistency and devolution, so the performance framework we have put in place, answer to your question is that we have set a because of the finances we are providing in terms of framework which we then within have to advocate. mitigating and adapting to climate change, the key Now, of course, one of the key levers that are point in the jigsaw is cultural and I do think that available to us is the reward grant system. Is it a move, in terms of wilful individuals, is probably the bribe or is it a tip, is an open-ended question, but way in which culture can be changed. But in terms there is to a significant extent built into the policy of bringing it together, in terms of highlighting and this paradox. So persuasion as well as, obviously, disseminating best practice, I think Communities financing become all-important and we believe that and Local Government is working on that to make by creating this framework of devolution through sure that we do ensure that people can step up to the the new structure the accountability structures of plate and do what they can in their own individual local government and regional and devolved areas. government are the answer to the question. I hope Mr Woolas: Chairman, in specific performance that is an honest answer. indicators that are Defra-led there are three in this Mr Wright: Can I just follow that up, Chairman, by area, 185, measuring local authority emissions saying I do agree entirely with what Phil is saying caused by their own operations, 186, which about a tension between locally-decided targets, measures per capita emissions from the area which which are probably more committed to in terms of the local authority covers, and 188, which is the locally on the ground and central diktat, and in adaptation indicator. Those are the three that we terms of the Local Government Performance are, as you may expect, anxiously awaiting the Framework which Phil has just mentioned, I do outcomes of the Local Area Agreement think we have got that balance right in terms of the negotiations. It is too early to say. The end of June new framework with the Local Area Agreements, is the sign-oV. The early indications are that a large the 35 targets and the national indicators, which I number of local authorities are adopting or imagine we will come on to later. Also, in terms of intending to adopt these PIs within their 35 target some of the things which are on the statute book and indictors as part of the ones they can choose as part are planned to be on the statute book in terms of the of the devolutionary regime, but it is going to be, I Planning and Compulsory Purchase Act, which think, very important that that figure is as high as means that local authorities have to have regard to possible and that the number who are not adopting mitigating and adapting with regards to climate one or more of these is very small. The indications change and also the stuV which is going through in do seem to be that that will be the case. terms of the Planning Bill, and it also tends to be the Mr Wright: Just to expand on that, Chairman, if I halfway house between the planning policy may, the latest information we have following the statements, the guidance that we have put in place discussions which are taking place with government Ev 76 Environmental Audit Committee: Evidence
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell oYce and local areas, certainly in terms of NI186, Q126 Colin Challen: Does the Government have a which is the per capita CO2 emissions in the local view on what areas local authorities should prioritise area, is that this is in the top five priorities. to make the biggest climate change gains, so to Something like 120 local areas have indicated that, speak, or are areas chosen by serendipity, they just and I pay tribute to and embarrass Phil here by suggest themselves, “We’re going to review planning saying that in terms of the work Defra has done in law, so let’s put something in the planning law,” or, pushing that and demonstrating how important that “We might do something on housing, so let’s think is, it certainly seems to have worked with regard to about something in housing”? How does the policy local authorities. on climate change between central and local government emerge? It is presumably not just by osmosis but it is by a clear-sighted series of Q125 Colin Challen: Having served as a councillor priorities? myself for a few years, I am aware that councils, like Mr Woolas: The regime, of course, will change if the rest of society, can go through phases and Parliament gives its approval to the Climate Change fashions and various stages of development, looking Bill. That will have a major impact. The carbon at things, and then move on to the next, if you like, budgets which flow from that will have a major managerial craze. That, I think, can lead to a very impact, along with the carbon reduction patchy situation where some authorities led by these commitment. But I think following that, going back “wilful individuals” can do a lot and others that to the previous answer, it is then dependent upon the probably just do not bother at all. Do you think that suite of performance indicators combined with the the statutory framework we have talked about statutory duty to cooperate on public sector already is actually going to be strong enough to get partners, which will empower local authorities to be everybody up to speed at the same level, setting very able to implement their targets. Part of the policies, clear-sighted targets and demands for them? of course, to recognise the importance of the Perhaps, if you look at planning applications, for question, is the diVerences in the diVerent areas. example, whether or not they will have to be assessed What you would do, say, in Iain’s area would be for their carbon balance, if you like, things of that diVerent from what you would do in, say, in sort. Perhaps we need to go much further than you Cornwall, to pick one at random, and I think the have already suggested? regime allows that to be recognised. Mr Woolas: I think the fear you have or the caution Mr Wright: Following on from that again, I do think you have is real. We take the view that there is a that is very important. As a central government number of sticks as well as carrots. I have said it is a minister I do not want to be dictating, certainly in devolutionary regime, but it is not without its sticks. the local devolutionary agenda which we have. I The evidence from PPS25, for example, on think what we can do, though, linking the two Environment Agency consultation on flood plain themes of questioning so far in terms of that “wilful developments, is that it started poorly and has built individual”, the cultural changes, we need to into the system, and of course the number of call-ins encourage as much as possible, I would suggest, the helps that, but I think the real cultural change will picking oV of the low-hanging fruit. I think that is a come about when the carbon reduction commitment theme which has emerged from the Committee kicks in, in April 2010, because that will draw the already. Particularly with regard to maybe local financial decision-making into the policy decision- authority sustainability of buildings, we can help making together in a central and mainstream way encourage a great deal of investment with regard to Y and larger local authorities, will be covered by the energy e ciency and sustainability of buildings in carbon reduction commitment (as will government that way, because I think sometimes people think departments). So that, I think, gives some surety that this issue of climate change is so big, so global against the fear that this could go out of fashion. in its outlook, “What on earth can I do as an Y Mr Wright: I think that is a fair point and I think the environmental o cer in a local authority?” I think if we can encourage that and say that people can make premise is right. We do not want to move on to the V next thing in terms of fashionable management adi erence on an individual level, and help them with things like the Energy Savings Trust, Green jargon and I think we need to embed this as much as Homes Service, that sort of thing, we can make a real possible in the planning framework, in the statutory diVerence. framework, and I do think the performance framework which we have in terms of local authorities helps. I mentioned things which are Q127 Colin Challen: Perhaps there is an argument going on in respect of the Planning Bill. I think this that the Government’s role really should be— may have changed subject to amendment, it is going obviously it has a statutory role, but outside of that through the House at the moment, but clause 147 it is just to try to strengthen the weakest link in the does set out that local planning authorities must chain rather than possibly introduce legislation include in the development plan documents policies which holds back the strongest performance. I think which are designed to reassure people with regard to there was a bit of a debate about the Merton rule mitigation and adaptation about climate change. So really as to whether or not those local authorities we are embedding that. On top of planning which really wanted to be fully responsible and statements, on top of revised PPS on climate change, forward-thinking might be held back by some kind I think we are doing a lot to embed this in quite of national standard. So perhaps the real role of literally a sustainable way. Government is to make sure that there is good Environmental Audit Committee: Evidence Ev 77
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell practice spread and to help the weakest links in the development which is as sustainable and green as chain, because some local authorities clearly have much as possible, will be literally embedded. So I not got the agenda yet, get up to speed rather than hope that reassures you. say that everybody should move at the same speed? Mr Woolas: I think that is right. Our policy Q129 Mr Caton: I am not sure it does. Obviously recognises that, though I think the new regime with that is very welcome, but that does not have the the indicators for local government is a profound focus on climate change, the provisions you have put change. We have a number of measures to try and do in for local government, and I wonder why that is? that in a practical way rather than just the statutory Mr Wright: One of the things the RDAs have been Y way. The Regional Improvement and E ciency doing has been reviewing at the moment their Partnership, for example, we have put £4 million, £2 regional economic strategies and there has been million each, I think, into that. There is the Beacon renewed emphasis upon what are they doing in scheme, which is proving to be successful. There are respect of climate change, and there has been a lot of a number of measures which are helping to spread good work. I declare a vested interest to some extent, best practice, though I take the point that they are albeit historically, Chairman, because I used to work not statutory. Of course, the proposal in the Climate for One North East, the North East Regional Change Bill on adaptation is that the Secretary of Development Agency. But ones such as EEDA (East State should be given powers in the area of of England Development Agency) and the West adaptation to do exactly what has been suggested, Midlands one, Advantage West Midlands, are but that of course is subject to parliamentary working really quite well to make sure that climate decision in the forthcoming debates in the House. change is at the heart of what they are doing in Mr Wright: Chairman, Phil has mentioned the respect of economic development. As I have said, I carrots that we can provide. I would also say in terms think that will be a process which will be advanced of not so much the sticks but certainly the auditing and accelerated when we see the Sub-National and regulatory regime, the Committee will Review pull together these major regional remember that we are changing the Comprehensive documents in terms of the RES and the RSS. Performance Assessment for local authorities to the Mr Caton: Thank you. Comprehensive Area Assessment, which will be looking at risks and delivery options, and that will be Q130 Martin Horwood: We need a rocket under the a framework within which the way that a local area South West RDA in that case—a sustainable one, and local authority and its partners can mitigate and obviously! I just want to ask you about adapt to climate change will be assessed as well. So procurement, which I think is an area which has I think not only is it important to change things enormous potential for having an impact outside the culturally but to have transparency in the whole scope of local government itself. I have got an oYce process. The CAA will help do that. supplies company in my constituency which is trying to reduce its carbon footprint by 75% in a few years and that is going to win it preferred status on some Q128 Mr Caton: Minister, in replying to Mr Challen private sector contracts but not particularly in you referred to the duty which the Planning Bill will contracts with local government. What are you place on local authorities to address mitigation and doing to provide sticks or carrots to local authority adaptation, and I am sure that is very welcome, but to look at their procurement policies as a way of why does it not impose a similar duty on regional promoting action on climate change? planning bodies in developing regional spatial Mr Woolas: I launched the strategy, so I will tell you strategies and the proposed single regional what we are trying to do, when I was in my previous strategies? portfolio at ODPM, I think it was then. The local Mr Wright: In terms of the Regional Development government sustainable procurement strategy set Agency, the 1998 Act has as one of the objects of the out the response to the recommendations of the Regional Development Agency a duty with regard Sustainable Procurement Task Force, which we to sustainable development. I know that because I developed with the Local Government Association, looked at the RDA Act when I was taking the the Society of Procurement OYcers and other Housing and Regeneration Bill through the House stakeholders included the Academy of recently, because we have just produced, Chairman, Sustainability, the IBA and others, to try and look an amendment this week with regard to sustainable at how we could crack this problem of trying to development for the new Homes and Communities ensure that procurement promoted sustainability Agency. I think that is important. Moving slightly but did not rely on the economies of scale which further afield from that, I think the proposed Sub- could deteriorate local sustainability. So it was local National Review and the proposed coming together sustainability as well as sustainability that was of the regional economic strategy and the regional important because of the other objectives we had. spatial strategy into a single regional integrated For example, the PSA in regional economic strategy will really make sure that the homes and the strategies does take sustainability into account. So buildings we need in order to pursue and facilitate the five points were trying to ensure that local economic development is very much linked together. authorities and their partners’ mainstream I think at the heart of that, thanks to the objects procurement—we found there were diVerent levels which are already in there with regard to the RDA of procurement decisions, or rather decisions were Act, sustainable development, economic being taken at diVerent levels, some of them at very Ev 78 Environmental Audit Committee: Evidence
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell relatively low management levels, some of them at Mr Woolas: I think that is the $64,000 question, senior, and that to build in sustainability you had to which I suspect is why you have asked it! The way in make it a senior oYcer decision. Secondly, looking which in Defra we see the answer to that question— at the evolution of the best value regime to ensure and James may want to comment on this—is that of that the full life cycle of a product or a service was course we have not got the international agreement part of the criteria in awarding the contract or yet. We have the proposal in the UK Climate purchasing the goods or service. There were all sorts Change Bill to look at a 60%, possibly or probably of examples of that that you will be familiar with. 80% when we have got the advice of the Committee Making sure that sustainability was managerially on Climate Change as a UK contribution. You have and politically owned by the senior oYcers and the then got to find ways in the real world of delivering elected members, that sustainability in procurement that and divvying it up. Sectoral approaches are was built into that, was a key recommendation. The obviously important. The climate change action on construction and facilities management, agreements and the energy users and producers social care, waste management, energy, transport which are covered by the European trading scheme and food. The final one was giving greater flexibility provide for a portion of that, but underneath that to work with other partners, either across you then start to divvy it up, and of course we have boundaries or within the boundaries. That is the the issue of the devolved administrations, which good practice that we are trying to bring about, but your inquiry, Chairman, is obviously looking at. the answer to your question is to be found in the Hypothetically, we will be in a situation whereby answer to the previous questions, that we believe the journalists and Members of the House will tot up the carbon reduction commitment will change the way targets of each local authority agreement and the in which public sector management behaves because it will make it part of the balance sheet and the devolved administration and it may come to less income and expenditure account. than the national target. Of course, part of our point in putting a statutory target into legislation is to ensure that there is that delivery, that it “walks the Q131 Joan Walley: Can I just pick you up, Minister, walk”, as the climate change negotiators say. But I on one of the things you just said as part of that think the issue you raise is absolutely the right issue procurement strategy, which has taken quite a lot of and I think this is why this inquiry is so important, time to get to this stage, and ask you know how that because this is looking at how we are going to do it squares with Government policy in respect of PFI, in policy terms at a local authority level. which is for many local authorities the only way of getting long-term capital investment into a Mr Hughes: Chairman, perhaps I could just make a particular area, when PFI contacts tend to be kind of couple of comments? First of all, just to say that we at a given time? So they might be providing ongoing have already discussed the tension between the need investment for the next 30 years but they are stuck to give local areas greater formal responsibility for in stone really because they cannot adapt as the new tackling climate change against the recognition that environmental technologies come forward. They there is a greater devolved approach as well towards cannot necessarily build those into the long-term local authorities. I think what we have got with the planning because it is all based on what the contract indicators is a step change in terms of highlighting agreement was at the time when the PFI was drawn the importance of climate change and action at a up, so many local authorities who are relying on PFI local level, and obviously the action that we are to provide the investment they need find that they taking through Government OYces, through the are stuck with something which is out of date. Local Strategic Partnership approach, the message Mr Woolas: The traditional policy would be worse we are getting through the LGA and others in terms from that point of view, and secondly a PFI contact of trying to get the Local Strategic Partnerships to can allow flexibility in that regard if it is negotiated embed climate change within their Local Area at the start of the PFI. Agreements, that is looking at targets. It is looking at targets at a local level, looking at targets in the Q132 Joan Walley: And that is recognised from the sense that the target at a local level needs to take sustainability aspect of it, is it? account of what can be done at that local level. Our Mr Woolas: I would argue in general that with a PFI approach in terms of the Climate Change Bill is to contract, in part because it is more likely to be on say that the Climate Change Bill sets a framework. time and on budget, in part because it is explicit in The framework it sets is one of setting out what the what is expected but provides flexibility to both overall target is for the UK. In terms of actually partners in delivery, there is a better chance of it trying to meet that target, one of the things we have being sustainable than it would otherwise be the case been very mindful of is that we want to try and get on a traditional purchase. Time will tell! abatement at the least cost, we want it to be cost- eVective, and we need to have flexibility in achieving Q133 Dr Turner: We are going to have national that. I think the concern was that if we started to targets, budgets set as a result of the Climate Change break that target up into lots and lots of sub-targets Bill. Of course, these are going to have to be that actually it would become very complex to delivered at a local level in practice, so under what manage and could cause problems in terms of our circumstances do you think you might want to flexibility and our ability to actually deliver carbon disaggregate targets and cascade national targets to savings at least cost. Again, formally cascading and other levels in spheres of government? breaking up that target at a local level would also not Environmental Audit Committee: Evidence Ev 79
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell be consistent with giving local authorities greater which I know you are concerned about is to ensure devolution in their approach. So we have not taken this is the case from the point of view of carbon that approach, but I hope that explains why. markets as well, because carbon markets will not work if they are not scientifically based and Q134 Dr Turner: But if local or regional government consistent. You cannot politically fix a carbon sets targets not necessarily with reference to the market. It ceases to be such if you do that. So it is one national target, how do you see them relating to the of the issues I worry most about, and the Secretary national target if they do not stack up to the national of State has told me to worry about it, but I think we target? What will you do? are doing just about what we should be doing, I Mr Woolas: As I say, I think that is the important think. question which the country has to come to terms Mr Hughes: Perhaps I could just answer that? We with and your recommendations will be very have obviously got the National Inventory, which important, but it is not the whole picture, of course, collects the data for the UK, and that is the because within industrial sectors, the transport information we need to provide to the UNFCCC to sector, the industrial sector and indeed the domestic proceed for our reporting purposes under Kyoto. sector, there will be other contributions. If one looks The information that we collect breaks down in at—if I can pick the North East, if you will allow me, quite some detail and allows us to get information Iain—the North East, where the emissions for the which we can then use through some further region are very high because of the industrial analysis—and we have done that over the last year— processes there (not because of the public of the to look at what emissions can be at a local level. North East, I hasten to add), the ability of, say, Now, that information is being developed and I Durham County Council to influence the chemical think the latest information we have got is in relation industry in its area will be limited, but the ability of to 2005, but each consecutive year that information sectoral agreements and carbon markets to influence becomes more robust and that information will be the chemical industry will be significant. So I think available for both baseline purposes for local it is a question of looking at the whole picture. We authorities and for them to be able to measure their believe that by having the regime and the performance as time goes on. This is something on performance indicators that we have—and we saw which we have done a lot of work over the last year them as extremely important, and if I can reassure in terms of trying to get that information together, the Committee, at the time of the machinery of but it should improve rapidly over the next year or government changes last summer for the new two. ministerial team this was at the top of the in-tray, to Mr Wright: I am slightly more optimistic than Phil persuade colleagues in other departments that these in this respect. All the evidence that is coming back indicators should be there. We believe that that to me in terms of the discussions which are going on regime will itself provide momentum, but whether or with regard to Local Area Agreements between local Y not it provides the guarantee is an open-ended areas, councils, LSPs and government o ce, question. The statutory framework, of course, will certainly with regard to NI186 (which is the per force the government of the day to address that capita CO2 reductions in an area), is that there is question, but I think it is part of a momentum. quite robust scientifically-based evidence with regard to this which has been challenged and been tested. Now, this is a long-term perspective. It will Q135 Dr Turner: Whatever detailed mechanisms or not be able to be reviewed for 18 months to two relationships may emerge in this process, one thing years, but I am confident that that evidence is being is for certain: making it work successfully is going to put in there. Andrew, hopefully you are going to depend upon some robust data. What is your feeling back me up in regard to that. about the processes for data collection and Mr Campbell: Absolutely. As both Ministers have coordination that we have at the moment on said, this is not about central government imposing measuring carbon reductions, carbon budgets, targets on local areas. The evidence is there, the 2005 whatever? baseline, but they key is to use that evidence by Mr Woolas: I think the Government recognises the locality to have the negotiation about what the right importance of the issue. I think there is a huge level of target might be for a particular LAA over the international importance to that issue. It is core, as next three year period. Just one addition to what was you will know, Chairman, to the international said earlier is that there will be some areas which discussions and negotiation. There is a recognition probably do not include 186, or one of the other that the UK has a competitive advantage by being indicators, in their LAA, but information about how the world leaders in auditing this area. There is an they are doing will still be collected annually, which expertise in the private sector, I believe, in this will feed into the Comprehensive Area Assessments. country which I genuinely believe is the best, and I So some of the gains will come from outside those think that is regarded as so around the world, but to areas which include it as a target in their LAA, but be very frank with you I think we are in early days we would still expect them to take this agenda and I think getting the auditing (as I call it) right is seriously and make improvements. absolutely crucial, and of course you have got to compare apples with apples. It is no good, from the point of view of the atmosphere, getting the Q136 Dr Turner: Obviously the actual relationship measurements wrong or being inconsistent in between local and central government is going to be methodologies. I think the other point, Chairman, absolutely crucial in achieving success here. How do Ev 80 Environmental Audit Committee: Evidence
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell you rate that relationship now? Is there good Mr Wright: May I speak with several hats on from communication between local government and my former lives? I was a borough councillor, I was a national government? Does national government chair of a Local Strategic Partnership, and now I am listen to the concerns of councils, and vice versa? a minister in Communities and Local Government. Just what is the dialogue? I think the point which has been made about Mr Woolas: I think it is a very interesting question. maturity is a valid one. Certainly in the five years I think the Local Government Association has that I have been involved you can plot it. The proved to be a very valuable and now a mature maturity, the feeling that central and local organisation. It is some eleven years since it started. government have a grown up relationship seems to At an institutional level, an oYcer level, oYcial level, be very much progressing. I do, frankly, get policy development level, there is a very good frustrated sometimes with councils. Everything relationship, and that is not just with DCLG, that is good that happens is down to a local initiative and with the main Whitehall departments. I think Sandy everything bad that happens is because of central Bruce-Lockhart and the former Deputy Prime government, and I think we do need a greater Minister gave political leadership to that through realisation of what really is accurate there. But in the the central local partnership which was established main, I think there is a much greater flow of and has evolved. I think there is a better relationship understanding. The Permanent Secretary of my now than there has been probably for 30 years, I Department is from local government and I think would say, and credit to all political parties who are that helps in terms of cultural expectations of involved in that. Of course, the financial decisions certainly my Department. But I do think Phil is still rankle, and I am sure Iain grapples with those absolutely right, there has been a greater maturity every day. If you had said to me a year and a half there, and LAAs have really helped. ago, would we get the Local Area Agreement in Dr Turner: Thank you. place in time, I was sceptical, and I told the other select committee that at the time. I think local Q138 Joan Walley: I would be very interested to see authorities for their part took the attitude of this new the evidence of how that is actually working in agenda, “We’ll believe it when we see it,” and also, relation to my own constituency. “It’s all very well for DCLG to say it, but what does Mr Woolas: Yes. Can we list the exceptions, the rest of Whitehall say?” I think if you were to ask Chairman? the leadership they would say that the relationship was good. It is obviously a political relationship as Q139 Joan Walley: I have to say it is something well, but on this area I think it is very strong. There which I have been pushing for, but I would be very is a consensus, I think. interested to see just what the evidence is on the ground. Can I just ask about funding, because I am Q137 Dr Turner: So is it fair to say that what was very aware that, for example, in terms of Defra’s seen as a somewhat disdainful attitude in the past of own budget—I was at a Waterways annual meeting over the weekend and one of the things they central government towards local government has mentioned was the loss of the budget which Defra matured into something much more responsive, and had had which had been earmarked elsewhere, do you help it along with staV exchanges, civil leaving a lesser amount for the Environment servants exchanging with counterparts in local Agency. So there are always other demands on government so that good practice gets disseminated money which has been earmarked. But the point I at both levels? really want to ask each of you now is, how confident Mr Woolas: I think the New Burdens policy has are you that there are suYcient funds available at the worked. There was a lot of scepticism that that local, regional and devolved level of government for would be real, but I think it has become a discipline the mitigation and the adaptation which is needed? within local government and I think local authorities How can you know what money there is, because if recognise that. Of course, there are arguments about you look at the funds which are just available for what the amounts are. Yes, there is a lot of exchange local authorities it is not that great an amount of across local authorities—not as much as I would like money? to see—a lot of exchanges with the Local Mr Woolas: The approach we take on that is that of Government Association, and also a deliberate course we would point out that overall the policy of recruitment across local authority and settlement is inflation plus in the area, but I think central government so that you see career there are two policy points to examine. The first is development for oYcials in that way. Not in the way that the less ring-fencing there is, the more flexibility that central government is the senior partners and there is at local level, the greater the devolution, the local government is the junior partner, but one can more the paradox which the Chairman started us oV see a career development in the diVerent disciplines with in his question become pertinent. So again that and professions so that it is seen as public service is a matter of trust. I think the second point is—and rather than local government and central this takes us to the New Burdens policy, absolutely government. I think the cultural change is being to the heart of this, because the economics of this are driven by Local Area Agreements where, of course, that in the long run it is cheaper to mitigate than it many of the partners at local level are central is not to. That is not to say that I am going to ask for government departments and agencies in their local the money back from the councils, but it is an operations, and I think that is changing the culture. important point. We have to identify where the Environmental Audit Committee: Evidence Ev 81
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell humps are, where the investment is needed. Is it in individual, the householder, but it is the house that waste collection infrastructure, for example? How benefits. So whilst it is primarily a fuel poverty does it relate to the landfill tax? How does it relate to measure, it is secondarily, and importantly, a fuel the point you have made about PFIs? It is very eYciency measure which is sustainable because it is important. So, is there enough money? There is the house which is refitted. We are currently, never enough money. Is the policy the best it can be following representations from the House, looking within the context of the extra money there is at how from an energy eYciency point of view, the available? I hope so. The Environment Agency is scheme can better dovetail with other schemes. In subject to the Gershon eYciencies, just as the rest of terms of the major policy lever which we have, I us are. Their capital budgets, of course, have would point the Committee to the Carbon significantly increased. The revenue budgets have Emissions Reduction Target, which started on 1st been flat cash, I think. If it is not, I will correct April, the £1.5 billion scheme through energy myself, Chairman. So I think those are the policy companies, which is primarily an energy eYciency frameworks that we see it in. measure. But if I could just make the other point, Mr Wright: I would agree with what Phil says. I Chairman, which is that the major driver of fuel think if you pull everything together with regard to poverty determination is the price of fuel, and I am things like Warm Front, Carbon Trust funding, and keen to point out that I do not want my strategies to things like that, which do have a real impact upon be following in the wake of increased fuel prices. The energy eYciency and means to mitigate climate best way of reducing fuel poverty is to decrease the change. I think we are in the region of about a billion price of fuel, not to use more taxpayers’ money to and a half pounds a year, which is an enormous retro-fit houses, so we are trying to do both, amount of money. I think the challenge we have got, Chairman. because I do not think we are transparent enough in Mr Wright: If I may say, Chairman, on a similar that and maybe we do need to be more open and theme to the Warm Front, the Decent Homes clearer in terms of how that is directly aVecting Standard, which I think we should be very proud of climate change, mitigation and adaptation—and I as a government, the replacement of windows, can come on to, Chairman, my pet subject, which is boilers, and such like, was ostensibly about trying to housing, and I know, Mrs Walley, you are interested address the real under-investment in social housing in housing—but I do think there are unprecedented rather than adapting to climate change, but with new sums of money available to the Homes and and more eYcient boilers, with more eYcient Communities Agency in regard to housing in order windows which can keep the heat in, that has a huge to help regeneration infrastructure. I do think there impact upon climate change and CO2 emissions. is a point in terms of the money that is being spent. How we actually measure that in relation to a I would not have thought that the man or woman in scheme which ostensibly is not regarding that is a the street, even if they are informed, would be challenge. thinking that we are spending a billion and a half Colin Challen: I think I might have the Member for pounds each year on things to try and adapt and Telford sat on my shoulder when I am asking this mitigate against climate change and I think we need question, but have either of your departments done to be clear about where this money comes from and any work on modelling, at what point it is possible how we communicate that. that the cost of adaptation might overwhelm the eVorts of local authorities to deal with mitigation? One can imagine a situation where an authority, Q140 Joan Walley: Can I just press you a little bit perhaps Hull, overwhelmed with floods may be further on that because you mentioned the Warm completely deflected then only to look at adaptation Front scheme? I am sure the Minister for Defra will and any eVort on mitigation would be electorally perhaps want to come in on this, but I think one of impossible. the issues which has been flagged up is the fact that Chairman: We will have to suspend, I think, for this Warm Front scheme was set up in relation to the fifteen minutes and resume at a quarter past four. Fuel Poverty scheme, it was not set up as ideally The Committee adjourned from 4.01 pm to 4.29 pm there to be dealing with these climate change issues. for divisions in the House. Therefore, the criteria which comes out from Defra, which is picked up as part of a local authority proposal to deal with these issues, to some extent is Q141 Chairman: We are a quorum. There was a still constrained by a set of criteria which was fine question which has been asked, but the questioner when it was just simply a fuel poverty programme has gone. Do you want to answer in Mr Challen’s but it needs to be looked at in the wider picture. So absence? it is how there are these checks and balances all the Mr Woolas: Thank you, Chairman. For the record, time to make sure that where you say there is money the question was, just to remind the Committee, available and it is already being allocated, it can be what happens when adaptation costs more and there suYciently flexible to be able to be broadened out to is not enough for mitigation? The answer is, a very include these climate change aspects that we need to good question! The answer to that is, I do not know, be mainstreamed, which is what local authorities are or rather it is not known at this point in time. There now doing. are two serious policy measures which we have to Mr Woolas: Except that it is the house, not the address the issue. The first is the proposal to publish person, which is retro-fitted. The criteria for an adaptation policy framework, which will follow eligibility for Warm Front is, of course, based on the from the deliberation of the Climate Change Bill but Ev 82 Environmental Audit Committee: Evidence
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell not be statutorily part of that, and that will set out policies designed to secure the development and use the overall vision for the United Kingdom on of land in their area and that those policies adaptation. The Bill itself, of course, also requires, if contribute to mitigating and adapting to climate Parliament approves it, the Government to report to change. So although I recognise the importance of Parliament on an annual basis. having flexibility with regard to the planning policy Mr Hughes: At least every five years on progress statements, there is going through Parliament at the made regarding adaptation. moment the proposed locking on the statute book Mr Woolas: In the budgets, that is right. The second where local planning authorities do play a key role point is that we have the Climate Impacts there. Programme, Chairman, which I am going to ask James to say a bit more about, which is doing the science on this area. Q143 Mr Caton: Are councils using their existing powers as fully as they can to tackle climate change? Mr Hughes: As you know, the UK Climate Impacts Have you identified any areas where new powers Programme did a lot of very good work in terms of should be introduced, or even existing powers looking at what climate impacts might be. It is doing strengthened? a lot of work at the moment with the intention of publishing some updated scenarios later on this Mr Woolas: Just one point. I think I am right in year. The last set was done in 2002 and were based saying the LGA Commission on the statutory point on emissions levels and this new set will be too, but gave a two year gap and said councils should be they will also take account of the probability of given the chance to do it and then we should look at things happening at diVerent temperatures and it again. I think the answer to the question is that in therefore it will give a better ability to assess risk. It England there are around 400 local authorities, 150 will be looking at what the impacts of climate change Local Area Agreements, and there are some great might be down to a 25 kilometre square area, so it examples and some poor ones. I think where more could very clearly be done would be in energy will be fairly detailed. That information will be Y coming out in the second half of this year. As the e ciency. I think that is the big gain that we are Minister has mentioned, we have got the adaptation looking for in the new regime. policy framework coming out. We have also got this Mr Wright: When Local Area Agreements are used requirement in the bill for the Government to report properly, I think there is transparency and I think to Parliament on a risk assessment, and that risk there should be a dialogue between the partners, assessment will need to consider the costs and particularly the local authority, and the public to benefits associated with the UK adapting to climate flush this sort of thing out. Phil and I were talking change. Again, subject to parliamentary approval of earlier on about naming and shaming local the Climate Change Bill, another of the things it authorities which maybe do not have climate change contains is the requirement of the Government to within their Local Area Agreements. I have to say produce a programme for how it is going to address that in terms of the number of Local Area those risks. So all of that will be a commitment on Agreements and local areas which do not have this Government once the bill becomes statute. as a priority it is comparatively few. Of the 150 or so at the moment, given the process of negotiation that is going on between the local areas and Government Q142 Mr Caton: One of the Local Government OYces, we are only talking at the moment of round Association’s and Climate Change Commission’s about nine which have not had some sort of climate recommendations was consideration of the change indicator as something of a priority. So in statutory underpinning of local government action that respect I think it is largely positive. Whether we on climate change. Should there be a statutory duty go out and name and shame them is something to on local authorities, and indeed Regional consider. Development Agencies and other public bodies, to tackle climate change? Mr Woolas: That is really one for me, I think, is it Q144 Mr Caton: Recognising that variation and not? We believe that the combination of the taking on board what Phil Woolas has said about performance regime and the statutory duties to the Commission talking about a two year timeframe, cooperate on partners will address the objective of is the Government mindful to look again after that the proposal that there should be a statutory duty in sort of period of time to see whether statutory duties a better and more comprehensive and meaningful do need to be placed on local authorities? way. The taking of responsibility and the powers to Mr Woolas: The Government is mindful because of make those responsibilities really does address that, the obligation which we hope the Climate Change but I caveat my answer by, again, pointing out (as we Bill will place upon us, and that will apply across the both have done) the dilemma between devolution board. If we are not able to show that the trajectories and centralisation. So obviously that is something on the reduction of greenhouse gas emissions are in which has been given huge consideration and that is line with our requirements and our international the policy which has resulted. obligations, then we would have to re-examine the Mr Wright: Just to add to that, I do reiterate the policy. I think I am right in saying that in this area point I made to the Committee earlier, Chairman, of sustainability and climate change there are more about clause 147 of the Planning Bill, which sets out Beacon councils than in any of the other categories, that local planning authorities must include in their which is quite encouraging. development plan documents taken as whole Mr Caton: Thank you. Environmental Audit Committee: Evidence Ev 83
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell
Q145 Martin Horwood: A few councils have come up people who do the right thing or invest. Is that with some really quite imaginative financial legally possible? Are there any legal or technical incentives to householders to do things like energy barriers to using council tax in that way? eYciency or renewable energy. We have got one with Mr Wright: That is happening already. Kirklees, I a loan fund which lends people capital to invest in think I am right in thinking, is a local authority in renewables and then reclaims that money only when terms of having council tax incentives. the property is sold. Why are not more of these kinds Mr Woolas: Kirklees operates a revolving loan fund of financial incentives happening? What are the for environmental improvements actually. barriers to these being more common? Mr Wright: To allow and to facilitate local Mr Wright: What I would say is that we are trying to authorities to do things on the ground, it is perfectly encourage this as much as possible. Beacon councils, reasonable. I think there is a cultural challenge, as which Phil has just mentioned, are a good example Phil has just mentioned, in terms of saying, “You of trying to disseminate this good practice. We come can do this,” rather than, “Government won’t let back time and time again, though, Chairman, to us.” It is turning around quite substantial cultural locally devolved ideas and cultures and how that can barriers there, I think. Reiterating one of the themes be best applied to particular local circumstances. we have had already today, that more mature The point you made, Mr Horwood, about the relationship between central and local government is revolving fund, that is something we have applied helping, but I think we have to be mindful of those centrally to the Salix financing fund, which is acting cultural barriers which need to be knocked down. as a multiplier to provide energy eYciency measures, and energy savings can then be recycled back. I am Q150 Martin Horwood: Can I put to you another keen to disseminate that and Beacon councils are example, which may be again not so much about aware that you can do that, but I would be keen to cultural barriers but simply about people not hear more examples as well. knowing what is out there and what powers they actually have and what they can do? The Local Q146 Martin Horwood: I must admit, until I was Government Act in 2000 introduced the new power briefed for this meeting I was not aware that that for local authorities to promote “the environmental, kind of scheme was possible actually. Are you economic and social well-being” of their confident that local authorities actually know that communities. Presumably, they could be using the environmental section of that power to promote they can do things like this? Y Mr Woolas: No. energy e ciency. Do you think many of them are doing so? Mr Woolas: Not enough, Chairman. I think the Q147 Martin Horwood: So is that not your fault? power of well-being was heralded by local Mr Woolas: Yes, it is. It is our responsibility. I think authorities, by senior oYcers and by leaders, but I do we live in a country—and this is the Government’s not believe that has filtered down enough and I think view—which is over-centralised, that we increase the as Members of Parliament when we are addressed performance regime on a centralised basis and with the answer, “We are not allowed to do that,” increase the finances in order to improve the quality the answer is, “The 2000 Act allows you, using the of performance of local government, and that has power of well-being for your area, to do everything worked. We do not see the new regime as a U-turn, the law prescribes other than what the law prescribes we see it as a natural development. The number of you cannot do.” councils we have measured as improving or successful has increased dramatically over the Q151 Martin Horwood: So if enabling powers, course of eight years, and we are now in a new communication, best practice examples and things regime. Characteristic of that new regime is the like this are not really filtering through, does this not requirement for a management and leadership bring us back to this point about statutory culture which says, “We can do things,” rather than, underpinning, that actually maybe we need “Government won’t let us do things,” as the statutory duties and that that is the way you will Secretary of State said at the time of the Government really achieve a step change in local government White Paper. So it is a question of changing culture. performance? Mr Woolas: Chairman, we would see that as a failure. Q148 Martin Horwood: But unless someone such as the Department has told them that these kinds of things are actually possible, it is sometimes diYcult Q152 Martin Horwood: Maybe we are failing them, for people to imagine what they have to do to get are we not? somewhere. Mr Woolas: You could describe it in that way. I Mr Woolas: Well, we are putting some money on the think local government has to step up to the mark. I table, Chairman. think it is capable of doing that. Interestingly, I think I am right in saying that the LGA Climate Change Commission said that councils should have two Q149 Martin Horwood: Could I just ask one specific years but that the statutory duty should be imposed question about financial incentives? The obvious upon individual councils which did not step up to the vehicle for it at local government level is council tax mark. I think I am right in saying that. Yes, I am. I and doing incentives or discounts on council tax for am getting a nod. Ev 84 Environmental Audit Committee: Evidence
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell
Q153 Martin Horwood: So it would be applied and has looked closely at a series of case studies selectively? where this well-being power has been used and Mr Woolas: Yes, but that is coming from the Local applied eVectively, and publication guidance with Government Association, so they clearly think it is a regard to that evaluation will be published shortly. possibility. Q156 Martin Horwood: So can you tell us now how Q154 Martin Horwood: Would you support that many have taken it up? kind of power to enforce poor performers to step up? Mr Wright: No, I cannot. Mr Wright: We are getting, Chairman, to the heart of the issue, which is should it be locally determined or should it be dictated in terms of central Q157 Mr Chaytor: Minister, you started oV saying government diktat? It has to be said that I personally that devolution was at the heart of this policy, but believe in terms of changing around culture if then you stepped back a little bit and said that for the somebody is persuaded of the merits as opposed to last few years government has been highly being told and dictated to, “You have to do this,” I centralised in order to drive up the policy and think there is more ownership, more buy-in and performance of local government. Are you saying more commitment. That is why I come back to the that the reason why we are only now recognising the fact that the Local Government Performance role of local and regional government in the delivery Framework, I think, is appropriate because that of climate change policy is the inadequacy of local level of discussion and negotiation between central and regional government over the last ten years? Are government via Government OYces and the local you saying there was no capacity to deliver until areas I think really helps embed that commitment, now? and I think we are seeing it on the ground. It is early Mr Woolas: That question is directed at me, days, I grant you that, Chairman, but I do think that Chairman, so I will answer it. The level of flexibility is important. That is persuading people rather than in a local authority’s revenue finances has been dictating through quite blunt statutory instruments. extremely limited for many years. It is not a partisan point—well, it is in part—but it was very tight. Q155 Martin Horwood: This is going to become Therefore, for authorities to make changes, to re- quite critical when we have national carbon budgets, prioritise, was very diYcult because they could only is it not? really allow on council tax increases (previously rate Mr Woolas: Yes, it is, very much so. increases). As resources increased, as revenue Mr Hughes: Could I just make one or two budgets went up, it gave them more flexibility, but comments? In terms of the desire to try and make against a background of the drive to improve they sure that councils appreciate what might be were focused, I think, on the areas that the CPA available, certainly from examples from other focused them on. I think the second point is that the councils (i.e. in terms of sharing best practice), just climate change issue, as we all know, has risen up the to mention a few things, most of which have political agenda most in recent years, not least in the happened very recently but which I hope will help to last twelve months and I think local authorities are ensure that best practice to be shared. One is that catching up (as the rest of us are) with that. Of towards the end of last year the Government course, the financial framework, the incentive, other published an Energy Measures Report, which than notably in landfill sites, has not really been the provides advice to local authorities on what they can driver which I think the future policy measures we do. We have also got the Best Practice programme, have described today will be. which the Minister mentioned, which was launched very recently, and again that is going to be providing information not just on best practice but also Q158 Mr Chaytor: But it is now ten years since the assisting with training and on mentoring. Also, the Government signed up to a target-based policy by Nottingham Declaration Partnership are updating signing the Kyoto Protocol and for a number of their website and I think they are looking to launch years we have had increasing numbers of local that in June this year. That is also a source of authorities signing this Nottingham declaration, information for local authorities in order to find out which is a clear indication that they saw a role for what is happening elsewhere, and obviously we have local authorities and they wanted to do more. So my now just had round ten of the Beacon Council question is, why has it taken so long for Government Scheme. We have got climate change Beacon to adjust the system and provide the incentives for councils now, and again there are examples there of local authorities to do more? best practice in terms of what is happening within Mr Woolas: First of all, the United Kingdom is on their local areas as well. So there are lots of things target to meet its Kyoto commitments. The which have been happening very recently or are greenhouse gas emissions are reducing. We should about to happen. not confuse—and I am not saying the question does, Mr Wright: Again, Chairman, following up on that, Mr Chaytor, but we should never confuse CO2 and I think Mr Horwood mentioned the well-being greenhouse gas emissions. We are on target, so my power for local authorities. My department has case is that it is working. Secondly, because it took a funded an independent valuation of the take-up of while for the issue to move from the Cabinet that well-being power, which has been on the Statue Member or chairs of environment committees’ in- Book for five, six, seven years, something like that, trays to the lead Member on finance, the chief Environmental Audit Committee: Evidence Ev 85
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell executive and leaders’ in-trays, I think we have authorities to deliver on the performance indicators passed the tipping point now, for the reasons we 185, 186 and 188, but you are acknowledging that have discussed. some of the local authorities are actually too small or will not have the professional capacity to deliver. Q159 Mr Chaytor: Could I put a question about the I just want to see if you recognise that as a problem. capacity of local government? I am just interested, as Mr Woolas: Can I have a stab at this as well, please, a digression, to read the Hartlepool glossy literature Chairman? If you break down where the emissions from your exhibition there and it speaks about the come from and then try to correlate that with the alluring restaurants, the chic shopping and the capacity of local authorities—and we now have, of exhilarating water sports. course, regional figures and local figures—two Mr Wright: Absolutely! things are very pertinent. The first is that an area’s emissions are correlated to an industrial set-up. I mentioned before that the North East is the region Q160 Mr Chaytor: It does not mention climate in this country which has the highest per capita change and environment, but my question is, what emissions and that is because of the industrial is the capacity in Hartlepool Council, for example, processes which go on in that part of the world. Minister, to deliver on the new requirements you are Mr Wright: And I would assume that Tees Valley is placing on them? Is there the capacity in terms of the part of that team. technical oYcers with the right level of skills? Will Hartlepool be able to deliver an enhanced energy Mr Woolas: The Tees Valley is very much part of eYciency scheme? Will they be able to document that. I would point out for the benefit of my their own greenhouse gas emissions, let alone that of colleague Iain that the domestic per capita emissions other agencies and businesses within Hartlepool? of his area are the best in the country. They are the Mr Wright: I think, Chairman, Hartlepool is a very cleanest people. The opposite is the case in the non- interesting case study, not only because it is the London South East. centre of the universe and has a real renaissance in Mr Wright: We are a clean people! terms of food, as you can see from my expanding Mr Woolas: The less industrial the area is, the less the emissions, but in the non-London South East, in waistline! Y Mr Woolas: Guacamole! the government o ce South East area per capita emissions for domestic use are the highest in the Mr Wright: I think you will find it is guacamole! V Hartlepool is the second smallest unitary authority country because the better o you are, the higher your footprint is. So the strategies and capacities of in the country and cannot deliver on its own. I would V suggest—and this happened whilst I was a member local authorities have to recognise that di erence, so of the local authority—I am not suggesting I was the non-car transport and road, increased powers driving force or anything, but I was the Cabinet through local transport plans, devolution to Member responsible for performance management, regional transport plans, passenger transport which included the estates of the local authority, and authorities, being part of multi-area agreements, we had in 2003/2004, targets with regard to climate getting more power. Forty-two per cent of emissions change and greenhouse gas emissions on the estates are domestic and cars. What powers have local of the local authority. There is very much a authorities got, what capacity have they got outside commitment both from oYcers and members who of the social housing—and there is an open question have been following through for the last five years there as well—there is a mismatch there that we are with regard to this, but there is also a recognition conscious of. On energy, the shift in policy to that Hartlepool cannot perform on its own. So I decentralisation, combined heat and power, greater would bring in a further important point, if I may, renewables and micro, again there is, we believe, Chairman, about multi-area agreements. within the local government and public sector family Hartlepool is part of the Tees Valley and Tees Valley to help individual local authorities to deliver, but of unlimited, which includes Middlesbrough, Stockton course the major energy questions relate to national and others, particularly Middlesbrough are very policies, national planning policies and national focused upon how we can work together to try and energy policies. Industrial symbiosis changes into mitigate and adapt to climate change. So I would say industrial processes that will impact upon areas such as Tees Valley. Capacity within local authorities is that Hartlepool is a very good case study about the V commitment, the level. The cultural key points are not significant enough, frankly, to a ect those areas, there at both member and oYcer level, but also a so partnership approaches at a regional and sub- recognition that we need to work in a sub-regional regional level with the private sector become all- and regional way. I think actually in terms of sub- important. So the way in which I would answer the regional government arrangements Hartlepool very important question you have asked is to stands firm and stands alone after Cleveland and determine it by sector relating to emissions and see after going unitary in 1996. But it also recognises, to what the capacity is to address that. The answer, I be fair, that there are some things which need to be think, is therefore patchy. done in partnership and I think that is where Tees Valley works incredibly well. Q162 Mr Chaytor: Just one little supplementary. You describe it as “patchy”. In terms of the capacity Q161 Mr Chaytor: We have got a mismatch really, to deliver, I want to put to you whether you think it and this is the point I want to tease out, because you is too fragmented because local authorities have a are giving the responsibility to individual local role, individual companies have a role, central Ev 86 Environmental Audit Committee: Evidence
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell government applies the framework and the rhetoric, point on adaptation and mitigation more, in my the Carbon Trust as the role with regard to large view, than chancellors and treasuries in other businesses, the Energy Saving Trust in regard to countries. So I am optimistic on that point, but I smaller businesses, other public sector agencies and think it does need a push. households. We have got an organisation which Mr Wright: I see this as a huge opportunity, provides finance on a match basis with local Chairman, for British industry. I think we can lead authorities. Is there not a powerful argument for a the world and take over from the likes of Germany single, central government agency to coordinate all in having firms, particularly in terms of building this and drive it through, and is not the heart of the firms and the construction industry making sure that problem that within Government itself we adapt innovative products which can help to responsibility is fragmented between the DCLG, mitigate and adapt to climate change which we can Defra and the Treasury? Therefore, the final part of then subsequently export to the rest of the world. I the question is, should we not really be having a think this is a massive opportunity for British department of energy and climate change to pull all industry, in which we can lead the world. this together and drive it through? Mr Woolas: And the Department for Transport, again in terms of emissions. The Government’s Q164 Chairman: Are you afraid that having three policy is that it is better to mainstream it than to specific climate change targets may divert attention restructure to try and solve the problem. away from the need to get climate change considered Mr Wright: I can understand the attractiveness of in the delivery against all targets for local the argument, but I would say that sustainability government? and the ability to mitigate and adapt to climate Mr Woolas: Yes. I think we have to try and reach change should be at the heart of what we do. It is agreement at a UN level on a long-term goal. We following on from what Phil said there about have to build in interim targets within that because mainstreaming, so transport, do we not have a the nature of climate change is that parts per million Department for Transport, do we not have a in the atmosphere of carbon are cumulative with a Department for Communities and Local 30 to 40 year lag for diminishing, so you have to have Government, because emissions arising from a trajectory for scientific reasons. You have to have transport is important and emissions arising from a trajectory with mid-term targets for political and both domestic and non-domestic dwellings account economic reasons to make it right, and one of the for something like half of all carbon emissions? Do concerns over the targets (which we support) is, we not have a CLG in that respect? I have just taken however, the knowledge that those become through the Housing and Regeneration Bill, maximums not minimums and divert you from other something that I am very proud of, but that is the areas, which of course is the criticism of any target. creation of the Homes and Communities Agency, But you have to have for industry and for sectors which will be a national agency charged with helping such as housing, which Iain has mentioned, and facilitate the building of homes and regenerating others a framework in terms of trajectories which infrastructure and communities in England. It will you work towards. I think the other point, have the Academy for Sustainable Communities as Chairman, is the relationship between those targets part of that, which will help address the skills and the carbon market. I think that is absolutely shortage which I think is in Mr Chaytor’s question, crucial, because those targets will inform the carbon Chairman. But I still maintain that it should be market and aVect the price of carbon, and that in about mainstreaming. Sustainable development and itself will help, I think, to meet the point you make, thinking about climate change should be at the heart which I think is a crucial point and is being debated. of what we do, regardless of how the machinery of government is worked. Q165 Chairman: Yes. What I was really trying to get Q163 Chairman: Would it be fair to say that the to were the indicators for local government. You priority the Government attaches to economic have got specific indicators, these three indicators. development makes really putting enough priority Are you nervous that that may mean that the focus on climate change almost impossible for local and is explicitly on those rather than looking at how the V regional and devolved government? whole of local government activity a ects climate Mr Woolas: No, I do not believe that is the case. I change? think the response to the Sub-National Review and Mr Woolas: No, I am not. I am optimistic because of the regional priorities built into the PSA for regional 185 and 186 together. I believe 186, the geographical economic achievement does include climate change. area one, is one of the most empowering articles for Chairman, I think the Committee’s views on this will local government that there has been for many be very helpful. Part of the culture change is the decades within the context of the international penny dropping of Nick Stern’s report. Nick Stern’s recognition of climate change and the domestic report changes the way in which people look at it, policy statutory and financial changes which are and my fear is that the public sector leadership and going on. That will allow, say, a council in the North management intellectually gets it but does not East to work with ConocoPhillips, who have the translate that into decision-making, and I think largest combined heat and power plant in Europe, to when that penny drops from the Stern report that is have a strategy to do more, to the benefit of that area the answer to the question. HMT get the economic and the UK economy, so I am very, very excited. I Environmental Audit Committee: Evidence Ev 87
2 April 2008 Mr Phil Woolas MP, Mr James Hughes, Mr Iain Wright MP and Mr Andrew Campbell hope we get 150 local authorities signed up to PI186 few words, touch wood, the international agreement and we will be watching DCLG’s statements very to back that up. I think that will achieve what you, closely. Chairman, are concerned about, but of course I have not got a crystal ball. Q166 Chairman: We discussed this with you last Mr Wright: I still reiterate the point I tried to make week really, that the science on climate change is earlier, Chairman, which is that with this locally showing that the problem is getting more urgent and devolved agenda where Government is trying to bigger than we had previously understood and that persuade as opposed to dictate I think it has greater by itself may call into question, I think, what would levels of ownership and commitment, and I think otherwise be very sympathetic within your earlier that, backed up with the science—the floods in the answers about not being too dictatorial to local summer, when I travelled around speaking to local government and trying to reduce centralisation authorities, I think it is very clear that people are rather than increase it. This is particularly urgent, seeing the same things as us in terms of central and may become an overriding urgent issue, so that government and local government in respect of the slightly more laidback approach, which instinctively science and it is aVecting them on the ground. That I would be sympathetic to, may become less is helping to turn around the cultural things, because appropriate in the case of climate change because of this is not an academic exercise for them. They are the urgency of it. Looking at the need for a step having to deal with the consequences of climate change in performance, do you think there is still a change on the ground. As Phil has said, that backed risk that councils may focus on other issues in their up with this locally devolved agenda, backed up with Local Area Agreement and do not particularly look money and budgets, really will help change the at the three climate change indicators? culture in local authorities. Mr Woolas: There is a risk, but I think the reassurance I can give in response to that flow of Q168 Martin Horwood: Can I just ask you about thought is the budget, the carbon budgets, the homelessness, where you have got what is a very carbon reduction commitments. I have said before important moral duty, a very important specific duty for some of the population locally, but it does not that it has come out of the in-tray of the environment actually threaten the future of human civilisation? In oYce and into the chief executive’s. The budgets will terms of climate change, could we not have statutory put it right at the heart of the Treasury’s in-tray, so duties laid upon local authorities in the same way financial decisions will follow, and I think that will that statutory duties are laid upon them in terms of change things. Money talks! homelessness, which I think has actually helped to change the culture in the way you describe, at a local Q167 Chairman: Given, as I say, the urgency of the level, where the statutory duties have been part of issue, is there, however, a case for making climate that process of change? It is a balance, is it not? change a national priority? I know there are certain Mr Wright: It is a balance, but in terms of other areas of local government where there are homelessness the way we have pushed the policy signals and incentives created. Do you think we are reiterates and reinforces in my own mind that it is getting to the point where a similar approach is being done by having that locally devolved agenda. needed for climate change? Local authorities in conjunction with the voluntary Mr Woolas: No, I do not, on balance, because I sector have pushed the real changes in homelessness, think in the nature of things if you are devolving you backed up, I would have to say, by the biggest ever have to have an element of trust. You have to ensure cash injection into homelessness services, but I do that the accountability for the public is as strong as not want to make the narrow partisan point. Maybe it is possible to be, and I think the argument could that combination or giving local authorities the always be put that there are other equally important confidence to deal with things on the ground in their priorities, children’s services being the obvious one. own areas, backed up with partnership and I think more importantly than that—and we voluntary sector organisations, and helped with debated this at some length inside the Department, central government funding, has been the way and it is a subjective view, of course, but you get the forward in which we have been able to reduce best when you change the culture, do you not, when homelessness by 73% over the last decade. you get management, oYcers and leaders focused on Chairman: Thank you for your time. I think we are the bigger picture? What is the best way of doing just about to run out of a quorum here. I think the that, on balance, is the more flexible approach, but two divisions slightly depleted our stamina. it is within the framework of the Climate Change Act Anyhow, we are grateful to you for coming in and I and the carbon budgets and carbon reduction hope we can produce some helpful commitments, and what I believe will be in the next recommendations for you when we write the report. Ev 88 Environmental Audit Committeee: Evidence Written evidence
Memorandum submitted by the Nappy Alliance
Executive Summary We welcome the important role that local authorities and regional government play in the fight against climate change. Many local authorities in the UK have introduced Reusable Nappy Schemes which have been instrumental in significantly reducing the amount of disposable nappies going to landfill and thus reducing the amount of methane produced. The Alliance therefore believes that local authorities should be assisted with the funding and administering of re-usable nappy initiatives and we welcome recent initiatives such as the Real Nappy Campaign Limited and Real Nappies for London in doing so. The Climate Change Bill will oVer unique opportunities for local authorities to promote waste reduction and we hope when the Government decides on which areas should pilot financial incentive schemes it will favour those local authorities which seek to include extra financial incentives to those parents who decide to use reusable nappies.
Revised Waste Strategy 1. The Nappy Alliance welcomes the Environmental Audit Committee inquiry into climate change and local, regional and devolved government. There is no doubt that local authorities and regional government have an important role to play in the battle against climate change, particularly in the context of waste reduction. Local authorities across the UK play a crucial role in providing various services and it is clear within their work there are great opportunities to reduce current levels of carbon emissions. 2. Waste is a major contribution to the UK Greenhouse emissions. Landfill currently accounts for 38% of all UK methane emissions, a greenhouse gas which is far more harmful in terms of climate change than carbon dioxide. Therefore, if the government is serious about lowering carbon emissions and reducing the threat of climate change, it is clear that the current levels of waste going to landfill must be addressed. 3. Nappy waste is the biggest identifiable waste stream in household waste and makes up 3–4% of all household waste. With increasing levels of recycling of other waste streams, this percentage is likely to increase even more. The Environment Agency has estimated that the decomposition timescale for some of the materials and chemicals currently used in disposables is more than 500 years.1 The paper-fluV and faeces should take approximately 100 and 10 years respectively to degrade. It is clear that increasing the uptake of reusable nappies could considerably drive down the harmful methane emissions currently emitted in the UK. 4. The Alliance has previously welcomed the Government’s recognition of the waste problem and the positive benefits for waste reduction that reusable nappy use brings. Defra’s funding of the Waste & Resources Action Programme (WRAP), which for three years funded the Real Nappy Campaign, is a prime example of a successful initiative. The Campaign’s aim to encourage 155,000 households to use reusable nappies by March 2007 was an important step and this led to the diversion of “approximately 23,000 tonnes of biodegradable nappy waste from landfill in England”. However, despite the obvious benefits of reusable nappies on the reduction of household waste going to landfill in those local authorities which took part in the pilot schemes, the Department decided to discontinue funding the Campaign. 5. Many local authorities across England already successfully operate a number of local reusable nappy schemes which seek to encourage the use of reusable nappies amongst households with young children. The Alliance believes that local authorities should be assisted with the funding and administering of reusable nappy initiatives, which are constructive and sustainable with clear environmental benefits. It is vital that local reusable nappy schemes continue to receive the much needed financial support from local authorities, particularly now that central funding through WRAP has dried up. In addition, in local areas where reusable nappy schemes are in place, councils should be encouraged and supported to eVectively promote their existence through adequate council recycling guides. 6. The Nappy Alliance is grateful to the Local Government Association for its eVorts to promote reusable nappies and real nappy schemes amongst its local authority members. In addition, the Real Nappy Campaign Limited which will be operational from early 2008 onwards, will seek to promote the use of reusable nappies and provide information, in partnership with WRAP, to young parents and local authorities who are keen to reduce their contribution to landfill. 7. Earlier this year, the Women’s Environmental Network launched Real Nappies for London, a London-wide incentive scheme which seeks to help parents in choosing and trying cloth nappies. It provides a prime example of how local authorities have worked together to help young parents with the initial purchase cost of reusable nappies through the introduction of a scheme whereby vouchers can be exchanged for reusable nappies and accessories at listed retailers or for a trial period with a nappy laundry service.
1 Environment Agency, Life cycle Assessment of Disposable and Reusable Nappies in the UK, 2005. Environmental Audit Committeee: Evidence Ev 89
8. The Nappy Alliance supports the Climate Change Bill and the ambitious legally binding target to cut carbon emissions by 60% by 2050. The Alliance particularly welcomes the element of the Bill which seeks to introduce pilot schemes for financial incentives to be piloted in five local authorities aimed at improving recycling and waste reduction. This part of the Bill oVers a fantastic opportunity for local authorities to come up with creative solutions for reducing waste. Building on the progress of previous work with WRAP through the Real Nappy Campaign, reusable nappies would be an ideal candidate for such schemes. 9. We welcome the Bill’s provisions (Schedule 5, Paragraph 2) which acknowledge that incentive schemes in the five pilot local authorities need to take into account the needs of certain disadvantaged groups. However, we are concerned about the proposals laid out in the Defra consultation on financial incentives which preceded the Bill and which stated that these disadvantaged groups should include young parents specifically because of their dependency on disposable nappies. We believe this would eVectively encourage local authorities to give up on reducing the largest category of household waste, disposable nappies. Given the anticipated increase in the recycling rates of other waste categories within household waste, the percentage of disposable nappies in the total household waste is likely to increase significantly. 10. Given the availability of reusable nappies as a viable and user-friendly alternative to disposable nappies, we are concerned that local authorities who do not include exemptions for young parents in their bid to the Secretary of State to become one of the five pilot authorities will be excluded should they have decided not to do so in their bid in a drive to reduce the dependency on disposable nappies locally. 11. There are many case-studies elsewhere in Europe which show that variable charging can lead to a sustained decrease in the amount of household waste going to landfill. For example, a recent study in Schweinfurt, Germany, has shown that after the introduction of a form of variable charging, the amount of disposable nappies which ended up in landfill decreased by 33% as a result of parents switching to the use of reusable nappies.
Who We Are
The Nappy Alliance was established by independent providers of reusable nappies to act as the trade body for the commercial market of reusable nappies, to promote their use amongst new parents and to address the ongoing issue of the 3 billion disposable nappies which go to landfill in the UK every year. The Alliance promotes awareness of the key benefits of reusable nappies. Aside from environmental benefits, reusable nappies oVer consumers a choice, one which can be informed through benefits to the baby, cost eVectiveness and the wider environmental impacts. In addition, considerable financial savings can be made, with disposables costing as much as three times that of reusable nappies, with an average saving of £500 per baby for home laundered nappies. December 2007
Memorandum submitted by Scotland & Northern Ireland Forum for Environmental Research (SNIFFER) SNIFFER identifies and manages research with the aim to increase knowledge to help protect our environment and improve quality of life. We do this through an evidence based approach to gathering and disseminating information. The key components of what we provide are: — research management and coordination; — knowledge exchange; and — horizon scanning.
1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government?
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? Ev 90 Environmental Audit Committeee: Evidence
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action?
4. To what extent should there be disaggregated targets for diVerent levels of government? How should independent targets, for example Scotland will set its own emissions target for 2050 (80% reduction rather than UK target of 60%) and the Greater London Authority has committed itself to making a 60% cut by 2030, fit together with national carbon targets and budgets? How can Government monitoring and forecasting of emissions be improved so as to disaggregate emissions, and the impact of carbon reduction policies, in diVerent regions and nations? Further resources need to be allocated to allow refinement and development of the disaggregated GHG emissions inventories. For example, in Scotland the “Scotland’s Share” approach has been taken to considering, measuring and projecting emissions. This approach diVers in some extent to the methodology being trialled in other areas of the UK such as Northern Ireland and the approach being explored in Wales. Whilst the Devolved Administrations are liaising with Whitehall over monitoring and forecasting work, further opportunities for co-ordination could be explored by the additional input of UK government resources.
5. How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are local authorities, regional government and devolved administrations? The Scottish Government’s National Adaptation Programme is in the early stages of development, with anticipation growing regarding the launch of a public consultation on the Scottish Adaptation Strategy expected in February 2008. In advance of this adaptation work the Scotland & Northern Ireland Forum for Environmental Research (SNIFFER) has been contributing to research, knowledge exchange and awareness raising activities in the field of Climate Change Adaptation since 2001: 1. SNIFFER—Climate Change Adaptation Research: — The business risks of climate change to public sector organisations. — Survey of climate change activities for local authorities (2004). — Handbook of Climate Trends across Scotland (2006). — Preparing for a Changing Climate in Northern Ireland (2007). 2. SNIFFER—Climate Change Adaptation Activities: — Awareness raising workshops for Scottish Local Authorities on Climate Change Impacts. — Integrating Scotland’s data requirements into upcoming Climate Change Scenarios for UK. — Publishing partnership research on climate change risks. — Highlighting adaptation activities within UK Adaptation Policy Framework. 3. SNIFFER—provide secretariat for Scotland Climate Change Impacts Partnership (SCCIP): SCCIP is an initiative commissioned by Scottish Government to bring together stakeholders in Scotland to collectively address and prepare for the impacts of climate change, and provides a research and knowledge management service. The vision for SCCIP is to “increase the resilience of organisations and infrastructure in Scotland to meet the challenges and opportunities presented by the impacts of climate change”. Members of the SCCIP Development Group include representatives of Scottish Government, Scottish Environment Protection Agency, UK Climate Impacts Programme and the Sustainable Scotland Network. 4. SCCIP outcomes to date: — Awareness raising workshops for Scottish Local Authorities on Climate Change Impacts (May 2006). — Integrating Scotland’s data requirements into upcoming Climate Change Scenarios for UK (ongoing input to UKCIP08 users group). — Highlighting adaptation activities within UK Adaptation Policy Framework. — Launch and maintenance of SCCIP website www.sccip.org.uk — Research project for Local Authorities—climate change mitigation and adaptation tools (November 2007). Environmental Audit Committeee: Evidence Ev 91
— Contributing to the Local Authority Climate Change Declaration Support Group, and forthcoming Action Plan, as led by Sustainable Scotland Network, in support of Scotland’s Local Authorities meeting the commitments set out in the above Scotland’s Climate Change Declaration. 5. SCCIP—current work programme: The work programme for 2007–08 has a strong focus on providing support and tools to stakeholder interests across Scotland. Key adaptation projects include: — Local Climate Impacts Profiles for Local Authorities. — Training courses on UKCIP08 Climate Change scenarios. — Further engagement with sectors this year to identify their support and capacity building needs.
6. How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK? The Committee on Climate Change requires an open and accountable process for selection of committee members to ensure fair and appropriate representation across the diVerent levels of government across the whole of the UK.
7. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well?
8. What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions?
9. Are local authorities meeting their duty to enforce building regulations in relation to environmental measures? Does the enforcement regime discourage non-compliance?
10. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? 21 December 2007
Memorandum submitted by the Environmental Services Association ESA is the sectoral trade association for the United Kingdom’s waste and secondary resource management industry, a sector contributing around £9 billion per annum to GDP. Our Members wish to recover more of the value contained in the UK’s waste whilst continuing to protect the environment and human health.
Mitigating Climate Change The waste management industry handles huge volumes of waste carbon. This carbon can either contribute to UK emissions of greenhouse gases, mainly as a result of methane emissions from landfills, although as described below this methane is also one of the UK’s main sources of renewable energy, or it can result in net reductions of emissions of greenhouse gases through energy recovery or materials recycling. The waste management sector has already made significant strides in reducing emissions of greenhouse gases. Between 1990 and 2005 methane emissions from landfill fell by 61%. Much of this reduction was a result of methane being captured for energy recovery, oVsetting energy production from fossil fuels although some methane has been flared. Modern landfills can capture over 80% of methane generated and as a result produce about one third of the UK’s renewable electricity. However the UK faces a huge challenge if it is to comply further with EU law and deliver the Government’s objectives set out in the waste strategy: — thousands of new, smaller and geographically dispersed waste management facilities are needed to replace landfills. National and local government policies must facilitate the development of such facilities; — Defra believes the UK must invest £11b in new waste management capacity by 2020; and — England must reduce the annual amount of Biological Municipal Waste (BMW) landfilled to 11.2 million tonnes by 2009–10, 7.5 million tonnes by 2012–13 and 5.2 million tonnes by 2020. If it does not, the UK will be liable for EU fines of up to £500,000 per day. Ev 92 Environmental Audit Committeee: Evidence
Since 2002, the Landfill Allowances Trading Scheme (LATS) and the landfill tax have been the principal drivers to reduce the landfill of MSW but these policy instruments can only deliver compliance with EU law and associated carbon savings if suYcient alternative infrastructure is available to manage waste. A more responsive planning system is needed because obtaining planning permission remains the single biggest barrier to the timely delivery of new waste management infrastructure. The Planning Bill currently proceeding through Parliament should be used to ensure proposed planning reforms adequately address England’s waste management needs in the context of the impending targets of the EU Landfill Directive. In principle, the Government’s proposals to devise a National Policy Statement for waste could help to deliver a range of waste management infrastructure. However, the current focus on large scale infrastructure is too narrow: instead, policy should recognise that waste management facilities of varying sizes, types and capacity are essential. The reduced biodegradable content of Municipal Solid Waste (“MSW”) being sent to landfill will reduce methane generation in landfill. However given the lag in waste disposal, subsequent capping of the site, and the beginning and peak of gas production, significant volumes of landfill gas will still be produced for decades. Operators should be incentivised to continue to capture and generate energy from landfill gas. However HMG’s Energy Review in May 2007 actually reduced the incentive for operators to generate electricity from landfill gas by reducing economic support under the Renewables Obligation. Given the right economic incentives, much more energy could be generated from waste—whether from landfill gas or other sources—using a range of technologies and oVsetting carbon emissions from fossil fuel- sourced energy. The UK continues to generate much less energy from waste than other Member States and ESA has called consistently for all energy from the biodegradable fraction of MSW to be supported by the Renewables Obligation, no matter what technology is used to recover energy.
Adapting to Climate Change While mitigation of greenhouse gas emissions will continue to be central to the UK’s response to climate change, the high post-industrial levels of carbon dioxide already in the atmosphere mean that some of the impacts of climate change are already unavoidable. Climate change models suggest that flood risk in the UK will increase, with the likelihood of more intense storms increasing as well. This will impact upon existing waste management infrastructure as well as aVect the appropriateness of the design of new facilities. It is therefore essential that HMG provides the necessary support for planning authorities to consider properly climate change impacts when making long term decisions about the location and design of waste management facilities. The predicted climate change impacts will also have the potential to disrupt supporting infrastructure and business continuity. It will become imperative for HMG to have suitable disaster plans in place to overcome disruption and ensure that impacts to human health and the environment are minimised. Diverting waste to alternative destinations in the event of disruption, coupled with the increasing risk of damage to sites, would also be likely to raise waste management costs. 21 December 2007
Memorandum submitted by Salix Finance Ltd There are three types of action on climate change. The first is getting climate change up the corporate agenda so that energy eYciency becomes a strategic issue for the organisation. The second is the implementation of no- and low-cost measures such as staV awareness campaigns, energy management audits, simple energy management measures such as closing the windows and active management of lighting and heating controls etc. The Carbon Trust supports organisations to do all this through its Carbon Management Programme and other programmes. The third action is investment—finding the capital to replace high carbon technologies with low carbon ones. Salix Finance was set up in 2003 with Defra funding to help the public sector by setting up ring-fenced capital loan funds, matched by and based in the organisation. These funds invest in discrete, cost-eVective energy eYciency projects that pay back into the loan fund using the energy savings that they realise. The fund is therefore replenished so that it can invest in more projects over time, and eventually becoming self- sustaining. Salix has 72 clients across the UK in Local Government, Police and Fire authorities, Higher Education, NHS Foundation Trusts and Central Government. Between them our clients and Salix will be managing funds of around £40 million by the end of the current financial year. So far our clients have saved 180,000 tonnes of CO2 at a lifetime cost of £12/tCO2. Environmental Audit Committeee: Evidence Ev 93
Our experience with these clients gives us a good insight into the barriers faced by Local Government and how these barriers can be overcome. There are two main reasons why things go wrong. The first barrier is lack of capital. In the past it was revenue budgets alone that were under pressure. However capital resources are now tight across the public sector and will get tighter in the next spending round. So even when sustainability is a stated objective of the organisation, and a senior Director supports the project, the needs of the organisation’s core business come first when money is tight. Even relatively capital-rich authorities can have diYculty in assigning up-front capital for energy eYciency when there are other projects that need support with greater political support. Also, energy eYciency projects can be “value engineered” out of a major project when capital is constrained. The second barrier is lack of people and skills. Implementing projects is a people-intensive process, needing commitments from several departments: Estates, Legal, Finance and Sustainability, and possibly also the Chief Executive’s oYce. The support of elected Members can also be important. Pulling all this together needs someone with strong interpersonal skills as well as specialist skills such as procurement and project management, both of which can be in short supply in the public sector. The combination of skills is diYcult to find in the energy management market, and when the right person can be found they are often severely over-stretched. The energy manager grade is also relatively poorly paid and increasingly we are seeing energy managers moving from public sector to private sector, where salaries are more attractive. The Salix funding model is designed to help with the first barrier. The recycling nature of our funding also means that energy savings from the revenue budget are used to oVset the initial capital outlay, and once the Salix loan is paid oV it can be used to support whatever the client wants. This makes a powerful and compelling business case in organisations that are increasingly required to bring in spend-to-save funding from outside the authority. Clearly with more funding we can support more clients, and we expect that our funding in future years will allow us to grow our support. The resource barrier is much harder to tackle. With the resources at its disposal Salix on its own cannot solve the problem, although we do allow clients to use our funding to support energy management at the margins so that they can implement the projects we fund. But this does not address the central problem; that project management and related skills are in short supply in the public sector. This is a matter for ourselves, the Carbon Trust, the Energy Saving Trust, Government, LGA, SOLACE and other sectoral groups. We propose that Government brings all sides together to discuss this as a matter of urgency as part of the development of the new LA performance framework. Finally, Government policy is tightening on the public sector. The Climate Change Bill will have an impact on all sectors of the economy. Government is committed to take a leadership role to encourage others to take action. Several sectors have energy eYciency targets (health and Central Government). All larger organisations will be covered by the Carbon Reduction Commitment. The Energy Services Directive will require the public sector to demonstrate “exemplary performance”. And most importantly in local government, the new performance framework will include carbon targets for the first time. It is our view that a tightening policy environment is good for the environment in the long run. However as a publicly-funded body Salix is at the coal-face because it provides the public sector with the tools they need to deliver on these policy commitments. At present it is very diYcult to predict what level of demand we will see for our services, and over what timescale this demand will develop. There is a real risk that we will be faced with demand that we cannot meet. We therefore also recommend that Government carries out a risk assessment of the possible impact of its policies on organisations like ourselves as part of the overall CSR process. 2 January 2008
Memorandum submitted by Northwest Regional Development Agency
1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government? Central Government has an important role to play in encouraging the adoption of regional and local targets to stimulate action. In particular, Central Government can provide robust (and back calculated) data-sets, dis-aggregated to the regional/local level. Central Government, through planning legislation, can set a strategic direction to encourage a significant shift in energy and waste infrastructure. Through other enabling legislation, Government can also stimulate behavioural change through positive financial incentives. Doing the “right thing” should also be the cheapest and easiest course of action. Ev 94 Environmental Audit Committeee: Evidence
Additional funding, suitably targeted, is also a key enabling mechanism. Rather than create new funding streams, embedding carbon reduction criteria into all existing funding streams may well accelerate progress and stimulate improved awareness and behavioural change, perhaps initially for funding allocated through Local/Multi Area Agreements. There is an opportunity to ensure that carbon accounting is embedded into all investment decisions, especially capital, utilising the SCC methodology. The public sector should be enabled to lead the way in low-carbon procurement specification and in developing low-carbon supply chains. Governance structures on climate change are still developing both regionally and locally, robust structures are critical and further advice and guidance from government on best practice would be welcomed. Given the cross-sectoral nature of the issue there is also the potential for local authorities to be tasked with developing climate change partnerships, akin to the requirement for Crime and Disorder Reduction Partnerships, perhaps through LSP structures and/or at sub-regional level. At a regional level it is reasonable to expect Development Agencies to take a championing role on climate change, ensuring that all key partners are brought together and work is coordinated. This is already happening in the Northwest through the Northwest Climate Change Partnership.
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? Clarity of roles is still developing. The Northwest is taking a lead in ensuring that all stakeholders are engaged at the appropriate level. Regionally, the Northwest Climate Change Partnership has been established, the Northwest Climate Change Action Plan has been developed as a part of the Regional Economic Strategy, and the Northwest Climate Change Unit has been created to deliver it and monitor progress. Given the high number of local authorities within the region (44), local delivery of the regional Climate Change Action Plan is being developed through our five sub-regional economic partnerships (which each have local authorities as part of their membership), through the employment of dedicated coordination resources and communications activities. It is however, too early to assess whether this approach is eVective in ensuring coordination between the Regional Action Plan and local delivery. The Nottingham Declaration has been promoted heavily within the Northwest, including workshops in all local authorities to promote sign-up. Currently approximately ² of local authorities have signed up and this is providing an excellent first step in galvanising action. However, the eVectiveness of signing up to Nottingham is not proven unless backed by the resources required to turn commitment into eVective action. Additionally we are aware that a number of non-signatories are performing well, if not better, through activities such as the Carbon Trusts’ Carbon Management Programme, and in embedding climate change into Sustainable Community Strategies and Local Area Agreements. The Nottingham Declaration should therefore not be seen to be the benchmark for local authority activity on this issue, but rather a tool that can be used if necessary.
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? The delivery of the climate change agenda should be at the core of local and regional governance. The performance indicators are welcomed, should provide a real impetus for action at a local level, and provide an opportunity to engage Local Strategic Partnerships through Local Area Agreements. However, it is yet to been seen whether this will bring about the level of activity and resource alignment required to deliver real change, without integration in performance assessments. This could be particularly acute for the most important indicator—community carbon emissions (NI186)—the data for which will be provided to local authorities, and which without being performance assessed runs the risk of not being owned by the local authority.
4. To what extent should there be disaggregated targets for diVerent levels of government? How should independent targets, for example Scotland will set its own emissions target for 2050 (80% reduction rather than UK target of 60%) and the Greater London Authority has committed itself to making a 60% cut by 2030, fit together with national carbon targets and budgets? How can Government monitoring and forecasting of emissions be improved so as to disaggregate emissions, and the impact of carbon reduction policies, in diVerent regions and nations? Ownership of emissions targets at the correct level is crucial if we are to establish eVective governance and deliver real change. It is critical that national targets are disaggregated down to both the regional and local level, and in some circumstances at sub-regional or city-region level. There is concern however that these targets must be complementary and consistent. Local targets should cover those areas which local authorities (and LSPs) have control, feeding into sub-regional and regional targets which can then bring in Environmental Audit Committeee: Evidence Ev 95
areas outside of the scope of local authorities (high energy users, major roads, etc). There is current concern that many regions are developing emissions inventories and targets, in the absence of disaggregated national targets for the regions, but that locally there appears to be the start of local target setting through Defra’s NI 186, which has the potential to drive a wedge (or at the very least cause significant confusion) between local and regional.
5. How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are local authorities, regional government and devolved administrations? The delay in finalising the national adaptation framework has not helped to advance adaptation response at regional or local levels. The proposals in the draft climate change bill to support adaptation measures will however help to resolve this matter. The establishment of UKCIP and the regional climate change partnerships 10 years ago have provided much required tools, identify good practices (adaptation wizard) and co-ordination of climate change activity respectively. In the North West a new partnership has been established to oversee the delivery of the region’s climate change action plan issued last year. In addition to the new partnership a new adaptation group has been established providing a regional focus on adaptation actions and measures. Many of these initiatives are being financially supported by the NWDA as many of the other regional partnerships have only limited resources to encourage action. At a local level, many North West local authorities have signed up to the Nottingham declaration and are in the process of preparing sub-regional climate change strategies or action plans which include both mitigation and adaptation. Again in general the focus is still typically on mitigation. The proposed adaptation national indicator will assist in driving adaptation initiatives by local authorities, but real action will be dependent upon them choosing this indicator for their local area agreement. The next challenge will be ensuring there are appropriate and suYcient resources to implement the appropriate adaptation responses.
6. How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK? The Climate Change Commission needs to be aware of the need to support action at regional and local level, and not driving forward change that could be viewed as an imposition. It also needs to be aware of the diVering requirements of each of the regions and the disparities between economic activity and hence the carbon impacts of them. There is a need to ensure that narrowing the gap in well-being and economic activity between regions and localities is taken into account.
7. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? Local and regional government have a crucial role to play in ensuring that the mechanisms are in place to mitigate and adapt to climate change, however it is becoming increasingly apparent that local concerns over relative competitiveness and impacts of practical solutions on communities are a barrier to progress. This is particularly apparent with regard to renewable and low carbon energy generation—from wind farms to energy-from-waste projects—and in gaining support for low carbon development above and beyond building regulations—which is a particular concern for areas of housing failure. Strong regional and sub regional governance is crucial in order to overcome these barriers, in providing a holistic regional framework for the delivery of the more diYcult solutions and in providing the leadership required.
8. What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions? The requirements in the supplement to PPS1 will be crucial for the medium term in delivering real change in the planning system, and in shaping the ability of local and regional government to respond to this challenge. We are yet to fully digest the statement, however from initial assessment it appears that the Statement will significantly strengthen the planning systems’ response to the issue. Initial thoughts are: — Reinforcing the link between travel and land use is very welcome, however paragraph 25 does contain an understandable, but potentially undermining, opt-out for rural development. — The support for decentralised energy across the statement is again very welcome. However, there is a need for further assessment regionally of the impact that these targets will make, if applied locally, to centralised energy sources in the medium to long-term, and therefore the impact on our Regional Energy Strategy. Ev 96 Environmental Audit Committeee: Evidence
— We also welcome the flexibility in the statement, allowing our leading local authority’s on climate change to apply standards above both building regulations and RSS targets for decentralised energy, however there is a need to assess existing Merton-style policies to ensure compatibility with the guidance. Overall, the statement is welcome but its’ eVectiveness to drive change will be dependant upon the ability of local planning authorities to apply its objectives. There is also a real need for continued funding to demonstrate low-carbon buildings and technologies, adaptation techniques, and to bring innovative low- carbon technologies to market. Helping to build the knowledge base of all stakeholders.
9. Are local authorities meeting their duty to enforce building regulations in relation to environmental measures? Does the enforcement regime discourage non-compliance? There is no evidence to suggest that local planning authorities are not discharging enforcement duties, however there is anecdotal evidence that the capacity of building control to respond to an increasingly changing environment is proving costly and diYcult. This is especially true in circumstances when additional requirements such as the Merton Rule are adopted by authorities, when often Building Control have had to be assisted by environmental colleagues in assessing and understanding the requirements. The issue of resources available for enforcement will become increasingly important as new regulations on low-carbon technologies increase, especially in enforcing and monitoring of small scale renewables.
10. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? This is an area which needs further support in the short term, there is a lot of positive activity and best practice developing, but the skills and knowledge required is not widespread. There is a critical role of national organisations in disseminating this best practice and ensuring that there is a central pool of expertise for the regions and local authorities to draw upon. 2 January 2008
Memorandum submitted by the Regional Development Agencies (RDAs) 1. This response to the Environmental Audit Committee’s Inquiry into climate change and local, regional and devolved government is submitted on behalf of England’s nine Regional Development Agencies (RDAs). A number of RDAs will also submit individual evidence to the Inquiry to elaborate on the issues addressed in this response. 2. The RDAs’ mission is to transform England’s regions through sustainable economic development. In the period since our establishment in 1999, the RDAs’ strategic role has deepened and broadened across the regional economic landscape. RDAs’ core intervention areas have grown to encompass enterprise, innovation, business support, regeneration, economic inclusion and skills development. The changes announced in the recent Sub-National Review of Economic Development & Regeneration will further RDAs’ remit (except in London 8) where the GLA Act 2007 has already assigned further powers to the Mayor of London, including a statutory duty to tackle climate change mitigation and adaptation).
1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government? 3. Strong action is already being taken at regional and local level. RDAs’ established regional leadership role in shaping strategies and mobilising partners; our delivery role in supporting businesses, commercialising new technologies and innovations; and our investment role in physical regeneration and development, means RDAs are already helping regions address the challenges and opportunities of climate change. Our track record in developing creative and innovative approaches to the economic dimensions of climate change; our ability to bring regional and sub-regional partners (public, private and third sector) to the table; and our strengths as a network in disseminating good practice are delivering a step-change in the response to the climate change agenda. Regional Development Agencies recently published a pamphlet setting out the action we are taking to tackle climate change and making a series of commitments to future action. 4. We believe that to be a leading competitive global economy we need to be an exemplar at home and a leader internationally and RDAs are committed to leading that agenda at regional and sub-regional level. Such actions should be seen in the context of the clear understanding at regional level, as set out in Regional Economic Strategies (RES), that quality of life and living within environmental limits represents a Environmental Audit Committeee: Evidence Ev 97
competitive advantage for England’s regions. When powers are devolved to the regional level, RDAs and other regional and local bodies are proving their ability to deliver carbon emission reductions through innovative action. All regions are already making emission reduction savings, often led by RDAs, and will continue to do so as the urgency of climate change increases.
Setting and Achieving Targets 5. Central government has a vital role to play in setting national targets and encouraging the adoption of regional and local targets to stimulate action. Please refer to our answer to Question 4 for detailed views on setting and achieving targets.
Policy Framework and Strategic Influencing 6. Through the policy it drafts and implements, central government can drive forward action on mitigation and adaptation and other climate change related areas. There needs to be a mainstream and consistent climate change and carbon reduction policy and strategy framework nationally and regionally with policies and priorities based on common and robust evidence and intelligence. Whilst progress has been made, there remains a lack of consistency across government in the desire and implementation of policy on climate change. The Climate Change Bill should help to address this, but behavioural change across government departments and national public sector bodies is also required to achieve the necessary step change. By embedding climate change considerations into policy development, government can set a strategic direction which will drive change. For example, through planning legislation, it can set a strategic direction to encourage a significant shift in energy and waste infrastructure. It must also seek to minimise inconsistencies between its policies. Enabling powers in the draft Climate Change Bill, have insuYcient emphasis on facilitating new instruments across all areas of policy to actually deliver emissions reductions and these therefore need to be strengthened. 7. Embedding consistent carbon reduction criteria into all government funding streams is critical to accelerating progress, driving innovation and helping to achieve behaviour change which is needed. Rather than creating new, separate funding streams specifically designed to address climate change, it might be appropriate for the Government to use existing architecture and try to mainstream the issue of climate change by driving action forward through existing and proposed new mechanisms. For example, hypothecated landfill tax receipts in the form of the BREW programme can make a significant contribution to tackling climate change; however, there needs to be a strong regional and sub-regional component to BREW funding if regional and local energy and dynamism in this arena is to be incentivised. A truly ambitious Defra in this regard might, for instance, increase the relative sub-national BREW funding streams vis-a-vis current, often nationally segmented approaches to funding. This would reinforce the emerging Single Regional Strategies (together with any climate change indicators that are agreed as part of those strategies) and LAA/MAA approaches to sub-national development. However, in fact, indications suggest Defra intend to do precisely the opposite of this—reinforcing nationally-segmented streams and reducing or eliminating sub-national commissioning through the RDAs. This is likely to be a significant disruption to sub-national delivery in the short-run, and is arguably counter to the intentions of SNR in the medium- term. At the very least, decisions on the amount of funding RDAs can expect (if any), to create the capacity to deliver their component of the Business Resource, EYciency and Waste (BREW) Programme in 08/09, has not yet been announced which makes it very diYcult to maintain momentum of existing initiatives, and forward plan with partners. 8. The Government needs to recognise the importance of regions and cities in tackling climate change. There is no mention of regions in the Climate Change Bill. There also needs to be a stronger endorsement of the need to deliver low carbon cities.
Additional Investment 9. The Government needs to provide additional investment, via existing regional and local infrastructure, in skills development and training packages, in research and development, in promoting innovation and in attracting inward investment. The RDAs currently fund over 12% of the publicly supported R&D investment in energy (including renewables), enabling us to spearhead work in the development of low carbon technologies. This work could benefit, however, from additional public funding for science, innovation and R&D which prioritises interventions that accelerate a genuine shift to a low carbon economy. RDAs play an important role in promoting and supporting innovation; the recent report of the Commission on Environmental Markets (CEMEP) highlighted the importance of innovation support and creating forward markets (eg through public sector procurement) in creating a low-carbon economy and to position UK business to capture global market share in low-carbon technology and services. The RDAs will need to work closely with government on delivering these aspirations. RDAs play a significant role in the skills development agenda. We are working to identify the new skills needed to face the challenges and opportunities for the future and are working with partners to enhance entrepreneurial and leadership skills. We are working with the Sector Skills Councils to ensure that need is recognised and accommodated and with schools, FE and HE institutions to consider the need for adaptation of the curriculum to develop the Ev 98 Environmental Audit Committeee: Evidence
knowledge, understanding and skills required on this agenda. Some RDAs have even been helping with the delivery of targeted training programmes, for example, South West RDA is funding a programme to help build capacity within local authority councillors on renewable energy issues whilst emda is delivering a green infrastructure awareness and capacity training programme for local planners. All of these areas of work, however, require additional investment from government if they are to drive forward the pace at which changes are taking place.
Transport 10. National and regional transport priorities need to promote integrated and sustainable transport choices with key investments and improvements delivered swiftly and eVectively. The Department for Transport has recently published a discussion document “Towards a Sustainable Transport System— Supporting Economic Growth in a Low Carbon World”. This sets out the Department’s response to the Eddington study and Stern review. This includes five strategic goals for transport including one (goal 2) that seeks to address climate change by cutting emissions of carbon dioxide and other greenhouse gases. The paper recognises that various actions should be taken forward to address these including behavioural change measures, making better use of our existing transport system, technological innovations, pricing signals, regulation and enforcement, and enhanced public transport services, as well as investment in infrastructure. It is vitally important that Government guidance on transport appraisal techniques, and scheme development mechanisms, are refreshed to ensure that the greenhouse gas consequences of these actions are fully considered. The guidance should also incorporate advice on handling the adaptability of transport proposals to climate change. 11. This will ensure that as interventions come forward for funding from scheme promoters (including local authorities), the climate change consequences are fully considered, and that resilient transport networks are developed. In addition, it will be important that these impacts are also reflected in other decision-making processes such as transport prioritisation exercises for the Regional Funding Allocations. The proposed review of the Department’s “New Approach to Transport Appraisal” will be a key mechanism through which these can be incorporated, but it will be important that as other DfT guidance is published it also reflects these issues. 12. The current technology development platforms are a vital lever for funding and stimulating regional activity. In addition, there should be greater rollout of the “Sustainable Travel Towns” concept currently being piloted in Darlington with funding from the Department of Transport. In a relatively short timescale a 12% shift from car use to public transport has been achieved.
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? 13. The RDAs view their role as providing regional leadership on the economic dimensions of climate change, both adaptation and mitigation. This includes developing markets for low-carbon technology and services, along with support for R&D and innovation in key sectors (eg environmental technology). 14. RDAs are currently responsible for leading the development of Regional Economic Strategies (RES) which shape the growth and development of the regions. AWM and EEDA are both in the process of producing low carbon RES, building on the low carbon focus which SEEDA introduced into their RES last year and all RDAs are committed to including carbon reduction targets within their Corporate Plans. The Sub-National Review of Economic Development and Regeneration (SNR) has tasked RDAs (with the exception of London) with leading the development of Single Integrated Regional Strategies which will bring together the Regional Economic Strategy and the Regional Spatial Strategy and cover economic growth, planning and housing, as well as setting out social and environmental objectives for each region. These will replace the existing Regional Economic Strategies. RDAs will be ensuring that climate change adaptation and mitigation and low carbon aspirations are embedded in these Single Regional Strategies which will direct the investments of many public and private sector partners at regional, sub-regional and local level. It should be noted that many aspects of the Sub-National Review will not apply to London, however the Mayor now has additional duties relating to climate change. The London Development Agency is playing a key role in helping to deliver the Mayor of London’s Climate Change Action Plan, with the Mayor having made tackling climate change central to many policy areas over which he has powers. The ambitious Climate Change Action Plan aims to stabilise London’s CO2 emissions in 2025 at 60% below 1990 levels and LDA’s recently launched Green Homes and Green Organisations programmes will make a significant contribution to delivering this target. RDAs have also committed to influencing key public and private sector partners to support regional carbon targets and adopt further voluntary targets. 15. All of the RDAs are supporting Regional Climate Change Partnerships and a number of RDAs have lead on the process of developing Regional Climate Change Action Plans, whilst others have just started down this route. The Regional Climate Change Action Plans, combined with the new Single Regional Strategies (where applicable), should provide the clarity as to which organisations are contributing to which Environmental Audit Committeee: Evidence Ev 99
aspects of climate change. It will be important that both of these documents provide the same strategic direction and clarity to ensure they become the valuable tools they have the potential to be; identifying the roles local authorities, sub-regional bodies and regional bodies can play to contribute cohesively to addressing climate change. 16. RDAs believe that they should act as exemplar organisations for carbon reduction, demonstrating to private and public sector organisations the potential to change and as such have launched a number of commitments. We have committed to having environmental/carbon management systems in place by 2010 with the view to becoming carbon neutral. We are committed to setting carbon reduction targets in our Corporate Plans and publishing the carbon we expect to save as a result of implementing our policies and programmes in 2010 and 2020. We are also committed to ensuring that all capital build projects that RDAs invest in strive towards achieving the BREEAM “Excellent” standard (or equivalent) including a percentage of recyclate material and a percentage of energy supplied by renewable energy. 17. Through RDA stewardship of sub-national business support, we are supporting businesses to improve the environmental footprint and eYciency of their operations. We are currently piloting the delivery of resource eYciency advice to SMEs through the Business Link network, an outcome resulting from the jointly chaired Healey/Ellis2 Taskforce on Business Resource EYciency. RDAs are at the heart of the Business Support Simplification agenda and, as such, are encouraging the mainstreaming of business support programmes and the progression of businesses towards a low carbon economy. We are also hosting a number of staV from other organisations working with businesses (eg Envirowise, Carbon Trust, WRAP). In addition, RDAs are delivering business growth in environmental and energy sectors through our enterprise and innovation interventions and accelerating the commercialisation and diVusion of new technologies. A number of RDAs have invested, for example, in Enterprise Hubs or Centres of Excellence (eg the Joules Centre in the North West), set up Renewable Energy Agencies (eg Renewables East), established Regional Knowledge Transfer Networks (eg EnerrgiSE) or delivery vehicles (eg the London Climate Change Agency). 18. Regional Development Agencies are also investing in improving the evidence base associated with climate change. RDAs collectively fund SCPnet, a partnership between the RDAs, Regional Assemblies, Environment Agency and WWF-UK which collects data and evidence on sustainable consumption and reduction. RDAs are using SCPnet directly to identify trends in resource eYciency across 49 sectors and to work out regional eco-footprints. The RDAs have also developed and piloted a number of approaches to provide more consistent monitoring information. Emda has developed R-ISEW, the first regional composite indicator integrating economic, social and environmental costs/benefits, Yorkshire Forward has piloted a methodology for quantifying greenhouse gas emissions associated with RDA projects and NWDA has developed the Enworks Toolkit, a monitoring tool that can be used by business as an improvement tool and a way of justifying cost actions. 19. In terms of monitoring and accountability, there needs to be recognition of existing monitoring and reporting requirements which local and regional bodies are subject to and an understanding that these existing requirements are likely to deliver evidence of the action being taken to deliver against the climate change agenda.
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? 20. The RDAs welcome the inclusion of climate change mitigation and adaptation indicators in the new Performance Framework for Local Authorities and Local Authority Partnerships. Performance indicators have the potential to provide a real impetus for action at a local level. It is important that they are backed up with clear advice from government for regional and local bodies on how emission savings should be calculated and reported.
4. To what extent should there be disaggregated targets for diVerent levels of government? How should independent targets, for example Scotland set its own emissions target for 2050 (80% reduction rather than UK target of 60%) and the Greater London Authority has committed itself to making a 60% cut by 2030, fit together with national carbon targets and budgets? How can Government monitoring and forecasting of emissions be improved so as to disaggregate emissions, and the impact of carbon reduction policies, in diVerent regions and nations? 21. Ownership of emissions targets at the correct level is crucial if the Government is to establish eVective governance and deliver real change. There needs to be a robust and consistent process for cascading targets from the national level through the regions to local authorities. There needs to be a clear line of sight between targets in the Regional Economic Strategies and the Local Area Agreements (LAAs) currently being taken forward by government with local government. Targets need to exist at regional and local level and, in some
2 Richard Ellis is Chair of EEDA, the Regional Development Agency in the East of England. Ev 100 Environmental Audit Committeee: Evidence
circumstances, at sub-regional or city-region level. As time moves on, regions have started to identify their own targets in the absence of disaggregated national targets for the regions. It is important that the Government’s Climate Change programme targets and these regional targets knit together and, further, that innovative action by regional bodies be accounted for by the Government’s Climate Change Programme. Regional activity is generating additional carbon savings and without this recognition, there will not be clarity on how the UK’s overall carbon reduction targets are being met. Locally, there appears to be the start of local target setting through Defra’s NI 186. This approach, which sees regions and local authorities setting their own targets, has the potential to cause significant confusion. The targets should be complementary and consistent. Local targets should cover those areas which local authorities and LSPs can control and should connect to sub-regional and regional targets. The new Integrated Regional Strategies should recognise these targets. 22. Central government needs to provide robust and back-calculated datasets, disaggregated to the regional/local level, to support this process. Whilst some regions have developed their own greenhouse gas inventories, government needs to provide data and funding by way of assistance in establishing inventories and baselines.
5. How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are local authorities, regional government and devolved administrations? 23. Whilst the role of national government in providing climate change adaptation needs to be strengthened, adaptation is best undertaken at local level by, for example, local authorities in partnership with other agencies including the Environment Agency and RDAs. The RDAs want to ensure that they and the regions can deliver more economic growth while reducing carbon emissions and enhancing the resilience of our regions’ communities, infrastructure, utilities and private sector to the eVects of climate change. 24. The Government role should be to facilitate action by promoting good practice and providing recommendations on approaches, the extent of adaptation that may be required across the UK, the costs of the adaptive measures and the future financial implications of not adapting. The Government also needs to provide more funding and fiscal incentives for investment in adaptation activity, especially climate- resilient infrastructure, and remove policy barriers that prevent adaptation uptake. 25. Regional activity on adaptation is underway but the RDAs recognise that there is still more to do to achieve eVective co-ordination and delivery. The North East, for example, is currently undertaking a Climate Change Adaptation Strategy with buy-in from a range of regional partners, EEDA is supporting the development of a Climate Change Action Plan with a focus on adaptation and NWDA is funding an adaptation group. The Mayor of London is preparing a world first comprehensive climate change adaptation strategy for a city covering risks such as heatwave, drought and flooding, which the LDA will help to deliver. The London, East of England and South East Climate Change Partnerships have published a guide for developers on climate change adaptation, together with a set of case studies. They have also commissioned a study, due to report shortly, on retrofitting existing buildings for adaptation to climate change. 26. The proposed Local Area Agreement adaptation indicator will help to embed and drive adaptation activity by local authorities if selected.
6. How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK? 27. The RDAs stated in their response to the draft Climate Change Bill that the Committee should include regional representation to ensure that it provides advice to the Government which recognises the diversity of regions and the contribution that they can make to tackling climate change through fit-for- purpose policy. The Government’s response was that the Committee should consist of experts, not representatives of stakeholder groups, that it is up to the Committee to decide how to do this and that it has the power to establish sub-committees. The RDAs believe that regional and local government are key to delivering emissions reductions and that the Committee needs to be aware of and support action at regional and local level. The Committee must therefore have a mechanism for engaging with regional and local stakeholders, including RDAs, to ensure that regional programmes are recognised and that there is co- ordination between the national level and the regions on carbon budgets, targets and accounting. The Climate Change Bill is silent on this matter.
7. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? 28. The RDAs believe that their commitments to tackling climate change are significant, but that their impact can be immeasurably multiplied by a similar level of commitment from national, regional and sub- regional partners and by the Government taking action to remove barriers. Environmental Audit Committeee: Evidence Ev 101
29. The Government needs to provide a clear and consistent policy and strategy framework for climate change with carbon reduction being mainstreamed nationally and regionally and appropriate enabling policies put in place. Such a framework needs to provide a stable long-term direction of travel in order to give confidence to business, but also include challenging short-term targets to stimulate the market-place and supply chains (eg on low energy appliances). The Government’s climate change priorities need to be applied consistently across the breadth of mainstream policy development and Public Service Agreements and through the way national targets are manifested in regional and local policy frameworks (eg Local Area Agreements). 30. Policies and priorities should be based on common and robust evidence and intelligence. As previously stated, Government has a vital contribution to make to this evidence at regional and local level as the evidence base needs to be used to establish baselines and monitor progress towards targets. 31. All regions will only be able to realise their full potential to reduce carbon emissions if Government removes key barriers such as subsidies for unsustainable products/services and makes changes to our current energy infrastructure to support a low carbon economy. We are pleased to see that the new Planning Policy Statement on Climate Change is encouraging decentralised distributed renewable energy supplies as delivery of robust renewable energy projects needs to be accelerated through the planning system. There are particular concerns about the competitiveness and practicality of renewable and low carbon energy generation at community level. Current barriers include regulatory licence exemptions that limit the maximum size of electricity generation plant exempt from the burdens of a Supply Licence (projects therefore tend to minimise their size in order to remain exempt) and the cost of connection to the grid. The regulatory and market structure for electricity also needs to be adapted to reflect the diVerent scale and economics of decentralised energy, in contrast to centrally generated and supplied electricity. In particular, planning and regulatory changes are needed to provide more incentive for renewables and Combined Heat and Power (CHP). 32. It is vital that the Government take rapid action to introduce a comprehensive system of carbon pricing. This is a major barrier to action at all levels. It would better enable low and zero carbon technologies to compete against traditional energy supply technologies and therefore encourage the commercial implementation of low and zero carbon energy projects.
8. What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions?
33. Planning is crucial to eVectively tackle the issues being raised by climate change. The recent Local Government Association (LGA) report on councils and climate change highlights planning as one of the four areas in which local authorities can make a diVerence. The requirements in the supplement to PPS1 will be crucial for the medium term in delivering real change in the planning system and in shaping the ability of local and regional government to this challenge. RDAs are yet to fully digest this Statement but from initial assessment it appears that the Statement is broadly welcome with new recommendations for planning authorities. 34. We are hopeful that the Statement will streamline the planning process to reduce delays in decision- making, thereby making it easier to develop decentralised energy and more widespread microgeneration. The Merton Rule plays an important role in encouraging development of renewables and we would like to see it applied more consistently to delivering decentralised energy networks. Some regions and local authorities are already setting high standards, for example, the Mayor of London is proposing that developments achieve a reduction in carbon dioxide emissions of 20% from onsite renewable energy regeneration because developers are already routinely meeting the current 10% standard in London.
9. Are local authorities meeting their duty to enforce building regulations in relation to environmental measures? Does the enforcement regime discourage non-compliance?
35. There is anecdotal evidence that there is a lack of compliance with building regulations on new-build domestic properties, despite local authorities eVorts to discharge their enforcement duties. We believe that local authorities need to be given the resources to enable them to ensure that developers are complying with additional requirements such as for carbon reduction through the use of renewables, an issue which will accelerate in demand as eVorts are made to meet the Government’s ambition for zero carbon homes by 2016. 36. The twin-track approach to improving energy eYciency, using both the planning system and building regulations, can be confusing. RDAs would like to see the building regulations strengthened as quickly as possible with adequate training of enforcement oYcials so that building regulations become the main means of delivering uniformly high energy eYciency. Ev 102 Environmental Audit Committeee: Evidence
10. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? 37. The RDAs have national mechanisms in place, facilitated by EEDA as the climate change lead, for sharing good practice amongst themselves through both national meetings where all RDAs come together to discuss issues relating to climate change and through an online RDA-only resource. In addition, the RDAs periodically publish national documents setting out current RDA activity. For example, we published a national pamphlet on tackling climate change earlier in the year, whilst in the past, we have published sets of case studies on regional sustainable development activity (Smart Productivity and Smart Growth) which we have shared widely with partners and interested parties. RDAs are also involved in sharing good practice at a local and sub-regional level with partners; activity which is better explained in the individual submissions you will receive from some RDAs. 38. Sharing of good practice with other agencies does need further support in the short-term to help ensure that successful initiatives are eVectively rolled out, as the skills and knowledge are not yet widespread. There is a critical role of national organisations in disseminating this best practice and ensuring that there is a central pool of expertise for the regions and local authorities to draw upon. Groups such as the Regional Energy Group, whose members include RDAs, are useful for sharing best practice and information on regional initiatives. It is important that suYcient Government funding be provided to Government-funded delivery agents and programmes such as the Energy Saving Trust, Carbon Saving Trust and Business Resource EYciency and Waste programme to enable regional and local bodies to continue to benefit from their expertise, such as through the Carbon Trust’s Local Authority Energy Financing Scheme. 39. The Energy Savings Trust plays an important role in disseminating good practice and its website with a list of publications is viewed as a valuable resource. Primarily, the Energy Savings Trust has provided support in the domestic energy sector. This is critical given that 28% of CO2 emissions come from this sector. The Energy Savings Trust is working with RDAs in some regions to deliver specific activity. The North East hosted a trial Sustainable Energy Network which was well received and the rollout of Sustainable Energy Networks across the country will ensure holistic advice is provided to householders. The announcement by Gordon Brown that a Green Homes Service will be rolled out supports the notion that taking a holistic approach to energy reduction is the most eVective way forward. 40. The Carbon Trust is working closely with RDAs in some regions to help businesses improve their energy eYciency. The Carbon Trust has excellent examples of how reducing energy demand is extremely cost eVective and some RDAs have found that useful. 41. The UK Climate Impacts Programme provides an invaluable source of expertise and support, assisting both with the development of policy for climate change adaptation and advice on implementation. It is important that the UK Climate Impacts Programme continues to provide robust scenarios, including at regional and local level, and to assist public bodies’ adaptation improvement now required in the Climate Change Bill. As the planning and decision-making processes of both the public and private sector rely on climate change projections, it is essential that UKCIP is funded to continue to provide up-to-date scientific expertise in this rapidly developing area. 3 January 2008
Memorandum submitted by the East of England Development Agency
Introduction—The East of England Development Agency 1. The East of England Development Agency (EEDA) welcomes the opportunity to respond to the Environmental Audit Committee’s Inquiry into climate change and local, regional and devolved government. 2. EEDA is the driving force behind sustainable economic growth and regeneration in the East of England (Bedfordshire, Cambridgeshire, Essex, Hertfordshire, Norfolk, SuVolk, and the unitary authority areas of Luton, Peterborough, Southend and Thurrock). Our task is to improve the region’s economic performance and ensure the East of England remains one of the UK’s top performing regions. In the period since our establishment in 1999, EEDA’s strategic role has deepened and broadened across the regional economic landscape and the changes announced in the recent Sub-National Review of Economic Development & Regeneration will further our remit. EEDA’s core intervention areas have grown to encompass enterprise, innovation, business support, regeneration, economic inclusion and skills development. EEDA takes its statutory purpose to contribute to sustainable development extremely seriously and is committed to being an exemplar and leader on the climate change. 3. EEDA’s current budget of £140 million is just over 0.1% of the value of the region’s economy. We therefore pursue our purposes by setting and shaping the direction of the region principally through the Regional Economic Strategy (RES); we persuade and influence others to contribute to that RES; and we set out to deliver a small number of interventions with our resources that catalyse that process. Environmental Audit Committeee: Evidence Ev 103
4. Climate change poses a very real threat to the East of England. Our low lying geography, vulnerable coastline and already scarce resources make the East of England the region most at threat from climate change in the UK. EEDA is well-placed to help the region to respond to this threat. There is, however, also a strong economic opportunity rationale for our focus on tackling climate change. The Stern Report identified a powerful economic argument for taking early action and indicated that action on climate would create significant business opportunities with markets potentially growing to be worth hundreds of billions of dollars each. The region is already the UK leader in the production of renewable energy and predictions of 45% growth in the global environmental technologies sector by 2015, coupled with a large proportion of the UK’s environmental goods and services sector being located in the region, means that the East of England has the potential to also become a leader in supplying future demand for low carbon technologies. 5. In our regional leadership role, EEDA is in the process of reviewing the Regional Economic Strategy (RES) which will drive sustainable economic development in the East of England to 2031. One of the three headline ambitions for the RES is to reduce the levels of CO2 emissions and accelerate the decoupling of resource use from economic growth. Under this aspiration the Strategy is looking to deliver growth and development within a specific target for carbon reduction; to harness the world-class expertise of the companies and universities in the region in environmental science, clean technologies and carbon capture and storage; to embed a culture of resource eYciency and environmental management within the business sector; and to incentivise construction and physical development to perform to high environmental standards. We are championing the inclusion in the RES of a target of 60% reduction in CO2 emissions by 2030. We are also driving forward the development of a Regional Climate Change Action Plan and hosting the Regional Climate Change Partnership Manager, as well as continuing our investment in the regional Sustainable Development Roundtable.
EEDA’s Organisational Activity 6. EEDA is seeking to lead by becoming an organisational exemplar. We expect to achieve ISO 140001 in early 2008, alongside renewal of our EMS accreditation. EEDA has an internally based cross directorate Sustainable Development Steering Group and an Energy Champions Group and has initiated work to retrofit our oYce accommodation as a model for the 95% of the regional businesses which will not have access to new-build oYces. 7. EEDA has traditionally used the East of England Sustainable Development Toolkit to ensure proofing for all of our strategy and programme development work. Last year we supported and worked with Inspire East (the EEDA funded Regional Centre of Excellence for Regeneration and Renewal) and BRE to develop the Excellence Framework, a comprehensive sustainability tool, based on the Sustainable Communities Plan, to aid the use of standards within the whole project life cycle (design, concept development implementation and monitoring). As part of EEDA’s renewal of our own project management processes, we are now using the Excellence Framework to underpin all projects. In addition, EEDA has set in place minimum standards for all our investment, based on the Excellence Framework, to support our commitment to reducing the region’s carbon footprint. 8. Alongside EEDA’s own Sustainable and Rural Development Team we also host Regional Managers from the Carbon Trust, Envirowise, WRAP (Waste Resources and Action Programme), the Biodiversity Forum and the Climate Change Partnership to ensure broader coherence when delivering advice.
Leading the Region in Addressing Climate Change 9. EEDA is committed to driving forward the pace of change within the region, using the full range of its work to eVect a diVerence. We have been at the driving edge of renewables, instigated a national pilot to drive resource eYciency advice through Business Link, prioritised a low carbon theme for our European funding, created environmental innovation centres and will shortly be launching a carbon campaign targeted at communities. 10. EEDA has been at the cutting edge of stimulating economic activity in order to deliver a low cost, reliable and secure low carbon energy supply into the economy, as demonstrated in 2003 with the creation of Renewables East (RE), the regional renewable energy agency. RE has been tasked with encouraging the region to meet its renewable energy targets, with the East of England now on course to meet its target of 14% electricity from renewables by 2010. EEDA and RE with support from other stakeholders have been instrumental in securing the renewable transport fuel obligation and banding of the Renewables Obligation Certificates to increase the viability of oVshore renewables and bioenergy. The region has also been at the forefront of Anaerobic Digestion bringing forward a new digestate standard. Finally EEDA alongside the European Regional Development Fund (ERDF), SuVolk County Council and Waveney District Council have invested £9.5 million to bring forward OrbisEnergy, an enterprise hub at the centre of encouraging oVshore renewable energy. 11. Through EEDA’s mainstream business support activity, we are driving the private sector to recognise the benefits of resource eYciency. As a result of EEDA’s Chair, Richard Ellis, jointly chairing a Business Resource EYciency Taskforce with John Healey, the RDAs collectively oVered to develop and pilot a mainstream business resource eYciency advice service routed through Business Link. In addition to EEDA’s Ev 104 Environmental Audit Committeee: Evidence
national leadership of this pilot, we have integrated it into the Information, Diagnostic and Brokerage (IDB) oVer in our region and will have provided resource eYciency advice to 1000 businesses in the region by the end of March 2008. In addition EEDA has supported a number of key businesses to form part of the brokerage supply chain for extended business support, brokered by Business Link, in innovative areas such as waste exchange, as well as reduction and eYciency etc. In 2007, we helped BITC to deliver the Prince of Wales’ aspiration of national and regional MayDay Summits focused on securing climate change pledges from business and we will be continuing our support in 2008. 12. EEDA is also prioritising a low carbon economy theme through other business support programmes which it manages. EEDA will be managing part of the new EU Rural Development Programme and the EU Regional Development programme for the 2007–13 period and both these programmes are targeted towards achieving impacts in areas such as business resource eYciency and innovation in low carbon technology. For creativity and entrepreneurship in business, EEDA has, this year, also taken its highly successful Running the Gauntlet competition and added a low carbon element to it. Through this competition, which has been running over the last three years, EEDA has mentored and facilitated the development of numerous new businesses in the region. 13. EEDA’s innovation interventions are being prioritised to deliver business growth in energy and environmental sectors. EEDA has, for example, invested in an innovation centre in Peterborough to support the growth of the city’s hi-tech environmental technology cluster which consists of 340 companies to date. EEDA is also investing in the Centre for Sustainable Engineering (CSEng), a national clearing house for information, expert analysis, practical application and knowledge transfer linked to low carbon technologies. 14. We also believe that behavioural change in the community has a vital role to play in delivering change. EEDA is on the brink of launching a new campaign aimed at mobilising communities in the East of England to come together to tackle their carbon emissions. The multi-million pound Cut Your Carbon Campaign will encourage and enable communities to take action to reduce their footprint and enter a competition to win funding for more costly carbon reduction actions. This work will build on our experience of the University of East Anglia CRED programme, which EEDA facilitated the creation of in 2003, which is reducing carbon emissions by 35,000 tonnes per annum from households and industry and has a global network extending into the USA and China. 15. To underpin its regeneration activity, EEDA has funded projects such as Smartlife, which supports the delivery of sustainable skills using expertise from at home and internationally to increase the skills capacity of the region to deliver areas of activity such as sustainable construction for example.
1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government? 16. Central government needs to recognise that local authorities and regional bodies are already taking action on mitigation, adaptation and other climate change related areas, often in partnership, and that it needs to support and encourage this work. In the East of England, for example, a regional Climate Change Partnership has been established, with a coordinator jointly funded by EEDA, Go-East and EERA, and work is underway on developing a Regional Climate Change Action Plan. The new Regional Economic Strategy for the region incorporates a focus on reducing CO2 emissions and intends to set a carbon reduction target, whilst the Regional Spatial Strategy has also set challenging targets. The EU funding which EEDA will be responsible for from 2008 has a low carbon metatheme and the region is on target to achieve 14% of its energy from renewable sources by 2010. Businesses are being engaged in the climate change agenda through the mainstreaming of resource eYciency advice through Business Link and EEDA’s Running the Gauntlet competition which had a low carbon focus this year. Behavioural change is being driven through EEDA’s soon to be launched Community Cut Your Carbon Campaign and through our investment in a carbon calculator for land-based businesses. Renewables East, established by EEDA, has delivered training and support to local authorities on renewable energy planning matters with the region enjoying a high level of planning application approvals as a direct result. However, whilst there is a lot of activity already underway, there is still more to do and central government has a role to play in helping the region to achieve this. 17. To facilitate regional and local action, the Government needs to set the strategic direction, remove barriers to action on climate change and provide the evidence base to drive change.
Setting and achieving targets 18. The Eastern region intends to establish an ambitious carbon reduction target for inclusion in the new Regional Economic Strategy which will come into eVect in April 2008. However, there is still no clarity as to whether the Government intends to cascade national targets to regional and local level or whether it expects regions and local authorities to establish their own targets which will be amalgamated into the national target. There is also uncertainty as to whether regional/local targets as set by central government Environmental Audit Committeee: Evidence Ev 105
will be legally binding and, if they are, how the Government will ensure fit with the targets which have already been set by regions or whether the expectation is that the existing regional/local targets will be abandoned in favour of the Government’s targets. 19. The Government needs to make a clear, urgent decision on how it intends to handle regional and local carbon reduction targets. It needs to ensure that regional/local administrations are given the flexibility to align Local Area Agreement (LAA) targets and the targets set in Regional Economic Strategies. It needs to connect its Climate Change Programme targets to the regional targets which have been set. The Government needs to take into account the carbon emission reductions being delivered at regional/local level and understand how this contributes to the UK’s overall carbon reduction target. In addition, EEDA would suggest that, if the region has set its own target in the absence of a government steer, then the Government should seek to support that target in any decisions it takes. 20. There is a lack of data on which to found regional/local carbon targets. Regional/local bodies would therefore benefit from central government providing robust and back-calculated datasets, disaggregated to the regional/local level. Whilst the region has commissioned its own evidence base, there would be merit in consistent information being made available to all regions to allow comparability.
Policy framework and strategic influencing 21. Government needs to set the national policy and strategy framework for climate change activity and carbon reduction. At the moment, there is a lack of coherence between government policies. The Government needs to embed climate change considerations into mainstream policy development using robust evidence and intelligence which can be disaggregated to regional/local level to ensure cohesion with policy development and implementation at more devolved levels. The Government must not allow climate change to be treated as an issue for one government department but must ensure that all government departments consider climate change when formulating policy. Providing a coherent strategic direction through national policies is critical to enabling eVective, coherent action to tackle climate change at national, regional and local level. The three tiers should be working towards the same goals through a co-ordinated set of policies. 22. Where regional Climate Change Action Plans have been established, government should have regard to them when formulating national policy. In its expectations of the new Integrated Regional Strategies, government should recognise the contribution they can make to the climate change agenda and ensure that these strategies are both encouraged to incorporate this element and that regional, sub-regional and local partners are tied in to delivering against this strategy. The Government must not create a situation where local authorities are being asked to respond to one set of targets which do not align with regional targets and aspirations. 23. In regard to transport, DfT needs to deliver against its recent discussion document, “Towards a Sustainable Transport System—Supporting Economic Growth in a Low Carbon World”, in a manner which enables regional and local transport decisions to promote integrated and sustainable transport choices. It is vitally important that government guidance of transport appraisal techniques and scheme development mechanisms are refreshed to ensure that the greenhouse gas consequences of these actions are fully considered. The guidance should also incorporate advice on handling the adaptability of transport proposals to climate change. This will ensure that as interventions come forward from scheme promoters (including local authorities), the climate change consequences are fully considered and resilient transport networks developed. It will also be important that these impacts are reflected in the transport prioritisation exercises for Regional Funding Allocations.
Investment 24. Carbon reduction criteria should be embedded into government funding streams to drive behavioural change. EEDA is already demonstrating how this can be achieved through our requirement that all capital build projects we invest in strive to achieve the BREEAM Excellent standard (or equivalent). 25. The Government also needs to provide certainty in the funding it makes available. Climate change is a long-term issue which will require sustained investment over the medium to long-term and consistency of funding. On 21 December, RDAs learned that Defra is unlikely to provide direct BREW (Business Resource EYciency and Waste) funding to RDAs for the period 2008–11. This decision is disappointing. Historically, we used the funds to support six regional initiatives targeted at minimising business waste to landfill by looking at converting waste into renewable energy, by reducing waste in the construction sector, by providing environmental awareness training, by connecting businesses with community groups who might be able to use the waste products, by using a web-based materials exchange to swap waste and by increasing recycling and re-use within the supply. Our plans, which were under development with partners, for the future of the programme were focused on achieving better alignment between these initiatives and delivering an enhanced coherence across the East of England. Ev 106 Environmental Audit Committeee: Evidence
Skills 26. The Government should also consider providing additional investment in skills development. EEDA is working with partners to identify skills gaps and develop solutions as there is a significant lack of capacity in the emerging environmental sectors. Aspiration is not yet matched by the ability to deliver. The Government should support the Sector Skills Councils to work with RDAs to develop swift and eVective solutions to this problem.
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? 27. EEDA is clear about its role in tackling climate change and is working, through the Regional Economic Strategy and the regional Climate Change Action Plan, to bring clarity to the region on roles and responsibilities. EEDA views its role as providing regional leadership on the economic dimensions of climate change, both adaptation and mitigation, including the development of low carbon technology and services, driving forward investment in renewable energy and supporting the growth of the environmental goods and services sector. We are working closely with partners to help them determine their role in relation to the climate change agenda and to ensure there is regional/local and public/private sector cohesion. For example, EEDA is funding UKCEED to work on developing a carbon targeting and accounting methodology for local authorities that will enable them to better understand policy and strategy decisions and how they will impact on carbon emissions. There is a real risk that, with the growth of the climate change agenda, without strong regional leadership a lack of co-ordination and duplication will occur and that customer confusion will reign due to the proliferation of funding streams and bodies. 28. EEDA views the current Regional Economic Strategy and, when it comes into eVect, its replacement, the new Single Regional Strategy, as important tools for driving clarity, co-ordinating action and monitoring performance. Central government has an important role to play in making sure that this goal is achieved. It is currently developing its thinking around the new Single Regional Strategies and it needs to encourage all public sector bodies operating in the region, whether national, regional or local, to work to deliver the Strategy. By using this as the framework for the co-ordination of investments, it will help to mainstream the Government’s low carbon aspirations. 29. The regional Climate Change Action Plan will also be an important tool for co-ordinating action and EEDA is working with partners to ensure that it is aligned with the new Regional Economic Strategy which will come into eVect in 2008. It is important, in our opinion, that both of these documents have complementary aspirations and that they provide clarity to the regional picture rather than creating confusion. 30. In terms of monitoring and accountability, there needs to be recognition of existing monitoring and reporting requirements which local and regional bodies are subject to and an understanding that these existing requirements are likely to deliver evidence of the action being taken to deliver against the climate change agenda.
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? 31. EEDA welcomes the inclusion of climate change mitigation and adaptation indicators in the new Performance Framework for Local Authorities and Local Authority Partnerships. Performance indicators have the potential to provide a real impetus for action at a local level, provided they are targeted at real delivery and supported by clear advice from government on how emission savings should be calculated and reported.
4. To what extent should there be disaggregated targets for diVerent levels of government? How should independent targets, for example Scotland will set its own emissions target for 2050 (80% reduction rather than UK target of 60%) and the Greater London Authority has committed itself to making a 60% cut by 2030, fit together with national carbon targets and budgets? How can Government monitoring and forecasting of emissions be improved so as to disaggregate emissions, and the impact of carbon reduction policies, in diVerent regions and nations? 32. EEDA believes that there should be disaggregated targets for diVerent levels of government, as they are useful in highlighting the desire and need for activity. EEDA is therefore working to establish a carbon reduction target for the East of England for incorporation in to the new Regional Economic Strategy. We are concerned, however, that central government may, once our target is in force, subsequently take a decision on regional/local targets that does not align with the regional target which has been established for the East of England. We would ask central government to support any regional targets which have been Environmental Audit Committeee: Evidence Ev 107
established in the absence of disaggregated national targets. If the Government intends to cascade national targets to regional and local level, then we would ask that this be announced as soon as possible. Local authorities should be encouraged to work to a disaggregation of the regional target and not be asked by central government to set local targets in isolation. 33. We would like to reiterate the point that central government needs to provide robust and back- calculated datasets, disaggregated to the regional/local level, to support this process.
5. How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are local authorities, regional government and devolved administrations? 34. The East of England is vulnerable to the eVects of climate change and we are therefore taking adaptation very seriously. The regional Climate Change Action Plan which is being developed for the East of England has a strong adaptation focus. Activity by partners will be co-ordinated through this Plan to ensure increased resilience of the regional economy and natural environment to climate change, to reduce greenhouse gas emissions and to grow the economy sustainably in areas of opportunity created by climate change. 35. Government has a role to play in helping regional and local action on adaptation by providing robust evidence which can be used to inform decisions and costings, by investing in adapatation and by helping to disseminate best practice. It is important that the UK Climate Impacts Programme continues to provide robust scenarios, including at regional level, and is funded to continue to provide up-to-date scientific expertise in this rapidly developing area as this information is vital for planning and decision-making. The Government should provide funds for investment in adaptation activity, especially climate-resilient infrastructure and should remove policy barriers that prevent adaptation uptake. Whilst government has a role to play in the provision of an evidence base and dissemination of information, action on adaptation is best decided and taken at local level. The Government should help to resource this action. 36. The proposed Local Area Agreement adaptation indicator will help to drive adaptation activity by local authorities if selected.
6. How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK? 37. The RDAs stated in their response to the draft Climate Change Bill that the Committee should include regional representation to ensure that it provides advice to the Government which recognises the diversity of regions and the contribution that they can make to tackling climate change through fit-for- purpose policy. EEDA fully endorses this view. Although the Government responded that the Committee should consist of experts, not representative of stakeholder groups, EEDA is concerned that without an understanding of the intricacies of policy implementation and the regional/local agenda, the Committee could provide government with advice which is diYcult to implement. The Committee must have a mechanism for engaging with regional and local stakeholders, including RDAs. EEDA, as the lead RDA on climate change, would be happy to act as a representative for the RDAs in this matter.
7. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? 38. EEDA is making a significant commitment to tackling climate change through both its regional leadership and its in-house activity. Its partners are also stepping up to the mark and the region is pulling together to take action on climate change. There remain, however, barriers which need to be tackled nationally to facilitate regional/local delivery. Answers to previous questions identify some of the barriers to regional/local action in more detail, but this is EEDA’s headline list of barriers: — There needs to be a clear and consistent policy and strategy framework for climate change with carbon reduction mainstreamed nationally accompanied by appropriate enabling strategies. This in turn will filter through in to regional and local implementation. — The Government’s climate change priorities need to be applied consistently across the breadth of mainstream policy development. — There needs to be common and robust evidence and intelligence which can be used in the formulation of national, regional and local policy and delivery. — The Government needs to provide clarity on whether it intends to cascade national targets to regional and local level or whether it will accept and recognise the targets which have been set in the absence of government targets. Uncertainty risks creating confusion and unaligned targets. — There is a skills gap in all aspects of the emerging and growing environmental sector. The Government needs to work with RDAs and Sector Skills Councils to identify and address these gaps. Ev 108 Environmental Audit Committeee: Evidence
— The Government needs to recognise that cost is a major barrier, particularly for individuals, and take steps to address this. — The Government needs to remove the barriers currently holding back the rollout of decentralised and renewable energy by altering the regulatory licence exemptions which limit the maximum size of electricity generation plants exempt from the burdens of a Supply Licence, adapting the regulatory and market structure for electricity to reflect the diVerent scale and economics of decentralised energy, providing more incentives for renewables and Combined Heat & Power. — The Eastern region has a significant number of communities in fuel poverty that are oV the gas network and in hard to treat homes reliant on oil heating. The Government needs to meet the needs of this group of people in addition to its focus on those who can aVord to pay for the installation of microgeneration equipment.
8. What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules aVected? How might other planning guidance be changed to reduce emissions? 39. Planning has a crucial role to play in both eVectively insisting on measures to tackle climate change and in allowing new low carbon endeavours and enterprises to be brought forward. The recent Local Government Association (LGA) report on councils and climate change highlights planning as one of the four areas in which local authorities can make a diVerence. 40. With activity lead by Renewables East and Inspire East, supported by EEDA, EERA, and the EST, over 30 events have been delivered during the last three years, providing training and support information to local authorities planning oYcers, staV and councillors. This has led the region to enjoy an 83% approval rate for renewable energy projects since 2003. However further work is required to ensure that knowledge and understand of the issues remains high. 41. The East of England is planning to accommodate and encourage substantial housing and economic growth over the coming years. In recognising the complexities and pressures this puts on the drive to reduce regional carbon emissions the region submitted a “Merton” style policy into draft regional planning guidance. Although this has been commended by Yvette Cooper as an exemplar to all regions, its inclusion has been called into question. The stakeholders in the region believe that it is vital to give development in the region a requirement to address low carbon issues whilst ensuring a level playing field. 42. EEDA has yet to fully digest the new Planning Policy Statement which was only published on Tuesday 18th December, but initial indications are that, whilst the Statement is to be broadly welcomed, it has not gone far enough to support the creation of a level playing field in the regions and has introduced some uncertainties.
9. Are local authorities meeting their duty to enforce building regulations in relation to environmental measures? Does the enforcement regime discourage non-compliance? 43. EEDA is not in a position to comment on this question.
10. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? 44. EEDA acts as the lead RDA on the climate change agenda, disseminating information and good practice across the RDAs, stimulating debate on vital issues and liaising with government departments. We have established a national cross-RDA group, which met frequently during 2007, to discuss issues and develop policy and practice linked to broad sustainable development, as well as more specific arenas around climate change, resource eYciency, waste and energy. We have also created a monthly information bulletin targeted at RDAs and provide an online library of information for RDA colleagues. In addition, EEDA has led the production of three good practice publications, “Tackling Climate Change in the Regions”, “Smart Productivity” and “Smart Growth” which have been disseminated widely to partners and stakeholders. 45. EEDA firmly believes in the need to share information at regional/local level to avoid duplication of eVort, learn from good practice and strengthen relationships. EEDA directly participates in a wide range of regional partnerships, including jointly with Go East and EERA, Renewables East and Inspire East. EEDA also sits on a number of strategic steering groups (eg GO East Low Carbon Aspiration Group), as well as being an active participant in the Sustainable Development Roundtable and the East of England Environment Forum. 46. As well as EEDA’s own Sustainable and Rural Development Team, we host Regional Managers from environmental organisations such as Carbon Trust, Envirowise, WRAP, the Biodiversity Forum and the regional Climate Change Partnership to ensure broader coherence when delivering advice. We are also investing in a regional Waterwise Manager. Through regular team meetings, EEDA staV and our hosted partners share good practice and knowledge. Environmental Audit Committeee: Evidence Ev 109
47. Last year the Regional Assembly conducted a review of the region’s activities in tackling climate change and found significant activity being delivered throughout the region through organisations such as Renewables East. 2 January 2008
Memorandum submitted by Groundwork UK
About Groundwork UK 1. Groundwork is a federation of Trusts in England, Wales and Northern Ireland, each working with their partners to improve the quality of the local environment, the lives of local people and the success of local businesses in areas in need of investment and support. Groundwork’s projects aim to deliver benefits: — for people—creating opportunities for people to learn new skills and become more active citizens; — for places—delivering environmental improvements that create cleaner, safer and greener neighbourhoods; and — for prosperity—helping businesses and individuals fulfil their potential. 2. Groundwork’s vision is of a society made up of sustainable communities which are vibrant, healthy and safe, which respect the local and global environment and where individuals and enterprise prosper. Our activities are delivered through programmes which have been developed and delivered in partnership with a wide variety of organisations from the public, private and voluntary sectors. 3. Groundwork part sponsored a report published by Green Alliance in August 2007, which examines the role of local government in responding to climate change. In addition, Tony Hawkhead, Chief Executive of Groundwork UK, is a member of the Local Government Association (LGA) Climate Change Commission, which published its final report in December 2007.
Summary of Submission 4. As an organisation with over a quarter of a century’s expertise in working closely with communities and in creating and maintaining green spaces, Groundwork believes that the UK will not meet its targets in tackling climate change unless greater emphasis is placed on the behaviours of individuals and communities, in addition to the importance of the green infrastructure of our local areas. As such, we believe that the role of partnerships between local authorities (LAs) and the public, private and voluntary sectors in this respect are crucial. Whilst we believe that many councils have demonstrated good practice, we feel that more needs to be done, both in terms of local government action and by central government in facilitating a framework to encourage, set targets for and measure climate change initiatives. Proposals for a new sub-national economic development and regeneration structure, new planning guidance and the new draft local government performance framework all oVer a number of opportunities for encouraging and building on existing climate change action, in addition to greater co-ordination across local and regional government. Groundwork believes that all must complement each other for the UK to meet its climate change targets.
The Role of the Third Sector in Tackling Climate Change 5. As Defra states,3 over 40% of UK carbon emissions are attributable to decisions made by individuals, either in their home or through their domestic travel decisions. As such, Groundwork believes that the UK’s contribution to the mitigation of the impacts of climate change will fail unless action is taken by individuals at a local level. Whilst LAs and regional bodies will play an important role in determining whether the UK reduces its carbon dioxide emissions to sustainable levels, other partners from the private and third sectors will play an equal, if not greater role, in mobilising local action on climate change. 6. The voluntary sector has much to contribute: its experience in engaging with individuals and communities, both in terms of delivering services to them and understanding their needs and views, has aVorded it a unique position. Its detachment from the public sector means that it can deliver services to communities on behalf of the state, which otherwise may not be responsive to initiatives delivered directly by government. For the same reason, it can, equally, play a unique advocacy role in communities, campaigning for behaviour change and oVering support and advice. 7. Groundwork in particular is playing an important role in tackling climate change at a community level, by encouraging adults and children to change their behaviour by helping them understand and appreciate how actions by individuals can make a real diVerence to the global environment. In schools, we support and train teachers to deliver education for sustainable development and help children learn about their responsibilities to the environment, for example by involving them in improving the environmental
3 Defra, 2007. [WWW] http://www.defra.gov.uk/ENVIRONMENT/climatechange/uk/individual/actonco2/index.htm. Ev 110 Environmental Audit Committeee: Evidence
performance of their school buildings and grounds. We also help businesses, public bodies (including LAs) and voluntary organisations to reduce their carbon footprint by providing Environmental Management Services, by improving their energy and resource eYciency and reducing waste. 8. In terms of mitigation, we are currently a delivery partner in Defra’s Every Action Counts programme, through which we are recruiting one hundred community champions to act as local advocates and help raise awareness of and tackle climate change issues. We are also delivering the BS8555 environmental standard to ten organisations in the Every Actions Counts consortium. 9. Groundwork is also managing the Future Footprints programme, which will work with young people aged 16 to 25 years, equipping them with the skills and knowledge to become advocates for action on climate change. Future Footprints is supported by v, the youth volunteering charity and the HBOS Foundation. Each Future Footprints project has received £40,000 to enable it to carry out its work with young people, one of the hardest demographic groups to engage through local government initiatives. 10. The green spaces which Groundwork has developed and maintained for over a quarter of a century, including parks, woodlands, gardens and allotments, have played and will continue to play an important mitigation role in terms of absorbing and storing local carbon dioxide emissions. They will also play a role in adapting to the impact of the changing climate in urban areas by absorbing rainwater and providing shelter from wind, in addition to oVering shade and cooling eVects during warm weather. 11. An excellent example of this is the Northwich Community Woodland & Mersey Forest. Created from what was once largely derelict land as part of a project in which Groundwork was a partner, the Woodland is made up of nine countryside sites located to the north of Northwich town centre in Cheshire. The Woodlands have a significant impact on Northwich’s eVorts in tackling climate change. In terms of adaptation, the green spaces intercept, store and infiltrate rainwater, reducing runoV into the rivers Weaver and Dane, both of which run through the town. Whilst both rivers do flood and may do so more regularly with the onset of climate change, without spaces such as the Northwich Community Woodlands, the problem would be much more pronounced within the local area. In terms of mitigation, the wooded areas, which consist of over 100,000 trees planted over approximately 50 Hectares, play an important role in absorbing carbon dioxide emitted in and around the town centre. They also have a positive impact on the local climate through evaporative cooling. The development of a Vale Royal Greenways Strategy and the 3km of greenways, including the installation of new bridges, were included in the project with the aim of creating better and more sustainable transport links between the town and countryside.
Local Authority and Regional Government Action on Climate Change
12. Green Alliance identifies three main areas through which LAs can take action to mitigate and adapt to climate change. These are through the management of their own estates, through the provision of services and through community leadership and place shaping.4 13. Groundwork does not, however, believe that the current framework overseen by Government for facilitating action on climate change at a local level is suYcient. This is reinforced by Green Alliance’s suggestion that local action has tended to be led by wilful individuals with “vision and determination”5 and not by the current mix of “carrots and sticks”. 14. We cite the example of the Home Energy Conservation Act (1995) (HECA), which the Government is proposing to repeal and which is currently the subject of a Defra consultation. The Act has required all LAs with housing responsibilities to develop plans to voluntarily improve energy eYciency by 30% between 1996 and 2006, which they are obligated to report on annually, a task to which LAs currently allocate varying levels of resource. Whilst this has facilitated the creation of capacity for climate change action within councils, many LAs see the legislation simply as a burden and not as a platform for further action. 15. Another area requiring attention is the management of green spaces. Green Spaces are essential in mitigating against climate change and provide important environmental benefits to local communities. However there are challenges in how we maintain this green infrastructure and local authorities need to take a leading role to address these. As Groundwork have recognised in a recent policy paper on this issue,6 LAs need to consider future revenue requirements for green spaces as part of mainstream budget-setting exercises and in the context of LAAs. Those leading grant-based approaches must also build revenue into bids and submissions. We feel that the key to achieving this is to capture and articulate the wider environmental benefits achieved through maintaining high quality and accessible green infrastructure. 16. We bring the EAC’s attention to Milton Keynes Park as a successful example of this. Although the development of the park was funded by the Milton Keynes Development Corporation, it is actually owned and managed by a separate trust, with maintenance costs covered by an endowment, consisting of a number
4 Carty, T & Hislop, H, 2007. Changing Places: Advancing Local Government Action on Climate Change,p7. 5 Carty, T & Hislop, H, 2007. Changing Places: Advancing Local Government Action on Climate Change,p8. 6 Wigmore, J and Duxbury, G, 2006. Sustaining green space investment—issues, challenges and recommendations. Environmental Audit Committeee: Evidence Ev 111
of properties within the park. This ensures that, as an important green space within an urban community, the park is financially sustainable and not an excessive burden on the public purse. It also means that it is well placed to continue to oVer climate change mitigation and adaptation benefits to those who live in its vicinity.
The Role of Local and Regional Strategies 17. Groundwork strongly believes that tackling climate change must become a key element in all strategies produced at regional and local levels. This specifically includes Regional Economic Strategies (RES) and Regional Spatial Strategies (RSS), or the single regional strategy that would encompass both RESs and RSSs, as proposed by the Government as part of the review of sub-national economic development and regeneration. As Green Alliance7 suggests, regional action on climate change could be co-ordinated and significantly strengthened through the development of Multi Area Agreements on climate change between LAs. We echo the call of the LGA Climate Change Commission8 for the duty of co- operation to be extended to MAAs. 18. At a local level, we also believe that mitigation and adaptation to climate change must become a key element of Sustainable Community Strategies, Local Area Agreements (LAAs), Local Development Frameworks (LDFs), Local Transport Plans (LTPs), asset management strategies and any other supplementary strategies and duties for LAs which concern economic and sustainable development and local energy use, such as the new economic development duty. 19. We call for all strategies regarding economic development, planning, the environment, energy and transport at local and regional levels to consider their impact upon greenhouse gas emissions and to outline measures for tackling climate change in the areas they concern. All strategies must complement each other and work together towards achieving the same local and/or regional climate change objectives.
Local Government Performance Framework 20. Groundwork believes that there must be explicit reference to tackling climate change in the final published set of national indicators for LAs and local authority partnerships. We support the introduction of N185 (CO2 reduction from Local Authority operations), N186 (Per capita reduction in CO2 emissions in the LA area) and N188 (Adapting to Climate Change), although we are disappointed that they do not stipulate quantitative levels of CO2 emissions reduction, either from local authority estates or actions, or from within their geographical areas as a whole. We are also disappointed that a set target of CO2 emissions reductions has not been stipulated as an outcome from action facilitated by LAAs. Whilst, overall, Groundwork believes that the new indicators represent a positive step, more could be done to stimulate action on climate change at a local level. 21. We believe that the proposed Comprehensive Area Assessment will oVer the best mechanism for assessing the performance, accountability and transparency of LAs and partnerships in tackling climate change.
The Nottingham Declaration 22. As the LGA Climate Change Commission9 highlights, the Nottingham Declaration has played a useful role in terms of highlighting the importance of climate change and mobilising an initial reaction from local government. We support the view, however, that it is flawed due to the lack of any monitoring in relation to local action resulting from the Declaration.
Barriers to Local Government Climate Change Powers 23. Groundwork highlights the recommendations made by the LGA Climate Change Commission, which proposes that councils are allowed to fast-track proposals for carbon reduction within their local development frameworks. We also support calls made in the report for CLG to address technical and legal barriers which are currently hindering the ability of LAs to enable the wide-scale adoption of council tax incentives for energy eYcient homes, in addition to those which request an extension of the capacity of local councils to hold public bodies to account for their response to climate change within their local area. 24. In terms of LA resources, we cite the Commission’s report, which states that one of the biggest barriers to local government action on climate change is a lack of capacity. 86% of councils have identified insuYcient staV and staV time to tackle climate change as a significant obstacle to action. It continues by suggesting that skills shortages in local government in key disciplines, including energy management.
7 Carty, T & Hislop, H, 2007. Changing Places: Advancing Local Government Action on Climate Change, p 27. 8 LGA Climate Change Commission, 2007. A Climate of Change: Final Report of the LGA Climate Change Commission, p 20. 9 LGA Climate Change Commission, 2007. A Climate of Change: Final Report of the LGA Climate Change Commission, p 19. Ev 112 Environmental Audit Committeee: Evidence
Local Government Powers on Climate Change
25. We believe that, at the present time, LAs are not utilising all of the powers they have at their disposal to mitigate and adapt to climate change within their areas. For example, Groundwork draws the EAC’s attention to the “well-being” power, as set out in the Local Government Act (2000), which, according to Green Alliance, “gives LAs considerable scope for action on sustainable development, including climate change policies”.10 We also highlight the ability of LAs to charge, trade and borrow prudentially,11 which we believe gives them the potential to generate further resources for action on climate change.
26. Groundwork believes that councils have a critical role to play in terms of providing leadership on tackling climate change at a community level. They should set examples in terms of their own environmental performance and should fully implement the authority which they have at their disposal to ensure that their local areas reduce carbon emissions, become more energy eYcient and preserve and develop green spaces.
The Planning Process
27. Groundwork believes that the planning process has a vital role to play in tackling climate change. It must facilitate a system whereby communities can take steps to mitigate and adapt to it more easily. We feel that new developments must also play a central role in building and sustaining socially cohesive communities with appropriate community infrastructure, so as to avoid social exclusion and adverse environmental impacts that could arise as a result of likely changes to the climate. New sites should also take into account the important role that green space plays in adapting and mitigating to climate change, specifically in terms of evaporative cooling, shading from sun and wind, absorbing carbon dioxide and, particularly in floodplain areas, reducing surface runoV into local watercourses.
28. As such, Groundwork welcomes the recent publication of the new supplement to Planning Policy Statement (PPS) 1 on climate change. We endorse its intention to ensure that new developments are planned to limit carbon dioxide emissions, take advantage of low carbon and decentralised energy and minimise future vulnerability to a changing climate. We also welcome its intention to help existing developments to incorporate renewable or low carbon energy, in addition to the obligation on planning authorities to take account of the contribution to be made from open space and green infrastructure to urban cooling, sustainable drainage systems and the conservation and enhancement of biodiversity.
29. We welcome the pledge to retain and apply the “Merton Rule” across all LAs in the PPS1 supplement. We believe that it has had an important impact in terms of encouraging on-site energy generation and improvements in the resource eYciency and carbon emissions of new developments. Groundwork endorses the PPS’s intention to ensure that the system facilitates communities that are fit for future climates and provide public, open and green space in new development to provide for flood storage.
30. We believe that it is particularly important that the performance of the new PPS is measured in terms of the carbon emissions and overall sustainability of new developments.
Best Practice
31. Groundwork believes that there are a number of examples of best practice whereby LAs are playing an important role in both mitigating and adapting to climate change. We highlight the important role being played by the Beacons Scheme in recognising and showcasing best practice in local government. Beacon status is granted to those authorities that can demonstrate a clear vision, excellent services and a willingness to innovate within a theme. Groundwork is a silver sponsor of the round 9 Tackling Climate Change theme.
32. Whilst Groundwork believes that best practice has an important role to play in informing local and regional action on climate change, we warn against the application of a “one size fits all approach” to the local government response. Tackling climate change relies on action by communities and individuals; as such, they should be allowed the autonomy to decide on the most appropriate actions for their own local areas. 3 January 2008
10 Carty, T & Hislop, H, 2007. Changing Places: Advancing Local Government Action on Climate Change, p 10. 11 LGA Climate Change Commission, 2007. A Climate of Change: Final Report of the LGA Climate Change Commission, p 21. Environmental Audit Committeee: Evidence Ev 113
Memorandum submitted by WWF
Introduction WWF considers tackling climate change to be a key role of all levels of government. We believe that the key themes that need to be addressed to enable greater and more coherent action at the sub-national level to be: 1. ensuring that sub-national government has the powers to take leadership on climate change; 2. developing and using reliable tools so that interventions can be strategic and their eVectiveness monitored; and 3. enabling lower carbon lifestyle changes. These themes are explored by WWF’s responses to questions raised by the committee below.
How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government? Central government needs to empower local, regional and devolved government to take a strong leadership role on climate change. Local authorities in particular need to receive a clear message from the UK and devolved administrations that they will be expected to contribute to greenhouse gas emissions reductions, in line (or exceeding) national targets. WWF suspects that the powers for sub-national government to take leadership and act on climate change are already in place, but we would like to see an analysis of existing powers take place to identify where new powers might be required. On the basis of this analysis, we would like to see national government to pro-actively encourage devolved, regional and local government. This message could be given with a coherent programme of performance measures, targets, financing, and accountability through audit. Audit and annual performance measures should specifically include reference to emission reduction plans in local authority operations and the local authority community or area. A key obstacle to action at present is the confusing messages sent by government about priorities. For example, the recent WWF, FoE, CPRE report “How Green is My Region”12 concluded that Government consistently sends confusing messages to Regions with conflicting policy requirements. This is most obviously seen in the conflict between the support by central government for regional airport expansion with the expectation to reduce climate change emissions. A wider concern is the government’s over-riding focus on economic development leading to making action on climate change almost impossible. Similar conflicting priorities are sent by government to local authorities too. A key barrier for action at the regional level could be the proposed reorganization of regional government structures. WWF is concerned that the emphasis on an economic development duty will dominate the agenda and side line attempts to implement sustainable development objectives. Government must be consistent and clear in its requirements of the regions and local authorities. Despite the confusing messages from government about the priority of climate change action at sub national level, some beacons of leadership are emerging. The role of the London Mayor in developing a vision for a low carbon London is an excellent example. The pioneering work of Woking Borough Council also demonstrates that local authorities can take real action that can have an impact. These initiatives need to be joined up and some form of annual national-local summit of political leaders to assess the regional and local authority contribution to national targets would be useful. It would provide the necessary leadership, political steer, and regular evaluation of opportunities and challenges to meeting targets year on year. It might also create a shift in attitude in government at all levels, resulting in the proper prioritization of climate change at the sub national level.
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? The “How Green is My Region” report highlights confusion over the roles of the diVerent levels of government in England. These roles need to be clarified and made more explicit. Without this, accountability, transparency, and comparability in the monitoring of emissions specifically and climate change adaptation and mitigation generally, will remain problematic.
12 WWF, CPRE, FoE (July 2007) How Green is My Region. Ev 114 Environmental Audit Committeee: Evidence
The Nottingham Declaration has provided a useful start for some local authorities. In Scotland, the Scottish Climate Change Declaration (with 100% of Scottish local authorities signed up) has similar commitments in terms of taking action on emissions. Now is the time to raise the bar by requiring local authorities and regions to report on emissions based on their operations and also those based on the consumption of their area in line with national targets. To date, most local authorities have focused on reducing the carbon dioxide emissions of their estate and related operations. Yet whereas an average council produces at least 30,000 tonnes of carbon per annum,13 an average local authority area in the UK has a Carbon Footprint totaling over one and half million tonnes.14 Action on mitigating climate change in the community is therefore vital. Defra’s proposed community emissions indicator provides an incentive for local authorities to engage with their communities on carbon emissions reductions. The Carbon Footprint is a complementary indicator which provides in-depth information for local authorities to enable focus on influencing the behaviour of local residents. The Carbon Footprint provides a lifestyle focus and an area focus; it measures the carbon dioxide emissions associated with energy use, travel, food consumption and spending on goods and services in a local authority area. Local authorities will need support in setting meaningful local improvement targets and devising an approach to meeting them. One way of doing this is through the REAP software tool. REAP generated Carbon Footprint (and Ecological Footprint) data provides complementary in-depth information for local authorities to use a community emissions indicator and focus on influencing the behaviour of local residents. Further explanation on the Carbon Footprint, and identification of the key policy levers which connect with its use, is available in “The Right Climate for Change”.15
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? The new performance framework does encourage local authorities to focus on the carbon dioxide emissions in their geographic area. WWF would encourage all local authorities to use the carbon footprint indictor because it takes account of carbon emissions embedded in any goods or service, but were generated outside of the geographical area. WWF considers that when embedded emissions are considered, a strong imperative is placed in working on those sectors that have the highest overall emissions. From a local authority context, the key sectors in which they could have an impact on reducing emissions are: housing, transport and waste. While sustainable development and climate change imperatives are increasingly being considered in the development of strategies for these sectors, the conflicting messages from government highlighted under question 1) often result in strategies for these sectors adding to carbon emissions rather than reducing them. Again, clear messaging and an encouragement from government for local authorities to take bold decisions in policy development could result in significant impacts on our carbon footprint. Local authorities can also be eVective through using the planning system. WWF’s response to the PPS on Planning and Climate Change provides detail on how WWF considers planning can be used to reduce carbon footprint.
4. To what extent should there be disaggregated targets for diVerent levels of government? How should independent targets, for example Scotland will set its own emissions target for 2050 (80% reduction rather than UK target of 60%) and the Greater London Authority has committed itself to making a 60% cut by 2030, fit together with national carbon targets and budgets? How can Government monitoring and forecasting of emissions be improved so as to disaggregate emissions, and the impact of carbon reduction policies, in diVerent regions and nations? WWF considers climate change to be a global issue that requires coordinated action at all levels. We believe that targets should be set at a national level and each level of government should be tasked to take action where its role and powers are best fitted to do so. WWF would also encourage and support devolved, regional and local government to set their own targets where they consider they can have a bigger impact than national targets. However, regions and local authorities are hamstrung by government stating that they cannot go beyond central government policy. So, those regions that want to set very stringent targets for sustainable construction, for example, may find that their bold policies will be removed by government because they go beyond current expectations.
13 LGA Climate Change Commission, 2007 (Strengthening local action on climate change). 14 SEI/WWF 2007. 15 Visit www.wwflearning.org.uk/localmatters. Published October 2007. Environmental Audit Committeee: Evidence Ev 115
5. How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are local authorities, regional government and devolved administrations? WWF supports the focus on climate change adaptation in the UK. There are many initiatives taking place and we await the results of these with interest. But, WWF considers that climate change adaptation should also be about adapting lifestyles, Local authorities could have a crucial role in enabling lifestyle change both through the eVective development and implementation of policy and acting in a leadership and enabling role with local communities.
6. How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK? EVective governance for climate change at all levels is one of the key mechanisms for achieving climate change mitigation and adaptation. WWF examined the competencies identified for this committee and considered that governance processes were not included. The committee must have someone with a strong competency on governance on its panel.
7. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? The issues set out in question 1 give detail on the barriers and our recommendation of an analysis of powers would help to determine if more powers are required. WWF considers that because climate change action requires coordination at many levels, local authorities should be encouraged to take joint action with their neighbours. Devolved and regional government could have a vital role in facilitating this.
8. What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions? WWF’s response to the PPS: Planning and Climate Change is appended for information.16
9. Are local authorities meeting their duty to enforce building regulations in relation to environmental measures? Does the enforcement regime discourage non-compliance? This is not an area that we have detailed evidence on, but others argue that local authorities do not have suYcient resources to enforce building regulations.
10. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? The above organisations have a crucial role to play in sharing best practice and provding case studies. Addtionally, consideration should be given to sharing how leaderhip for change has been achieved. Many of the obstacles faced by local authorities seem to be at the stages before anything happens, so any work that can be done to help share “how” change was achieved as well as the detail of the change would build momentum.
The Carbon Footprint of Local Authority Areas
Background and key messages To date, most local authorities have focused on reducing the carbon dioxide emissions of their estate and related operations. Yet whereas an average council produces at least 30,000 tonnes of carbon per annum,17 an average local authority area in England has a Carbon Footprint totalling over 1.5 million tonnes.18 Action on mitigating climate change in the community is therefore vital. Defra’s proposed community emissions indicator provides an incentive for local authorities to engage with their communities on carbon emissions reductions. The Carbon Footprint is a complementary indicator which provides in-depth information for local authorities that want to focus on influencing the behaviour of local
16 Not printed. 17 LGA Climate Change Commission, 2007 (Strengthening local action on climate change). 18 SEI/WWF 2007. Ev 116 Environmental Audit Committeee: Evidence
residents. The Carbon Footprint provides a lifestyle focus and an area focus; it measures the carbon dioxide emissions associated with energy use, travel behaviour, food consumption and spending on goods and services in a local authority area (see overleaf). — WWF-UK and SEI urge the LGA Climate Change Commission to recognise the value and role of the Carbon Footprint in helping to address climate change at a local level. We would welcome discussions on the development of allied policy levers to encourage and support action by local authorities on reducing the carbon emissions of their communities. At the time of writing a central reporting approach is suggested for the community emissions indicator based on Defra’s experimental local authority emissions data.19 The rationale for this approach is that it reduces the local authority reporting burden. But local authorities will need support in setting meaningful local improvement targets and devising an approach to meeting them. One way of doing this is through the REAP software tool. REAP generated Carbon Footprint data provides complementary in-depth information for local authorities that want to use a community emissions indicator and focus on influencing the behaviour of local residents. — WWF-UK and SEI would welcome the opportunity to explore how this tool might be developed to increase its reach and accessibility. Carbon Footprint data generated by the REAP software tool will soon be available for free for every local authority area in the UK.20 The REAP software tool can be used to identify how local policies may eVect carbon dioxide emissions from the local community over time. An explanation of the Carbon Footprint, and identification of the key policy levers which connect with its use, will also soon be available in a new publication from WWF-UK and SEI, “The Right Climate for Change”.21
Understanding the Carbon Footprint
The Carbon Footprint is a measure of the total amount of carbon dioxide emissions that are directly and indirectly caused by human activity. In their forthcoming publication, WWF and SEI use the Carbon Footprint to look at the consumption activities of individuals and households within local authority areas. This provides us with a connection between the way people live, the policy levers available to local government and climate change. The Carbon Footprint is: Outcome based: It helps local authorities to decide how they wish to allocate resources and deliver against their targets. Local authorities that use REAP can test how diVerent combinations of policies could deliver reductions in the Carbon Footprint as well as whether consumer trends may create risks. Attributable to local authority action: The Carbon Footprint results reflect the geography of local authority areas and the characteristics of the local population, as well as local and national level policies implemented at that time. REAP can be used to take account of trends and changes driven by local and national government collectively or separately. The expected and actual impact of individual policy measures can be measured in isolation to other changes, and to create best and worst case scenarios. SEI has used REAP to create transport projections for Hertfordshire County Council and Greater Nottingham based on local policies, national trends in travel behavior, and projected improvements in the fuel eYciency of vehicles. A driver of behaviour change: The Carbon Footprint can be directly related to behaviour change in all areas of people’s lifestyle and on an individual, household and community basis. Aberdeenshire County Council is using REAP to create Footprint profiles of local communities. Aligned to other policy objectives and statutory duties: The scope of the Carbon Footprint makes it possible to link climate change to a number of other local agendas including access to services, planning decisions, health, fuel poverty, housing conditions, and waste management. Measurable in a cost eVective fashion: The online Carbon Footprint data creates no additional reporting requirement. However, to update this data with local sources and monitor changes in residents’ behaviour using REAP requires dedicated resource within your local authority area. York, North Lanarkshire, Aberdeenshire and Aberdeen all have dedicated Footprint OYcers who champion Footprint Analysis and build expertise within their local authorities. Comparable over time and between local authorities: The online Carbon Footprint data provides a sound comparison of carbon dioxide emissions between diVerent local authority areas. Data sets are regionally adjusted so comparisons are likely to be most reasonable within Government OYce
19 http://www.defra.gov.uk/environment/localgovindicators/pdf/Indicators/CO2.pdf 20 Further information on REAP can be found in the accompanying briefing, “An introduction to the Resources and Energy Analysis Program”. The REAP software tool comes with a licence charge and users require training. At present the online data is available for free—visit www.sei.se/reap/ 21 Visit www.wwflearning.org.uk/localmatters. Publication due out late October 2007. Environmental Audit Committeee: Evidence Ev 117
Regions. The online data will be updated on an annual basis; REAP users can also update their baseline using locally specific information but this takes away the direct comparability at a national or regional level. Auditable: The Carbon Footprint data available online requires no input from local authorities and data collection and analysis is carried out by SEI. REAP technical reports outline the methodological approach and all data sets are provided by Government departments, the OYce for National Statistics or CACI’s Acorn socio-economic local authority profiles. SEI is developing support material and recommended data sources for local authorities that want to update their Carbon Footprint using REAP. Collaborative: The range of issues the Carbon Footprint touches on encourages partnership working within and between local authorities and community partners. SEI is investigating the potential for an online forum for users of the Carbon Footprint data to share best practice and lessons learned. In the Tees Valley SEI worked with the Environment Agency and Hartlepool, Darlington, Middleborough, Redcar and Cleveland and Stockon on Tees Unitary Authorities to look at housing and transport issues across the sub-region. A REAP license is now held by the Tees Valley Joint Strategy Unit with the aim of supporting all five local authorities.
WWF Response to Planning Policy Statement:Planning and Climate Change, supplement to PPS1
1. Introduction
WWF welcomes the opportunity to comment on the above consultation, and the complementary Building a Greener Future and Water EYciency in New Buildings consultations. WWF launched its One Million Sustainable Homes campaign five years ago, and at the outset we initiated a nine-month stakeholder dialogue to identify the barriers to the mainstreaming of sustainable homes in the UK. WWF consulted with a wide range of stakeholders, including a large number of developers and planners. One of the key barriers consistently identified by stakeholders was the planning system at the national, regional and local levels. We therefore believe that this supplement to PPS1 will be vital in helping to deliver clear guidance on climate change issues in spatial planning and the built environment and we urge the Government to make clear that this policy will be fundamentally embedded at the heart of the Planning system. WWF believes that it is vital that all decisions on housing growth are taken within the context and full knowledge of local and global environmental limits. Our homes not only have significant direct environmental impacts, they also aVect our lifestyle decisions such as how we travel to work and where we buy our food. It is therefore absolutely essential that new homes are developed to the highest building standards and with the necessary infrastructure to enable residents to easily choose the sustainable option and reduce the impacts of their lifestyles. The alternative is to risk locking residents into high carbon, car- dependent lifestyles for generations to come.
2. Carbon trajectories
We welcome the proposed introduction of regional trajectories for carbon emissions. We believe that trajectories should be required of regional authorities and not simply encouraged, and that they should be translated into regional and local planning policy as soon as is practicable. We firmly believe that these trajectories should be based on a robust methodology which incorporates the total global emissions resulting from a region’s activities. A methodology should be adopted that takes account of emissions in other countries that result from our consumption of imported goods, resources and services. Our consumption patterns here are driving CO2 emissions in many developing countries—this is known as “burden shifting”. Research suggests that a typical region might have to account for a further 10–15% more CO2 emissions if we are to take full responsibility for our consumption patterns. WWF recommends the use of the latest evidence based models/tools to develop policy scenarios and assess the overall trajectory of policies. WWF has been involved in the development of such a tool, the Resource Energy Analysis Programme (REAP). Designed by Stockholm Environment Institute with the Centre for Urban and Regional Ecology and WWF, REAP models the impacts of policy and creates scenarios of the future trajectory. These scenarios can be compared against targets or alternative policy outcomes based on modelled trends or assumptions. For example for housing policy it is possible to explore the impact of introducing policies that reduce energy use, reduce emissions and promote the development of renewable energy sources. The impact can be expressed in carbon dioxide emissions22 or by using the Ecological Footprint.
22 REAP can be used to calculate all greenhouse gases associated with our consumption activities, including carbon dioxide (CO2), methane and nitrous oxide. Ev 118 Environmental Audit Committeee: Evidence
REAP was launched in March 2006 and is available to every region in England through the Sustainable Consumption and Production network (SCPnet).23 Training on use of REAP is being provided to regions via the SCPnet and all the data used in REAP is available for download via the Ecological Budget website.24 REAP has recently been used by a number of regions and local authorities to assess the overall direction or 25 trajectory that key policies will lead to in terms of CO2 emissions.
3. Energy supply WWF believes that 10% onsite renewable energy generation for new developments should be regarded as an absolute minimum standard, and that Regional Planning Bodies (RPBs) and Local Planning Authorities (LPAs) who wish to require more should be allowed and encouraged to do so. WWF also supports, in principle, the development of new and additional oVsite renewable capacity by the developer, depending on the opportunities/limitations of the site. WWF suggests that one way of ensuring “additionality” would be for developers to pay to retire the Renewables Obligation Certificates associated with the renewable electricity generation for a fixed period. WWF believes that higher levels of energy eYciency and renewable energy and low/zero carbon heat and power could be delivered by a shift to Energy Service Companies (ESCos). There are already a number of ESCos that have been set up to facilitate the delivery of very low carbon heat and power, ranging from the Island of Gigha Heritage Trust to Mill Energy Services at Titanic Mill. These first generation ESCos have provided valuable experience about the barriers to Energy Services which include high start up costs, and the time required to set up the ESCo. If these barriers can be overcome then a second generation of ESCos, possibly following the multi-utility model being proposed by Thames Water and EDF Energy at Ebbsfleet, will come online. The Government should also support and incentivise the development of Sustainable Utility Service Companies “SUScos” to deliver “joined-up”, and therefore more cost-eVective, sustainable waste, water and energy infrastructure in new and existing developments. WWF believes that a transformation of the current Energy EYciency Commitment into a supplier cap and trade scheme has the potential to revolutionise the delivery of energy eYciency and renewable energy. Placing a progressively tighter cap on total gas and electricity supply would force supply companies to embrace a new business model based on provision of energy services. Previous eVorts to promote ESCos have been hampered by the fact that the existing market structure and regulation is based around provision of energy as a commodity.26 By shifting to a supplier cap and trade system, the Government would encourage both developers and energy companies to develop new models of energy delivery.
4. Local flexibility for higher building standards As stated above, WWF welcomes the introduction of the Code for Sustainable Homes and the targets for future minimum standards in the Building Regulations and the commitment to zero carbon by 2016. However, WWF firmly believes that RBPs and LPAs that wish to demand higher standards more quickly should be allowed the flexibility to do so. We support the point in 1.13 that LPAs are encouraged to “engage constructively and imaginatively with developers to secure the delivery of sustainable buildings and recognises there will be local circumstances that justify higher standards for particular developments...forexample, where there is significant local opportunity for major development to be delivered at higher levels of the Code for Sustainable Homes”. Given that approximately 2 million homes will be built between now and 2016, WWF believes that RPBs and LPAs must be allowed and positively encouraged to require higher standards, using the Code for Sustainable Homes. Currently guidance on this is confusing and frequently the Examination in Public (EiP) process curbs best practice in this area. In turn, developers should receive clear information about the standards they will be required to meet in pre-application discussions so that they can deliver innovative solutions in the most cost-eVective way. Experience has shown time and time again (for example through English Partnership development schemes) that developers are more than able to rise to the challenge of meeting higher sustainability standards, as long as they are clear on requirements from the outset.
5. Wider sustainable Infrastructure provision WWF warmly welcomed the announcements made in December that all new homes would be zero carbon by 2016 through the Building Regulations. However, the Planning system has a critical role to play in delivering against the broader “site level” aspects of mitigating and adapting to climate change. For this reason we support the points set in paragraph 35 but would add: — Excellent public transport links, the consideration of car clubs and a ‘green transport plan’ to reduce personal car use.
23 www.scpnet.org.uk 24 www.ecologicalbudget.org.uk 25 Using REAP for an environmental assessment of the Leeds City Region RSS Housing Policy and Carbon Dioxide Emissions of West Midlands Housing A Scenario Analysis, http://www.sei.se/reap/regional/r casestudies.php 26 WWF-UK Response to the Energy Review. Environmental Audit Committeee: Evidence Ev 119
— Access to local, “walkable” amenities including schools, health and leisure facilities, local employment opportunities and oYce space, local food links and farmers markets. — Facilities to enable easy home-working. — Green spaces to help absorb heat, and provide amenity value for residents, and space for biodiversity. WWF and BioRegional’s work on “One Planet Living”27 (OPL) aims to make it easy, aVordable and attractive for people to live within their “fair share” of the earth’s resources. We are working with partners in the UK (including in the Thames Gateway) and internationally to develop a network of zero carbon, One Planet Living communities to demonstrate OPL in action. Three proposed zero carbon developments in Middlesbrough, London and Brighton will contain the features listed above and will be developed competitively within standard developer commercial parameters. Furthermore, faster sales rates are expected to increase profitability. More details on how the above elements can be incorporated into new developments can be found in the BioRegional report, Enabling One Planet Living in the Thames Gateway.28 To facilitate a good dialogue on sustainability issues between planners and developers, WWF and BRE, with part DCLG funding, have developed Regional Sustainability Checklists29 in the English regions. The checklists set out a common framework of issues to be considered at the pre-planning and planning stage. WWF firmly believes that in order to ensure that the wider sustainability aspects of developments which are not addressed under the Code for Sustainable Homes, such as transport, community participation in decision making, community infrastructure and business development opportunities, the Government should also require and support the use of the DCLG/WWF/BRE Regional Sustainability Checklists for Development. With part funding from DCLG, WWF has been working with BRE and a range of regional stakeholders to develop the Checklists, using the existing SE version developed by BRE and SEEDA as a model, but tailoring each one to regional concerns and policy. The Checklists will be completed and available free of charge by Spring 2007. 3 January 2008
Memorandum submitted by the Energy Retail Association
About the Energy Retail Association
1. The Energy Retail Association (ERA), formed in 2003, represents Britain’s electricity and gas suppliers in the domestic market in Great Britain. The ERA works closely with Government, NGOs, charities and other organisations in England, Scotland and Wales to ensure a coordinated approach to dealing with the key issues aVecting our industry and the British consumer. All the main energy suppliers operating in the residential market in Great Britain are members of the association: British Gas, EDF Energy, npower, E- ON, Scottish Power and Scottish and Southern Energy. 2. The Managing Directors of these six companies make up the Board of the ERA, who work closely with the Chief Executive Duncan Sedgwick. The Board is chaired by Willie MacDiarmid, Managing Director, Energy Retail at Scottish Power. 3. In the four years of its existence the ERA has continually focused on finding ways to improve customers’ experiences with their electricity and gas suppliers. Much of the work we do is related to energy eYciency and helping suppliers and Government to develop policy for schemes such as the Energy EYciency Commitment and the Carbon Emissions Reduction Targets, and supporting polices to tackle fuel poverty. An area of focus for the ERA is our pioneering work on smart metering, which has the potential to make significant progress in the fight against climate change. It is on that subject which we are making a submission to this inquiry.
Overview
4. The ERA wishes to make a general response to this inquiry, drawing the attention of the Environmental Audit Committee to the potential oVered by a national roll-out of smart meters to tackle climate change at a local or devolved level. In particular, we feel that the issue of smart meters relates to question seven in the call for evidence:
27 One Planet Living is a joint initiative between WWF and BioRegional, see www.oneplanetliving.org 28 http://www.wwf.org.uk/filelibrary/pdf/z-squared2004.pdf 29 See http://southeast.sustainability-checklist.co.uk/ for the SE version of the Checklist. Ev 120 Environmental Audit Committeee: Evidence
What are the barriers to greater local or regional action? Do the diVerent levels of Government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? 5. We feel that in order for regional and local Government to take eVective action to reduce carbon emissions, there needs to be a national policy to roll-out smart meters to every home as quickly as possible. 6. Currently, consumer awareness of their carbon footprint remains low. The idea of energy consumption remains intangible, with customers and suppliers relying on estimated bills and meter reading visits to gauge how much electricity and gas is being consumed by a household. (Although devices are available to give customers readings on their electricity use, the information displayed is not 100% accurate, and they oVer no information on gas use, which comprises the majority of most households’ consumption). Without accurate consumption data, it is diYcult to create consumer “pull” around reducing energy use, and correspondingly to identify how savings could be made. 7. Energy companies are also aware that the current energy supply market is due to change fundamentally over the next ten years. As part of its strategy to tackle climate change, Government is requiring companies, as part of their post 2011 supplier obligations, to turn around their operating models to one where they become profitable through encouraging customers to reduce their energy consumption. To comply with these obligations, we need to develop commercial incentives for producing and using less energy. This cannot be achieved without the enabling technology of smart meters. Until companies are able to pinpoint how, where and when energy is being used, we will not be able to work with customers to develop commercially viable, targeted and eVective consumption reduction schemes. 8. Smart meters oVer consumers and energy supply companies the means to measure each household’s overall energy consumption, and work with local or regional Governments to become more energy eYcient.
What is a smart meter? 9. Smart meters are the next generation of electricity and gas meters. They will bring about the end of estimated bills and meter readings, and provide customers and energy suppliers with accurate information on the amount of electricity and gas being used. They will also provide the platform for the development of a much greater choice in energy tariVs and services for all homes. 10. Smart meters empower customers to make choices on how much energy they choose to use. Suppliers will install two-way communication systems that display accurate real-time information on energy use in the home to the consumer and back to the energy supplier. In addition, smart meters enable: — flexible tariVs that measure consumption over set time periods; — automatic and actual meter readings that will bring an end to estimated bills; — capability for selling energy back to the supplier which will facilitate microgeneration technology (eg solar panels or wind turbines); — the same electricity and gas meters to be used for all customers, whether they are pre-payment or credit; and — improved accuracy of forecasting energy demand at diVerent times of the day. 11. Delivering smart meters will require an ambitious home visit programme. With 45 million domestic meters throughout Britain, the roll-out of smart meters promises to be more extensive than other technological and social transformations such as decimalisation, the provision of North Sea gas to homes and, more recently, the introduction of chip and pin. If given the necessary mandate by Government, the industry will invest in introducing smart meters, and aim to ensure that after a 10 year roll-out plan, every home in Britain has a 100% accurate method of energy billing. 12. The ERA members are very keen to begin this lengthy and complex process. However, our industry cannot introduce smart meters without a mandate from Government to do so because of statutory requirements concerning competition and an incomplete business case. Only with a mandate from Government can we work with the regulator to ensure that the roll-out of smart meters is implemented as eYciently and cost-eVectively as possible, and that reductions in carbon emissions are realised.
Policy Context 13. The EU Energy End-use EYciency and Energy Services Directive, which was agreed in December 2005, requires Member States to develop national action plans for achieving a one per cent annual energy saving target from end-users. The UK Government has held consultations and produced the Energy White Paper in July 2007 to meet this need. In order to comply with the EU Energy Services Directive, the UK Government is required to publish a national action plan by May 2008. This Directive also contains provisions for time-of-use meters to be installed on a new and replacement basis where it is cost eVective to do so; plans for this measure must be brought into UK law by 2008. The Department for Environment, Food and Rural AVairs (Defra) has the policy lead on bringing the provisions of the Directive into UK law. Environmental Audit Committeee: Evidence Ev 121
14. The Energy White Paper produced by the UK Department of Business, Enterprise and Regulatory Reform (BERR) expressed an ambition that every home in the UK would have a smart meter within ten years. It also outlined three core billing and metering activities that would heighten awareness of energy use and reduce consumption: — information on bills: to promote awareness of domestic energy use through a requirement on energy suppliers to present consumption data on consumers’ bills to allow them to compare diVerent periods of energy consumption; — information on display: to promote awareness of domestic energy use through a requirement to provide certain customers with real-time display units so that they can see in real time, and in a way relevant to them, how much energy they are consuming and what it is costing; and — immediate delivery: to ensure that business customers in those sectors of the market where it was now cost-eVective would receive smart meters over the next five years. 15. We are firmly of the view that the energy eYciency and carbon reduction objectives of the EU, the UK Government and, indeed, the Welsh Government, are unlikely to be achieved with the current technological and administrative arrangements for metering and billing. We believe that once smart meters have been rolled out over England, Wales and Scotland, an infrastructure will be in place making it possible for devolved, regional and local Governments to develop their own plans for reducing carbon emissions. This will help the UK to make the considerable carbon reductions necessary to meet the challenging targets set out the in Climate Change Bill.
Smart meters: enabling innovation in carbon reduction 16. A national smart metering system would enable local authorities and regional Governments to work with energy supply companies and their constituents to cut carbon emissions in their area. Armed with accurate data on local energy use, it is possible for regional plans to be developed, which relate to specific consumption patterns or opportunities aVorded by a particular region. 17. An example would be the possibility of promoting domestic wind generation in coastal areas, or parts of Scotland or Wales where the generation potential is greatest. Smart meters, with their capability to import and export energy from the grid, open up the possibility of local authorities and energy supply companies working together to encourage greater exploitation of the UK’s low-carbon energy sources, as well as measuring the impact that these steps have on regional and local consumption patterns.
How can the Environmental Audit Committee’s inquiry help? 18. Th ERA fully supports the Government’s ambitious targets on carbon emissions reductions, but we believe that this cannot happen without the wealth of accurate consumption data oVered by smart meters. It is our hope that the Government will go further than the ambition expressed in the Energy White Paper in June, and make an unambiguous commitment to smart meters in the forthcoming Energy Bill, granting the industry the mandate it needs. There is considerable cross-party support in Westminster, Holyrood and the Senedd for smart meters, and it is our hope that the recommendations following the Committee’s inquiry will recognise how smart meters will promote innovation in localised energy reduction. 3 January 2008
Memorandum submitted by the Wildlife Trusts
Introduction 1. The Wildlife Trusts (TWTs) welcome the opportunity to respond to the Environmental Audit Committee Inquiry into “Climate change and local, regional and devolved government”. 2. There are 47 local Wildlife Trusts across the whole of the UK, the Isle of Man and Alderney. We are working for an environment rich in wildlife for everyone. With more than 720,000 members, we are the largest UK voluntary organisation dedicated to conserving the full range of the UK’s habitats and species whether they be in the countryside, in cities or at sea. We manage 2,200 nature reserves covering more than 80,000 hectares; we stand up for wildlife; we inspire people about the natural world and we foster sustainable living. For more information on The Wildlife Trusts, please refer to www.wildlifetrusts.org 3. The Wildlife Trusts are heavily engaged in policy and delivery on climate change adaptation at national, regional and local levels. We work closely with local authorities, regional bodies and devolved administrations on a range of aspects of climate change adaptation, from strategy and planning to land management and community development. We have been instrumental in highlighting the importance of climate change adaptation for wildlife and people to decision makers, and in particular: Ev 122 Environmental Audit Committeee: Evidence
— Habitat opportunity mapping to inform planning decisions, and involvement in development control. — Local and regional climate change action plans. — Biodiversity adaptation including Local Wildlife Site systems and Biodiversity Action Planning. — National policy development including membership of the Defra Ecosystems Approach steering group. 4. The Wildlife Trusts have produced a strategy document entitled “A Living Landscape” which calls for the restoration of the UK’s fragmented ecosystems, for wildlife and people. This report sets out The Wildlife Trusts’ position and vision of the future with regard to adaptation to climate change but also provides numerous case studies of landscape-scale conservation schemes. The case studies demonstrate where we are directly engaged in delivering the adaptation changes required on the ground, and the holistic benefits that this work can bring. The document is available to download from the “publications” page of www.wildlifetrusts.org 5. We would be pleased to provide further information in relation to points raised in this response. 6. This response focuses on climate change adaptation. Whilst The Wildlife Trusts recognise the importance of climate change mitigation measures, we believe that other bodies are better placed than us to comment on mitigation in relation to local, regional and devolved government. The Wildlife Trusts’ considerable skills and expertise on climate change adaptation means that this forms the principal focus for our submission.
General Comments 7. The Wildlife Trusts believe that local, regional and devolved government must give climate change adaptation the same urgency and priority as they have given to climate change mitigation. This is essential if each level of government is to respond to the unavoidable impacts of a changing climate, and an unpredictable future. Indeed, we believe that environmental adaptation is essential to underpin our climate change response for both wildlife and people, providing wide ranging solutions for issues such as flood risk and water management, farming and fuel production, recreation, industry and social development. 8. The scale at which climate change adaptation operates is significant, and local, regional and devolved governments will need to work at a landscape-scale in order to plan and deliver eVectively. Operating on a site by site basis will be insuYcient, and authorities will need to consider the functioning of whole ecosystems rather than simply individual components within them, to maintain and enhance the resilience and connectivity of the natural environment. 9. Operating at an ecosystem and landscape-scale will require a robust information base and habitat opportunity mapping will be required across all local, regional and devolved government areas to inform the planning and land use decision making required for climate change adaptation. 10. At sea, the most eVective climate change adaptation measure should be the introduction of new marine legislation.
Specific Comments
How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers and structures are required to improve joined up delivery of climate change policy at all levels of government? 11. The Stern Review has warned us of the economic consequences of not prioritising environmental climate change adaptation. We must therefore see real joined up central Government in our response, with a focus on long term sustainable development and quality of life, rather than simply short term economic gain. Whilst we are seeing some positive steps from central Government in this direction (eg with the recent launch of the Defra Ecosystems Approach and Action Plan), policy join up across departments is weak. Proposed reforms in planning and regional governance for example within CLG, threaten to undermine the concept of environmentally sustainable development by giving disproportionate weight to economic growth. Central Government needs to show greater leadership on climate change adaptation with joined up policy across departments and a strong steer for local, regional and devolved administrations. 12. There are two particular areas of policy that would support climate change adaptation (others are highlighted later in this submission in response to specific questions). The first is to ensure that changes in regional governance in England result in a new body with sustainable development at its heart and with proper accountability and representation. This would mean that planning decisions would take appropriate account of the natural environment, and the proposed Integrated Regional Strategies would have an eVective environmental component in the face of climate change (see attached briefing on changes in regional governance in England). The second is to place a new duty on all public bodies for sustainable flood Environmental Audit Committeee: Evidence Ev 123
management. This would promote more appropriate land management and development to take account of climate change adaptation, and would also provide an eVective means of transposing the new EU Floods Directive.
Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? 13. Duties already exist on public bodies to take account of climate change adaptation such as the biodiversity duty in the NERC Act 2006. However, The Wildlife Trusts believe that greater emphasis and encouragement is required for public bodies to understand, prioritise and resource this duty as a response to climate change. Local and regional bodies can meet many of their climate change adaptation needs by focusing on biodiversity measures such as operating Local Wildlife Site systems to Defra common standards, managing their own land holdings to benefit biodiversity, bringing protected sites into favourable management condition, and planning large-scale habitat restoration and creation programmes.
What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? 14. The current climate change adaptation indicator within the local government performance framework is a good starting point for action. However, this is a process target for producing adaptation strategies and requires complementary outcome targets on delivery of the adaptation response. The indicator on local biodiversity provides one measure of such an outcome, highlighting the performance of Local Wildlife Site systems. The Wildlife Trusts recommend that these two indicators are promoted and used together to encourage a strategic approach and eVective delivery of climate change adaptation. We also believe that the climate change adaptation indicator should be seen as an underpinning measure which influences activity in other areas such as planning, transport, waste and water. 15. The challenge for local government is that these two indicators are adopted within Local Area Agreements and that funding is attached to them. The Wildlife Trusts believe that greater encouragement should be provided to Local Authorities and regional bodies on the critical importance of climate change adaptation as well as mitigation, and that these indicators should be adopted as priorities.
To what extent should there be disaggregated targets for diVerent levels of government? How should independent targets, for example Scotland Hwill set its own emissions target for 2050 (80% reduction rather than UK target of 60%) and the Greater London Authority has committed itself to making a 60% cut by 2030, fit together with national carbon targets and budgets? How can Government monitoring and forecasting of emissions be improved so as to disaggregate emission, and the impact of carbon reduction policies, in diVerent regions and nations? 16. The Wildlife Trusts believe that there is a role for targets in relation to adaptation as well as mitigation, for example the local government indicators and targets mentioned above for Local Wildlife Site systems and climate change strategies. Targets also exist for condition of Sites of Special Scientific Interest and for habitat maintenance, restoration and creation within local, regional and country Biodiversity Action Plans (BAP). The Wildlife Trusts believe that UK BAP habitat targets set within regional and local habitat opportunity mapping should form the basis for targets for adaptation of the natural environment to climate change.
How advanced and coordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are local authorities, regional government and devolved administrations? 17. Regional and local climate change action plans are being developed across the country, but have a varied level of priority aVorded to adaptation. The Wildlife Trusts believe that greater coordination and guidance is required for these plans to be eVective, with outcomes focused on resilient, functioning ecosystems and habitat connectivity. Green infrastructure plans and studies are also being developed in response to growth and housing development. It is essential that these plans take proper account of the needs of wildlife in relation to climate change adaptation and do not simply view green infrastructure as recreational space. 18. Local authorities are impacted directly by climate change through management of their own land, public spaces such as parks and through programmes such as tree planting and maintenance. Further work is needed to encourage demonstrations and models of climate change management of such spaces to promote adaptation for wildlife and encourage use by people. Greater coordination and consideration Ev 124 Environmental Audit Committeee: Evidence
should also be given to the role of land management more broadly in supporting climate change. For example, in the uplands mechanisms are required to promote restoration of peatlands (having added benefits of carbon and water storage), or encourage sustainable farming and forestry practice.
How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK? 19. The Wildlife Trusts believe that the Committee on Climate Change should have balanced expertise and representation from those involved in climate change adaptation in addition to mitigation. The Committee should also have balanced representation across the interests of sustainable development, reflecting the natural environment, social issues and economics.
What are the barriers to greater local or regional action? Do diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? 20. There are several barriers that exist to local or regional action on climate change adaptation. Many of these stem from the lack of joined up policy making from central Government which is reflected in decisions at local and regional level, and from the need for better strategic planning for adaptation through habitat opportunity mapping. 21. For example, the proposed changes in the current Planning Bill threaten action at the local level by determining Nationally Significant Infrastructure Projects without local consultation. This will result in physical barriers that damage existing habitat, prevent habitat expansion and block species movement. 22. Conflicts in priorities also threaten eVective adaptation, such as pressure for hard flood defences in all flood risk areas rather than integrating these with natural solutions, or pressure for development on sites that are strategically important for adaptation. The Wildlife Trusts believe that greater emphasis needs to be placed on habitat opportunity mapping to help direct decision making of local, regional and devolved government.
What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions? 23. The new Planning Policy Statement on climate change is weak on adaptation and in itself is unlikely to promote the urgency and scale of the task of our response to climate change impacts. The Wildlife Trusts welcome the recent climate change amendment announced to the Planning Bill, that highlights: “Development plan documents must (taken as a whole) include policies designed to secure that the development and use of land in the local planning authority’s area contributes to the mitigation of, and adaptation to, climate change”. 24. This goes some way to ensuring that planning takes account of the needs of climate change adaptation, but further clarity is required. For example, more emphasis is required to stress the importance of protecting the integrity of the SSSI system in the face of major infrastructure projects. Are local authorities meeting their duty to enforce building regulations in relation to environmental measures? Does the enforcement regime discourage non-compliance? 25. Building regulations should be considered to promote climate change adaptation as well as standards to reduce emissions. The Wildlife Trusts believe that stronger regulations to promote adaptation are required that include siting, provision of services such as sustainable urban drainage schemes, use of landscaping (including green roofs and green walls) and greenspace management. What good practice is there to be shared? How is best practice shared and does central government support sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? 26. Good practice should also be seen in relation to adaptation as well as mitigation. The Wildlife Trusts have significant expertise in this area with approximately 150 landscape-scale initiatives under development to promote climate change adaptation. Greater integration is needed between statutory, public and voluntary sector bodies at local and regional level to share expertise and coordinate activity on climate change adaptation. 3 January 2008 Environmental Audit Committeee: Evidence Ev 125
Memorandum submitted by the South East Climate Change Partnership
About the South East Climate Change Partnership The South East Climate Change Partnership (SECCP) is the leading forum that engages, inspires and empowers the development and implementation of solutions for a South East region that is resilient to climate change and low-carbon, benefiting current and future generations. The Partnership is an independent, not for profit organisation funded by our members. We bring together more than 50 public, private and voluntary sector organisations from across the South East. We work in the following ways:
Sharing good practice — Encouraging partners to address climate change and to be champions for their stakeholders and communities by sharing good practice and through education.
Solutions-driven — Providing, advising on and advocating eVective climate change solutions relevant to the South East region.
Joint working — Championing joint working between partners and with others to be more eVective in tackling the impacts and reducing the causes of climate change.
Staying Informed — Communicating and interpreting scientific research and information on developments in climate change policy and guidance, linking them to real-world solutions.
Aaptation focused — Building on our strong track record in this emerging area, the Partnership will continue to play a unique role through our focus on adaptation to the impacts of climate change. In all of our work, we will look for opportunities to improve the region’s resilience to the impacts of climate change and to integrate climate resilience with carbon reduction. We work closely with national organisations such as the UK Climate Impacts Programme and those in other regions of the UK who are addressing similar issues. Further information about the Partnership and copies of our publications and newsletters can be found on our website www.climatesoutheast.org.uk This response outlines the views of the Partnership. In addition, some of our Partners may submit detailed individual responses.
General We welcome the opportunity to share our views and experience with the Environmental Audit Committee on this important subject. The science of climate change has progressed very rapidly in recent years, along with our understanding of the urgency of the response needed. However, our experience tells us that the implementation of the required changes is generally progressing very slowly, if at all. This is especially true in the field of adaptation to the impacts of climate change, where much depends on an assessment of expected risks and the solutions are not always well developed or demonstrably cost eVective, especially in the short term. However, the severe impact of the floods of summer 2007 on households, businesses and infrastructure demonstrates the need to prepare for the eVects of extreme weather events. Policies and targets are being developed at all levels and pockets of good practice exist in both reducing greenhouse gas emissions and adapting to the impacts of climate change. These must gather momentum in order to move ahead at the pace needed. This will require strong leadership, coordination and cooperation between the diVerent levels of government and dedicated resources. It is vitally important that adaptation to the impacts of climate change is prioritised clearly alongside mitigation of the causes. Ev 126 Environmental Audit Committeee: Evidence
Response to Set Questions
1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers and structures are required to improve joined up delivery of climate change policy at all levels of government?
— Showing leadership and setting clear national goals through the Climate Change Bill and a programme to deliver it, including guidance for regional implementation. — Providing clear, consistent and useable methods for setting baselines and recording carbon emissions. — By integrating climate change mitigation and adaptation policies more clearly into national policies, eg on waste, transport (including aviation and shipping) and energy. — By providing financial incentives, eg through the taxation system, to householders, businesses and communities for practical and proven mitigation and adaptation responses, helping local authorities to achieve local targets. There may also be opportunities to support regional bodies and councils that oVer such incentives at a local level, eg linking water and energy eYciency to local taxation. — By widely disseminating established good practice and encouraging take-up. There are many examples of good projects and good practice that work, but these are not being widely replicated. — Supporting partnership working. Working in partnership enables regional and local bodies to engage with and learn from other similar organisations and with the private sector. Pooling knowledge, skills, experience and resources is vital if change is to happen at the pace required and if national targets are to be met. Regional climate change partnerships such as the SECCP have proved a successful model, enabling members to access the latest information, keep up to date with policies, network eVectively and develop tools and guidance for local authorities. However, Partnerships require full-time coordination to be successful. Government should encourage membership of such partnerships and show its support for their work by funding a proportion of the running costs.
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of response at a local level be improved? How eVective has the Nottingham Declaration process been?
In the South East, the regional agencies have begun working together to develop a joined-up strategy. There is still some way to go on this, especially as the future roles of the agencies are unclear in the light of the government’s Sub-national Review. It seems that the Development Agencies will have increasing responsibility for delivering challenging climate change targets and this will involve working very closely with local authorities.
The response to climate change is best determined at a local level in order to identify the most suitable ways to reduce greenhouse gasses or adapt to the expected impacts on the local community. The regional and local authorities should therefore play an important role in implementing agreed targets on the ground. This will require local authorities to tap into and provide support for local community initiatives. Such initiatives seem, in our experience, to be most eVective when visibly led by the local community, but with support from the local council.
The Nottingham Declaration has been extremely useful in engaging local authorities and many in the south east are signatories. It is eVective in generating interest and discussion and sets some actions against which the councils can report and be scrutinised. However, the Declaration is just a first step and coordinated local and regional action is needed to deliver and move beyond these commitments. It is vital that local commitments are supported by clear and achievable delivery plans and that they contribute to achieving national targets.
Currently regions and authorities are struggling to identify clear methods for either setting a baseline of current or historical carbon emissions, or of adequately tracking current and future emissions. Progress is being made, but it is extremely important that these calculations are made as consistently as possible and without much further delay so that reporting can begin and provide reliable data for assessing and comparing local, regional and national progress. Environmental Audit Committeee: Evidence Ev 127
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action?
We strongly welcome the inclusion of key performance indicators on climate change in the new Local Area Agreement framework. We are especially pleased that an indicator on adaptation to the impacts of climate change appears for the first time. This will encourage local authorities to consider the impacts of climate change on investment projects and infrastructure, avoiding considerable additional costs over the coming years and decades. However, there is currently no requirement on local authorities to include any of the climate change indicators in their agreement, which is likely to result in patchy reporting and progress, which may aVect our ability to meet regional and national targets. This seems to run contrary to government statements which declare climate change to be the greatest challenge we face. As the Stern Review indicates, there is a strong economic case for investing now to reduce our greenhouse gas emissions and adapt to the impacts of our changing climate. While local authorities must have flexibility to identify the best local responses, climate change should be at the core of their strategies.
4. To what extent should there be disaggregated targets for diVerent levels of government? How should independent targets, for example Scotland will set its own emissions target for 2050 (80% reduction rather than the UK target of 60%) and the Greater London Authority has committed itself to making a 60% cut by 2030, fit together with national carbon targets and budgets? How can Government monitoring and forecasting of emissions be improved so as to disaggregate emissions and the impact of carbon reductions policies, in diVerent regions and nations?
The logical starting place for emissions reductions targets should be in scientific evidence. The latest reports from the IPCC indicate that in order to keep global temperature rise within or close to 20C, above which “dangerous” climate change is expected, we need to stabilise global atmospheric CO2 concentrations at or below 450 parts per million. For the UK to play its fair share in achieving this reduction, we would need to cut our carbon emissions by 80% by 2050 (the target until now has been 60%). It would be helpful for the UK government to work as quickly as possible to define the targets that will be included in the Climate Change Bill (or to set a clear timescale for the review following its introduction). It is our view that these targets should be in line with the scientific evidence to aim to avoid dangerous climate change and to encourage other countries to follow suit. Regional Bodies and Local Authorities have rightly moved ahead with setting their own targets and are starting to deliver on them. However, only when the national targets have been defined can we piece together how the various local, regional and national targets feed into each other and make any necessary adjustments. In order to make sense of and eVectively monitor such long-term national targets, we need a clear trajectory of interim targets, ideally of around 3% per year. This would enable government to plan out, in cooperation with the regions, how the targets fit together. For instance, some regions may oVer opportunities for larger or earlier savings than others so regional targets and timescales may vary so long as the overall direction fits with the trajectory. In the south east, work is already underway to map out what this trajectory might look like in the region, but it would be helpful to have more certainty about national targets and emissions monitoring methods and about the future roles of the regional bodies in implementing the required carbon reductions. The regional bodies and some local authorities in the South East have already set themselves ambitious targets and are making progress towards achieving significant carbon reductions—it is important that this progress is valued as the current delays in setting national targets may lead to some authorities delaying action until such time as they can be sure it will be recognised.
5. How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are the local authorities, regional government and devolved administrations?
At a regional level and in some local authorities, adaptation to the impacts of climate change is beginning to be integrated into strategies and policies, but generally it still has a lower priority than mitigation of the causes. This is a cause of concern as the scientific evidence is now very clear that we are already experiencing climate change and that we can expect, in the south east, to be more severely aVected than any other area of the UK by rising temperatures, summer droughts, winter flooding and sea level rise. National eVorts so far have mainly focussed on identifying the trends in the UK and providing guidance on how organisations can identify and assess the risks and opportunities. This has been extremely helpful but, as with mitigation, we now need to rapidly make the leap from understanding what needs to be done to putting in place thorough strategies and action on the ground. Ev 128 Environmental Audit Committeee: Evidence
Local and regional preparation for the impacts of climate change is especially important as extreme weather events tend to be fairly localised. The eVects of severe weather depend on both the natural conditions of the area and on human development, eg extreme temperatures are exacerbated in built up areas by the urban heat island eVect and the eVects of flooding depend on the extent of development in flood risk areas. Central government must play a role in supporting the development and implementation of adaptation strategies, but the assessment of risks and opportunities and the best solutions will generally be most eVectively done at a local level, drawing on local knowledge. All local authorities in the south east and most areas of their services, infrastructure, facilities and ways of working will be aVected in some way by the kind of changes we expect to see in our climate over the coming years and decades. These eVects are both economic, eg flood damage to infrastructure and businesses and social, eg the health risks of overheating for the young and the elderly. Local Authorities’ response to the impacts of climate change will also partly determine how eVective they will be in reducing greenhouse gas emissions, eg if buildings have to install air conditioning to cope with summer temperatures or if new, more eYcient buildings are rendered unusable by sea or river flooding, or if public transport systems cannot cope with severe weather, emissions will rise. To date the main support for adaptation responses has come from the UK Climate Impacts Programme. Their scenarios, maps and tools have been invaluable in allowing interested organisations to begin assessing risks and developing strategies to cope with the impacts. UKCIP have played an active role in the various regional climate change partnerships, including SECCP and have achieved a lot with limited resources. However, UKCIP is not staVed suYciently to provide the kind of support that is available to local and regional businesses, authorities and individuals for mitigation, through the Carbon Trust and Energy Savings Trust. There does not appear to be the same level of support for communications of adaptation issues to organisations and householders, as there has been on mitigation. In order to deliver a coordinated and coherent response to climate change, tackling both the causes and the eVects, we need to increase support at the national and regional level for adaptation and integrate it more closely with mitigation. Government could send a clear signal of its commitment to a joined-up response to climate change by committing itself to long-term funding of UKCIP and provision of regional support to adaptation. At a regional level the only current support mechanism for regional and local authorities is through the regional climate change partnerships. These partnerships have developed independently of each other and vary in structure, funding and work programmes, but share a focus on adaptation to the impacts of climate change and work together to share experience, good practice and to feed into policy development. The partnerships provide the link between the UKCIP scenarios and tools and the regional and local bodies who need to use them. Some of the regional partnerships work exclusively on adaptation to climate impacts, while others, like the SECCP, work on climate change in the round. The Partnership is the only region-wide forum in the south east where regional bodies, local authorities, private businesses and non governmental organisations come together to share and coordinate climate change solutions through sharing information, learning and case studies, developing guidance and tools, communicating the issues and successes and feeding in jointly to policy development. The SECCP has developed a good working relationship with Defra and other relevant government departments, but has received no central government funding for its coordination or administration. The Partnership meets its running costs through membership funding, but would benefit enormously from the added value some central financial support would give, both through the message this would give to local authorities about the high priority and urgency of adaptation and also through the increased security of funding to enable us to focus on delivering solutions on the ground and to widen our communications. Currently not all local authorities belong to or take part in their regional climate change Partnership, although an increasing number are joining as climate change becomes a higher priority for them. More active central support for the Partnerships and encouragement of local authorities to get involved would be very beneficial, eg as a natural follow-on to signing the Nottingham Declaration and as part of the means to deliver the Local Area Agreement targets.
6. How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK?
As stated above, local responses to climate change are vital to ensure that the solutions adopted are the most suitable and are sustainable. Coordination between national legislation and local councils and their communities will be key to delivering carbon reduction targets. The Committee on Climate Change should advise on making and improving the links between national and local implementation and, as such, should include individuals with a good knowledge of the workings of regional bodies, councils and communities. This could, but does not necessarily, mean that the committee should include members of regional or local authorities. What is, perhaps, more important is that the committee should have strong links to and communications with regional and local bodies and that it should pay attention to regional and local diVerences in the advice that it gives. Environmental Audit Committeee: Evidence Ev 129
7. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? Short-term economic decision making is perhaps the key barrier to delivering the necessary changes, both locally and nationally. The regional bodies are taking steps to overcome this through setting long-term regional strategies, including action on climate change. However, there remains some tension between the sustainable development objectives in these strategies and national policies, especially regarding housing development, transport and energy policies. The regional bodies are working to understand and resolve these tensions, but will need clear prioritisation from central government. Many local authorities are also setting clear and long term strategies for reducing emissions, but again they would benefit from greater support from government, both through leadership on climate change issues and financial support for such long-term planning. Climate change, including adaptation, is still seen as a purely environmental issue by many local authorities and is dealt with by an individual or small team within the authority, rather than being fully integrated into decision making and policy across the authority, eg planners, service providers etc, where the real diVerence could be made. A shift in thinking is required and increasingly we need to find ways to make sure that all planning, reviews and decisions are put through a filter of the need to (measurably) reduce greenhouse gas emissions and to ensure resilience to the impacts of climate change. Some local authorities are already successfully moving in this direction. The South East Climate Change Partnership has undertaken various pieces of work to identify the barriers to actions in the South East. We are currently a partner in the European funded ESPACE project on spatial planning and adaptation, led by Hampshire County Council, which is examining the organisational, policy and other barriers to adaptation to climate change with a view to developing and trialling solutions and recommendations. We would be happy to provide the committee with more information and background reports. Our experience is that strong and positive leadership at a senior level within an organisation is most likely to lead to the development and integration of strong and successful policies on climate change, whether in reducing emissions, preparing for the eVects of climate change or both. The other main factor aVecting the response of a local authority is obligation to either fulfil legislative requirements or to report and be measured against targets. Planning regulations and legislation on river and coastal management planning will help to quickly and consistently improve standards and planning for some aspects of adaptation. While the introduction of performance indicators in Local Area Agreements will help, they are not compulsory so local authorities who are not performing well in this area may opt not to include these targets in their agreements.
8. What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions? We welcome the new Planning Policy Statement on climate change and believe this will play an important role in integrating climate change considerations into the planning process. Our Partners may respond individually in more detail on this point. However, we are concerned that other changes to national planning legislation will reduce local participation in the planning process in order to enable more rapid processing of applications for major infrastructure projects and that this may lead to projects being approved which commit the UK (and particular regions) to increased carbon emissions.
9. Are local authorities meeting their duty to enforce building regulations in relation to environmental measures? Does the enforcement regime discourage non-compliance? We are not aware of any major problems with non-compliance in relation to enforcement of the building regulations, but our individual partners may submit more detailed responses on this point based on their experience. However, building regulations have, to date, been much weaker on adaptation to the impacts of climate change than on emissions reductions. This is especially true in relation to the eVects of high temperatures. Given that by the 2050s, the heatwave experienced in 2003 is likely to represent a normal summer, overheating potential should be actively reduced in the construction of all new houses. This would have health benefits and would also reduce the need for energy intensive air conditioning to be installed in future—otherwise the gains in energy eYciency achieved through the building regulations may be lost as air conditioning is retro-fitted. We are also concerned that the emphasis on building regulations and planning consents means that the vast bulk of our housing and infrastructure are being overlooked. Across the greater South East, over 70% of the housing that will be around in the 2050s has already been built. We must act swiftly to make energy savings accessible and mainstream for all householders and to better reduce and manage the eVects of Ev 130 Environmental Audit Committeee: Evidence
increased flooding, drought and overheating on these buildings. The same is true of our roads, railways, businesses, drainage systems, etc. All of these issues should be accorded the same priority as changes to and enforcement of the building regulations.
10. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? See answer to question 5. The regional climate change partnerships in the UK, including the SECCP, all work closely with the UK Climate Impacts Programme. For instance, a representative of UKCIP sits on the SECCP Executive Committee and SECCP attends an interregional meeting of the climate change partnerships together with UKCIP and others three times a year to exchange information, best practice and to feed in to policy development. The UKCIP scenarios and tools provide an invaluable foundation for our regional projects and guidance, and the UKCIP08 scenarios will help to improve local risk-based planning. The South East Climate Change Partnership will continue to work closely with UKCIP, the Carbon Trust and others as appropriate over the coming years to move towards our vision of a climate resilient and low- carbon south east. 3 January 2008
Memorandum submitted by Micropower Council
Summary
1. The Micropower Council welcomes the Environmental Audit Committee’s inquiry into the role of local, regional and devolved government in tackling climate change. This inquiry is timely because we have major concerns that progressive local and regional authorities are not having their voice heard when it comes to setting national policy for housing, planning and other policies that will impact on the UK response to Climate Change. 2. The recent debate over the Merton rule is symptomatic of a wider issue in that the house building industry has greater access to and is allowed greater influence over initial policy discussions in areas such as planning and housing. This makes it much harder for local, regional and devolved bodies, along with green groups to engage in the policy making process and to raise concerns at the right stage.
Who We Are
3. The Micropower Council is a cross-industry body that represents the interests of the micropower sector. The terms “micropower” and “microgeneration” are interchangeable and relate to low carbon and renewable energy producing technologies that can be installed on domestic and small scale commercial properties. Examples of such technology include but are not limited to micro-wind, fuel cells, microCHP, solar thermal, PV, ground source heat pumps, biomass boilers, and micro-hydro. Microgeneration technologies oVer huge potential for the generation of renewable heat and power in the future. A list of our members is available at: http://www.micropower.co.uk/council/members.html 4. We provide the Micropower industry’s main focal point for Government, regulators, Parliament, opinion formers and the general public on regulation and public policy issues aVecting the production by consumers of their own sustainable heat and power.
Why Microgeneration
5. We believe that microgeneration can, given the right policy framework, play an important role in tackling climate change and addressing the key goals of energy policy for two principal reasons: (a) The direct impact of the technology through production of energy from low or zero carbon sources. In large volumes the potential is significant. (b) The increased use of energy eYciency and conservation measures as consumers and businesses become more engaged and interested in their own use of energy, and of its consequences. Environmental Audit Committeee: Evidence Ev 131
Introduction
6. It is of paramount importance that local, regional and devolved levels of government play their part in helping the UK move towards a reduced emissions low carbon economy. We are working closely with a number of tiers of government to promote greater take up of microgeneration, including leading local authorities such as Merton, the devolved administrations in Wales and Scotland and many other organisations, including the Greater London Assembly. 7. A recent report by the Government’s Renewables Advisory Board suggested that the market for microgeneration technologies could be worth up to £3 billion by 2016, but only if Government does more to encourage microgeneration adoption. We believe that local, regional and devolved layers of government are vital to achieving this, not only through the policies they implement, but also by taking a lead in demonstrating to Government how it can be achieved and in pressuring Government into action.
Merton Rule
8. The Secretary of State for Communities and Local Government recently published the Government’s Planning Policy Statement (PPS) on Climate Change. Earlier draft versions of the statement suggested that the successful “Merton Rule” policy would be discarded as a result of pressure from the buildings industry. The mobilisation of local authority and environmental group’s support for the Merton Rule prevented the Government from discarding Merton in the PPS. 9. The “Merton Rule” should remain in place until 2016, and be developed to create a greater carbon focus. Merton has been a key driver of capacity building in the microgeneration industry in recent years. Between now and 2016, Merton style policies will enable local planning authorities to insist on the road- testing of renewables and low carbon homes. Only by acting now to develop design and standards, will we be able to achieve zero-carbon homes in 2016. 10. Despite claims by the Government that it has introduced “Merton Plus” the finalised PPS document looks to remove the right of planning authorities to set renewable energy targets across their jurisdiction. Instead each development must be assessed individually and no renewable energy target can be attached to an individual planning application. This will make it extremely diYcult to have a Merton style Rule to boost the UK’s renewable energy generation and reduce household carbon emissions. The gulf between CLG’s rhetoric and the actual detail of the policy has created confusion amongst both those campaigning for and against the Merton Rule as to the Government’s true position. This is likely to prevent pioneering councils from implementing the policies that would require housebuilders to test design standards and techniques for low carbon homes. This will make it almost impossible to achieve the Government’s aspirational target of zero-carbon homes by 2016.
Regional Government
11. In too many cases, policy makers are divorcing the issue of aVordable housing and planning policy from measures to improve energy eYciency and use of microgeneration. The Mayor of London has demonstrated that positive results can be achieved by involving energy suppliers, technology manufacturers and others early in the planning policy process. 12. In London, the Mayor’s London Plan or Spatial Development Strategy, was published in February 2004. It provided London with its first planning and development strategy in a generation. The plan’s policies are proving influential in improving delivery in a range of areas including energy eYciency and microgeneration, helping to tackle climate change. The Mayor has recently proposed further alterations which will double the onsite renewable energy requirements for new buildings from the 10% target in the current Plan. 13. As part of his statutory duty to regularly review the London Plan, in October 2007 the Mayor proposed that all new developments in London must achieve a reduction in carbon dioxide emissions of at least 20 per cent by using renewable sources of energy. He also proposed new objectives for planners and developers to adopt energy saving approaches, such as requiring new developments to connect to “decentralised” local energy supplies and achieve the highest standards of sustainable building design. 14. Microgeneration is at the cutting edge of new “green technology” and the industry is already a UK success story. A number of regional bodies have recognised that progress in this sector can help to increase economic prosperity and employment prospects. 15. For example, the North West Regional Development Agency (NWDA) has identified Energy and Environmental Technologies as a key sector for economic growth in the Northwest and is investing heavily in them. This has led the NWDA to invest in projects such as the Joule Centre for Energy Research. The Ev 132 Environmental Audit Committeee: Evidence
Joule Centre was oYcially launched in 2006 and marks the creation of the Northwest’s first centre for the development of sustainable energy technologies. Based at Manchester University, it will pioneer smart and low-carbon technologies for the home and industry, including wave, tidal and micro-hydro technologies. 16. The Regional Assembly for Yorkshire and Humber sponsors its own Microgeneration Awards, oVering local people the chance to show oV their pioneering green energy projects. Yorkshire and Humber is also one of the first Regional Assemblies to adopt a “Merton Rule” type planning policy by requiring at least 10% of the energy to be used in sizeable new development to come from on-site renewable sources. 17. Many other regional bodies have also recognised the economic and environmental benefits that can be achieved and are providing leadership on climate change.
Devolved Government
18. Devolution has created new opportunities for developing policies for tackling climate change. For the microgeneration sector, the Welsh Assembly Government has taken significant steps to promote greater take-up and has taken forward a number of steps, including an action plan for microgeneration published in March 2007. The action plan went a step further than measures proposed for microgeneration elsewhere in that it outlined aspirational targets for take up. 19. The Plan sets out significant targets and identifies a number of key actions that need to be implemented to achieve results. These range from new training initiatives, planning guidance for microgeneration systems and increased use of microgeneration technologies across the public sector. 20. The aspirational targets for installing new microgeneration installations in Wales are: — 20,000 microgeneration heating units by 2012; — approximately 100,000 micro heating units installed by 2020; — 10,000 micro electricity units installed by 2012; — circa 200,000 micro electricity units by 2020; — 50 combined heat and power and/or district heating systems by 2020. 21. The Welsh Assembly Government is currently reviewing permitted development rights for householder microgeneration with the intention of easing planning red tape for consumers who wish to install it. 22. “A Low Carbon Building Standards Strategy for Scotland” was published in December 2007. The report was commissioned by the Scottish Executive and undertaken by an expert group from the house building industry. It sets out the issues confronting the house building industry in Scotland as it tries to move towards zero carbon homes and looks to set in motion several work streams. However the process, at present, excludes relevant input from both the local government and energy sector. Many of the assumptions being made about zero and low carbon technologies, and their application, could be improved by engaging with those local authorities which have implemented Merton Rule policies to encourage low carbon energy in new developments. 3 January 2008
Memorandum submitted by the Green Alliance
Introduction
1. Green Alliance is an independent charity with a central role in the UK environment movement. We work closely with decision-makers in government and business, and with other environment groups, promoting policies for a better environment. 2. We welcome the opportunity to contribute to this enquiry. The role of local government in tackling climate change and the policy framework needed to both enable and drive greater action, has been the focus of a Green Alliance project over the past 18 months. The work culminated in a report we published in August 2006, Changing places: advancing local government action on climate change. The report looks at what will be needed to bring about a major increase in the extent and quality of local authority action, focusing in particular on the role of the new local government performance framework and local area agreements. It also examines whether the emerging policy framework is capable of delivering what is needed, and assesses some of the overall constraints and barriers to getting the policy framework right. Environmental Audit Committeee: Evidence Ev 133
Responses to Questions
1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government?
3. A strong policy framework will be essential to bring about a step change in local climate action that matches the breadth and the urgency of the challenge. At a national level, the main external drivers for change in local authorities tend to be duties, Audit Commission inspection and financial penalties, rewards or benefits. The government has made it clear that it does not favour introducing a duty on climate change, which is at odds with the main thrust of local government reform for less rather than more centrally-driven priorities. Without this, the inclusion of climate change in the new local government performance framework (LGPF) and other policy developments will be crucial. 4. The report we published in August 2006, Changing Places: advancing local government action on climate change,30 oVers a number of recommendations for ensuring that the new local government performance framework incentivises greater action on climate change (see response to question 3). We also looked more broadly at whether the emerging policy framework for local government action on climate change is capable of delivering. At the moment there are a number of constraints and barriers to action that need to be tackled if the policy framework for local climate action is to operate eVectively. These include reliance on wilful individuals for climate action, lack of funding for local climate action, and a skills and capacity gap in many areas. 5. To overcome these issues we recommend: — Central government must define more clearly what contribution local government should make to tackling climate change and be clear about how this fits into action on a national level to curb emissions (see answer to question 2). — Financial incentives and support will be needed to ensure that local authorities are motivated and equipped to act. And to generate funds for carbon management and climate change adaptation, the government must commit to significant new funding, or should grant councils additional revenue raising powers. — Central government must seek to reduce the complexity local authorities face; both through the requirement to work in partnership with a range of organisations and in accessing appropriate guidance and support. — Identifying and developing the skills that will be needed by local authorities to tackle climate change must be a core component of the national improvement strategy proposed in the local government white paper (see answer to question 8). — Streamlining the plethora of diVerent forms of support and advice and provide clarity around their purpose and strengths in order to significantly reduce costs that local authorities have to bear to act on climate change.
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change?
6. Local and regional bodies are recognised as having a leading role in climate change adaptation and mitigation but that role has not been clearly defined. At the moment there is a disconnection between high level aspirations for local authority action on climate change, as set out in ministerial speeches and policy documents, and the expectations on local authorities to deliver. 7. The current policy framework does not clearly define local government’s responsibilities in this area, nor is there a national view of what contribution local government could make and how this fits into action on a national level to curb emissions and adapt to climate change. 8. Clarifying local government’s role would help ensure the right policy framework and would also give local authorities a clearer signal and broad idea of what they should be aiming for. The inclusion of climate change in the new local government performance framework goes some way towards addressing this but more is still needed to clarify local government’s role. 9. Given that we know the functions of local government at diVerent levels and how they relate to climate change adaptation and mitigation, the government needs to define the areas and types of activities councils should be looking at to address the issue. This does not have to be either given or taken as a diktat from the centre but as an extra level of detail of the kind of action that is expected.
30 Tracy Carty and Hannah Hislop, 2006, Changing Places: advancing local government action on climate change, Chapter 2. Ev 134 Environmental Audit Committeee: Evidence
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities?U For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action?
10. We strongly welcome the inclusion of climate change in the new local government performance framework, however we believe a more explicit reference to climate change is needed. We are concerned that the proposed system lacks a mechanism for ensuring that the importance of tackling climate change filters down eVectively to local area agreements (LAAs). Pressure from the local strategic partnership, the community and the local authority itself may not be strong enough to ensure local climate action is prioritised in LAAs to the extent that is needed. This is in part because climate change is an area where local drivers for action may not be suYcient; the benefits of action, and of mitigation in particular, are not always tangible or immediate to local communities. 11. We believe that, to minimise this risk, the regional government oYces need to come to the negotiating table with an understanding of what the national level ambition for local authority action is and ensure that, as a result of the negotiation process, the aggregate of individual agreements reflects this. 12. As we stated in Changing places,tobeeVective, the new LGPF and the inclusion of climate change as a key theme must also focus on progress towards delivering long-term outcomes as well as short-term impacts; reflect a national level aspiration for local climate action; and ensure that top performers are rewarded.
7. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well?
13. The main barrier to local climate action has not been a lack of power to act, but the absence of clear responsibilities and incentives to do so. The policy framework has so far failed to give climate action prominence and it has been a weak driver for action on the ground. 14. Although there has been innovative and significant action in some areas, climate change is not yet a mainstream agenda in local government. Research shows that action has tended to be led by wilful individuals with vision and determination, which suggests that the current mix of carrots and sticks has not been enough to mobilise an organisational focus on climate change. In many cases where local authorities have taken action, the driving force has been potential financial savings for the council or their residents in social housing. Of those who are active, there is little evidence of authorities taking a comprehensive approach to tackling climate change across the relevant areas of local council control. There has been little analysis to date of the quality of practice in most—that is, non-exemplar—authorities and regions. See also answer to question 1.
8. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support?
15. It is clear, both from existing literature on the subject and the research conducted for Green Alliance’s report, Changing places, that there is a continuing need for more, and more eVective, support and help for local authorities to develop the skills and capacity needed to make an eVective contribution to tackling climate change. 16. Carbon trading, new planning and building regulations, energy service companies, adaptation and measuring carbon emissions are a few of the critical areas that will require new skills and competencies. Policy developments mean that local authorities will need to acquire these skills in the very near future: for example, the new climate change planning policy statement sends a very strong and clear signal about the central importance of climate change to planning; and the carbon reduction commitment, the new energy cap-and-trade scheme, will catch the larger authorities. 17. We recommend that the government work with organisations, such as the Local Government Association, the Academy for Sustainable Communities and the Sustainable Development Commission to deliver the skills strategy outlined in the local government white paper. Agencies such as the Energy Saving Trust, the Carbon Trust and the Improvement and Development Agency will also be important contributors to the up-skilling of local authority staV, and will need resources proportional to the challenge they face. January 2008 Environmental Audit Committeee: Evidence Ev 135
Memorandum submitted by the Association of British Insurers
Summary 1. Dealing with the challenge of climate change requires a Government-wide strategy with clear and transparent allocation of responsibilities. National targets and leadership for both mitigation and adaptation need to be supported by local empowerment. 2. There should be a national framework which avoids organisational confusion and maximises the coordination between dealing with the causes and tackling the consequences of climate change. 3. The management of flood risk shows the importance of eVective joined–up decision making across the diVerent layers of Government. As seen during the floods in Summer 2007, insuYcient clarity over roles and responsibilities can lead to adverse consequences. 4. Local Authorities need to receive suYcient support in order to ensure the correct implementation of climate change policies and regulatory measures.
Introduction 5. The Association of British Insurers (ABI) represents nearly 400 member companies, which between them provide 94% of the UK’s domestic insurance. It works on behalf of the UK insurance industry to keep standards high and to make its voice heard. 6. Climate Change is a challenge that requires well thought through and coordinated work at all levels of Government. The ABI has been leading the debate on the need to adapt to, as well as mitigate the causes of climate change. Our work on flood risk management has provided us with a unique insight into how disconnected the various authorities are and what needs to happen to tackle this challenge.
National Targets and Leadership Supporting Local Empowerment 7. The ABI welcomes the national mitigation targets as set out in the Climate Change Bill, but a similar approach needs to be taken for adaptation. National targets are important for certainty and transparency, but they should not discourage more ambitious local, regional or devolved targets. 8. Policy makers at national and devolved level must set out a long-term and eVective climate change management strategy, providing the framework within which local and regional bodies can develop their own individual response to the specific local climate threats. 9. There is a need to integrate the myriad codes, both statutory and voluntary, so that a single reference is produced, providing clarity to decision makers. A good example for this is the developers’ checklist, launched in 2005.31 This guidance document attempts to pull together many of the factors that should be considered, drawing on a wide range of stakeholder views. It is a significant step towards a coherent guide to tackling climate change in the built environment by flagging up the issues to be addressed and suggesting solutions.
Clear Responsibilities—The Case of Flood Risk Management 10. In June 2007 we published the insurance industry’s manifesto for adaptation, entitled “Adapting to our changing climate: a manifesto for business, government and the public”,32 which sets out how the UK can best prepare itself today for the impacts of climate change tomorrow. The manifesto clearly identifies the diVerent policy areas aVected by climate change and the responsible government bodies in charge of driving policy development. A clear structure and framework is essential to avoid the myriad of bodies involved in the policy-making becoming a barrier to progress. 11. The ABI has assessed the case of flood management and following the June and July 2007 floods, published its own recommendations for addressing this issue.33 The floods demonstrated the need for flood risk management to be properly coordinated, covering all sources of flooding. 12. The current piecemeal approach to flood management cannot continue. There are currently too many organisations, each with too many competing priorities, to be able to give the fight against flooding the focus that it deserves. 13. No single body is charged with preventing and managing flooding even though drains, sewers and rivers all contribute to flood risks. For example, while river and coastline flooding is under the responsibility of the Environment Agency (EA), drainage is in the hands of Local Authorities, water on main roads is the
31 Adapting to climate change: a checklist for development. South East Climate Change Partnership, Sustainable Development Roundtable for the East of England, London Climate Change Partnership, 2005. 32 ABI: Adaptation Manifesto, June 2007. 33 ABI: Summer Floods 2007: Learning the Lessons, November 2007. Ev 136 Environmental Audit Committeee: Evidence
remit of the Highways Agency and Local Authorities and private water companies are responsible for sewer flooding. As seen during the floods in summer 2007, the various authorities involved often have conflicting priorities. 14. While one national body needs to be given overall responsibility for the fight against flooding, this should not mean unnecessary centralisation or national control. Instead, this national body needs to lead research to assess flood risk and work in partnership with the other necessary agencies to develop a holistic approach and national framework to reduce risk. 15. In particular, it is important that this national body works closely with regional Government OYces, the OYce of Water Services, Local Authorities and resident groups to ensure that the national framework reflects local needs and can be delivered locally. 16. We therefore propose that the EA is given a statutory objective to deliver the adaptation target of flood risk management. This would include reducing flood risk and making the Agency the national coordinator for the identification, assessment and mitigation of flood risk from all sources, including drainage.
The Importance of Building Regulations and Adequate Planning Policy
17. An integrated climate change strategy needs to be implemented coherently across national, regional and local boundaries. Adaptation and mitigation need to go hand in hand and both require clear signals provided through regulation. 18. Mitigation policies must complement adaptation and development. For example, planting forests to sequester carbon can also stabilise soils and avoid floods, rural electrification can support sustainable development, and planting trees can reduce urban heat-island eVects. Building design must tackle better temperature modulation without resorting to energy dependent systems. 19. The most eYcient way to avoid creating new flood risk is to stop building in high flood risk areas. If for some reason development is needed in high flood risk areas, higher minimum standards should be applied to the building to design-in features to protect it from flooding and minimise the impact of flooding: applying the routine national standards is not suYcient in high-risk areas. We welcome the introduction of PPS25 and also of the Planning Policy Statement on Climate Change, but we are concerned that Local Authorities continue not to apply theses policies accurately. 20. To facilitate informed local decisions at a local level and to minimise the need for Government intervention, the EA should provide support to Local Authorities to help them ensure that their planning oYcials have the right tools and expertise to make accurate judgements on flood risk. 21. For those buildings or redevelopments that do take place in high risk areas, higher minimum standards in Building Regulations should apply to reduce the risk: addressing vulnerabilities to flood damage by strengthening building codes, infrastructure performance and technological resilience. While the new Code for Sustainable Homes goes some way to tackling this issue, it is particularly insuYcient for developments in high-risk areas. For example, it should give resilience features equal weighting with energy and water eYciency in planning decisions and building standards; it should be made a statutory requirement; and its rating system should be more transparent and robust. January 2008
Memorandum submitted by the Waste & Resources Action Programme Our response focuses on the climate change benefits of recycling and waste minimisation activities, and suggests that these should be considered as an important element of the response of local, regional and devolved governments to the challenge of climate change.
Introduction to WRAP
1. WRAP (the Waste & Resources Action Programme) is a-not-for profit UK company providing recycling and resource eYciency programmes for Defra, the Scottish Executive, the Welsh Assembly and the Northern Ireland Assembly. The organisation was formed in 2000 to implement a number of the actions set out in the Government White Paper Waste Strategy 2000.34
34 Department of the Environment, Transport and the Regions (2000), Waste Strategy 2000 for England and Wales, Parts 1 & 2, Cm 4693–1 & 2, London: Stationery OYce. Environmental Audit Committeee: Evidence Ev 137
2. WRAP works in partnership to encourage and enable businesses and consumers to be more eYcient in their use of materials, and to recycle more things more often. This helps to divert waste from landfill, reduce carbon emissions and improve our environment. 3. WRAP’s programmes encompass a wide variety of activities of relevance to local, regional and devolved government. We were originally set up to develop end-markets for recycled materials, so that the large amounts of additional material to be collected by local authorities (in order to meet the statutory recycling targets in Waste Strategy 2000) could be put to productive use. Developing high-value end-markets in this way also provides economic support to local authorities’ recycling operations, by providing them with an income (from the sale of the recyclate to waste reprocessors), where previously that waste represented a cost to them (to send it to landfill). 4. We are responsible for the national Recycle Now advertising campaign, which provides local authorities with tailored communications materials for local campaigns, tied into the national messages. In addition, WRAP supports local authorities directly in their work to deliver better recycling services and more waste reduction in a cost-eVective way. Our Recycling and Organics Technical Advisory Team (ROTATE) provides practical advice to local authorities. WRAP also provides training courses to develop skills and increase knowledge for those working in waste management in local, regional and devolved governments. 5. We also work with the Regional Development Agencies across England to integrate market development activity into their programmes. And in addition, we work with the devolved governments in Scotland, Wales and Northern Ireland, delivering services to each which reflect their diVering priorities and delivery mechanisms.
The Contributions of Waste Minimisation and Recycling to Climate Change Mitigation
6. WRAP agrees with the Committee that local, regional and devolved governments have an important role to play in the reduction of CO2 emissions. We applaud the cross-sectoral initiatives already under way, such as the Nottingham Declaration. 7. However, there is a danger that our discussions about the actions that public bodies can take to combat climate change focus exclusively on the most obvious areas, such as energy eYciency. We would encourage a wider view, looking at all the functions of such bodies, and the extent to which they can contribute to the fight against climate change. 8. Waste management is one of the most commonly recognised functions of local authorities. The regional and devolved governments also have important responsibilities for waste issues. All of these provide opportunities to mitigate climate change.
Waste minimisation
9. The top rung of the waste hierarchy is waste minimisation or waste reduction, where actions are taken to stop waste from arising in the first place. Given that, on average, one tonne of finished product requires the extraction from the ground of around ten tonnes of material,35 the material savings to be made through waste minimisation are obvious. However, what is perhaps less obvious is the embedded energy associated with finished products—in other words, the energy it took to produce them—and the potential that waste minimisation has to save this embedded energy. 10. As an example, the manufacture of 1 tonne of primary aluminium requires 55 gigajoules (15,400 kilowatt hours) of energy.36 Now if, through waste minimisation activities (such as eco-design), the lifetime of an aluminium product could be doubled, this would cut the waste of embedded energy by 50% over the lifetime of the new, longer-life product. 11. WRAP has worked with 112 local authorities in England and Scotland to provide over 1.6 million home composting bins since 2004. As a result, more than one third of English and Scottish households are now composting at home, thanks in part to WRAP support. And each person who composts at home saves not only the embedded energy in the compost they would have otherwise had to buy commercially, but also avoids the emissions of methane (a greenhouse gas 23 times more powerful than CO2) that their organic waste would have generated in a landfill site.
35 See, for example, The Strategy for Sustainable Farming and Food: Facing the Future (Defra, 2002), page 11 (in relation to food production). 36 Dahlstro¨m, K, Ekins, P, et al (2004) Iron, Steel and Aluminium in the UK: Material flows and their economic dimensions. Policy Studies Institute, London and Centre for Environmental Strategy, University of Surrey, available from: www.psi.org.uk/publications/archivepdfs/environment/finalprojectreport.pdf Ev 138 Environmental Audit Committeee: Evidence
Recycling 12. In May 2006, WRAP published Environmental Benefits of Recycling,37 a specialist review of international studies which shows how increased recycling is helping to tackle climate change. The report shows that in the vast majority of cases, the recycling of materials has greater environmental benefits than incineration or landfill.
13. The UK’s current recycling of these materials saves 18 million tonnes of CO2 equivalent greenhouse gases per year, compared to applying the current mix of landfill and incineration with energy recovery to the same materials. This is equivalent to about 14% of the annual CO2 emissions from the transport sector38 and equates to taking 5 million cars oV UK roads.39 14. The message of this 2006 study is unequivocal. Recycling is good for the environment, saves energy, reduces raw material extraction and combats climate change. It has a vital role to play as waste and resource strategies are reviewed to meet the challenges posed by European Directives, as well as in moving the UK towards more sustainable patterns of consumption and production, and in combating climate change by reducing greenhouse gas emissions.
Conclusion 15. In conclusion, we would argue that a strong focus on sustainable waste management by local, regional and devolved governments, which prioritises waste minimisation and recycling in line with the waste hierarchy, will contribute to reducing greenhouse gas emissions significantly, and should therefore be a priority for all such bodies as an important part of their climate change mitigation strategies. 3 January 2008
Memorandum submitted by eaga plc
Background eaga plc welcomes the opportunity to respond to the call for evidence on “Climate change and local, regional and devolved government”. In order to put our comments into context, it may be helpful to briefly outline our role in the provision of services across the UK. eaga has worked with Government and local authorities to help fight fuel poverty for over 17 years. We provide services, products and solutions that address the social, environmental and energy eYciency objectives of Government and the private sector throughout the UK, as well as in North America, India and the Republic of Ireland. The largest provider of residential energy eYciency solutions in the UK, eaga are a majority employee-owned plc working for Defra, Welsh Assembly Government, Department for Social Development, Utilities and Local Authorities in managing the delivery of fuel poverty/energy eYciency programmes. We fit or repair a central heating system every minute of every working day, and deliver improvements in over 1,000 UK homes daily. To date we have delivered assistance to over 5 million vulnerable households in the United Kingdom through the installation of heating and insulation measures. eaga also fully support Government’s policy on Energy Performance Certificates, and believe this policy to be a significant development in the promotion of energy eYciency. Through our UK-wide network of home assessors, we have seventeen years’ experience assessing the energy eYciency of households and providing valuable energy advice. We have a team of around 500 people dedicated to this, and, to date, we have 60 accredited EPC assessors and counting. This team is currently involved with delivering 5,400 EPCs in the social sector. As well as our energy eYciency and social commitment, we are committed to helping the environment and combating climate change. eaga Renewables provide renewable energy solutions for private and social housing, specifically through the installation of solar thermal panels. This work is carried out in the entire housing market, both with private-funded work and public-funded work. For example, eaga Renewables and eaga Social Housing Services are currently working on a large-scale installation of solar-thermal systems for Birmingham City Council.
37 WRAP (2006) Environmental Benefits of Recycling http://www.wrap.org.uk/downloads/Recycling LCA Report Sept 2006 - Final.492V242.pdf 38 Defra (2007) Waste Strategy for England 2007 http://www.defra.gov.uk/environment/waste/strategy/strategy07/pdf/waste07-strategy.pdf 39 WRAP (2007) WRAP’s Review for 2006–07. Waste, Society and Climate Change—Making a DiVerence. http://www.wrap.org.uk/downloads/2007Achievements Report.4529afe9.pdf Environmental Audit Committeee: Evidence Ev 139
Further to this, the independent Eaga Partnership Charitable Trust (Eaga-PCT) is a grant–giving trust that currently supports projects and research in two main areas: the relief of fuel poverty and the promotion of energy eYciency; and vulnerable consumers with multiple needs and preferences. Since 1993, eaga has given over £3.1 million to the Charitable Trust to distribute grants.
Specific Questions from the Consultation Below are eaga’s responses to the questions raised by the call for evidence. Where a question is asked in the call for evidence and not answered below, eaga has no views.
1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government? The current consultation on the future of the Home Energy Conservation Act 1995 is a positive step in revising the Government’s role in supporting local and regional climate change action. Should the Act be repealed Local Authorities (LAs) will no longer be required to spend time reporting on work in their areas to central government in a fashion which has not generated data or results of material benefit to the fight against climate change. Instead the resources consumed in producing these reports (often simply reporting on the work of national schemes such as Warm Front or other agencies as opposed to those initiated by the LA) could be better used on taking pro-active steps on mitigation and adaptation. Additionally, revised Local Area Agreements specifying with greater clarity the climate change objectives of LAs (meaningfully tied to those of central government) and in particular the powers they have to achieve them would reduce the possibility of ‘buck passing’ between local and central government on this vital issue.
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been? The numerous mission statements and goals given by the devolved administrations, LAs and regional governments in their statements on addressing environmental concerns and climate change have considerable overlap and consistency. Thanks to the strong lead taken by Central Government in recent years, this consistency has increased and led to a increasingly clear picture on the general roles of these bodies. However, in terms of the detailed contributions each currently makes and intends to make, there is considerably less clarity. The Nottingham Declaration has served an extremely function in providing a framework for LAs to structure their role and goals in terms of combating climate change. However, as there is no formal monitoring process and all steps of the declaration are voluntary, it produces no useful measurement of LA performance in this area. LAs have the freedom to set their own targets for delivery of Declaration’s goals, but again these have no statutory basis and reporting is voluntary. The quantity and quality of actions taken and required by these bodies, particularly LAs’, still lacks definition, and the signing of the Declaration has not led to a uniform adoption of strategies or actions for delivery. Co-ordinating and monitoring the steps these bodies are taking to meet these goals would require extensive and consistent reporting. The experience of HECA and its proposed repeal oVers valuable lessons in this area.
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? More clarity on what eVective powers are held by the devolved administrations, regional governments and LAs to combat climate change would be useful in enabling them to achieve their national Government’s goals. There remains a troubling level of uncertainty in the relationship between LAs and regional bodies in terms of responsibility for climate change action. As there is presently very little regional accountability for action and a lack of certainty regarding the role of regional bodies, what remains is the direction provided by central Government. In terms of nationally delivered programmes such as Warm Front, greater regional and local involvement and support is desirable to ensure greatest penetration of communities. We believe the new performance indicators are specific and demanding enough to produce eVective action from LAs if they are measured and reported on eVectively. However, it is vital that there is a standard method for recording and reporting progress if they are to deliver worthwhile carbon reductions. Ev 140 Environmental Audit Committeee: Evidence
4. How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK? The Committee on Climate Change will provide a unique forum to explore potential policy and voice independent suggestions to the Government. As the Committee will be made up of experts in the sciences related to climate change and will be advising Government on national policy, it would be inappropriate to attempt to also have it represent other specific interests or stakeholders, including LAs or regional bodies. 9 January 2008
Memorandum submitted by the Nottingham Declaration Partnership 1.1 Launched in October 2000 in Nottingham, the Nottingham Declaration has now been signed by more than 280 (72%) English councils. All Scottish and Welsh councils have signed their own version. Councils that sign the Declaration make a commitment to, “within two years, develop plans with their partners and local communities to progressively address the causes and the impacts of climate change”. The value of the Declaration has been to commit senior council management, both leaders and Chief Executives, to take action on climate change. A copy of the Declaration is attached. 1.2 The Declaration is underpinned by a unique Partnership of all of the key bodies that support local authority action on climate change.40 While the partner organisations support local authorities through their own programmes, by working together we aim to add value by oVering a focal point for action by councils and a “one-stop-shop” for guidance and support across all aspects of climate change. 1.3 The Partnership currently provides: marketing campaigns to attract new signatories; on-line guidance for local authorities on adaptation and mitigation; an on-line user forum; and occasional email updates for signatories. 1.4 At present the Partnership is an informal arrangement. It does not receive any direct funding and is entirely supported by ad hoc partner contributions. We are currently reviewing this arrangement and considering whether to institute a more formal structure. We also aspire to place the Partnership on a more secure footing by obtaining dedicated funding.
Q2. How eVective has the Nottingham Declaration process been? How can the accountability and transparency of the response at a local level be improved? 1.5 The Nottingham Declaration Partnership (NDP) believe that the Declaration has been very succesful in mobilising local authority action on climate change. In the absence of a mechanism to embed climate change within local authority performance frameworks (until the Local Government Bill proposals in late 2006), there was no national driver to ensure climate change was addressed at the highest levels in local authorities. The Declaration therefore gained a high profile with councils as a focal point for action. 1.6 The key role of the Declaration in driving action is supported by empirical evidence. A survey of local authorities comissioned by the LGA Climate Change Commission found that 84% of local authorities that have or are developing a climate change stategy believed that signing the Nottingham Declaration was a key driver. Similarly, a recent survey by the Energy Saving Trust (EST) found that 80% of respondents believed that signing the Declaration helped to build member and senior oYcer momentum within the council. 1.7 Since the formation of the partnership, a top priority has been to increase the number of signatories. Turning councils’ commitment into action is, however, clearly key. In its recent report41 the LGA Climate Change Commission argued that: The Nottingham Declaration has no formal status in terms of ability to monitor council progress, gather data or hold councils to account. If it is to remain the focus of good practice amongst councils it must be strengthened. 1.8 We agree with the Commission that the time has come to be more robust in assessing how commitments convert into eVective action. However, the Partnership also recognises that it has no formal role in holding councils to account and that the task of monitoring council progress is the domain of government, the Audit Commission and other relevant inspectorates. As an alternative we are exploring the feasibility of introducing a new voluntary Nottingham Declaration accreditation scheme. 1.9 As explained in our answer to question 3 below, we believe that an accreditation scheme would complement and strengthen the new local performance framework by: 1. Encouraging all signatories to put in place essential mechanisms for improving their performance on climate change.
40 The Environment Agency, Carbon Trust, energy saving trust, ICLEI, I&DeA, Local Government Association, Nottingham City Council, UK Climate Impacts Programme. 41 A Climate of Change, LGA Climate Change Commission, December 2008. Environmental Audit Committeee: Evidence Ev 141
2. Helping to strengthen the Audit Commission’s assessment of adaptation and mitigation within Comprehensive Area Assessments. 3. Raising the public visibility of councils’ response to climate change. 1.10 Accreditation would provide assurance that signing the Declaration has led to eVective action. A key aim would be to bring weaker performing local authorities up to a minimum standard, but we would also aim to encourage signatories to continue to stretch their performance. 1.11 Consequently we are considering a graded accreditation. To achieve the lowest level, local authorities would be expected to demonstrate that they have met the Declaration’s commitment to adopt a climate change action plan that satisfactorily addresses both adaptation and mitigation. Higher levels would demand convincing evidence of improving performance. 1.12 We believe that an accreditation scheme would help to strengthen the Audit Commission’s assessment of adaptation and mitigation responses within Area Risk Assessments. An accreditation scheme would thus be complementary to the formal performance framework assessment process. We are currently discussing our proposals within the partnership with a view to discussions with the Audit Commission.
Q3. Does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? 1.13 The NDP welcomes the introduction of three climate change performance indicators (PI) within the local performance framework. This is an essential first step and for the first time drives climate change into the heart of local government. 1.14 However, performance management is subject to the pressures of competing demands and it is important that councils have the freedom to respond to local priorities. With 198 national indicators competing for attention, the inclusion of a handful on climate change cannot guarantee action. It is therefore vital that all organisations that support councils in improving performance reinforce the centrality of climate change. 1.15 Although some local areas may well include improvement targets around climate change within their Local Area Agreements (LAAs), we do not anticipate that all local areas will commit to improvements on both adaptation and mitigation. Therefore it is important to reinforce action in other ways. It is our belief that the Audit Commission’s Comprehensive Area Assessment (CAA) presents the best opportunity for strengthening councils’ response, reinforced by support from Government OYces, CLG, Defra and the ND partners. 1.16 In recent months the Audit Commission has demonstrated a growing commitment to addressing climate change within its assessments. For example, its recent consultation on the Use of Resources Assessment42 states that it will consider how well the authority is “tackling climate change” [in its use of resources]. 1.17 We believe that an ND accreditation scheme would help, by providing the Commission with easily recognisable evidence of how well a local authority is responding to adaptation and mitigation.
Q10. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Saving Trust play in providing support? 1.18 Although there is a growing range of advice and support for local authorities on climate change, it is scattered across a variety of agencies and is not always easily found by its target audience. The goal of the Partnership is to provide a “one-stop-shop” to advise on both adaptation and mitigation. 1.19 In April 2008 we will launch a much improved Nottingham Declaration website. Our intention is that the website will become a “one-stop-shop” for local authorities seeking advice on climate change and: — act as a portal to all available advice and support for local authorities on both adaptation and mitigation; — include the latest news on climate change as well as information designed specifically for Elected Members and service managers; — draw on the experience of the Partners to identify good practice and then signpost signatories to that good practice; and — become a living site that is continuously updated. 1.20 We also have aspirations to: — commission new case studies and guidance where there are obvious gaps for particular local authority services; and
42 Use of Resources 2009, CAA consultation, Audit Commission, November 2007. Ev 142 Environmental Audit Committeee: Evidence
— complement the website with other dissemination methods such as training programmes and digital newsletters. 1.21 However, our capacity to maintain an up-to-date website, implement an accreditation scheme, and progress other initiatives, will inevitably depend on the resources that are available to the Partnership. 11 January 2008
Memorandum submitted by the Environment Agency
Summary
The Environment Agency welcomes this opportunity to contribute to the Environmental Audit Committee’s inquiry into “Climate Change and Local, Regional and Devolved Government”. Our response is focussed on climate change adaptation only. Every region and local authority will be aVected by climate change. The 2007 summer floods, the 2004–06 drought and the 2003 heatwave, have shown how climatic events can have a major impact on households, businesses, critical infrastructure (such as roads, railways, water treatment works or electricity generation) and vulnerable sections of society (such as the poor or elderly), as well as having a major economic impact. Climate change will pose a direct risk to regional agencies, local authorities and devolved government and will aVect the exercise of their functions and the delivery of their services. However, by adapting to climate change in a timely manner they will be in a stronger position to fulfil their remit both now and in the future. Unfortunately, the response by regional agencies and local authorities has, to date, been patchy. Despite seemingly good levels of activity—such as signing up to the Nottingham Declaration—the response has not been consistent, nor has it been co-ordinated, with considerable variation in the quality of outcomes. The Environment Agency believes Government should clarify the diVering roles and responsibilities played by regional agencies and local authorities in delivering climate change adaptation, whilst also ensuring there is an imperative to co-operate and deliver a co-ordinated response. We believe that regions are best placed to take the strategic lead on climate change, with local authorities taking the lead on delivering well-adapted communities and places.
Key Recommendations
Government should: 1. Place a new duty on Regional Planning Bodies to address climate change mitigation and adaptation in the development of Regional Spatial Strategies (or their replacements) as part of the Planning Bill, similar to the proposed Clause 147 that places this duty on local authorities. 2. Develop clear statutory guidance to regions and local authorities on how to respond to the UK Risk Report and their role in the delivery of the UK Adaptation Policy Programme as part of the Climate Change Bill. 3. In taking forward the Sub National Review, place a statutory duty on Regional Development Agencies to contribute to sustainable development, including specific reference to climate change as well as ensuring that new Single Regional Strategies have an overarching objective to tackle climate change, including specific reference to climate change adaptation. 4. Ensure that every local authority can demonstrate they have addressed climate change adaptation in accordance with Level 1 or 2 of the “Adapting to Climate Change” indicator (as currently defined) as the minimum requirement for all local authorities to meet in the Audit Commission’s Comprehensive Area Assessments (CAA). 5. For those Local Authorities most at risk, they should adopt the “Adapting to Climate Change” indicator in their Local Area Agreement and be required to meet Levels 3 or 4 (as currently defined). 6. Increase regional and local capacity for technical advice and support on climate change adaptation, such as the Nottingham Declaration Partnership, Regional Climate Change Partnerships and UKCIP. 7. Rigorously implement climate change planning policy, including “Planning Policy Statement: Planning & Climate Change—Supplement to PPS1” and “Planning Policy Statement 25: Development & Flood Risk”. Environmental Audit Committeee: Evidence Ev 143
1. Introduction 1.1 The Environment Agency welcomes this opportunity to contribute to the Environmental Audit Committee’s inquiry into “Climate Change and Local, Regional and Devolved Government”. 1.2 The Environment Agency is the public body for protecting and improving the environment in England and Wales. We work across all levels of government, with dedicated staV located at regional and local area levels as well as in Wales. 1.3 Climate Change is a priority theme in our Corporate Strategy and we play a major role in managing the UK’s response to climate change. As well as regulating about 45% of greenhouse gas emissions in England and Wales, we are the leading public body on climate change adaptation, with a focus on flood risk management, strategic coastal management, water scarcity and drought, and conserving freshwater biodiversity. 1.4 Our response is focused on adaptation issues only and is in the following four parts: — Review of climate change impacts and risks and the response by regions and local authorities (Questions 5 and 7). — Changes in the statutory framework and opportunities to strengthen delivery on climate change. (Questions 1, 2, 3, 7 and 8). — Specific adaptation issues (flooding, water resources, waste). — Conclusions (future roles of regions and local authorities, capacity building) (Questions 5 and 10).
2. Review of Climate Change Impacts and Risks and the Response by Regions and Local Authorities (Questions 5 and 7)
Climate Change Impacts on Regions and Local Authorities 2.1 The impacts of climate change will be felt across the country, in every region and every local authority. The risks and vulnerabilities associated with these impacts will vary across the country depending on local circumstances however. For instance a heat wave may be intensified in urban areas by the urban heat island eVect, or an England-wide drought may aVect the south east of the country more than other parts due to its catchment hydrology and socio-economics. The steep valley catchment in Boscastle contributed to the devastating flooding during 2004. DiVerences between regional and local circumstances mean that many adaptation strategies need regional and/or local responses.43 2.2 The 2007 summer floods, the 2004–06 drought and the 2003 heatwave, have shown how climatic events can have a major impact on households, businesses, critical infrastructure (such as roads, railways, water treatment works or electricity generation)and vulnerable sections of society (such as the poor or elderly), as well as having a major economic impact. While scientifically none of these events can yet be attributed to climate change, we know that under future scenarios these types of events are likely to become more frequent and more severe.44 For example, the summer temperatures of 2003, which caused deaths, road melting and other infrastructure damage, will be typical by 2030.45 2.3 Climate change will pose a direct risk to regional agencies, local authorities and the Welsh Assembly Government and will aVect the exercise of their functions and the delivery of their services. By adapting to climate change in a timely manner they will be in a stronger position to fulfil their remit both now and in the future. 2.4 Adapting to climate change involves: — reducing the risks, from both the slower changes in climate (average temperatures rises) and sudden changes (heat waves, storms, flash flooding); — focusing on vulnerabilities; — improving capacity to respond; and — making the most of the opportunities.
Risks and Vulnerability to Regions and Local Authorities 2.5 The Welsh Assembly Government (WAG) and the English Regions—comprising Regional Development Agencies, Regional Assemblies and Government OYces—have a central role to play in delivering a number of Public Service Agreement targets and currently have a strategic responsibility for economic development, transport, housing and spatial planning, including regeneration and the
43 A more detailed examination of regional impacts can be found in the scoping studies produced by each English Region in partnership with the UK Climate Impacts Programme (UKCIP), as well as a number of local studies, such as the Adaptation on the Wear project, which examined impacts across a river catchment. 44 UKCIP02 Scenarios. 45 Met OYce. Ev 144 Environmental Audit Committeee: Evidence
environment. In England, these are currently delivered through two statutory regional strategies—the Regional Spatial Strategy (RSS) and the Regional Economic Strategy (RES) and in Wales by the Wales Spatial Plan and other devolved powers. Climate change poses a significant risk to their successful delivery. 2.6 In terms of economic development, climate change will impact on specific business and industrial sectors in diVering and complex ways, depending on the type of business and the vulnerability of their supply chains. Regional economic performance will also be aVected by the extent to which businesses have prepared “business continuity” plans to enable them to operate in times of major incidents, such as floods or drought. Businesses which have no such plans subsequently experience heavy financial losses. Strategies to promote economic development are beginning to address these risks (see Regional Economic Strategy example below).
RES Example: South West Regional Economic Strategy & Delivery Plan Action: Deliver key actions from the South West Climate Change Strategy, including the development of coordinated advice on the impacts of climate change and adaptation strategies in business planning. Lead Organisation: South West Climate Change Impacts Partnerships (SWCCIP) Monitoring: Number of businesses having undertaken a risk assessment on the impacts of climate change and subsequent actions taken.
2.7 In terms of spatial planning, climate change will have a direct impact across most areas of planning as well as on the future patterns of development in a region. It is likely to aVect transport corridors, broad locations for housing development, design and construction standards, waste management and the management of the natural environment, such as flood risk management, water resource planning, waste water treatment, green infrastructure, landscapes and conserving biodiversity. Spatial planning documents are beginning to address these risks (see Regional Spatial Strategy example below).
RES Example: Policy CC2: Climate Change (Part 2), South East Plan Adaptation to risks and opportunities will be achieved through:
— Guiding strategic development to locations oVering greater protection from impacts such as flooding, erosion, storms, water shortages and subsidence. — Ensuring new and existing building stock is more resilient to climate change impacts. — Incorporating sustainable drainage measures and high standards of water eYciency in new and existing building stock. — Increasing flood storage capacity and developing sustainable new water resources. — Ensuring that opportunities and options for sustainable flood management and migration of habitats and species are not foreclosed.
2.8 For local authorities the strategic risks to economic development and spatial planning are broadly similar, although each will have more location specific issues. The added complexity for local authorities is in their delivery of services to the local community. 2.9 Many of the services and associated infrastructure provided by local authorities could be particularly vulnerable to the impacts of climate change. This might include public sector housing, transport services, health care, social care, education, emergency services, waste management and the local environmental management of nature reserves or parks. Indicative data taken from our 2006 National Flood Risk Assessment (NaFRA) shows the extent to which critical local facilities are at risk of flooding:
Critical facilities Number of sites at risk of flooding Percentage of overall sites nos Hospitals 90 6% Care homes 1,028 7% Schools 1,796 7% Health centres 2,971 10% Prisons 19 13% Police stations 397 13% Ambulance Stations 172 14% Fire Stations 265 14% Electricity stations 8,423 15% Railway stations 512 17% Gas supply sites 23 28% Sewage & water 1,145 58% Source: 2006 National Flood Risk Assessment (NaFRA) Environmental Audit Committeee: Evidence Ev 145
How are Regions and Local Authorities responding?
2.10 Unsurprisingly, local authorities, regions and WAG have responded to the rapidly rising climate change agenda, although the activity is patchy. Notably, this includes: — Over 280 local authorities have signed the Nottingham Declaration, 180 of which have signed up since its re-launch in December 2005. Many of these are preparing Nottingham Declaration Action Plans or Climate Change Action Plans or equivalents. — All 22 Welsh unitary authorities, the three National Park Authorities and the Fire and Rescue Authorities have signed the Welsh Commitment to Address Climate Change, developed with the Welsh Assembly Government. — The Beacon Council Scheme has recently short listed nine councils for their good practice in “Tackling climate change” (mitigation and adaptation). — Every region has a climate change impacts scoping study, produced in conjunction with UKCIP and based on the UKCIP02 scenarios. — Every English Region has a Regional Climate Change Partnership, which represents all the key regional stakeholders. WAG has set up a Climate Change Commission. — All Regional Spatial Strategies have a climate change policy and all Regional Economic Strategies refer to climate change. — All English Regions and WAG have developed, or are developing, Climate Change Action Plans (or equivalent types of document)—see table below.
Regional Climate Change Action Plans—State of Play, July 2007 Reflects EA Priorities? Is the region preparing a If yes, does it Region/ CC Strategy/ include Flood Water Country Action Plan? Adaptation? Launch date Time scale Risk scarcity Coast Biodiversity Yorkshire & Humber }}2005 3–5 years } —x— North West }}Nov 2006 2007–09 } x } x Wales }}July 2007 2007–10 }}} } South East }}March 2007 2006–26 }}} } Mitigation plan launched 2007. London }46 } Adaptation plan due 2008 — — — — Under development North East } — Expected March 2008 — — — — East of Under development England }} Expected 2008 — — — — Under development South West }} Expected 2008 — — — — West Under development Midlands } — Expected 2008 — — — — “Programme of Action” East under development Midlands }} Expected 2008 — — — —
2.11 However, despite seemingly good levels of activity, the response has not been consistent, nor has it been co-ordinated, with considerable variation in the quality of outcomes. For example: — 130 local authorities have failed to sign the Nottingham Declaration despite its launch seven years ago. — For those local authorities which have signed, there is no monitoring in relation to the Nottingham Declaration or any “quality control” on the Action Plans they are committed to developing. — 80% of respondents to a Local Government Analysis and Research survey said that overall, in their opinion, their local authority had been not very eVective, or not at all eVective, in adapting to climate change;47 — Few, if any, of the climate change strategies prepared by local authorities seem to consider climate change adaptation and, where it is discussed, the actions tend to be weak.48
46 The Mayor of London launched an Action Plan in Feb 2007 but is developing a separate Adaptation Plan for London. The City Of London (as a Local Authority) also has its own Adaptation Strategy. 47 LGA (2007) “A Climate of Change”, LGA Climate Change Commission, December 2007. 48 LGA (2007) “Review of Local Government Action on Climate change”, Tyndall Centre Study for the LGA Climate Change Commission, February 2007. Ev 146 Environmental Audit Committeee: Evidence
— Regional Climate Change Partnerships vary in their scope and focus, with uncertainties in long- term funding hindering eVective delivery.49 — Regional Climate Change Action Plans (or equivalents) vary in scope, often sitting outside the statutory framework, with limited or no additional funding. It is unclear at this stage how eVective they will be in delivering on adaptation. — While some individual climate change policies in Regional Spatial Strategies are good, most have failed to significantly influence RSSs towards being either well-adapted or environmentally sustainable.50 — While Regional Economic Strategies often mention climate change, Regional Development Agencies have not paid suYcient attention to the economic risks posed by climate change impacts, preferring to focus on mitigation and the development of environmental technologies such as renewables.51 2.12 We acknowledge that some of these issues are historical, for example the lack of any duty or incentive for regions or local authorities to address climate change (and adaptation in particular) or the “complexity” and “confusion” of regional accountability arrangements.52 2.13 We also acknowledge that some significant steps have been made to improve this situation, such as the forthcoming Climate Change Bill; a new duty on Local Government to address climate change in the Planning Bill; a new Local Performance Indicator on Adapting to Climate Change (NI188); the PPS1 Supplement on Climate Change and Planning; and the intention to clarify roles and responsibilities at the regional level by delivering the recommendations of the Sub-National Review. The implication of these initiatives for regions and local authorities is discussed in the next section.
3. Changes in the Statutory Framework and Opportunities to Strengthen Delivery on Climate Change (Questions 1, 2, 3, 7 and 8) 3.1 There are a number of significant changes to the national statutory framework which will impact on the future roles and responsibilities of regions and local authorities in delivering on climate change adaptation.
Climate Change Bill 3.2 The Climate Change Bill, currently before the House of Lords, is a major piece of UK legislation as well as being groundbreaking internationally. In terms of climate change adaptation, the Bill will considerably strengthen the statutory framework. In addition to its proposals for statutory emissions reduction targets and carbon budgeting, the Government will now have a duty to produce, every five years, a national assessment of climate change risks, and an Adaptation Policy Programme. 3.3 Whilst we warmly welcome the Bill there are areas where we feel it should be strengthened. In particular the Bill should place a duty on all public bodies to take into account future climate change impacts when exercising their functions. The Secretary of State should also have a power to require specific bodies, such as those responsible for managing critical services (including local authorities) to undertake a climate change risk assessment for their planning and investments, and to identify an action plan to address the risks. This would eVectively apply the concepts of the Civil Contingencies Act to cover climate change. 3.4 If the Adaptation Policy Programme is to be eVective, the impacts for regions and local authorities should be significant. The compiling of the UK Risk Report will require considerable input from both regional and local authorities, and it will therefore be essential for those bodies to be able to understand and act on those risks. Regions and local authorities will also play a key role in the delivery of the Adaptation Policy Programme, due in 2011. It will be crucial for regions and local authorities to have clear guidance from Government on their role in this. This could be through Statutory Guidance, performance indicators or explicit duties.
PPS1 Supplement on Climate Change 3.5 We warmly welcome the PPS1 Supplement on Climate Change and have been working closely with the Department for Communities and Local Government (CLG) on its development. In response to the consultation on the PPS1 Supplement we recommended: — Greater emphasis on the role of spatial planning in encouraging greater water eYciency and helping to deliver the “twin-track” approach to water resources (demand management as well as supply side measures).
49 Letter from the UK Inter-Regional Climate Change Coordinators Group (UKIRCCG) to Ian Pearson MP, 30 March 2007. 50 WWF, CPRE, FoE (2007) “How Green Is My Region?”, July 2007. 51 Regional Development Agencies (2007), “Tackling Climate Change in the Regions”, June 2007. 52 HMT (2007) “Review of Sub-National Economic Development and Regeneration” HMT, BERR, CLG, July 2007. Environmental Audit Committeee: Evidence Ev 147
— The need for a national vulnerability analysis or assessment to inform long term national, regional and local spatial plans. — Stronger requirement for spatial plans to include adaptation objectives that will be monitored and reviewed in a similar way to mitigation objectives. — Greater emphasis on improving the resource eYciency of non-residential buildings and infrastructure. — More encouragement for techniques that help existing buildings and the environment to adapt to the eVects of climate change eg Sustainable Drainage and enhancing multi-purpose open spaces (green infrastructure). — Carbon emission yardsticks, trajectories or targets to be referred to when making development decisions. The PPS1 Supplement has gone some way to addressing most of these recommendations.
Planning Bill 3.6 The Planning Bill, which is currently before the House of Commons, proposes an amendment to the Planning and Compulsory Purchase Act (PCPA) 2004 in which “Development plan documents must (taken as a whole) include policies designed to secure that the development and use of land in the local planning authority’s area contributes to the mitigation of, and adaptation to, climate change”.53 3.7 This clause is warmly welcomed—essentially placing a duty on local planning authorities, when preparing their local development plan documents, to include policies which take action on mitigating and adapting to climate change. The amendment is set within the section of the PCPA 2004 which states that in preparing a local development document, local planning authorities must have regard to national policies and advice contained in statutory guidance, such as the Planning Policy Statement 1: Supplement on Climate Change. We would also highlight that subsequent statutory guidance would also be relevant, including any issued in relation to the Climate Change Bill. 3.8 However, we note that the Planning Bill fails to include a similar amendment requiring regional planning documents (currently Regional Spatial Strategies) to also address climate change. We believe that this is amiss, and would recommend Government tables a similar amendment to Section 5(3) of the PCPA 2004, which details the guidance Regional Planning Bodies should have regard to in the preparation of RSS. This would eVectively place a duty on the Regional Planning Body to ensure future iterations of RSSs (or subsequent regional planning documents, namely Single Regional Strategies) would have to address climate change. We do not believe that the future implementation of the Sub-National Review (see section below) should be a barrier to this. 3.9 In addition, new National Policy Statements must take full account of climate change planning policy and further Climate Change Bill commitments. In particular the location and design of Nationally Significant Infrastructure Projects should reflect future climate change impacts up until the 2080s. This includes a preference for not putting infrastructure in vulnerable places (especially high flood risk areas and locations vulnerable to coastal erosion). The new Infrastructure Planning Commission (IPC) which will be responsible for taking decisions on major infrastructure should be subject to a duty to contribute to the achievement of sustainable development and should be equipped to assess alternatives, with clear operating rules and relevant environmental expertise.
Sub-National Review 3.10 In July 2007, the Government published its “Review of Sub-National Economic Development and Regeneration” or Sub-National Review (SNR). We understand that the Government is considering its plans to implement the SNR’s recommendations, with a proposed consultation in early 2008. We believe the implementation of the Sub-National Review could oVer substantial opportunities to strengthen regional- to-local delivery of climate change adaptation but are seriously concerned by the Government’s narrow focus on economic growth alone. 3.11 As it currently stands, we understand that the SNR proposes to implement a growth-focused framework for regions based around a single regional economic objective. This would be complemented by giving local authorities a new statutory duty, also towards economic development, to ensure more eVective regional-to-local delivery. The SNR also proposes abolishing Regional Assemblies, transferring their powers to Regional Development Agencies, who would then have executive responsibilities for producing the new “Single Regional Strategy”—a merger of the Regional Spatial Strategy and Regional Economic Strategy. 3.12 Whilst welcoming a simplification of regional accountabilities as well as the Single Regional Strategies in principle, our concern is that the SNR reforms are focussed too narrowly on a single economic growth objective. If Single Regional Strategies are to combine economic and planning policy they must be
53 Clause 147, http://services.parliament.uk/bills/2007-08/planning.html Ev 148 Environmental Audit Committeee: Evidence
in accordance with the objectives of the planning system, which is to contribute to sustainable development as outlined in “Planning Policy Statement 1 (PPS1): Delivering Sustainable Development” and the “PPS1 Supplement on Climate Change and Planning”. With Regional Development Agencies taking overall executive responsibilities at a regional level they must also be given a statutory duty54 to deliver sustainable development, and a specific objective on climate change (covering mitigation and adaptation). 3.13 Government must ensure the primary legislation it brings forward to implement the SNR strengthens the statutory underpinning for regional and local government action on climate change. Failure to do so will exacerbate, rather than resolve, the existing policy conflicts between local authorities and regions. 3.14 We recommend that: — The primary aim for Single Regional Strategies should be to achieve sustainable development. — In addition to the economic development objective, there should be an overarching objective to tackle climate change, including specific reference to climate change adaptation. — RDAs should be given a statutory duty to deliver sustainable development, including specific reference to climate change. — New regional scrutiny and monitoring arrangements should specifically track delivery against climate change. — Regional Ministers should champion climate change action across their regions as well as nationally.
Local Performance Framework & Local Area Agreements 3.15 We warmly welcome the inclusion of a new “Adapting to Climate Change” (NI188) indicator in the Local Performance Framework. The indicator sets out a clear four step process towards addressing climate change risks (see box) and we contributed towards its development, alongside UKCIP and others, based on our own experience of implementing the Environment Agency’s “Organisational Adaptation Strategy”.
NI188: Adapting to Climate Change—The Four Step Process Level 0: The authority has not assessed and managed climate risks and opportunities, or incorporated appropriate action into local authority strategic planning. Level 1: The authority has undertaken a comprehensive, local risk-based assessment of current vulnerabilities to weather and climate, both now and in the future. It has developed possible adaptation responses explicitly related to other relevant council strategies, plans, partnerships and operations (such as planning, flood management, economic development, social care, services for children, transport, etc). Level 2: The authority has identified the most eVective adaptation responses to address the risks and opportunities, explicitly related to other council strategies, plans and operations. This will yield a set of locally specific, preferred options. Level 3: The authority has developed an adaptation action plan to deliver necessary steps to achieve the existing objectives set out in council strategies, plans, investment decisions and partnership arrangements in light of projected climate change. Level 4: The authority has implemented an adaptation action plan, and a process for monitoring and review to ensure progress with each measure.
3.16 We believe that the inclusion of the indicator in the national set is a significant step towards helping local authorities address climate change adaptation, which they can do in two ways under the new Local Performance Framework: — Firstly, all upper tier local authorities will need to demonstrate their progress against all 198 national indicators in the Local Performance Framework (including “Adapting to Climate Change”). Progress will be assessed by the Audit Commission in annual Comprehensive Area Assessments. — Secondly, each local authority will negotiate a Local Area Agreement (LAA), which sets out its local priorities and is a binding three-year “improvement” programme agreed between national and local government. LAAs will be monitored against 35 priority indicators (selected from the national set of 198 indicators). Local authorities wishing to stretch their performance on adaptation or which are at a high risk of climate change impacts, should include the “Adapting to Climate Change” indicator.
54 RDA’s currently only have a duty to deliver sustainable development “in regard to the exercise of their function”. If their function is changed to deliver a single economic objective, this will clearly aVect their duty to deliver sustainable development, as defined by the Securing the Future, the UKs Sustainable Development Strategy. Environmental Audit Committeee: Evidence Ev 149
3.17 However, as climate change indicators are not compulsory, our major concern is that, due to the lagging political agenda associated with climate change adaptation, only a minority of local authorities will adopt this indicator in their LAA. This being the case, there is a risk is that the majority of local authorities will fail to adequately respond to the adaptation agenda over the next three years. We think that climate change adaptation is an imperative for all local authorities and should therefore be one of the 35 indicators included in most Local Area Agreements. 3.18 For those local authorities not choosing the “Adapting to Climate Change” indicator, Government must find alternative routes to ensure they address climate change risks. We would suggest the following: — Government should ensure that local authorities and Local Strategic Partnerships, when reviewing existing Community Strategies, or in the production of new Sustainable Community Strategies, include climate change (mitigation and adaptation) as a high-level objective. This will ensure future work programmes, including future LAAs and Local Development Frameworks, will address climate change adaptation. — The Audit Commission should set Level 1 or 2 of the “Adapting to Climate Change” indicator (as currently defined) as the minimum requirement for Comprehensive Area Assessments (CAA). — The Audit Commission should seek the views of the Environment Agency, UKCIP and others on which local authorities we perceive to bear the greatest risks from climate change. If these “high risk” local authorities are failing to adapt to climate change, the Audit Commission should ensure this is highlighted in the CAA and Government should persuade the local authority to make greater progress in this respect (eg by making Adapting to Climate Change one of the 35 indicators). — Government should consider how best to support local authorities with the delivery of their Nottingham Declaration commitments, which includes the development of an Action Plan that addresses mitigation and adaptation, equivalent to Level 3 of the Adapting to Climate Change indicator. This should include measures that strengthen the Nottingham Declaration and provide “quality assurances” on the implementation of commitments (see section 5.5: Capacity building). — In preparing the UK Risk Report in 2008–09 (as outlined in the Climate Change Bill), Government should draw on the evidence base collected by the Audit Commission’s first round of CAAs to judge how well local authorities are placed to adapt and identify those local authorities which are failing to make progress. This should act as the future baseline for assessing progress. — In preparing the UK Adaptation Policy Programme due in 2011 (as outlined in the Climate Change Bill) Government should draw on the experiences of forward looking local authorities— defined either by progress against the Adapting to Climate Change indicator or progress in developing a Nottingham Declaration Action Plan—who can advise Government on what future national policy is needed for local government on adaptation. 3.19 Delivering against climate change objectives will require a step change in local authority performance, requiring leadership from both local authority Chief Executives and Council Leaders as well as local councillors. 3.20 In the medium term, Government should ensure that every local authority addresses climate change adaptation in the next round of LAAs (2011–14). This would also coincide with the publication of the Adaptation Policy Programme, also due in 2011, which will require significant commitment from local authorities for delivery. We would also support the LGA’s Climate Change Commission recommendation that Government should impose a statutory duty on those councils that are failing to respond to climate change.
4. Specific Adaptation Issues In carrying out our functions, the Environment Agency works with local authorities and regions on a number of specific issues which will be directly impacted by future climate change. Some of the key issues including flooding, water resources, waste and biodiversity are highlighted below.
Flooding 4.1 We have a historical legacy of building on flood plains and the risk to these developments needs to be managed. To avoid future problems, we need to work with regions and local authorities to avoid inappropriate development in areas at high risk of flooding and to direct development away from those areas at highest risk. Climate change will exacerbate future flood risk problems. 4.2 The 2007 Summer Floods were a major incident and were subject to a separate independent inquiry by Sir Michael Pitt. However, our own review highlights the following policy areas in relation to local government: — The Environment Agency should be given the strategic overview for urban flooding from all sources which would provide the framework for local authorities and other partners to plan locally. Ev 150 Environmental Audit Committeee: Evidence
— Local government must take responsibility for the development and delivery of Surface Water Management Plans (SWMPs) that will address the issues of “urban flooding”. The Environment Agency and other stakeholders, such as water companies and the Highways Agency, should work in partnerships with local authorities on the delivery of SWMPs. — Providers of essential public services, including local authorities and electricity and water companies, and owners of critical infrastructure, should have a duty under the forthcoming Climate Change Bill to take account of climate change impacts when planning and providing their services. 4.3 The Environment Agency has also been working with local authorities and regions on the implementation of “Planning Policy 25 (PPS25): Development and Flood Risk” since its publication in December 2006. Under PPS25, regions have a responsibility for preparing Regional Flood Risk Appraisals (RFRAs) to inform Regional Spatial Strategy and local authorities are responsible for preparing more detailed Strategic Flood Risk Assessments (SFRAs) to inform Local Development Frameworks. In both cases, PPS25 includes “contingency allowances” to incorporate future climate change impacts into planning. 4.4 Although our latest development and flood risk report (HLT5 for England) shows general success in the implementation of PPS25, we are concerned that the requirement for flood risk assessments to accompany planning applications is still being ignored by many developers. Furthermore local planning authority performance in providing decision notices to the Environment Agency has deteriorated, and some planning permissions are still being granted against flood risk advice. Local authorities and regions have a central role to play in implementing PPS25, ensuring that long-term planning incorporates flood risk and climate change factors, as well as ensuring individual developments to do not contribute to increased flooding. Government must ensure the rigorous implementation of PPS25.
Strategic Coastal Management
4.5 Coastal flooding will become an increasing issue with climate change leading to rising sea levels as well as more extreme events such as tidal and storm surges, as those seen on the east coast in November 2007. PPS25, as discussed above, has a vital role to play in helping regions and local authorities plan for this, including “contingency allowances” for coastal flood defences that incorporate sea level rise. There is also a need to recognise that parts of some coastal communities and some coastal land will not be able to be defended on any economic basis from encroachment of the sea. 4.6 From April 2008, the Environment Agency will assume new powers in relation to the coast, which will give us a strategic overview of coastal management and coastal flooding. Working with maritime local authorities, we will ensure that the production of Shoreline Management Plans (SMP) are consistent, take account of climate change and, most importantly, are fully incorporated into Local Development Frameworks. 4.7 However, we believe that there is an urgent need for a long-term Coastal Strategy which sets out the Government’s vision for the coast and how it plans to manage the increasing risks to businesses, property, communities, and wildlife habitats. Alongside this, Government must urgently review “PPG 20: Coastal Planning”. This was published in 1992 and is out of date in respect of the developing evidence base on climate change as well as the mechanisms such as SMPs. Because of its age there is a risk that it is seen by local authorities as a low priority.
Water Resources & Housing Growth
4.8 The Environment Agency is responsible for planning long term water resources for England and Wales. We are particularly concerned by plans to increase housing, especially in Growth Areas, which will add pressure to already stretched water resources. Many growth areas, such as the Thames Gateway, are already in areas suVering from water stress, and this will be exacerbated by future climate change. 4.9 Our research shows that too often water companies remain over reliant on supply-side measures (such as building new reservoirs) to plan for water scarcity. However, demand-side measures, such as increased water eYciency and water metering, can be more eVective. Local authorities should, where supported by evidence, include higher standards for water eYciency in local Development Plan Documents and Sustainable Community Strategies. The Government’s Growth Areas, and in particular the new “Eco- Towns”, must be exemplars in this respect and strive for the highest levels of water eYciency. 4.10 The new Homes and Communities Agency proposed by the current Housing and Regeneration Bill should have specific objectives to reduce the environmental impact of housing. This should take into account the wider impacts of new and existing housing on the natural environment as well as the need for sustainable design and construction. Environmental Audit Committeee: Evidence Ev 151
Waste 4.11 Recent research by the Environment Agency has shown that more consideration needs to be given to make new and existing waste management facilities resilient to flooding. Planning Policy Statement 25 will help us ensure this is the case for new waste management sites, while a further recommendation of the research is that the Environment Agency and the waste sector develop guidance to help operators understand the implications of climate change for existing sites. One of the main findings of our work was that good site management can greatly reduce the risks posed by climate change, hence the need for guidance.
Biodiversity 4.12 Research projects such as MONARCH have demonstrated that the “climate space” of UK species is changing and species that are currently at their southerly limit may disappear and those at their northerly may potentially thrive. However, not all the key species have been mapped and even for those that have there remains considerable uncertainty regarding which exact localities will be aVected. Government, in partnership with Environment Agency, Natural England and other conservation bodies must work towards a more detailed climate space mapping, including identifying opportunities to create future ecological networks, such as wetlands. Local and regional planners should incorporate these into spatial plans, with investment and delivery targeted to those species which are the most resilient to climate change. Work in the South West of England on South West Nature Map is leading this area.
5. Conclusions
Future Roles and Responsibilities for Regions and Local Authorities 5.1 As we have shown, the current response from regions and local authorities to climate change adaptation has not been adequate and the roles and responsibilities between the two have been confused and unclear. Like the other policy areas (economic development, housing, transport) identified in Government’s “Sub-National Review” (SNR), climate change has suVered from ineVectual regional-to-local collaboration and co-ordination. 5.2 The Environment Agency believes Government should clarify the diVering roles and responsibilities played by regions and local authorities in delivering climate change adaptation. However, in doing so, Government must also ensure an equal imperative for both to ensure a co-ordinated response. 5.3 In our view, regions should have the strategic overview for climate change. Regional Spatial Strategies or their successors have a key function in addressing climate change and must deliver against climate change mitigation and in particular adaptation objectives. Regional Development Agencies must also be given clear climate change duties. This would build on existing work, ensuring existing commitments contained in Regional Climate Change Action Plans are integrated into statutory documents, as well as building on existing structures, such as the established Regional Climate Change Partnerships. It would make the best use of the forthcoming UKCIP08 scenarios, which go down to regional level, as well as being consistent with the Governments plans to publish a UK Risk Report (as part of the Climate Change Bill), which will also go down to regional level. By identifying the major risks to businesses, infrastructure and assets, regions will be well placed to ensure a co-ordinated response across local authorities, business sectors, and other regional stakeholders. 5.4 Local authorities also have a key role in strategy development for their areas and in the delivery of measures to ensure our communities, infrastructure and services are well-adapted. They need to work together on climate change issues particularly where adaptation requires a joint approach, for example, coastal authorities in relation to sea level rise or authorities in a river-basin catchment. Spatial planning will have a major role to play, and it is essential that key documents, such as Local Development Frameworks, Local Area Agreements and Sustainable Community Strategies include clear climate change adaptation objectives and policies based on comprehensive local risk-based assessments of vulnerabilities. In addition, local authorities will also be on the “frontline” of managing the response to climatic events and must be prepared to act. Parallels already exist here with the role they play in emergency planning and responding to major incidents and climate change adaptation will require a similar approach, integrating adaptation planning across all local authority service delivery areas.
Capacity Building 5.5 There are a number of opportunities for capacity building in the regions and with local authorities which Government should consider in providing support for climate change adaptation. They are: — The forthcoming UKCIP08 Scenarios will be an essential tool in helping regions and local authorities understand the impacts of climate change. These scenarios diVer significantly from the older UKCIP02 scenarios, reflecting the recent developments in climate science and taking a Ev 152 Environmental Audit Committeee: Evidence
“probablistic” approach. If regions and local authorities are to fully make use of these tools we would recommend that Government increases the capacity of UKCIP in providing guidance and training to users at a regional and local authority level. — Government should consider strengthening the long term arrangements for the Regional Climate Change Partnerships, which have proved an eVective use of regional resources in the promotion, co-ordination and development of climate change tools, policy and advice. Their role in working with Regional Development Agencies under future regional governance arrangements will be key. — Government should consider ways of supporting the Nottingham Declaration Partnership and strengthening the eVective development of Nottingham Declaration Action Plans by local authorities. We believe that the Nottingham Declaration has a vital role to play and its popularity with local authorities is testament to it success. While the Nottingham Declaration Partnership (Environment Agency, Energy Savings Trust, Carbon Trust, UKCIP, IDeA and the LGA) has achieved much on few resources, continued momentum will require a step change in the level and quality of advice given to local authorities. For example, the Partnership is currently investigating the feasibility of an accreditation scheme which would “quality assure” the Action Plans developed by local authorities, as well as updating and revising the current advice provided through its website. To do this will require substantially higher levels of support from the Partnership and central Government. January 2008
Memorandum submitted by The Society of Motor Manufacturers and Traders (SMMT) The Society of Motor Manufacturers and Traders (SMMT) is the leading trade association for the UK automotive industry, providing expert advice and information to its members as well as to external organisations. It represents more than 500 member companies ranging from vehicle manufacturers, component and material suppliers to power train providers and design engineers. The motor industry is a crucial sector of the UK economy, generating a manufacturing turnover of £47 billion, contributing well over 10% of the UK’s total exports and supporting around 850,000 jobs. We welcome the opportunity to contribute to this inquiry. We have responded to the pre-legislative process for the Climate Change Bill and the Local Transport Bill. Both bills cover governance issues and are therefore pertinent to this inquiry.
Climate Change Policies and Transport Climate change is an international issue, and the UK is taking a lead on the environmental agenda. Addressing climate change at a local level is possible, as local authorities have a plethora of policy options available to them. It is widely understood that local solutions and hence local policies are best for local issues. However, the issue of climate change is being addressed at all levels of government, and there must be consistency to avoid confusion and conflicting messages. The role of central government in leading and supporting on climate change issues is multi- faceted. Central government should lead by example, and also provide clear guidance and coherence for local, regional and devolved government. It is essential that for any local or regional climate change policy there must be a central reference point. This is of particular concern for SMMT in relation to transport policies. DiVerences exist between levels of government and regions in criteria and principles for transport policies with climate change aspects, such as CO2-related varied parking charges (London Borough of Richmond) and the proposed Emissions Related Congestion Charge (ERCC) for London. SMMT is concerned with the inconsistency between these levels and also duplication. There is a lack of clarity and coherence in policies which means confusion for consumers and vehicle manufacturers amongst others.
For car manufacturing in the UK, CO2 regulations are set at an EU level for products, nationally Vehicle Excise Duty is set through CO2 banding, as are levels of fuel taxation. Additionally, at a local level in the UK there are diVerences in charges for driving and parking your vehicles based on CO2 bandings. There are multi-level pressures, with diVering criteria, meaning our members are subject to increased pressures on CO2 breakpoints. There needs to be good communication and understanding across all levels of government to ensure the full context of policies is understood. Our members seek international harmonisation for climate change policies to ensure they are eYcient, eVective and fair. Cars and other automotive products are built to comply with the majority of regulations. Government is pursuing UK emissions targets through the Climate Change Bill. Targets and regulation are one way in which central government can encourage action on climate change. However, it should be understood that targets must be realistic and achievable and that “climate change related areas like waste and transport” cover a diverse range of issues each of which have diVerent economic, social and environmental impacts, therefore caution should be exercised when implementing and comparing the eVectiveness of climate change policies. EVorts to reduce carbon from transport in particular, unlike for example refuse collection, has a wider impact than a local area. Environmental Audit Committeee: Evidence Ev 153
Central Government Supporting Local Government There currently appears to be a lack of joined-up thinking in the roles of diVerent levels of government, government departments and regulators, in tackling the issue of climate change. In particular, there is a serious lack of strong national guidance. This may be due to the “newness” of the issue and also recognition of the urgency and public awareness. However, joined up policy/regulation making is not a new issue and this should be addressed. Recent examples to help local and regional governments have included the setting up of the Local Better Regulation OYce to account for better communication and working methods between regulators, local authorities and central government. Mixed messages from diVerent levels of government can cause confusion and lessen the impact of climate change policies. London Boroughs are an example of diVerent “green” policies in a region. Ultimately, all levels of government should base policies on a sound impact assessment with consistent criteria. The proposals for an ERCC in London and the timings for discounts and increased charges (pre- and post- mayoral elections respectively) show how local politics should not impact on good policy making. From the viewpoint of the automotive industry, joined up regulatory initiatives and the passage of regulation from international, EU, UK and local levels, has not always worked well. For example, manufacturing sites are subject to an increasing amount of burdensome reporting regulations and requirements, the result is that similar information is transmitted to various government agencies and departments. From the EU level, manufacturing sites comply with the IPPC directive and many are included in the EU Emissions Trading Scheme. At UK level, they then comply with the CCA/CCLs and now the Carbon Reduction Commitment (CRC) has been introduced. Some permits relating to the trading schemes are administered at local level, as well as nationally and internationally. All of the above have reporting requirements, yet data cannot be shared causing undue administrative burdens on our members—better regulation principles at all levels of government must include an assessment what other policies are in place.
Governance and Powers The governance barriers to local and regional action are being addressed through current parliamentary Bills, and the eVectiveness of them can only be judged in practice following their assent. Local policies work well when properly co-ordinated and are subject to full stakeholder consultation. There is concern that some local authorities may adopt specific climate change policies to ensure they receive associated funding streams, such as has been suggested in relation to road pricing. The Transport Act 2000 ensured local authorities had the powers to implement local road pricing schemes, but not until the recent introduction of funding for road pricing schemes (through the Transport Innovation Fund) has there been widespread consideration of implementing local schemes.
Targets for Different Levels of Government As mentioned, SMMT welcomes the Climate Change Bill but is concerned it is unilateral and climate change policies are most eVectively addressed on a global stage. There is concern that disaggregated targets can lead to distinct diVerences in policies between localities. Carbon reduction policies need to be based on sound economic, environmental and social assessments. Policies need to be implemented and managed strategically so that they achieve the objective of carbon reduction.
Committee on Climate Change It is already notable how important the role of the Committee on Climate Change will be following recent amendments proposed in the House of Lords for the Climate Change Bill. The level of importance of the Committee is also recognised by industry. Its strengths will be its representative and responsible nature. The Committee should consist of experts working with sound scientific and economic evidence, be independent, and avoid being politicised whilst representing all levels of Government. The reporting requirements of the Committee should also ensure it is responsive to needs. SMMT would support full stakeholder engagement with the Committee, in terms of business and government, where for example organisations such as the National Local Government Network and the CBI would prove useful.
Good Practice Ideas and the Role of “Other”Institutions As aforementioned, SMMT supports government leading by example; it also supports the sharing of best- practice and worst-practice. Central government should have responsibility for co-ordinating networks for information sharing. A good example of government and industry working together is the Act on CO2 website (www.dft.gov.uk/ActOnCO2). Here consumer is given clear messages ahead of purchasing a vehicles on the lowest-CO2 emitting vehicle for their needs. Consumers can see this in terms of VED band, which is also reflected by the new car labels in car showrooms. There is consistency and clarity in this approach. Ev 154 Environmental Audit Committeee: Evidence
Good practice should also include a robust review policy at all levels of government to ensure that policies which are not meeting their objectives are changed. The organisations mentioned in question 10 of the inquiry are not an exhaustive list. In our experience support from the Energy Savings Trust has been inconsistent and caused serious disruption to the market and uncertainty for consumers and manufacturers. The EST administered PowerShift grants which gave incentives for the purchase of low-carbon vehicles. The grant was removed by the EST in 2004 and the market was distorted and ensured demand for gas powered cars collapsed. The role of such organisations needs to be subject to guidance to ensure consistency in climate change and other policies. Should you have queries on any of the points in this response, please do not hesitate to contact me. 14 January 2008
Memorandum submitted by the Renewable Energy Association The Renewable Energy Association was established in 2001 to represent British renewable energy producers and promote the use of sustainable energy in the UK. Currently we have 500! members representing installers and manufacturers of renewable energy technology and bodies with an interest in this growing sector. We are the largest body in the UK that represents the Renewable Energy Industry. REA’s main objective is to secure the best legislative and regulatory framework for expanding renewable energy production in the UK. We undertake policy development and provide input to government departments, agencies, regulators, NGOs and others. We have a number of Resource Groups, some looking at individual technologies, others focused on industry sub-sectors.
Recommendation 1
That central government advises all local authorities to set renewable energy targets for both their own estate and for their householders
Rationale Under the new Local Government Performance Framework Local Authorities have to report on reductions in carbon emissions for both their own activities and per capita for the population for the area they cover. The contribution to achieving this figure can be broken down by how those emissions were saved eg energy conservation renewables etc. Given that achieving the necessary carbon reduction targets necessary to avert damaging climate change will require more generation of heat and power from renewable sources it makes sense for local authorities to both encourage the take up of renewables in their own district and in improvements to their own property portfolio. Another important reason to set targets for local authorities is so their contribution to assisting the UK’s proportion of the EU 20% renewables target by 2020 can be assessed.
Recommendation 2
That government directs all local authorities to consider renewable energy options in the refurbishment and construction of public buildings using whole life costing principles
Rationale The new “Use of Resources key lines of enquiry” document makes the statement in KLOE 5.2—that there should be: “More emphasis on stronger, longer term, full cost evaluation, including (at levels 3 and 4) consideration of environmental and social in its assessment of costs and benefits of decision making”. In his statement would back up investment decision like those made at Barnsley Council where initially high capital costs for Biomass boilers were oVset within the lifetime of the equipment by the much lower fuel costs. Too often councils will make decisions to retrofit a new boiler or specify fossil fuel using boilers without even considering the renewable energy alternatives.
Recommendation 3 Environmental Audit Committeee: Evidence Ev 155
That all local authorities are encouraged by central government to set up a scheme to support the installation of renewable technology for householders, such as Kirklees Councils RE-Charge scheme
Rationale The Kirklees Council RE-charge scheme is one where the council underwrites the installation of up to £10,000 worth of renewable energy technology in a household which it then recovers when the property is sold through a “second charge”. A second charge is an alternative name for a secured loan, so called because the loan is guaranteed or “charged” on your home, and is the Second Charge on your home—your Mortgage being the first. The holder of a second charge has a legal call on the property in the event of the borrower defaulting on repayments, but only after all liabilities to the holder of the first charge are settled. Once the money is recovered it goes back into the loan fund to be used to pay for more installations. The principle advantage of the scheme is that the householder has no upfront costs but gets the benefit of renewable technology immediately.
Recommendation 4
That government calls on all local planning authorities adopt a ‘Merton style’ renewable energy target for new developments
Rationale The recently published Planning Policy Statement on Climate Change confirmed that Local Planning Authorities will be able to specify targets for on-site renewables in all major new developments. Such policies as these will help Councils achieve their carbon reduction and renewables targets. It will enable local developers, builders and architects to become familiar with the technology in preparation for the introduction of zero carbon homes in 2016. Enabling the renewables sector to grow in a local area through these policies will help produce a healthy market for the technology and reduce costs. 24 January 2008
Memorandum submitted by the OYce of the City Remebrancer, City of London Corporation
Introduction 1. The City of London Corporation has long been aware that a clean environment, quality of life and economic prosperity go hand in hand, from planning and health in the 12th Century to the Clean Air Private Bill in the 1950s. It has therefore been paying close attention to developments in the science, theories and practice surrounding the issue of climate change as a whole. The City has been working to reduce its emissions for sometime now and, through investment in new energy saving equipment, the purchase of electricity from renewable sources, and the utilisation of heat and chilled water supplies, a reduction in carbon emissions of 38% below 1990 levels was recorded in 2005–06. 2. The City Corporation recognises however that even if carbon emissions were cut to zero overnight, the eVects of climate change are likely to continue to impact upon the population for many years to come. It is imperative therefore that the City of London ensures that it will be able to continue to deliver the services and maintain an infrastructure that underpins the success of the business City. The following paragraphs set out some of the initiatives the City Corporation has undertaken in this area.
Internal Practices 3. The City Corporation’s Energy Working Party (EWP) was established in 1975 and comprises senior Members of the Court of Common Council. Its main objective is to review the City Corporation’s energy performance, its carbon emissions and to make recommendations with respect to capital expenditure and policy development. In 1998 the EWP recommended the purchase of renewable energy across the City of London Corporation. Consequently, the Guildhall, all public and street lighting, Mansion House, the Barbican Centre, The Old Bailey, New Spitalfields Market, Billingsgate Market and the City of London School are now all run on renewable energy contracts, saving in excess of 15,000 tonnes of carbon per year. 4. StaV are encouraged to take responsibility for their energy usage in a number of ways. In addition to information, supplied through media such as screen savers, staV bulletins and articles in the staV magazine, regular energy audits are conducted by the energy team and a network of volunteer energy wardens has been established across the organisation. These individuals take responsibility for on-site monitoring of energy consumption as well as engaging with staV about the benefits of energy saving. Alongside this, the cross departmental Sustainability OYcers Working Group, assists in the identification of opportunities to enhance energy eYciency and cut carbon emissions. The group was, for example, actively involved in the development of internal recycling facilities. Ev 156 Environmental Audit Committeee: Evidence
The City Community
Residents 5. Increasing temperature fluctuations expected as a result of climate change are anticipated to have a negative impact on air quality within the City. The City has joined a partnership of organisations led by the European Space Agency in order to provide a free air quality alerts service. This allows anyone working or living in the City to sign up to receive free pollution alerts when air pollution may be elevated. The “airTEXT” service also oVers health advice so that individuals can take steps to reduce the likelihood of any impacts. Participants in the scheme can choose to receive the alert by text message, voicemail message or an email, either on the evening before or on the morning of days when elevated air pollution levels are predicted. 6. The City’s climate change adaptation strategy recommended the identification of flooding “hotspots” within the City, in particular identifying where localised flooding is likely during extreme weather events. Due to the topography of the City one of the areas most at risk is towards the east of the City and this is where the analysis is being focused as part of the City’s strategic flood risk assessment. The adaptation strategy also recommended the development of a heat health warning system (HHW), the provision of portable air conditioning units, and the establishment of air conditioned refuges in public buildings during heat waves. In partnership with the local NHS trust, the City is taking forward the HHW and aims to identify individuals who are at particular risk during heat waves. 7. As part of the corporate performance management system, a sustainability planning tool across is being introduced across the City of London Corporation. To date the Department of Children’s and Community Services (DCCS), Open Spaces Department, Environmental Services Department and Department of Planning & Transportation have undertaken training and incorporated sustainability into their business planning and performance management culture. This has allowed these departments to identify joined up ways of delivering new services. For example, carers from DCCS now provide advice on energy eYciency and climate change impacts to their clients. 8. The City Corporation’s Housing Service is committed to eradicating fuel poverty for those living in housing of which the City is landlord and a number of improvements have been made to housing stock. These include a series of insulation programmes across estates, the installation of more eYcient condenser boilers. Energy wardens are also employed on estates to monitor energy use and opportunities for installing solar panels to supplement domestic hot water use are also being investigated.
Businesses 9. Awareness is particularly high in the business community in the City. This awareness goes beyond firms’ recognition of the business opportunities associated with climate change. Evidence of this can be found in the high degree of awareness and interest amongst members of the City Environmental Forum, which was established by the City of London Corporation in 2005. The Forum comprised of Corporate Social Responsibility and Communications managers from City of London businesses is free of charge, meets quarterly and is open to any business based within the Square Mile. 10. The City is the global centre of carbon emissions trading, and many firms within the City are beginning to enter this new market. The degree of interest is not only evident in the willingness with which businesses joined the London Accord (see paragraph 13: International below), but also in the fact that the soon to be launched City Climate Pledge has already attracted a large number of businesses willing to sign up before the programme has been launched. The “lights-oV London” campaign was also extremely well received in the City, with many firms taking part.
Planning 11. The City’s planning oYcers assist developers wanting to maximise the energy eYciency of new buildings through the planning process. When submitting applications for new developments, developers are asked to demonstrate that energy eYciency has been optimised, and that renewable energy has been properly considered by producing an “energy statement”. Developers are also strongly encouraged to achieve a minimum BREEAM55 rating of “Very Good” and in order to assist in this, a range of research and guidance notes have been produced, including “Green Roofs—a Guidance note for developers” which was produced in collaboration with the British Council for OYces. The City’s new Local Development Framework has also incorporated climate change adaptation within its policies and the guidance that is being produced for developers. City planning oYcers have also undertaken a Strategic Flood Risk Assessment. This study is intended to inform the City’s Planning process in ensuring that future development takes account of the risk of flooding particularly in the face of climate change.
55 Building Research Establishment Environmental Assessment Method. Environmental Audit Committeee: Evidence Ev 157
Working in Partnership 12. The City of London Corporation has been involved in establishing and leading on partnerships seeking to assist in the fight against climate change. One recent example of these is the City Climate Pledge, a new initiative established in response to a request from the business community to develop a programme enabling them to demonstrate their commitment to tackling climate change. The pledge, being developed in partnership with The Carbon Trust and Pure-The Clean Planet Trust, takes a similar approach to managing carbon as the three “R”s used for waste management and recycling (reduce-reuse-recycle). Under this pledge, the three “M”s approach asks firms to Measure and report on their carbon footprint, Mitigate their footprint by introducing energy eYciency measure (assisted with advice from the Carbon Trust) and Mandate the oVsetting of unavoidable emissions through reputable and auditable carbon oVsetting schemes (assisted by Pure). 13. Other partnership work can be split broadly into three categories:
Londonwide — In 2001, the City Corporation became the first local administrative body to join the London Climate Change Partnership (LCCP) which, with the assistance of City Corporation funding, published “London’s Warming”, the first ever analysis of the impacts of climate change on a major urban area. The City continues to play a role on the steering committee and is also an active member of several of its sub-groups, including the Financial Services Sub-Group, the Property Sub-Group and the Three Regions Climate Change Group. This last group was responsible for publishing “Adapting to climate change: a checklist for development”. — In 2002, in partnership with Forum for the Future the City Corporation established the London Sustainability Exchange (LSx). LSx is actively involved in motivating behaviour change on issues such as global warming in diverse communities across London. — In 2005 the City of London Corporation became a founding member of the London Climate Change Agency. The LCCA was established to help reduce carbon dioxide emissions from London. It is a commercial company wholly owned, controlled by and housed in the London Development Agency. — The City of London’s City Bridge Trust, London’s largest charitable grant making body, recently established a new initiative aimed at “greening” the third sector. It entered into partnership with 12 voluntary sector organisations across London to provide them with free eco-audits, aimed at improving their environmental performance, and carbon footprints. The results of this study were recently published in the form of a guide, and have generated a great deal of positive feedback from voluntary organisations from across London and beyond. — The City has sought to engage local authorities in events such as the Clean Automotive Transport (CAT) seminar and research programmes such as the London Sustainable Construction Initiative and Green Roofs Advice Note. The latter has proved extremely influential and has been adopted as planning guidance by the London Borough of Barking and Dagenham.
National — In 2005, in partnership with UK Trade and Investment, the City Corporation founded London Climate Change Services, the industry body which represents the interests of climate change professionals. In addition to giving the industry a coherent voice when engaging with the Government, LCCS also assists in the promotion of UK expertise in international markets. — In 2006 the City joined the All Party Parliamentary Group on Climate Change, and has contributed information and speakers to meetings of this group. — The City is also an active member of the Construction Industries Council Sustainability Committee, the Institutional Investors Group on Climate Change, the London Environmental Coordinators Forum and Forum for the Future’s Local Authority Partnership.
International — In 2002 in partnership with Forum for the Future and Defra, the City established the London Principles Project, a research project focusing on sustainable finance. Following extensive consultation with stakeholders, this project became part of the UK Government submission to the Johannesburg Earth Summit, where the City of London signed a memorandum of understanding with the United Nations Environment Project to promote finance and insurance for sustainable development. The project is on-going, and in partnership with the DTI and Gresham College the City recently published “Clean Finance”, a report examining how eco-innovation and low carbon technology was funded in the UK. Ev 158 Environmental Audit Committeee: Evidence
— In 2006, the City of London, along with BP, Forum for the Future, Gresham College and Z/Yen Consulting, launched The London Accord, a unique collaborative research project intended to share thinking on climate change mitigation and to provide analysis of approaches to direct investment to the best opportunities for investment. A number of leading City organisations have supplied their research teams without charge with the aim of providing a shared consensus to present greater clarity and better measurement of the link between investment, financial and “carbon” returns and also a better understanding of the role of public policy in this area. The report was published in December and is intended to be a reference guide for investors as they consider climate change, and incorporates both the wider agenda (energy security and environmental sustainability) as well as specific investment research.
Sustainable City Awards 14. The Sustainable City Awards were established in 2001 by the City of London Corporation with the aim of recognising and rewarding best practice in sustainable business in the UK across eight categories. The awards are delivered in partnership with 17 business and voluntary sector organisations. Since their inception, the awards have become the leading sustainable development awards scheme in the UK and act to raise the profile of winning organisations, encouraging participants to show improvement year on year. Last year the Climate Change Category attracted entries from 27 organisations including the public sector and household names such as BSkyB. 15. The Awards have also attracted entries from local authorities, such as the London Borough of Bromley, who in 2007 were runners-up in the traYc and transport category, and the London Borough of Enfield who were overall winners of the competition in 2005 for their work on sustainable construction. The City also runs initiatives such as the Clean City Awards Scheme which seeks to enhance the ability of businesses within the Square Mile to manage waste eVectively. Both award schemes provide participants with the opportunity to network and share best practice, further supporting their eVorts.
Adaptation 16. The City’s Climate Change Adaptation Strategy “Rising to the Challenge”, published last year, examines how the City’s services and infrastructure will need to adapt in order to predict impacts of climate change compiled to assist the City in preparing for the likely impacts of climate change. The Strategy was commissioned by the City of London and drawn together by leading consultants, Acclimatise, in consultation with a wide range of partners. Workshops were held with oYcers from across the City of London Corporation, as well as City stakeholders, including Thames Water, the Environment Agency, the Association of British Insurers (ABI), Transport for London, the Government OYce for London and London Metropolitan University. In addition, City businesses including RBS, KPMG, Charles Russell Associates and CliVord Chance attended as well as the neighbouring boroughs of Tower Hamlets, Westminster, Hackney and Islington. The Greater London Authority were also represented. A large workshop was held in July 2006 to identify the major climate risks, this was followed by a number of smaller meetings in August, to identify and appraise adaptation actions to address those risks. 17. The resulting document is intended to be a comprehensive and highly accessible piece of work which clearly outlines the major risks from climate change to the City along with recommendations on remedial action. The strategy aims to “climate-proof” the City of London, by undertaking a number of actions: initiating research and monitoring to help develop appropriate policy and actions on climate adaptation; climate proofing policies, practices, assets and infrastructure; working in partnership with utilities and service providers, other public sector bodies, residents and businesses in achieving this. The main climate risks the City faces are raised under the following headings; flood risks, water resources, heat risks and pollution and ground conditions. Each section outlines the highest priority risks and corresponding adaptation measures to manage the risks, cross cutting issues and opportunities are also described. The appendices outline specific climate risks, showing which City Corporation departments are most likely to be impacted by that risk and giving an indication of the severity and likelihood of the threat. A key feature of the strategy is the checklist for “climate-proofing” the City of London Corporation policies and projects. 18. Many local authorities now have climate change strategies but these tend to focus on mitigation rather than adaptation. The City’s Adaptation Strategy is the first of its type to be produced by a UK local government body and, it is hoped, will be of use to those authorities who have not yet identified adaptation as an issue that needs to be addressed now. Though it is specific to the City of London, the issues raised within the City’s Climate Change Adaptation Strategy are common to most boroughs and the “Climate Proofing” checklist is transferable across the board. EVorts are therefore being made to share the document with as many people as possible. It is being sent out to all Chief Executives of local authorities in England and Wales and presentations have been given to, or are planned for, a number of special interest groups. In addition the then Lord Mayor discussed the strategy with Russian counterparts during his visit to the city of Moscow last year and copies were taken by Defra to the Intergovernmental Climate Change Conference at The Hague. Environmental Audit Committeee: Evidence Ev 159
19. The City Corporation has also convened an internal working party which is currently drawing up a series of action plans, projects and programmes to address the points of action contained within the strategy. Initial investigations indicate that much is already being addressed as a matter of good management practice but the strategy has also made a massive contribution to the City’s Local Development Framework and expedited the delivery of our flood risk assessment. The issues and actions identified within the strategy have prompted the City to work more closely with service delivery organisations, such as those in the voluntary sector that we might not have previously approached on this issue. In depth conversations have also been initiated with bodies such as Ofwat and ofgem to examine the resilience of energy and water supplies to the Square Mile and adaptation is on the agenda for the City Environmental Forum, a forum facilitated by the Corporation for facilities and environmental managers throughout the Business City.
Procurement
20. In addition to the purchase of renewable energy highlighted at paragraph 3 above, climate change has been integrated into the City’s corporate purchasing policy in a number of ways not least in mandating the use of environmentally beneficial products, services and technologies. In addition, a Local Purchasing Directive is in place to maximise contract opportunities for suppliers based in Camden, Islington, Hackney, Tower Hamlets, Newham, Southwark, Lambeth & City of London.
21. The Lord Mayor’s oYcial travel has been oVset for the last six years and for the last four years the City has voluntarily oVset the CO2 produced by the Lord Mayor’s Show, using a combination of forestry and energy eYcient projects in the UK and developing nations. Since 2004, the City Corporation has made considerable use of expertise in this emerging sector, including The CarbonNeutral Company, an organisation based in the charitable sector, and CO2e.com, a subsidiary of global financial services firm Cantor Fitzgerald which operates in the European Emissions Trading Market. With the help of other commercial organisations, the City of London Corporation has additionally oVset the oYcial travel of staV and Members since November 2001, by the purchase of low energy light bulbs for use by communities in Mauritius. OVsets have saved 221 tonnes of CO2 emissions associated with essential City vehicle use since November 2001. Further, through the CarbonNeutral Company, the City Corporation has invested in a variety of forestry and development projects. In 2006 the City purchased its carbon oVsets through CO2e.com and invested in a project which manufactures high eYciency wood burning stoves for use by South African communities. Through such measures, carbon oVsetting has been demonstrated as having a positive environmental impact and an ability to bring wider social and economic benefits. January 2008
Memorandum submitted by the Association for the Conservation of Energy
Introduction
The Association for the Conservation of Energy is a lobbying, campaigning and policy research organisation, and has worked in the field of energy eYciency since 1981. Our lobbying and campaigning work represents the interests of our membership: major manufacturers and distributors of energy saving equipment in the United Kingdom. Our policy research is funded independently, and is focused on four key themes: policies and programmes to encourage increased energy eYciency; the environmental benefits of increased energy eYciency; the social impacts of energy use and of investment in energy eYciency measures; and organisational roles in the process of implementing energy eYciency policy.
ACE believes that local, regional and devolved governments have a crucial role in tackling climate change but barriers to change need to be dismantled and incentives increased to help these bodies bring about the fundamental shift needed to move to low carbon communities.
ACE contributed to the first two key stakeholders’ workshops on the Performance Indicators on Climate Change organised by Defra.
During the campaign to improve the DCLG “Planning Policy Statement: Planning and Climate Change” ACE set up an informal campaign and information network for local authorities active on renewable energy and energy eYciency issues. Such a non-party group could impress upon government the changes needed to national policy: indeed a minister told ACE very recently that such a network would be welcomed by her to help inform policy making. Ev 160 Environmental Audit Committeee: Evidence
Summary The government must provide a stable policy and financial regime for local authorities to act eVectively and over time. The government should support the Planning and Energy Bill, promoted by Michael Fallon MP, which gives local councils the ability in law to set higher green standards in new local buildings than are currently required under Building Regulations. This should reassure councils that they would not be subject to repeated government U-turns on this issue. The new performance regime for local authorities in England contains performance indicators designed to influence councils to cut carbon emissions in the council’s own buildings, in the community, and to improve the energy eYciency of households living in fuel poverty. The practical things the government could do regarding local authorities to make these carbon and fuel poverty indicators work:
Own Estate There needs to be a rise in consultancy advice support from the Carbon Trust from the present 20 councils a year, or a pot of money to employ private sector consultants. In addition there must be far greater guaranteed financial support for local councils from the Salix Fund.
In the Community To implement the PPS Climate Change, the government must provide additional funding for planning departments to employ skilled staV or consultants with knowledge of sustainable energy systems—to enable councils to develop viable plans and negotiate with private developers on cutting emissions in new development. The government to force an agreement on EST on the amount of advice and support it gives local authorities with regard to improving energy eYciency in homes—EST cut this when they lost the VAT issue. The government should hold the ring on some kind of formalised agreement or standard contract between the energy suppliers and the local authorities with regard to CERT action in localities—this is particularly important with regards to reaching the Priority Group. Government to implement as soon as possible Article 7 of the Energy Performance of Buildings Directive, which requires all public buildings over 1000 square metres to display an energy performance certificate. This must, in the correct interpretation of the Directive, be extended to all buildings used by the public (ie not just public sector buildings). Councils will need to be empowered by the government to collect Energy Performance Certificate data on individual dwellings to build up hard information on a property by property basis which will be useful for targeting. At present they can collect this data purely for “trading standards” purposes. The government should abandon its attempt to repeal the Home Energy Conservation Act 1995 and instead use its provisions to bolster the new performance indicators.
1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers, and structures are required to improve joined up delivery of climate change policy at all levels of government? The question the Committee could ask the government is how far are you willing to go to work with local authorities to achieve significant carbon savings? Are you willing to provide a stable policy and financial regime for local authorities to act eVectively and over time? Unfortunately, the government has “form” on playing fast and loose with local government on sustainable energy matters, and this lack of consistency smacks of a general contempt by UK government for local government. For example, in the Budget 2006, local authorities were promised £20 million over the ensuing two years to promote energy eYciency in local housing. This amount was considerably reduced in a one-oV grant programme where projects had to be set up and spend their grant money all within a year! One of the examples of central government flip-flopping is the “Merton Rule”, which the ODPM originally opposed, then supported, then copied into the Planning Policy 22 to encourage other local planning authorities to follow suit. However, during the drafting of the Planning Policy Statement on Climate Change, the first draft supported the Merton Rule, the second essentially hamstrung it, while the third and final version produced something like the Rule. This is no way to encourage councils to take action. The government could support the Planning and Energy Bill, promoted by Michael Fallon MP, which gives local councils the ability in law to set higher green standards in new local buildings than are currently required under Building Regulations. This should reassure councils that they would not be subject to repeated government u-turns on this issue. Environmental Audit Committeee: Evidence Ev 161
Another example is the government support for the Home Energy Conservation Act 199556 and related legislation, supported by ACE and passed with all-party agreement. Defra has allowed HECA, the only legislation-backed policy on climate change mitigation that concerns local government to “wither on the vine”. This is despite EST showing it to be by far the most eVective energy saving programme pre-EEC.57 Defra seem to have little interest in enforcing HECA: they have not eVectively pursued those who do not submit reports in time,58 nor published any figures until well over a year late, and seem unbothered about the accuracy59 of returns.60 It is ironic in the fact that if HECA were started now, it would logically begin precisely with asking each council to set out a policy on how to reduce domestic energy consumption across a 10 or 15 year period.61 There is also the sorry list of government agencies such as the Energy Saving Trust (EST), setting up and abandoning successful local government programmes and pilots for budgetary reasons. With the growing importance of sustainable development issues the policy emphasis must genuinely be on the leading role that local communities have in managing their environment. The government must empower local communities—through their elected representatives—to make the decisions that are right for their new developments and give local people a sense of shared responsibility for eco-friendly developments in their communities. So, first, central government needs to provide a higher degree of continuity to its attitude and policy with regard to local government. In November 2002 the LGA published a research briefing called Climate Change: a survey of local authorities.62 The authors of the report wrote: “For central government, the survey results reinforce the need for national leadership, and a clear demonstration that climate change is indeed a national priority. This needs to be communicated clearly to local authorities by valuing and rewarding [precisely the opportunity sorely missed under HECA to date] those who take action in this area, even if the benefits are long term and not as tangible as cleaner streets or improved exam results”. Since then the government has published its new Performance Indicators for local authorities in England. Councils, if they take action on these climate change indicators (and there is no requirement to do so, unless in a Local Area Agreement), need to decide what to prioritise if their objective is to maximise the amount of carbon saved. Lacking much knowledge of energy usage in buildings, most will need help with this process and extra resources from external sources as support. Councils need to be advised as to what action they can take. There is a lack of audited or even reported energy savings in case studies collected by Practical Help and other agencies. This needs to be improved and Defra, as the main funder of the Energy Saving trust (EST), should require this information to be produced. Specific government support in terms of reformed government policy is required to create more energy service companies (ESCOs) and decentralised energy systems: a government report is expected. Hopefully, the practical reasons why district or distributed energy thrives in other countries such as Denmark—but not in the UK—will feed through into changes in legislation and regulation. Councils will need to be empowered by the government to collect Energy Performance Certificate data on individual dwellings to build up hard information on an estate by estate (and eventually property by property basis) which will be useful for targeting. At present they can collect this data purely for “trading standards” purposes. There will be indicators on carbon emission savings to be included in the new council performance regime in England from April 2008. If these were backed by adequate extra resources it would show that central government was serious in its ambitions for action by local authorities on cutting emissions of carbon. The issue then will be—will the councils have enough resources to make a diVerence? An incentive for central government could be the targets below which the government has committed itself to and could be made easier to achieve if the government was committed to working seriously with local authorities: (a) By 2020 the general level of energy eYciency of residential accommodation has been increased by at least 20% compared with the general level of such energy eYciency in 2010.
56 HECA requires all UK local authorities with housing responsibilities to prepare an energy conservation report identifying measures to significantly improve the energy eYciency of all residential accommodation in their area and to report on progress in implementing the measures. 57 There are several good examples of HECA projects which are discussed in the annex of this document. 58 Southend and Isles of Scilly have apparently never submitted a report. 59 Defra has been frequently criticised by councils for not enforcing a common methodology. 60 ACE estimate that around 1 in 4 councils really are delivering on their commitments under HECA. 61 The latest HECA data as reported by Energy Conservation Authorities in England in the period 1 April 1996 to 31 March 2005 has now been published. Authorities have reported an overall improvement in domestic energy eYciency of approximately 16.7% as measured against a 1996 baseline. Information: Defra website http://www.defra.gov.uk/ environment/energy/heca95/index.htm 62 Around half of the 400 councils responded. The results were generally depressing, with the only area of significant progress was that over half of the councils had adopted “green” tariVs for electricity. Ev 162 Environmental Audit Committeee: Evidence
(b) By the end of 2010 the general level of energy usage in the commercial and public services sectors has reduced by at least 10% compared with the general level of such energy usage in 2005 and by the end of 2020 by at least 10% compared with the general level of such energy usage in 2010. (c) 10% of electricity shall be generated from renewable sources by 2010 and 20% by 2020. (d) 10 Giga-Watt of good quality combined heat and power shall be generated by 2010.
References will be made to these targets that could potentially be included in the pending Climate Change Bill, throughout the document.
Energy suppliers should work more closely with councils and their agents to provide EEC/CERT resources to householders willing to improve their properties. The government may need to hold the ring on some kind of formalised agreement or standard contract between the energy suppliers and the local authorities with regard to EEC/CERT investment—particularly the Priority Group. Unfortunately, the anarchy of the short-term arrangements of the moment has not proved durable and it is in the interests of all parties to get things sorted for CERT and beyond.
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of the response at a local level be improved? How eVective has the Nottingham Declaration process been?
There are few examples of current legislation driving council action on climate change mitigation. These include:
The 1995 Home Energy Conservation Act (HECA) provided new duties and responsibilities for all local authorities with regard to energy conservation in all residential accommodation, making them energy conservation authorities that had to implement a home energy eYciency strategy. See the annexes for various examples of HECA action. Defra now want to repeal HECA.
In 2000, the government required local authorities to produce another linked strategy aimed at assisting those private householders who had particular diYculty in maintaining adequate warmth in their homes in winter due to a combination of low income, poor insulation, or ineYcient heating. In response, councils created a Fuel Poverty strategy to address this aspect of energy conservation. The key strategy elements commonly identified included the need to “develop appropriate partnerships with other organisations to contribute towards the achievement of aVordable warmth”, and to “target energy advice to the most vulnerable members of the local community”.63 The government has admitted that it is likely to fail its 2010 fuel poverty target. It needs to rethink the role for local government (beyond the performance indicator) and resources required to help reach the target. Defra has done nothing with respect to the local reports on fuel poverty which have been statutorily submitted with HECA returns since 2000—again an opportunity perpetually missed. The Association for the Conservation of Energy, funded by Eaga Partnership Charitable Trust, published the only “Review of English Local Authority Fuel Poverty Reports and Strategies” in 2003,64 based on these reports. Defra should have carried this out itself, and used the information to good eVect, as for example ACE has done with the Local Authority Self Assessment tool,65 also published in 2003.
Local authorities liable for the government’s mandatory Carbon Reduction Commitment scheme (CRC) should have the money recirculated to them in the form of grants for specific projects, rather than a cheque without strings.
It is essential that the diVerences in resources (especially with regard to housing) are recognised between councils, the extremes being metropolitan unitary councils with concentrated levels of deprivation which receive the lion’s share of government housing money versus small rural district councils, with widely dispersed individual households in fuel poverty, which receive very little.
It is important that the government does not exaggerate the size of the resources available to local authorities (LAs) from the energy suppliers for energy eYciency (EEC/CERT) and from Eaga Warm Front. For the sake of eYciency the energy suppliers prefer to deal with large councils or social landlords and usually only provide a very small part of the total finance in any social housing renovation scheme. With Eaga Warm Front, cooperation largely consists of exchanges of useful information.
63 From Southend on Sea Fuel Poverty Strategy. 64 http://www.ukace.org/publications/ACE%20Research%20(2003-08)%20-%20Review%20of%20English%20Local%20 Authority%20Fuel%20Poverty%20Reports%20and%20Strategies%202003 65 http://old.ukace.org/selfassess/index.html Environmental Audit Committeee: Evidence Ev 163
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action?
ACE supports these indicators. The question is, will the government follow through with enough resources, support and enforcement to make a success of these indicators? HECA was widely adhered to early on, and taken very seriously by a significant number of councils. Financial support through the HECAction programme was provided, and then axed in favour of the Innovation Fund, and that was in turn axed when money became tight at Defra after the foot and mouth emergency. So, while ACE agrees that inclusion of these indicators in the local government performance framework is essential if more authorities are to give carbon saving the commitment required, it acknowledges that without continuing support from the centre many councils will simply drop them as too hard, and concentrate on the other 195 indicators in subjects they are familiar with. Nobody wants to add unnecessarily to the burdens of local government, however, one addition to make councils take the climate change indicators seriously—as a driver of significant value and consideration— should be for central government to make their inclusion mandatory in all Local Area Agreements. The same should also be considered for the Fuel Poverty Indicator. Instead of trying to repeal HECA, it would also help if Defra actively reminded councils of their current obligations under HECA and for tackling fuel poverty, warning them about the proposed Performance Indicators and showing them the advantages of taking action before these are introduced. The rating and bold public display of energy certificates on public buildings and buildings regularly accessed by the public, when combined with engaging communication strategies and events, are an excellent means of raising awareness and demonstrate how residential energy users can make a diVerence. This is particularly true in schools, where students can see improvements to their own building, make changes in their own behaviour, and take these lessons home to influence energy used in the household. Following on from the success of the Display Campaign,66 we would urge the government to implement as soon as possible Article 7 of the Energy Performance of Buildings Directive, which requires all public buildings over 1000 square metres to display an energy performance certificate. Furthermore, as implied above, we want to see a proper interpretation of the Directive to cover not just publicly owned buildings, but all buildings visited by the public, eg theatres, supermarkets, banks, sports facilities, etc.
Councils as a Social Housing Providers—Upgrade the Decent Homes Standard
More serious attention should be paid by the government to the thermal requirements set out in the Decent Homes Standard for Social Housing when they are next revised. This is necessary in order to ensure that the government meets its legal duty to alleviate fuel poverty and will also mean further reductions in carbon emissions from the domestic sector. However, councils whose tenants vote to stay under council control should not be penalised in borrowing or rent terms as at present. Social housing is at such a crisis point in terms of lack of availability that it needs a revival of council house building—and hints that the government is considering substantially increasing investment in this are very welcome. Under current policy, theses homes would be built to Code for Sustainable Homes 3 Star rating, which is a considerable improvement on current Building Regulations.
7. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well?
The barriers to the take-up of cost-eVective energy eYciency opportunities for LAs in their own estates are the same as for other large organisations: — the small proportion that energy costs take of total costs means that they are overlooked; — energy costs are often spread over several budget headings or hidden in premises costs; — the financial costs of implementing changes to procedures and energy sources;
66 The European DisplayTM Campaign (www.display-campaign.org), of which ACE is a coordinating partner, is a voluntary scheme designed by energy experts from 20 European towns and cities. It is aimed at encouraging local authorities to publicly display the energy and environmental performances of their public buildings using the same energy label that is used for household appliances. At present, 303 local authorities from across Europe have publicly labelled 7,051 buildings. Ev 164 Environmental Audit Committeee: Evidence
— organisations tend to perceive environmental measures as separate to their main objectives; and — the diYculties of engaging and mobilising employees into taking action. In the 2002 LGA survey nearly four-fifths of councils said that insuYcient staV or staV time is the major barrier to them making progress on climate change issues, and nearly as many (71%) mentioned “other priorities taking higher priority in the council”, and the third most significant barrier cited by more than half of all councils was “lack of funding”. The best way of making councils take action is for government to require them to achieve specific targets on their performance indicator on carbon emissions (see response to Question 1). This should be followed by adequate resources to enable councils to tackle this new task (see answer to question 10). Several councils are taking action by seeking to set energy eYciency targets for new residential buildings in their emerging spatial strategies. However, CLG has changed its planning policies recently to expressly restrict this (see PPS Climate Change). Defra’s plans to repeal HECA are mentioned elsewhere in this document. The biggest barriers to some renewable technologies is the planning system, and there is a substantial gap between the varying high level policies of sustainability adopted by local authorities and the everyday decisions made by their planning departments and councillors. There is a lack of understanding of the rapidly changing technology of renewable energy or the increased need for energy eYciency and sustainable energy in buildings. In the recent past, around 30% of renewable planning applications were refused. This is worse in some key technologies: 60% of wind farms are refused and biomass projects have particular problems obtaining permission (Cabinet OYce Policy and Innovation Unit figures for 2000). Even humble domestic solar installations can fall foul of the system; installers say that some councils insist on the requirement of planning permission, even when this is not really necessary as the installation should be permitted development. According to Southern Solar, a leading installer of solar thermal in the South East, around 20% of householders give up the idea of installing solar when faced with the eVort and cost of a planning application. The government has declared that it will shortly publish its Permitted Development guidelines for micro- generation technologies. The policy will hopefully solve the problem somewhat. However, some micro- generation technologies will end up in the planning system because they are planning matters that cannot be covered by permitted development rights. Some technologies can be intrusive (such as micro-wind turbines) while some, such as solar panels, can change the appearance of a building. Or it may be that the application is so large that it is disputable how “micro” an installation really is. In addition, permitted development rights are to a certain degree in abeyance in Conservation Areas, which cover a surprising large part of urban Britain. These areas, with their varying and subjective standards on “visual impact” are a particular barrier to wind and solar technologies.
8. What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions? Readers of this document will be familiar with the background to the much delayed publication of the PPS; how campaigns had to be run to improve previous drafts, how energy eYciency standards were specifically singled out as beyond a planner’s remit, to how the Merton Rule was threatened, and much beside. The question now is: is the PPS a help or a hindrance to producing low carbon development? The answer must be yes to the former overall, despite all its faults. The second question is: will the PPS achieve its objectives? The answer to that must be no, because CLG are quite glib about the resources needed by planners, developers and building material suppliers to satisfy the implications of the PPS. One of the criticisms of the previous drafts of the PPS was that it made an ostentatious point of demanding that local planning authorities (LPAs) fully consider climate change in their spatial strategies but at the same time did not give them adequate powers to demand this from individual developments. To a degree this discrepancy is still there, but planners’ powers over developers have been reinforced to a degree where development control oYcers and builders, if they knew what they were doing, could produce a satisfactory outcome in carbon emissions terms under certain (proscribed) circumstances. The PPS repeats the recent decision by CLG to separate who controls what when it comes to imposing standards on buildings and their sites, that is, LPAs control spatial planning (subject to central government policy statements, Regional Plans and government inspectors; while central government controls Building Regulations (subject to enforcement by local authority Building Control inspectors). CLG seems to think this is clear and logical. However, in energy, or carbon emissions or even in building construction terms, it is nonsense. A designer works out the energy demand of a building, then minimises emissions through practical energy eYciency measures and supplies the rest of the energy demand from renewables or low- carbon sources. This view fits with the previous concept of planning that it should attempt, where possible Environmental Audit Committeee: Evidence Ev 165
and viable, to make buildings better than Building Regulations, which are a one-size-fits-all minimum standard. To a certain degree, the PPS goes back to this idea by allowing planners to specify an “energy standard” (energy eYciency is implied) higher than Building Regulations in certain circumstances. However, this is very restricted to certain tightly drawn geographical areas, has to be justified in local terms (not properly defined) and announced in a high-level document which has to pass the government inspector. In other words, the PPS makes it very diYcult and unlikely that councils will succeed in achieving this as a policy.
The Merton Rule and the PPS The PPS uses a version of the original “Merton Rule” but applies it to “decentralised energy” in general (see PPS glossary). CLG have watered down the Merton Rule because there is no guidance as to whether LPAs can still require a percentage of energy/carbon reduction to come from renewables. In addition the PPS has used an energy-based target approach rather than an emissions target base which Merton has subsequently moved to, to discourage electric heating. However, it seems at last that LPAs can now apply the Rule all over their area, instead of a restricted part. The uncertainty created by earlier drafts of the PPS has led to the worry that the supporting documents explaining the PPS may well still weaken the Merton Rule. ACE is therefore supporting Michael Fallon MP’s Planning and Energy Bill which aims to allow councils to require a percentage of energy in all new developments to be generated by on-site renewables and to set higher energy eYciency standards. This Bill will enshrine the Merton Rule in law, thus preventing it from being undermined in the future and provide the certainty that the industry needs in order to secure investment. It will ensure that the decisions on standards are taken locally—but by using the term “reasonable” the Bill will also NOT allow councils to set unreasonable standards in order to frustrate government policy. Linking the standards to the Code will avoid the argument often advanced by the HBF (based upon no supplied evidence—despite 18 months of requests for such evidence) that a plethora of diVerent standards will be used by LPAs up and down the country. The Bill will also allow councils to set high reasonable energy eYciency standards)—an important issue that was not dealt with in the recent PPS. Together these polices will help to reduce carbon emissions from new development.
CHP and district schemes Very importantly for existing CHP systems, the PPS now apparently allows them to force a developer to include them in their existing scheme (paragraph 27). However, this is seriously undermined by a statement in paragraph 28 that plans do “not restrict those with responsibility for providing energy to new development, or the occupiers, to any one energy provider in perpetuity”. While this appears like an anti- monopoly measure this is really a cop out. The large speculative property developers in the UK are very reluctant to join district CHP schemes and will use this to avoid compulsion. If the government is worried about district schemes exploiting their position it should regulate them. No one expects a choice of water utility and it should be the same with heat and power.
Energy EYciency in the PPS In the first draft of the PPS, LPAs were only allowed to specify an “energy standard” (energy eYciency is implied) higher than Building Regulations in certain circumstances. This was very restricted to certain tightly drawn geographical areas (site-specific major developments), had to be justified in local terms (not properly defined) the extra costs and possible eVect on supply had to be considered (which the developer could challenge) and the policy had to be set out in a high-level document which has to pass the government inspector. In our view, the PPS is worded to ensure that it was very diYcult and expensive for councils to succeed in achieving this as a policy. Unfortunately, the final version of the PPS is only slightly better than previous versions. It still does not allow authorities the discretion to set blanket requirements for their area if it is deemed reasonable to do so. (After, of course, the usual development plan process.) Without this specific permission authorities will still face the prospect of blanket requirements being deleted by inspectors, because they are blanket. This is therefore a very diVerent regime to one where a specific requirement relating to a specific development may be deleted by an inspector. In short the former (blanket with exceptions to be deleted) implies a presumption in favour of energy eYciency while the latter (blanket requirements not allowed) implies a presumption against energy eYciency. In paragraphs 31 and 32 it says that LPAs are able to set a level of a “nationally described sustainable buildings standards” (such as the Code for Sustainable Homes) in specific developments under specific local circumstances, although it is very coy about mentioning the words “energy eYciency” which is mentioned as Ev 166 Environmental Audit Committeee: Evidence
an “energy standard” in a footnote (number 26) to paragraph 32 which states: “Where planning authorities consider that local circumstances do not justify specifying a whole Code level they can stipulate a requirement solely in relation to the energy standard at an identified level of the Code”. This is the only mention of energy eYciency in these circumstances, and there are no examples given of local circumstances where higher levels could be asked for. A development area is defined in the PPS glossary as “part of a planning authority’s area where development is anticipated, which could be an urban extension or town centre”. So there has been a slight improvement on previous drafts, in that the area allowed is now bigger than a specific site, and a “local circumstances” policy could be tacked on to an area development plan document (such as a town centre redevelopment plan).
Consequential Improvements are missed out of the PPS It is most disappointing that LPAs cannot use applications for major refurbishments or building extensions to make realistic demands that carbon emissions from the rest of the site are lowered, by the existing buildings being brought up to higher energy eYciency standard and or by the addition of microgeneration (Consequential Improvements). There is a very odd sentence in paragraph 25: “Where areas and sites perform poorly, planning authorities should consider whether their performance could be improved”. But there is no power anywhere given to enable the LPA to impose changes on existing sites, except by incremental additions of new development. This all seems like a major missed opportunity by CLG as the vast majority of planning applications are for extensions and alterations. The previous housing minister infamously pulled Consequential Improvements from the last Building Regulations update, so it cannot be claimed that this is covered by Building Regulations.
LPAs banned from specifying low-carbon building materials As in previous drafts, there is a complete ban on local requirements for sustainable buildings with regards to construction materials, fixtures and fittings. This clause (in paragraphs 32 and also 45) stops councils specifying use of sustainable timber and banning energy-intensive materials such as aluminium. It is clearly a concession to the major developers.
“Testing local requirements” Previously, LPAs have tended to put renewables policies such as the Merton Rule in Supplementary Planning Documents. This is a quicker and easier process than adopting higher-level documents and does not need the approval of the government inspector. This has to stop, according to the PPS. Paragraph 33 states that: “Any policy relating to local requirements for decentralised energy supply to new development or for sustainable buildings should be set out in a DPD [a higher-level document], not a supplementary planning document, so as to ensure examination by an independent inspector”. CLG should announce that current Supplementary Planning Documents concerning sustainable energy are valid until replaced eventually by a DPD.
9. Are local authorities meeting their duty to enforce building regulations in relation to environmental measures? Does the enforcement regime discourage non-compliance? Delivery of Article 4 of the EU Directive on energy performance of buildings in the UK is mainly through revised Building Regulations (April 2006). However, there is evidence that building control is not enforcing the relevant parts of the regulations and irresponsible builders have been able to get away with flouting minimum energy and emission standards. Surveys have shown that 1 in 2 new houses currently fail to meet the current Part L standards.67 ACE has received anecdotal evidence, in confidence, that competition in the provision of building control services has eVectively corrupted the system of enforcement. For some time in England, and since this year in Scotland, council building control inspectors compete with commercial “independent” Approved Inspectors to sign oV new buildings. It has been put to us that if an inspector proves “obstructive” to a developer (eg insists on full compliance, including Part L); on the next development the builder will employ
67 But only 1 in 3 homes—it being very diYcult for studio flats to fail. See http://www.eeph.org.uk/uploads/documents/ partnership/Building%20Regs%20Compliance%20Report%20Oct%2004.pdf and http://www.eeph.org.uk/uploads/documents/ partnership/Building%20Regs%20Part%20L1%202002%20Compliance%20Research%20May%2006.pdf Environmental Audit Committeee: Evidence Ev 167
a “tame” professional to sign oV his buildings for compliance. This is perfectly legal, and apparently how most large builders operate. Contrast this with Scotland where until this year local authority Building Control had a monopoly for checking, and where there are far fewer concerns about compliance. Along with a reform of building control services there needs to be random pressure testing for new homes, which would act as a powerful deterrent to rogue builders who are otherwise cutting corners. It is important that pressure testing of new dwellings is suYciently frequent to make builders believe that there is a real chance that their building will be tested. This measure was proposed by the government in the Building Regulations Consultation Paper68 and we warmly endorse it.
10. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? These are the resource-eYcient methods that councils can use to save energy and carbon emissions:
Energy EYciency in the community The Home Energy Conservation Act requires local authorities to set up plans to move towards a 30% improvement in the energy eYciency of all the housing stock in their area across a 15-year period and that 15-year period concludes in the year 2010. A significant number of councils have already achieved the target or will do soon, but an even larger number are seriously behind, and two have never reported their figures. Despite these problem councils, the returns which have to be made each year do demonstrate very clearly that those local authorities that are prepared to show commitment can actually deliver on this. Around the country there are all sorts of very good HECA-related projects linked to councils happening on the ground, which are delivering carbon savings. EST and the Practical Help website list many of these. A few are featured in the annex in the form of case studies. The government has the target that by 2020 the general level of energy eYciency of residential accommodation has been increased by at least 20% compared with the general level of such energy eYciency in 2010. While the Energy EYciency Commitment has been very successful in terms of reaching the given targets, we are some way to go before every home in the UK is treated to make it warm and cheaper to heat. Even amongst the eligible householders, reach has been patchy because of the proliferation of short-lived special oVers and marketing schemes from the energy suppliers.69 There is also the credibility barrier—many householders cannot believe that a utility which exists to make profits out of selling units of electricity or gas would actually subsidise energy-saving measures that cut fuel bills. In contrast to the energy suppliers, surveys have shown that written statements from local authorities are considered to be more trustworthy and oYcial letters are read. For this reason, joint promotion schemes of EEC installations have been very successful. One promotion has been of a Council Tax reduction for householders installing energy-saving measures. This measure has attracted widespread support—including from many local authorities. With support from EST’s Innovation programme, Fenland District Council is oVering council tax rebates to households that install energy eYciency measures. In other places British Gas is oVering to split the cost of the rebate with councils as part of its EEC promotion. The government has announced that there will be a doubling of CERT (2008–11) over EEC-2 (2005–08), and a corresponding increase in the (hard-to-reach) Priority Group. The energy suppliers do not underestimate the diYculties of reaching these targets. An alliance with each local authority may be the only way forward.
HECA and non-domestic buildings The government has the target that by the end of 2010 the general level of energy usage in the commercial and public services sectors has reduced by at least 10% compared with the general level of such energy usage in 2005 and by the end of 2020 by at least 10% compared with the general level of such energy usage in 2010. There is currently a vacancy in the role regarding coordinating local energy saving in commercial buildings. ACE suggests widening HECA to cover energy use in all buildings in the area.
68 Proposals for amending Part L of the Building Regulations and Implementing the Energy Performance of Buildings Directive (July 2004). 69 So measures are largely installed by householders in the know and with the disposable income to pay the (albeit subsidised) price. Ev 168 Environmental Audit Committeee: Evidence
Area-based approach Schemes organised for a specific geographical area—like Warm Zones—could be the answer. These schemes can combine the credibility of the council, with the money of the energy supplier (plus possibly any state housing renovation money), plus the word of mouth endorsement of the community, and the local knowledge of the installers and community groups. DiVerent contact methods, including door to door visits, can be used and needy individuals can be helped to obtain resources from third parties (state benefits and access to programmes such as Warm Front) which, with insulation measures, can help move them out of fuel poverty. Powergen’s “Heat Streets” scheme promotes energy advice and the installation of energy conservation measures in private sector housing in geographical target areas. Typically these are older dwellings with high numbers of low income households or areas with more modern housing but poor energy eYciency standards with a reasonable number of low income households. The “Heat Streets” initiative has been piloted in at least three local authority areas. Another example of an area-based approach is Cornwall’s Healthy Homes which is featured in the annex.
Energy Performance Certificates in domestic properties The introduction of Energy Performance Certificates provides an opportunity for councils to use this information to provide advice to householders on agencies that can oVer energy saving measures. They could also use the information to pinpoint or target where work is needed. It is absolutely vital for co- ordination with energy companies to find suitable homes to receive EEC/CERT measures. Much has been made about problems of data security. This shows a lack of understanding of the Data Protection Act, which is about the security of data kept on people. The Energy Performance Certificates refer only to individual properties.
ESCOs based on utilities Ultimately, if the government will enforce energy savings from the utilities using “cap and trade”, the energy suppliers should move to being ESCOs (energy services companies) in alliance with councils, and providing for each household levels of warmth and ability to power an agreed number of appliances. Unlike today, where a customer is just a number on a computer file, and the relationship purely transactional, ESCOs, to provide their services adequately, will have to know their customers, their lifestyles and the state of their property. It will be cheaper for the ESCO, after a certain point, to avoid expensive investment in increasing energy generation by helping their customers reduce demand. This has happened in California where utilities have provided low-cost solar panels for customers at the edge of their distribution network, rather than build a new power station. An example of an ESCO produced in alliance with local government is the London ESCO contract, won by EDF and backed by the London Mayor.
Town Planning and Development Control Several advanced local planning authorities70 have adopted, or are in the process of adopting, a Supplementary Planning Document containing guidance on renewable energy (either as a stand-alone policy or as part of a wider sustainability SPD) to help them make planning decisions and to advise householders and businesses on what is accepted and why. Several councils are attempting to set carbon emission limits for new development. Unfortunately, recent pronouncements by CLG ministers and their inspectors responding to individual draft spatial plans show the government intends to restrict this. The Planning Policy Statement and Code for Sustainable Homes have major implications for Planning Departments on both the policy and development control sides. However, according to ministers, councils will receive no new money or powers (that could be used to raise revenues).71 Within the next eight years, the government’s intention is to make sure that every single new home is a zero-carbon home, but unless more resources go into hard-pressed Planning and Building Control departments, then it is going to be very diYcult to see how that is going to be achieved. There is a recognised problem of a widespread lack of knowledge or experience in planning departments in handling the new technology of renewable energy or the subject of energy eYciency. Unfortunately, resources are often lacking (especially in small district councils) to develop knowledge and policies in these fields. There have been attempts by outsiders to help the planners. The best example is the DTI’s “Its Only Natural” programme which aims to educate planners and councillors on the technology of renewables through a website and seminars around the country. Various other pieces of work are going on, supported by the regional bodies and local energy agencies. This is probably inadequate and too patchy for the task. government ministers have asked why more local planning authorities have not adopted Planning Policy
70 Examples include Lewes and Croydon. 71 Speeches and responses to questions by Ruth Kelly Dec 2006 and April 2007. Environmental Audit Committeee: Evidence Ev 169
Statement 22 (on-site renewables in new development) as a local planning requirement. The answer is: the LPAs do not know enough about renewable energy—indeed any energy—to properly enforce the policy. Therefore they avoid it.
As an employer Councils are major employers in their local area. Councils can also influence contractors’ workforces. Low-cost education schemes on saving energy not only help corporate bills, but there is some evidence that the employees use the techniques in their own homes.
Own estate The rating and bold public display of energy certificates on public buildings and buildings regularly accessed by the public, when combined with engaging communication strategies and events, are an excellent means to raise awareness and demonstrate how residential energy users can make a diVerence. This is particularly true in schools, where students can see improvements to their own building, make changes in their own behaviour, and take these lessons home to influence energy used in the household. The European DisplayTM Campaign is a voluntary scheme designed by energy experts from 20 European towns and cities and supported by ACE’s research department. It is aimed at encouraging local authorities to publicly display the energy and environmental performances of their public buildings using the same energy label (additionally covering carbon emissions and water use) that is used for household appliances. Across Europe to date, 303 local authorities have labelled 7,051 buildings under the Campaign. Back in 2002, the Councils for Climate Protection pilot (CCP)—led by the IDeA—provided specialist software linked to training and support which enabled the pilot councils to build up inventories of CO2 emissions for their own in-house activities and their areas, to consider diVerent future scenarios and to develop programmes of action to cut emissions. IDeA still advises councils and runs the Beacon Council scheme on Sustainable Energy (2005–06) and Climate Change (2007–08).72 The influence of this scheme has been fairly limited in terms of action taken by non-Beacon councils, but this may increase if councils are required to take climate change seriously through a performance indicator or similar. When presented with a funding crisis following the tax ruling last year, EST, following the pattern of many organisations, axed external programmes which involved few core staV. This included the Local Authority Support Programme, whose pilots had been running for several years, based in several independent Energy EYciency Advice Centres. The role of the programme was to advise LAs on assisting householders to reduce their consumption of energy—usually through setting up joint projects. As EST has been given responsibility by central government to persuade householders to reduce their consumption of energy, this programme should be restored. The Carbon Trust low carbon advice programme is very limited in the sense that it only takes in about a dozen councils a year. The Carbon Trust Salix fund for councils making energy eYciency improvements is also very limited (currently worth only around £20m) and needs to be drastically expanded to help the 400 plus councils. As a driver to seriously tackle energy costs, all local authorities (above tertiary level) should be included in the mandatory Carbon Reduction Commitment scheme (CRC), so such authorities are taking an exemplar role. Only a minority of over 400 local authorities are estimated to meet the criteria to enter the CRC scheme as described in the recent Defra consultation document. ACE wants all local authorities, including many of the smaller ones that have been exemplars in energy eYciency, included, as an example to others and to, ultimately, save public money through energy eYciency. Councils are severely restricted on capital and expenditure, and so may have the only option of paying up for the carbon with a cut of their services to balance the books, so the monies received should be recirculated in the form of grants to fund improvements. Many local authorities have already been taking the “monitor and manage” approach to energy use, and should be rewarded for taking this initiative, for example, via compensation for occupying only the top quartile eYcient buildings (as apparently is central government’s objective).
Council Tax reduction for householders installing energy-saving measures This measure has attracted widespread support as an EEC promotion. There is also merit in considering a variety of Council Tax mechanisms—a rebate or discount on the Council Tax bill for householders installing energy-saving measures; a system of Council Tax “low emission” bands (based on EPCs); and/or a Council Tax surcharge on dwellings in, say, the G and H bands where householders refuse to sign up for a package of energy eYciency measures.
72 Woking has the distinction of being a Beacon in both rounds. Ev 170 Environmental Audit Committeee: Evidence
Annex
EXAMPLES LOCAL AUTHORITY ACTION ON ENERGY AND CARBON EMISSIONS Knowsley Heat Streets is an EEC-funded scheme set up by the council to ensure owner-occupiers and those who privately rent have the opportunity to benefit from improving energy eYciency in their homes. The scheme is targeted to neighbourhoods suVering from high levels of fuel poverty and ultimately will roll out across the Borough. Assistance towards the installation of energy eYciency measures is available and between 50% and 100% grant may be available depending on availability of finances. Cornwall Healthy Homes is a very successful community project to tackle fuel poverty, set up by the local energy eYciency advice centre in partnership with most of the districts in Cornwall. It was initially part- funded by the EST Innovation Fund. It has been copied successfully in Sussex and elsewhere. Woking Borough Council is often given as an example of a council leading the way on sustainable energy. Their fame is mainly because of their town centre CHP system with private wire. What is often overlooked is that they have achieved their 2010 HECA target already, by using a combination of council grants and joint projects with the local energy eYciency advice centre. In the 2003 the then Leader of Woking Borough council wrote: “Local government faces many challenges in providing the basic services to residents at an aVordable price. But over and above this it needs to set out long-term objectives for the environmental quality of life that it wants to retain and enhance within its boundary”.73 Woking is one of the top local authorities on achieving energy eYciency and investing in renewable energy. Woking has probably the largest Solar PV array in the UK, integrated into its town centre CHP system, it has a building-based fuel cell and several CHP engines in central Woking and in other community buildings around the borough. Woking has produced an impressive climate change strategy to achieve ambitious reductions in greenhouse gas emissions. The council frequently describes the environmental and financial benefits to the people of Woking of the action taken on energy by the council over the last 17 years. Much information is available directly from Woking, and for reasons of space it will not be reproduced in this document. Leicester City Council has some very ambitious environmental commitments to reduce energy and water use in its buildings. The Council is committed to halving the amount of energy it was using in 1990 by 2025 and aims to get 20% of all its energy from renewable systems by 2020. For many years Leicester City Council has played an active role in encouraging and supporting measures that protect the environment. This was recognised in 1990, when Leicester became Britain’s first “Environment City”. Leicester City Council has since adopted a number of “green” policies, ensuring that its own services and activities meet the high standards it encourages others to adopt.
Memorandum submitted by Warwickshire County Council
Introduction We welcome the opportunity to submit our views on such an important issue as climate change and recognise that as a nation we have less than 10 years in which to make fundamental changes that will reduce our emissions of green house gases. There are a few introductory points we would like to make: The County Council has appointed a climate change champion, Councillor Gordon Collett. As an authority we are getting better at coordination and are building momentum through the Warwickshire Climate Change Partnership. We have developed a strategy and action plan (containing 48 projects at present) in Warwickshire and have had over 8,000 hits per month on the web site, so we are trying to spread best practice as much as possible. The first edition of our community newsletter was issued in December and has been well received by community groups. We are still not doing enough on adaptation. We have not even been able to establish our local climate impact profile yet so do not know how much it costs local authorities in Warwickshire to respond to extreme weather events. We need stronger Government support to be eVective—it will help to make it a legal requirement for local authorities to take action on climate change.
73 Woking Climate Change Strategy March 2003. Environmental Audit Committeee: Evidence Ev 171
1. How can central government best support and encourage local authorities, regional government and devolved administrations to take action on mitigation and adaptation, and other climate change related areas like waste and transport? What funding, powers and structures are required to improve joined up delivery of climate change policy at all levels of government? There is a serious lack of management in the deployment of short and long term economic advice. In the past two years, Government has sought and received advice from two respected economists—Kate Barker on the short term housing supply issue and Sir Nicholas Stern on the longer term impacts of climate change on the economy. Lack of any discernable reconciliation of these two pieces of advice has been raised as a serious issue by the County Council in its responses to Government on the draft Supplement to PPS1 on climate change and on the Planning White Paper. The concern was that there are inherent conflicts between the former’s arguments for a lighter touch on development from the planning system and the latter’s call for more requirements to be imposed on development. The hope was that, through the final PPS1 Supplement on Climate Change and the new PPS4 on “Planning for sustainable Economic Development”, this conflict would be managed—rather than leaving it to be decided in the case of individual planning applications or local development document. It now appears from the final version of the PPS1 Supplement and the consultation version of PPS4 that it will be left to local government and planning inspectors to decide national policy on a case by case basis. This does not help our national climate change objectives. Other points Government should consider: — Provide leadership, national strategy and policy and an action plan. The climate change Bill is a start but needs filling out with consistent policies. — There should be a legal requirement for local authorities to tackle climate change. — There should be more regional coordination of county/sub-regional activity with upward reporting mechanisms. — The provision of easy methodologies for reporting. It needs to continue to make data available and provide help with interpretation where necessary. The Carbon Trust should be encouraged to give county based data on local actions. Local government needs a consistent baseline and good quality statistics to track statistics over time and set local targets. The quality of released statistics needs to be consistent year on year. They are not at the moment. — There should be more focus on ensuring that the skills needed to deliver a low carbon future are properly resourced and prioritised to ensure that the skilled workforce is available. Many local authorities do not have suYciently skilled staV to work out baselines and identify future targets. There is a national shortage of energy professionals to deliver a low carbon future.
2. Is there clarity about the role played by local authorities, regional governments and devolved administrations in tackling climate change? How can their actions be coordinated and monitored? How can the accountability and transparency of response at a local level be improved? How eVective has the Nottingham Declaration process been? A clear statement from Government that tackling climate change is a top priority for local government would be helpful, followed through with consistent targets and funding streams. At the moment we have to meet a number of potentially conflicting targets. eg build more schools as cheaply as possible. There is no clear role in this area for local authorities, or regional bodies (AWM, Sustainability WM, GOWM, WMRA). Who is supposed to do what? How are these regional bodies going to support us in what we are trying to do? At present they seem to keep asking us what we are doing. Signing up to the Nottingham Declaration initiated Warwickshire CC’s climate change work but it is essentially declaratory. A lot of authorities have done little or nothing since signing it. Signing up to the Carbon Trust Local Authority Carbon Management Action Plan did more to generate discussion and engage senior management in Warwickshire than signing the Nottingham Declaration did.
3. What, if anything, needs to be changed in the framework governing the actions of devolved administrations, regional government and local authorities? For example, does there need to be a more explicit reference to climate change in the local government performance framework and will the new performance indicators on climate change be enough to stimulate action? Yes there does need to be a more explicit reference to climate change in the local government performance framework. The new performance indicators will help to stimulate action, but the subject as a whole remains a discretionary activity for local authorities and therefore is subject to the inevitable budget pressures when set against statutory duties in the contexts of “capping” and “Gershon eYciencies”. Statutory duties in relation to climate change are needed. They need to be clear and relevant and deliverable by local government. Ev 172 Environmental Audit Committeee: Evidence
4. To what extent should there be disaggregated targets for diVerent levels of government? How should independent targets, for example Scotland will set its own emissions target for 2050 (80% reduction rather than the UK target of 60%) and the Greater London Authority has committed itself to making a 60% cut by 2030, fit together with national carbon targets and budgets? How can Government monitoring and forecasting of emissions be improved so as to disaggregate emissions and the impact of carbon reductions policies, in diVerent regions and nations? We do not see any problem of having extended targets, as long as all the administrations have a minimum target set by the UK Government. Regional and Local Government should have power to implement their own “stretch” targets if they wish. In Warwickshire we have a 60% reduction target by 2050, but 2005 statistics compared with 2003–04 statistics (there is a two year time lag in statistics availability) show that CO2 emissions have increased over time. 4.6 million tonnes in 2003, to 5.312 millions tonnes in 2004 and 5.323 million tonnes in 2005. The trend should be treated with care due to data limitations referred to and to improvements in data quality. However there looks like there will be a gap between what Warwickshire emissions need to be by 2050 to meet the target and modelling the future results of current Government legislation. At present we are assuming that we have to meet this gap by local actions if national measures are not suYcient.
5. How advanced and co-ordinated are local, regional and national programmes of adaptation to climate change? What support is there for adaptation? How vulnerable to climate change are the local authorities, regional government and devolved administrations? We have our own Warwickshire Climate Change Strategy but if we stand any chance of successfully adapting to change, we need the support of those professional bodies who can recommend, influence and change specifications for basic local authority services such as highways, waste management, construction standards etc. Without these agreed standards “future proofing” infrastructure and services will be diYcult as insuYcient resources will be devoted to a project. This will make local authorities more vulnerable to climate change in the future.
6. How should the Committee on Climate Change reflect the interests and needs of the diVerent levels of government across the UK? As well as having the relevant scientific, business and financial representation, the Committee needs to be representative, as all levels of local/regional/devolved government have a significant role to play in delivering GHG reduction targets. Identification with the Committee and its objectives is important if they are to be enthusiastically delivered.
7. What are the barriers to greater local or regional action? Do the diVerent levels of government have suYcient powers to take action? What changes in policy are needed to support action at a local level? What policies are working well? The greatest barrier is not knowing what to do first. The other related barrier is the mixed signals that are given out by Government eg on renewables, are they a national priority or not? Existing planning policies are too equivocal and there are too many contradictions and loopholes in the legislation and an over reliance on market forces to deliver. In addition there are conflict between some national policies and sustainable development. Airports/new motorways and carbon reduction do not go together and it is diYcult to accurately measure carbon reductions of some community based measures.
8. What impact will the new Planning Policy Statement on climate change have on emissions reductions and work on adaptation? How are the so called “Merton rules” aVected? How might other planning guidance be changed to reduce emissions? The impact will be limited. Most of its advice is already embedded in to the planning system. If anything the PPS is following best practice, rather than informing and driving it forward. Our response to question one is also relevant here.
9. Are local authorities meeting their duty to enforce building regulations in relation to environmental measures? Does the enforcement regime discourage non-compliance? Our, anecdotal, evidence suggests that these parts of the building regulations are being largely ignored. Are building control oYcers suYciently qualified to fully understand the Carbon Index? Where self certification is permitted we wonder what is really happening. Environmental Audit Committeee: Evidence Ev 173
10. What good practice is there to be shared? How is best practice shared and does central government support for sharing best practice work? What role should UK Climate Impacts Programme, IDeA, Salix Finance, the Carbon Trust and Energy Savings Trust play in providing support? The “Cashback” scheme for schools administered by the Energy Saving Trust was an excellent “light touch” mechanism to provide funding for local authority energy saving schemes. When they were given the local authority remit, the Carbon Trust suspended the scheme and after a vacuum of a number of years replaced it with the Salix Scheme. This scheme is much less flexible and is not encouraging innovation by local authorities. In relation to good practice there is now a lot of good practice about—see case studies on the Partnership websie. These include: — Warwick Wind Trials. — The biomass market development work. — “Switch it oV” campaign. — Eco-congregations. — Transition towns initiative. — Environmental/climate change art challenge. — Home energy eYciency projects. — School energy projects. — Local grants for renewables. — Eliot Park Innovation Centre. — Kingsbury Water Park. — SMART metering at Bayton Road. — Leicester Lane recycling. — Onley Goods Again Project. — The Pride in Camp Hill Regeneration Programme.
Annex 1 There are currently 103 organisations represented across Warwickshire by people who are either active partners or who have expressed an interested in being kept informed on a monthly basis of Partnership activities. Further information about the Partnership, details of projects, case studies copies of our publications and community newsletter can be found on our website http://www.warwickshire.gov.uk/ climatechangepartnership 5 February 2008
Memorandum submitted by the Department for the Environment (Northern Ireland)
General 1. As for other devolved regions, public policy drivers on climate change in Northern Ireland depend on a mix of reserved and transferred policies, programmes and schemes. For example, relevant fiscal policy eg motor, vehicle duty, is determined in Westminster not Stormont. On the other hand, energy policy is devolved to the NI Assembly, but this is not the case for Scotland and Wales. Within my own Department’s remit, planning policy is also devolved. 2. Northern Ireland’s population is 2.9% of the UK’s with greenhouse gas emissions estimated to be 3.2% of the UK total for 2005. Northern Ireland is a unique region within the UK given its geographical position and its land boundary with the Republic of Ireland. There are therefore distinctive economic, social and environmental interactions and dependencies that are unique within the UK. An example of this would be the establishment of an All Island Energy Market. 3. Northern Ireland has a largely rural population with a higher dependency on agriculture than other UK regions. Road transport is essential to meet the social and economic needs of the population. 4. The primary focus for the NI Executive in its first Programme for Government (2008–11) will be to grow the economy. A key goal will be to half the productivity gap with the UK average (excluding the South East of England) by 2015. This will be in the context of a key environmental goal to reduce greenhouse gas emissions by 25% by 2025. The possible tension between these goals is the subject of some current research which it is hoped will report in the next few months. Ev 174 Environmental Audit Committeee: Evidence
5. NI Industry in general suVers from higher energy costs than many competitor regions and is therefore more sensitive than other areas to any increase in those costs. 6. In terms of emissions the Northern Ireland inventory for 1990–2005 shows that: — emissions from the energy sector represent 74% of greenhouse gas emissions. This is lower than the UK average of 86% because Northern Ireland does not have refineries, iron and steel industry, and coal mining; — carbon dioxide emissions from the transport sector represent over 30% of the total, and this has risen by 44% since 1990, compared with a 9.9% rise in the rest of the UK; — emissions from agriculture represent 22% of greenhouse gas emissions compared to the UK average of 7%; and — manufacturing and construction emissions represent 8.5% of the Northern Ireland carbon dioxide emissions compared to the UK average of 15.3%.
Working with Whitehall Departments 7. There are generally very good relations between Northern Ireland Ministers and oYcials with our Whitehall, Scottish and Welsh counterparts in developing strategy, policies and legislation to meet the climate change agenda. This can be evidenced by: — participation in the UK Climate Change Bill, including joint appointments of the Chair and members of the Committee on Climate Change; — participation in the UK Climate Change Programme; — development of the UK Carbon Reduction Commitment trading schem; — the sharing of scientific knowledge and tools for adaptation by UK Climate Impacts Programme; and — policy development and implementation of the EU Emissions Trading Scheme. 8. In terms of EU policies, Defra colleagues consult on agreed UK lines when entering into negotiations on behalf of the UK with the Commission and Member States. A good example of this work is to develop a negotiating position on the EU Commission’s Energy and Climate Change Package.
Practical Issues 9. There are a number of practical issues that need to be taken into account and managed when considering Westminster-Northern Ireland Assembly interactions. 10. Government organisational accountabilities are not identical within the devolved settlements of the UK. Hence, as indicated, energy policy is devolved in Northern Ireland, but this is not the case in either Scotland or Wales. Northern Ireland also has a greater number of government departments (11) under the Northern Ireland Act 1998, than is the case elsewhere and hence accountabilities can be with a number of diVerent Northern Ireland Ministers, where in other legislatures a single Minister may be accountable. Ministers are also bound by a Ministerial Code that, for issues of a cross-cutting nature, will require Executive Committee Agreement. In simple terms, this means that certain decisions cannot be made by a single Minister in isolation, but need to be agreed by the Executive as a whole. Climate change issues are generally cross-cutting and would normally come under the terms of the Code. 11. Local government structures are very diVerent than in Great Britain with powers historically being much more limited than is the case elsewhere. Whilst an ongoing Review of Public Administration in Northern Ireland will reshape the relationship between central and local government, structures and accountabilities will remain diVerent from those in GB. 12. In some specialist areas it would be impossible for devolved administrations to provide the expert capacity for policy development. For example, for the EU Emissions Trading Scheme, Northern Ireland oYcials depend on the work of Defra experts to provide advice on the best design features for the scheme.
UK Climate Change Bill 13. Before Christmas the Northern Ireland Assembly gave legislative consent for the provisions of the UK Climate Change Bill to be extended to Northern Ireland. The Bill provides in statute a very positive, constructive relationship between Westminster and Northern Ireland (and Wales/Scotland) in terms of targets, budgets, trading schemes, reporting requirements, setting up and working with the Committee on Climate Change and on the adaptation issue. The statutory relationships will be supported by an agreed Concordat to assist all administrations in the achievement of the aims of the Act. Environmental Audit Committeee: Evidence Ev 175
Conclusion
14. In my view the relationship between Westminster and the devolved administrations in the area of climate change is a constructive and eVective one. New arrangements to implement the UK Climate Change Bill provide the appropriate accountability framework for the longer term. 10 March 2008
Memorandum submitted by the Minister for Transport, Infrastructure and Climate Change, Scottish Executive
Introduction
1. The Scottish Parliament was established in 1999 and has legislative competence for a wide range of subject matter, including the environment. The Parliament’s competence is defined by the Scotland Act and extends to all matters which are not explicitly reserved. In addition to passing primary legislation and scrutinising secondary legislation within devolved legislative competence, the Scottish Parliament also oversees the exercise by the Scottish Ministers of powers which have been “executively devolved” on a case by case basis by the UK Government. Executive devolution involves the transfer to the Scottish Government of powers and functions (including the power to make subordinate legislation) which would otherwise be exercised by UK Ministers. The Scottish Parliament cannot however make new law in such areas and legislative competence remains with the UK Parliament. 2. As a result, the Scottish Government’s relationship with the UK Government is significantly diVerent from that of local authorities and regional government. It also diVers (most obviously in terms of the extent of devolved competence) from the relationship between the UK Government and the other devolved administrations in Wales and Northern Ireland. This reflects the fact that the UK has adopted a policy of “asymmetric devolution”. 3. It is worth noting that, where a matter is within the legislative competence of the Scottish Parliament, it remains possible for the Parliament to agree to the inclusion of devolved provisions within Westminster legislation. This is achieved by means of a Legislative Consent Motion. The ability to co-operate on new legislation in this way is of particular relevance in the context of large-scale policies, such as action on climate change, which span both territorial borders and the current boundary between devolved and reserved powers. It is not, however, a substitute for the further formal devolution of powers to the Scottish Parliament. The ability to make integrated new legislative provision, across a range of policy areas, in a way which addresses the specific opportunities and threats which exist in Scotland is of key importance for the future. The Scottish Government is therefore keen to work with the UK Government to achieve as much as possible within the existing settlement, but believes that the devolution of further powers to Scotland would enhance our ability to achieve the overall outcomes which both governments seek. 4. A summary of Scotland’s climate change response is attached at Annex A. This highlights that, whilst the Scottish Government has similar climate change objectives to the UK Government in terms of reducing emissions and adapting to the unavoidable impacts of climate change, in some areas our approach diVers. Proposals for an 80% emissions reduction target and targets for Scottish renewable generation to account for 31% of whole Scottish electricity demand by 2011, rising to 50% by 2020, are examples of where the Scottish Government is being more ambitious in its approach. The Scottish Government believes there are economic growth opportunities from improving the environment and moving towards a low carbon economy.
UK and Scottish Climate Change Bills
5. The Scottish Government is working with the UK Government and the other devolved administrations on the UK Climate Change Bill which will set a statutory target for the UK as a whole to reduce carbon dioxide emissions by at least 60% by 2050 and by at least 26% by 2020. The targets in the UK Bill apply to the UK as a whole and diVerent parts of the UK may make diVerent reductions. 6. The Scottish Government is consulting on proposals for a Scottish Climate Change Bill including a statutory target for Scotland to reduce emissions by 80% by 2050. Scotland’s achievement on reducing emissions will play a part in overall UK achievement. Scotland’s extra eVort could compensate for a slightly lower performance elsewhere in the UK so that together we meet the target. But it could also mean that the UK’s combined eVort exceeds the target. The onus will be on the UK administrations and the Committee on Climate Change to develop our ability to disaggregate information to see how best the various parts of the UK might contribute. Ev 176 Environmental Audit Committeee: Evidence
7. Of course, our ability to meet our 80% emissions reduction target will be influenced by the contribution to emission reductions made in reserved policy areas. The less emissions are reduced through reserved policy measures, the more we will need to achieve through devolved policy measures. The co-operation of the UK government is therefore vital if Scotland is to achieve its climate change targets and relations are positive.
UK Committee on Climate Change
8. The UK Committee on Climate Change brings together experts from climate science and policy, economics, business competitiveness and financial management to provide expert advice on meeting government climate change objectives. In that regard, it will be important for the UK Committee on Climate Change to meet the needs of the Scottish Government and provisions in the UK Climate Change Bill are intended to ensure these needs are met. The Committee will be sponsored, funded and appointed by the four administrations. The Committee will give advice to the UK Government and to the devolved administrations, and the devolved administrations will be able to request specific advice from the Committee. The four UK administrations and the Committee have a responsibility to make sure that the relationship works eVectively in practice over the decades to 2050 and beyond. The Scottish Government will work with the Committee on our contribution to the UK target and intends to use the Committee as a source of advice on the Scottish target in the short term (around 2°–3 years), after which we shall review how well this has served our needs and decide whether we need any additional advisory capacity for Scotland.
Working with the UK Government
9. There are many reasons for the Scottish Government to work constructively with the UK Government in responding to climate change. In many cases we are reliant on the capacity within the UK Government to lead on policy development and to provide expert analysis. By working together we can share expertise and resources leading to a more eYcient, coordinated response. It is important that Scotland is making its contribution to the UK climate change response and that reporting mechanisms are aligned so that the UK Government can fulfil its international obligations. 10. A coordinated response is relevant when considering adaptation to the impacts of climate change where infrastructure, such as road and rail networks, and biodiversity cross borders. Collaborating on science and research can also be more eYcient and avoid duplication, and there are areas where Scotland can take a lead. For example, we commissioned research into the regional impacts of climate trends, and, given their importance in greenhouse gas emissions, we have undertaken innovative research into modelling peat soils which are prominent in Scotland. Both these studies are now being taken forward on a UK basis. 11. In order to support action within Scotland, it is important for UK data, analysis and research to draw out the implications for Scotland. We work closely with the UK Government on this, and there is a trend towards more disaggregation of information, such as the diasaggregated greenhouse gas inventories for England, Scotland, Wales and Northern Ireland. In some cases there are complexities with disaggregating data but it is important to find a solution to such problems to ensure that emissions reductions are achieved in the most cost eVective manner.
Ministerial Relations
12. The Scottish Ministers, not being members of UK Cabinet Committees, are not formally copied in to Cabinet correspondence. However, Cabinet committees do discuss matters that impact directly on devolved issues. It is important that we are consulted in good time about UK Cabinet business which aVects our devolved responsibilities. It is therefore vital that UK Government Ministers communicate with the Scottish Government quickly and comprehensively, advising of any proposals, and inviting Scottish Ministers to comment or become involved at the earliest opportunity. The Chairman of the relevant Cabinet Committee should later write confirming the final decision taken in a “round-up” letter, which should summarise Scottish Government views along with those of UK Ministers even where they diverge significantly. All of this is entirely in line with the UK Government’s own guidance as set out in Devolution Guidance Note 6. 13. UK Government Ministers write regularly to the Scottish Government on climate change matters. Early dialogue between UK and Scottish Government oYcials in advance of Ministerial correspondence assists Scottish Government Ministers to respond within the often tight deadlines set. It also helps the UK Government to ensure that there are no late hitches in policy proposals. A constructive working relationship between oYcials in the Scottish and UK Governments is therefore essential. In this regard it is necessary for UK Government oYcials to have a clear understanding of the nature of the devolution settlement and the need to consult early on anything which bears on devolved interests, giving enough time for proper circulation and consideration of papers and proposals within the Scottish Government. Training and Environmental Audit Committeee: Evidence Ev 177
guidance for oYcials are critical in this regard. Viewed across the board, there are many examples of good practice where the Scottish Government has been involved early in UK policy development that has a bearing on devolved interests, but there are also examples where the Scottish Government is not engaged fully, or is consulted late, by counterparts in the UK Government.
Scotland Office
14. The Scotland OYce carries out a number of functions, including supporting delivery of practical adjustments to the devolution settlement (by means of Scotland Act Orders) and liaising with the Scottish Government on the management of UK legislation which requires legislative consent. The Scotland OYce also has an interest in a number of residual matters which remain within reserved competence (certain aspects of Energy and Transport policy being the most relevant examples in this context). The Scottish Government currently has a good working relationship with the Scotland OYce in relation to the management of day to day business. While the Scotland OYce is part of the UK Government’s internal machinery, and its existence is therefore a matter for the UK Prime Minister, we do not believe that the current arrangement is the most eYcient. We do work closely with the Scotland OYce to ensure that the existing settlement works as well as is possible but the Scottish Government believes that there is no need for a Scottish Secretary or a Scotland OYce. We think this role could be better carried out by a Minister positioned centrally within the UK Government.
Engagement with Europe
15. Much environment policy and regulation, including those covering climate change, are driven by Europe. The Scottish Government is determined to raise Scotland’s voice in Europe and to do this we are engaging with all of the relevant players in Europe. Scottish Government Ministers have engaged directly with EU Commissioners on a number of occasions. However, as European policy matters are considered reserved, the UK Government is responsible for representing the UK within the EU. Therefore it is important for Scottish Government representatives to work closely with their UK counterparts to ensure that our interests are protected and adequately represented by the UK Government in European negotiations. 16. Early warning and engagement by the UK Government on issues emerging from Europe that impact on Scottish interests (whether in reserved or devolved areas) are essential to ensure proper consideration of the proposals by the Scottish Government. Early engagement by the UK Government on the European Commission’s Climate action and renewable energy package is a recent example of good practice.
Scotland Act 1998
17. The Scotland Act has a direct bearing on our relationship with the UK Government on climate change. Section 106 of the Scotland Act 1998 provides for a share of an international or Community obligation which is expressed in quantitative terms to be transferred by Order to Scottish Ministers. The Kyoto Protocol is such an obligation. However, by working in partnership with the UK Government it has not been necessary to invoke this provision. 18. Section 57(2) of the Scotland Act provides that Scottish Ministers have no power to do any act so far as the act is incompatible with Community law. Where Community law aVects domestic climate change measures, the Scottish Ministers must consider any potential risks which might arise as a consequence of section 57(2)—for example, the risk that actions taken may be held to have no legal eVect. 19. Under the Scotland Act, certain subject matter remains reserved to the UK Parliament and the UK Government. In some areas, the division of responsibility between the Scottish and UK Governments is complex. It is therefore important that the UK and Scottish administrations work cooperatively in order to avoid diYculties in the eVective delivery of policy. It is also essential to avoid any confusion over accountability for outcomes. Responding to climate change involves the coordination of both devolved and reserved responsibilities across the economy, environment, energy, transport and housing. Extending and clarifying the powers of the Scottish Parliament and Scottish Government through further devolution would assist significantly in increasing the eVectiveness with which both Government and Parliament are able to deliver climate change action in Scotland. The impact of work being done by the Scottish Government would benefit from greater flexibility, and from the opportunities to pursue policies which require an interrelated suite of powers across a wide range of governmental functions. The Scottish Parliament would be able to legislate with greater precision in relation to the particular threats and opportunities which exist Ev 178 Environmental Audit Committeee: Evidence
in Scotland, as well as holding the Scottish Government to account for delivering these policies. We will continue to make the case for further devolution of powers through the National Conversation while fully cooperating with the UK Government and the other devolved administrations to tackle climate change.
Energy Policy 20. Policy on energy is central to tackling climate change. The Scottish Government believes Scotland can be an international leader in renewable energy and has set an ambitious target that 50% of Scotland’s electricity demand should be met from renewable sources. We have stated our support of the European Union’s target that 20% of energy should come from renewables by 2020, and that energy eYciency should improve by 20% by 2020, and we are supporting the UK Energy Bill and European Union proposals on carbon capture and storage. 21. However, the actions which the Scottish Government can take are limited by the powers that we have under the Scotland Act 1998. As we have stated in Choosing Scotland’s Future, our National Conversation white paper, “greater devolution over energy matters would allow the Scottish Parliament and Scottish Government to give priority to the optimal use of Scotland’s natural resources in considering future sources of energy, in improving Scotland’s eYciency in using energy, and in growing Scotland’s green energy sector”. At present, the development of renewables in Scotland is being hampered by an unfair and inappropriate transmission charging regime, whilst support for new low carbon technology will suVer as a result of the massive amounts of money from taxpayers and consumers that will go to funding the construction, operation and decommissioning of a new generation of nuclear power stations. The Scottish Government also wishes to take action to reduce carbon emissions from heat. 22. As indicated above, the range of actions open to the Scottish Government is limited by the current devolution settlement. Further control over energy powers and energy revenues would enable the Scottish Government to take the right decisions to meet our climate change objectives through the development of a genuinely low carbon energy supply.
Conclusion 23. There is a close working relationship between the UK and Scottish Governments in relation to climate change policy. The Scottish Government will continue to work constructively with the UK Government to play its part in helping the UK meet its climate change objectives. The UK Government can also play a crucial role in supporting the Scottish Government in meeting its ambitious emission reduction targets. The further devolution of powers in key areas would help make a valuable contribution in this regard. 24. In moving forward, it will be important to maintain the good relationships that currently exist whilst continuing to look at ways in which the UK Government and the devolved administrations can work more eVectively to achieve shared objectives of reducing greenhouse gas emissions and responding to the impacts of climate change. Stewart Stevenson Minister for Transport, Infrastructure and Climate Change 20 March 2008
Annex A
CLIMATE CHANGE IN SCOTLAND “Climate change threatens our people, our economy, our societies, and our very existence. It can only be tackled if we all work together—...inScotland, in the UK, and across the world”. John Swinney, Cabinet Secretary for Finance and Sustainable Growth Announcing intentions for a Scottish Climate Change Bill—21 June 2007
Introduction The Scottish Government’s purpose is to create a more successful country, with opportunities for all of Scotland to flourish, through increasing sustainable economic growth. Recognising that climate change is one of the most serious threats we face and being determined that Scotland will play its part in rising to this global challenge, the Scottish Government is ensuring that action on climate change becomes part and parcel of the way Government and the wider public sector behaves. While climate change policy in general is devolved to the Scottish Government, policies to tackle this global issue cover a wide range of sectors and span both reserved and devolved matters. The Scottish Government works with the UK Government and the other devolved administrations in contributing to and influencing policy developments at UK, European, and international levels. Environmental Audit Committeee: Evidence Ev 179
The Scottish Government Economic Strategyi sets the strategic direction for the public sector in Scotland— the Scottish Government, local government, the enterprise networks and other key delivery partners. It introduces strategic targets which combine raising the GDP growth rate with ambitions to reduce the level of emissions by 80 per cent by 2050. This ambition is supported by the Scottish Budget SR 2007ii which emphasises that all public spending programmes must take account of, and contribute towards, the action needed to meet emissions targets.
Scotland’s emissions have fallen. Between 1990 and 2005, net greenhouse gas emissions fell by around 16% from 64.4 to 54.5 MtCO2e. As part of this reduction, net CO2 emissions fell by 13% compared with a UK average decrease of 6.4%. Encouraging as these figures are, on balance each person in Scotland currently contributes twice the global average in emissions.
The highest emitting sectors in Scotland are energy generation, transport and business, collectively they currently account for around three quarters of Scottish emissions. Since 1990, energy supply emissions have fallen by 10% and business emissions have fallen by 22%. However, in line with the rising trend in Europe, Scottish transport emissions have increased by 11%.
Scottish and UK Climate Change Bills Central to our climate change commitments are proposals to set a statutory target for Scotland to reduce emissions by 80% by 2050, and to develop mechanisms to ensure sustained progress is made. To give eVect to this target, the Scottish Government is currently consulting on proposals for a Scottish Climate Change Billiii. The Bill is designed to provide a long-term legal framework, which will oVer business and investors the certainty needed to plan for a low-carbon economy. It also proposes a requirement that Ministers are held to account in the event of failure to meet emissions reductions, with mandatory annual reporting to Parliament. The Scottish Government anticipates introducing a draft Bill to Parliament in late 2008. The Scottish Government is also working with UK partners on the UK Climate Change Billiv which will set a statutory target for the UK as a whole to reduce carbon dioxide emissions, and possibly other greenhouse gases, by at least 60% by 2050. The UK Bill provides a framework for shared action and has been drafted in terms which recognise the role of the Scottish Government as a partner in the pursuit of the UK emissions reduction target. It does not specify the measures to be used in Scotland to achieve the targets. The Scottish Climate Change Bill will oVer an opportunity to put in place a statutory framework, additional to the UK one, for a distinctive Scottish target and to introduce any relevant devolved policy measures which require primary legislation. Actions taken under devolved Scottish powers to meet the Scottish target will also help towards meeting the UK target. Similarly, there are areas such as energy generation for which powers have not been devolved but where UK Government climate change action could help Scotland meet the Scottish target. The Scottish Parliament approved a Legislative Consent Motion for the UK Bill on 20 December 2007.
Scotland’s Climate Change Programme While the targets within the Climate Change Bill may be long-term, the actions to achieve them are required now. Scotland’s Climate Change Programmev, published in 2006, sets out the existing policies being pursued to reduce emissions and adapt to climate change. A first Annual Reportvi on progress on Scotland’s Climate Change Programme was laid before the Scottish Parliament in March 2007. The underlying principles of this Programme remain valid—to tackle climate change in a sustainable way, to report annually on progress, to mainstream climate thinking across Government, to understand better the carbon impact of policies, to raise the profile of adaptation, and to communicate the importance of the issue much more widely. A new programme will be required to deliver the more ambitious target in the proposed Scottish Climate Change Bill. The proposed Bill will sit above this programme and set the high level statutory framework for climate change policies in Scotland.
Local Government While the Scottish Government is committed to a wide programme of activity it is recognised that this is not an issue that any government can address alone. Scotland’s communities will be in the front line in responding to the impacts of climate change and also have a role to play in reducing emissions of greenhouse gases that are contributing to climate change. Local government is ideally placed to lead the community response to climate change. In 2006 all 32 Scottish local authorities signed Scotland’s Climate Change Declarationvii committing them to action to reduce emissions and adapt to the unavoidable impacts of climate change. As part of the concordatviii between Scottish Government and local government, each local authority will agree a Single Outcome Agreement (SOA) highlighting their contributions towards national outcomes. Ev 180 Environmental Audit Committeee: Evidence
Meeting Emission Reduction Targets To meet the ambitious targets proposed by the Scottish Climate Change Bill, new policies and delivery mechanisms will be needed. Central to this will be a system of cross-compliance - to ensure that spending decisions across government assess the carbon impact of policy options. Work is currently being undertaken to map out the development of new policies to contribute to delivery of the Scottish Government’s 2011 and 2050 targets. Internal policy expertise alongside independent advice from expert panels will inform measures needed to meet targets. One expert panel was established to recommend measures which will make houses and buildings in Scotland more energy eYcient towards a goal of zero-carbon buildings. They published The Sullivan report on a Low Carbon Buildings Strategy for Scotlandix, on 12 December 2007. The UK Climate Change Bill also makes provision for Government to request advice from the UK Committee on Climate Changex on any issue relating to the Bill or climate change more generally. Scotland recognises the need to take advantage of and build on its particular strengths. Scotland’s enormous natural resources present an opportunity for global leadership in harnessing renewable energy. The Scottish Government has set an ambitious target that 50% of Scotland’s electricity demand should be met from renewable sources, and is committed to supporting a wide range of renewable technologies including wave and tidal, on- and oV-shore wind, and hydrogen and fuel cell technology. The European Marine Energy Centre in Orkney provides testing facilities for the development of several full-scale prototypes. Support schemes are in place to encourage the use of biomass energy and the uptake of small- scale renewables at householder and community levels. Activities to develop the market for renewable heat are also underway. Land use is important in the Scottish context. A large area of rural land, organic-rich soils, agriculture and forestry contribute to emissions, but also have a role in removing around 8% of emissions through their carbon sink function. To maximise this natural sequestration, the Scottish Rural Development Programmexi encourages climate-friendly management practices and investment in woodlands. Additional measures include addressing the environmental impacts of transport through a package of funded measures that promote more sustainable travel and the progression of plans to introduce a “one-stop-shop” for domestic consumers across Scotland to provide a more strategic and co-ordinated approach to sustainable energy advice.
Emissions Trading Targeting emissions from large business and public sector organisations including local authorities, retailers and central government is a key component of Scotland’s action. While emissions trading is a devolved matter, the Scottish Government supported the creation of a single approach operating across the UK and worked with the UK Government to implement the EU Emissions Trading Schemexii (ETS) and is working to develop proposals for the Carbon Reduction Commitmentxiii (CRC). A further consultation on regulations to implement the CRC will be held in the summer.
Adaptation While urgent action to reduce emissions is vital so is action to reduce Scotland’s vulnerability to the impacts of our already changing climate. Some degree of climate change remains unavoidable as the impacts over the next 30 to 40 years have been determined by past and present emissions. We cannot prevent these but we can adapt. A new Scottish Adaptation Strategy—to be consulted on in 2008—will identify priority adaptation action required in areas such as planning, health, flood risk management, transport, forestry, building standards, agriculture and nature conservation, and clarify roles and responsibilities in achieving this action. The Scottish Government is also working with UK partners on the development of a national UK Adaptation Policy Frameworkxiv supporting joint action on adaptation challenges that do not recognise national borders. To help and encourage businesses and organisations, including local authorities, in the development of their own adaptation response, the Scottish Government has had a significant role in the establishment of the Scottish Climate Change Impacts Partnershipxv.
Leadership Through this activity, and with the target proposed in the Scottish Climate Change Bill amongst the most ambitious by any country, the Scottish Government believes Scotland can play a leading role internationally. Recognising the importance of strong leadership, Scotland was one of the first signatories to the 2005 Montreal Climate Change Declaration.xvi This Declaration committed states and regions to work together to tackle climate change and in November 2006, agreed the establishment of a climate change alliance with amongst others California, Quebec, Manitoba, Bavaria and South Australia. Environmental Audit Committeee: Evidence Ev 181
The Scottish Government is also determined to show leadership by improving its environmental performance and reducing the environmental impacts of its own activities and operations. A Report of Environmental Performancexvii records progress on annual targets for environmental improvement and a new Scottish Government Travel Planxviii presents a package of measures designed to encouraging more sustainable business and staV travel practices. A commitment also already exists amongst many businesses operating in Scotland to address the climate change challenge. The Scottish Government is keen to build on this through the Climate Change Business Delivery Groupxix encouraging businesses in Scotland to share best practice, identify opportunities and challenge each other to do more. In recognition of the increased level of eVort required within and outwith government to act on climate change, resources have been announced for a range of sustainable development and climate change initiatives, including a new Climate Challenge Fund.
Conclusion Ultimately addressing the urgent social, economic and environmental challenge of climate change will only be successful if everyone of us accepts responsibility and acts sustainably. The Scottish Government is confident that government, business and all the people of Scotland are ready to rise to the challenge of climate change.
References i Government Economic Strategy—www.scotland.gov.uk/Publications/2007/11/12115041/0 ii Scottish Budget Spending Review 2007—www.scotland.gov.uk/Publications/2007/11/13092240/0 iii Scottish Climate Change Bill Consultation—www.scotland.gov.uk/Topics/Environment/Climate- Change/16327/Climate-Change-Bill iv UK Climate Change Bill—www.defra.gov.uk/ENVIRONMENT/climatechange/uk/legislation/ index.htm v Changing Our Ways, Scotland’s Climate Change Programme—www.scotland.gov.uk/Publications/2006/ 03/30091039/0 vi Scotland’s Climate Change Programme: Annual Report 2007 www.scotland.gov.uk/Publications/2007/ 03/08105454/0 vii Scotland’s Climate Change Declaration—www.sustainable-scotland.net/climatechange/ viii Concordat between the Scottish Government and local government.—www.scotland.gov.uk/ Publications/2007/11/13092240/concordat ix The Sullivan report on a Low Carbon Buildings Strategy for Scotland—www.sbsa.gov.uk/ sullivanreport.htm x UK Committee on Climate Change—www.defra.gov.uk/environment/climatechange/uk/legislation/ committee/index.htm xi Scottish Rural Development Programme—www.scotland.gov.uk/Topics/Rural/SRDP xii EU Emissions Trading Scheme—http://www.scotland.gov.uk/Topics/Environment/Climate-Change/ 16327/euets/Home xiii Carbon Reduction Commitment—www.scotland.gov.uk/Topics/Environment/Climate-Change/16327/ EnergyPerComm/Introsumm xiv UK Adaptation Policy Framework—www.defra.gov.uk/environment/climatechange/uk/adapt/ policyframe.htm xv Scottish Climate Change Impacts Partnership—www.sccip.org.uk xvi Montreal Climate Change Declaration—www.scotland.gov.uk/Topics/Environment/Climate-Change/ 16327/Declaration xvii The 7th Annual Report of Environmental Performance of the Scottish Government— www.scotland.gov.uk/Publications/2007/12/06160436/0 xviii Scottish Government Travel Plan—www.scotland.gov.uk/Publications/2007/12/06160535/0 xix Climate Change Business Delivery Group—www.scotland.gov.uk/News/Releases/2007/06/29110426 31 March 2008 Ev 182 Environmental Audit Committeee: Evidence
Memorandum submitted by the Welsh Assembly Government
Introduction
1. The Welsh Assembly Government is the devolved Government for Wales and is responsible for most of the day-to-day concerns for the people of Wales including the economy, environment, health, education and local government. 2. The role of the Welsh Assembly Government is to exercise functions devolved to it in order to make decisions on matters that aVect people’s daily lives, develop and implement policy, make subordinate legislation (eg regulations and statutory guidance) and propose Assembly Measures. 3. Under the Government of Wales Act 2006,74 the Welsh Assembly Government has powers conferred to Welsh Ministers to do anything which they consider appropriate to achieve the promotion or improvement of the economic, social and environmental well-being of Wales. They also have legislative competence based on “matters” specified in Schedule 5 of the Act. In order for a “matter” to be specified in that Schedule, it must relate to one of the broad subjects areas or “fields” listed in that Schedule.
Assembly Government Policy on Climate Change
4. Climate change is one of the biggest challenges facing the world today and the Welsh Assembly Government is determined to play its part in tackling it. 5. “One Wales”,75 the agenda for government in Wales, sets out the Assembly Government’s ambitions in relation to tackling climate change in Wales and includes a commitment to “aim to achieve annual carbon reduction-equivalent emission reductions of 3% per year by 2011 in areas of devolved competence”. 6. We are not taking a legalistic interpretation of “areas of devolved competence”; instead we will be defining broad areas where we can achieve reductions. This will pick up the sectors identified in One Wales (residential, transport and public sector) and other key sectors where the Assembly Government has real opportunities to support emission reduction action. 7. A number of steps have already been taken across all policy areas to reduce the greenhouse gas emissions that cause climate change and to adapt to the impacts of unavoidable climate change.
Emissions in Wales
8. The latest figures, for 2005,76 show that greenhouse gas emissions as a whole and carbon dioxide emissions in Wales remain below the 1990 benchmark. In 2005 there was a 9% decrease in emissions of the basket of six greenhouse gases compared with base year emissions and a 4% decrease in emissions of CO2 compared to base year emissions. Greenhouse gas emissions are subject to annual variation.
Climate Change Commission for Wales
9. The Climate Change Commission for Wales77 will provide the key forum for action on Climate Change in Wales. The Commission will provide leadership for action in every sector, help build a consensus on the response to climate change and inform the policies of the Welsh Assembly Government. It includes representatives of all four main political parties, representatives from businesses, the voluntary sector and local government and other expert bodies with an interest in climate change. 10. The Commission is supported by four subgroups which have the expertise to look at individual issues in depth and to feed into the Commission and wider policy development. These groups contain a much broader range of stakeholders and carry out detailed development work. The subgroups cover: adaptation; baseline, methodology and economics, communications and emission reductions. 11. The Commission has met twice to date and the opportunity of annual meetings with the UK Committee on Climate Change is being explored; in order to allow the two groups to share knowledge and to inform Climate Change policies in Wales.
74 Government of Wales Act (2006)— http://www.opsi.gov.uk/acts/acts2006/ukpga 20060032 en 1 75 One Wales: A progressive agenda for the Government of Wales—http://wales.gov.uk/about/strategy/strategypublications/ strategypubs/onewales/?lang%en 76 Green House Gas Inventory Report. 77 Climate Change Commission for Wales—http://new.wales.gov.uk/topics/environmentcountryside/climate change/ whatarewedoing/commission/?lang%en Environmental Audit Committeee: Evidence Ev 183
The UK Climate Change Bill
12. The Welsh Assembly Government is working in partnership with the UK Government and the other Devolved Administrations on the UK Climate Change Bill,78 which will set a statutory target for the UK as a whole to reduce carbon dioxide emissions by at least 60% by 2050. 13. As well as setting clear targets for reducing carbon dioxide emissions, the Bill also establishes a new system of legally binding five year “carbon budgets”, set at least 15 years ahead, to provide a clear pathway for emission reduction and establishes a new expert body, the Committee on Climate Change; to provide advice to the UK Government and the Devolved Administrations. 14. Within the Bill are a number of provisions in relation to Wales, including: — a clause requiring the Welsh Ministers to lay before the Assembly a report on their objectives, actions and priorities in relation to greenhouse gas emissions and the impact of climate change in Wales; and — an amendment to the Climate Change and Sustainable Energy Act 2006 which has the eVect of transferring to Welsh Ministers the responsibility for publishing guidance for local authorities in Wales on climate change. 15. The Welsh Ministers are also given powers to make trading schemes in relation to matters that, in the future, come within the legislative competence of the National Assembly for Wales and also in relation to the limitation of activities which consist of the emissions of greenhouse gases. They are also given an express power to allow the purchase oVset credits. 16. A UK Government amendment placed new powers on Welsh Ministers in relation to climate change adaptation, specifically to: — produce guidance for public bodies on adapting to the impacts of climate change; and — require public bodies to produce a report on an assessment of the current and predicted impacts of climate change in relation to the authority’s function, a statement of the authority’s proposals and policies for adapting to climate change in the exercise of its functions and an assessment of the progress made by the authority towards implementing the proposals and policies set out in its previous reports. 17. These new powers will enable the Assembly Government to provide improved support to public authorities on climate change adaptation and provide a mechanism to require action if a public body is not taking proper account of the action needed. This is further supported by a clause requiring Welsh Ministers to lay before the National Assembly for Wales a reports that state how these powers will be used and which of the reporting authorities will be covered. 18. The Assembly Government and the other devolved administrations have a key role to play when the Secretary of State sets the carbon budget and in reviewing targets. The Bill ensures that the devolved administrations will have three months to feed in their comments and that the Secretary of State must publish a statement that sets out whether, and how, s/he has taken account of the devolved administrations’ views.
Committee on Climate Change
19. The Assembly Government, alongside the UK Government and other devolved administrations will appoint, fund and sponsor the Committee on Climate Change.79 20. The Committee will review the targets contained within the Bill, advise on the setting of the carbon budgets and advise the UK Government and Devolved Administrations on the inclusion of other Green House Gases and the inclusion of other sectors (for example international aviation and shipping). The Committee will also provide expert independent advice to the Devolved Administrations on their non- statutory targets. 21. The Welsh Assembly Government intends to use the expert analytical expertise of the Committee to advise on the optimum way to achieve the 3% target set out in One Wales. 22. A concordat is being drawn up between the National Governments to establish how the processes set out in the Bill will work in practice and to define the relationship between the Committee, the UK Government and the Devolved Administrations.
78 Climate Change Bill—http://www.publications.parliament.uk/pa/ld200708/ldbills/029/08029.i-iv.html 79 Committee on Climate Change—http://www.defra.gov.uk/environment/climatechange/uk/legislation/committee/index.htm Ev 184 Environmental Audit Committeee: Evidence
Working with the UK Government on Climate Change Policy and European Issues 23. The Assembly Government works closely with the UK Government on the development of climate change policy. The current UK Climate Change Programme was developed with the devolved administrations. There is a separate chapter in relation to the Assembly Government’s policies. 24. Assembly Government oYcials are members of a wide range of working groups involved in climate change policy development and implementation. 25. UK Government Ministers regularly write to seek the views of Assembly Government on proposed policies or to agree the negotiating position for European proposals. 26. Key areas of joint working include the EU Emissions Trading Scheme and the development of the Carbon Reduction Commitment.
Climate Change Communication and Engagement 27. We will be launching a major communications campaign on climate change in the summer and will be seeking to maximise links with other organisations that are communicating on this issue. The Assembly Government is also taking a number of other actions to raise awareness of climate change for example the appointment of six young people as climate change champions and the development of a Welsh carbon calculator. 28. A series of community engagement events are being held across Wales drawing together community groups to share experience, network and to tell us what support they wanted from the Assembly Government. These events will inform the longer term development of resources and support for community groups. 29. We are already preparing some resources: — In partnership with Cynnal Cymru, commissioned a DVD to showcase case studies of real communities taking action to become more sustainable to inspire others. — Developing a community information and resource pack, which the DVD will form part of. — Developing, advised by an external steering group, an Advice Note on Climate Change to support the statutory guidance on Community Strategies.
Young People 30. We appointed six climate change champions following a competition last year. The climate change champions’ role is to let people know the simple steps they can take to reduce their carbon footprint and they are taking part in a mix of local, national and international events. Each champion has a column in their local newspaper and several are working with local schools. 31. Although the Welsh and English champions were selected through separate competitions, we did liaise closely with Defra and the champions took part in a joint fact finding expedition to the Netherlands. 32. We support the Eco Schools programme in Wales and have set an aim that all schools should be Eco Schools and be moving towards attaining green flag status. We have also developed an Education for Sustainable Development and Global Citizenship curriculum and are rolling this out throughout education and learning. 33. We issued a Climate Change resource pack to schools last year and we are now developing an update to the pack based on the new curriculum.
Emission Reduction Actions 34. Work is underway to develop the programme of action to deliver our 3% emission reduction, but a wide range of activity is already in hand. 35. On energy advice, the Assembly Government provides over £4.4 million funding to the Carbon Trust in Wales, which provides advice to businesses in Wales. We have also supported the Energy Saving Trust to enable it to bring forward the rollout of its enhanced Energy Advice Centres in Wales, which oVer advice and support on energy eYciency, microgeneration and transport. 36. The Assembly Government provides grant funding to improve the energy eYciency of over 10,000 vulnerable households in Wales each year under the Home Energy EYciency Scheme (HEES). Energy eYciency measures available under HEES include heating and insulation work. 37. The recent publication of the “Renewable Energy Route Map for Wales” begins consultation on way forward to a leaner, greener and cleaner Wales. The consultation sets out proposals for moving Wales towards self-suYciency in renewable electricity generation whilst at the same time driving towards energy eYciency and the provision of heating requirements from renewable sources. Environmental Audit Committeee: Evidence Ev 185
38. This reflects the view that, within 20 years, Wales can be self suYcient in renewable electricity as well as showing leadership in achieving major energy eYciency improvements and producing low carbon energy from sustainable biomass. 39. We will be developing a National Energy EYciency and Saving Plan during 2008, which will address climate change and fuel poverty issues and fulfil another One Wales commitment. 40. One Wales contains a commitment to develop a Green Jobs Strategy. This will provide a new strategic context for our support to enable businesses in addressing climate change and taking the business opportunities presented. 41. Public sector procurement also has an important role to play and Value Wales has been active in promoting sustainable procurement across the public sector in Wales. 42. We are committed to ensuring that new buildings in Wales are more sustainable. We have set out our aspiration that all new buildings constructed in Wales from 2011 onwards to be zero carbon. We are pursuing devolution of the Building Regulations to help us move this forward and will consult further with stakeholders. 43. Already expect new buildings that the Assembly Government influences through funding, investment or land disposal to achieve BREEAM “Excellent” and for key projects that we influence to be master planned on the basis of low/zero carbon. We are looking to improve on this, year on year, in the run up to 2011. 44. We have asked the Sustainable Development Commission to bring together key organisations to drive towards achieving this aspiration and making improvements in existing buildings. 45. The Assembly Government is committed to setting an example through the management of its own business and estate and has commissioned a comprehensive review of the administrative estate which will make recommendations on options for driving down the carbon footprint of our buildings and oYcial travel. 46. The planning system has an important role to play in tackling climate change. This is already highlighted in Planning Policy Wales80 and its associated Technical Advice Notes, but we are currently considering the results of the consultation Planning for Climate Change to update Planning Policy Wales and provide other guidance and support. 47. Tackling climate change is at the heart of the forthcoming Wales Transport Strategy. The Strategy adopts an outcome-based approach in order to maximise the contribution of transport right across the economic, social and environmental agenda. It will be implemented through a National Transport Plan, setting out detailed policies and programmes over diVerent timeframes, as well as Regional Transport Plans prepared by the regional transport consortia. 48. The general approach in the Strategy is to encourage travel by less carbon-intensive modes and to improve the carbon-eYciency of all modes. In the short-term, cost-eVective savings are likely to come from policies focused on securing behavioural change. This includes a range of policies to make public transport—both bus and rail—more attractive and to encourage a switch from the private car. In addition, a range of measures are being taken forward under the banner of “Smarter Choices”, with greater use of workplace and school travel planning, car sharing schemes and enhanced provision for walking and cycling. 49. A Sustainable Travel Towns initiative is being developed, to enable a number of towns to become exemplars in terms of sustainable travel. This approach will then be rolled-out across Wales. 50. We work closely with the UK Government on addressing transport emissions because many of the key policy levers lie with the UK Government, European Union, or may even require broader international agreement. These non-devolved issues include: the development of market mechanisms, including fiscal measures such as fuel duty and Vehicle Excise Duty; regulatory measures, such as the introduction of the Renewable Transport Fuels Obligation (which will require transport fuel suppliers to ensure that a proportion of their sales are from renewable sources) and legislation on new car fuel eYciency. 51. The Assembly Government and all local authorities in Wales signed the Welsh Declaration on Climate Change and Energy EYciency.81 The purpose of the declaration is to demonstrate a commitment by individual authorities to tackle greenhouse gas emissions and lead onto the development of longer term, local strategies in support of the UK Government and the Devolved Administrations’ Climate Change Programme. 52. Under the recent round of Policy Agreements with local authorities we have seen a doubling of progress on improving domestic energy eYciency. 53. A new model of local strategic leadership across sectors is being developed, which will enhance the capacity to tackle cross-cutting strategic issues like climate change-including through sharing expertise and identifying opportunities for radical change in the way services are delivered.
80 Planning Policy Wales and Technical Advice Notes—http://new.wales.gov.uk/topics/planning/policy/?lang%en 81 Declaration on Climate Change—http://www.wlga.gov.uk/english/meeting-documents/a-welsh-declaration-on-climate- change/ Ev 186 Environmental Audit Committeee: Evidence
54. A number of Local Service Boards have identified climate change as a topic for their pilots. We recently hosted a meeting to bring these authorities, and others with an interest, together to share their experiences on this issue.
Adapting to the Impacts of Climate Change 55. The Welsh Assembly Government is committed to taking action on the impacts of climate change and we are developing a programme of action on adaptation which will sit alongside our emission reduction actions. 56. There is an Adaptation sub-group under the Climate Change Commission. They have identified a number of key topics on which to prepare brief scoping reports, which will inform their longer term work programme. 57. Additional powers on adapting to climate change have been secured through the Climate Change Bill. These will enable the Assembly Government to provide further support to public bodies in addressing this issue. 58. The previous administration consulted on an action plan to adapt to climate change Responding to our Changing Climate. The consultation closed on 27 April 2007. A report on the results of the consultation is on the Assembly Government website. A clear message from the consultation was the need to ensure action on adaptation, and action on emission reduction. This was integrated and we are therefore developing a comprehensive programme on climate action. 59. Action is already being taken to adapt to the impacts of climate change, for example: — Through the New Approaches Programme we are moving to a risk management approach for flooding and developing a wider toolkit of flood risk management measures. — Through Planning Policy Wales and its supporting Technical Advice Notes, we are ensuring that planning system assists in minimising flood risk, managing the thermal performance of buildings and other building design issues that will be impacted on by a changing climate. — We are co-funders of the MONARCH project studying the impacts of climate change on biodiversity, and we are also partners in the Marine Climate Change Impacts Partnership.
Conclusion 60. Addressing the challenge of climate change will require action by everyone—from individuals to communities, from organisations and businesses, from local government to national and international action. In Wales, we have the opportunity to lead amongst small nations and we plan to do so by taking prompt action to play our part in achieving the necessary emission reductions. 61. It is important that the UK works together in order to ensure coordinated action on climate change. This is due to its nature as a global issue and also due to the nature of the devolution settlements and cross boarder issues (such as rivers) meaning that no one administration can take eVective action on its own. 5 April 2008
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