East Devon... and climate change

The District Council has taken the issue of climate change very seriously.

In its draft Local Plan, it talks about a 'transition to a low carbon economy', including practical steps such as incorporating sustainable building-design into planning decisions and looking at Decentralised Energy Networks:

4. Key Issues and Objectives

What Influences East Devon Now

4.1 There are many positive things about East Devon. We have listed some

of these below under thematic headings:

e. Carbon Emissions & Climate Change - East Devon offers a wide ranging

potential for renewable energy generation. There are current proposals for a

flagship combined heat and power plant to serve Cranbrook and other eco-

friendly initiatives in the District.

Green Infrastructure – A High Quality Green Framework for Development

What the sustainability appraisal and other evidence tells us about green infrastructure

at East Devon's West End:

• Climate change is a significant challenge that needs to be given prominence in decision

making. Innovative solutions need to be sought to ensure that other sustainability

considerations (such as landscape designations do not constrain the achievement of low

and zero carbon development). It is possible to achieve positive effects on what may

initially appear to be conflicting sustainability objectives.

17 Climate Change

Climate Change and Low Carbon Development

17.1 The best available evidence shows that we are seeing and can expect to see future

changes in the global climate as a consequence of past and ongoing greenhouse gas

emissions. These changes could escalate in the future and it is therefore essential that

in East Devon we plan for greater energy efficiency and generation of energy from

renewable sources. There can also be economic benefits to be gained as well. This

chapter of the plan addresses these themes.

What you said about carbon reduction:

• There is strong support for specific areas or locations to be identified for renewable and

low carbon generation with respondents mainly supporting small scale localised

solutions. Others felt that all areas of the district should be considered with opportunities

taken as they arise.

• 22% of respondents to the Issues and Options report supported the Local Plan

requirement for on-site renewable energy production while 49% supported a higher

standard. 27% favoured an alternative approach with the matter considered against

other objectives, particularly as the issue is being addressed nationally (Code for

Sustainable Homes)

What the sustainability appraisal and other evidence tells us about carbon reduction:

• Climate change needs to be given due prominence in decision making. Innovative

solutions need to be sought to ensure that some sustainability considerations do not

constrain the achievement of low and zero carbon development. It is entirely possible to

achieve positive outcomes by balancing apparently conflicting sustainability measures.

• Allocating sites for renewable energy production sends a positive message to

developers that East Devon is proactive in encouraging renewable and low carbon

energy generation.

• The biggest contributors to CO² emissions in East Devon are the road transport and

domestic sectors at 36.8% and 35.8% respectively. In the South West overall the top

two contributors are the industry and commercial sector and domestic sector, at 36.1%

and 32.8% respectively.

• Per head CO² production is high in the East Devon District (8.4 tonnes) compared with

Exeter (5.7 tonnes) but similar to the regional average of 8.2 tonnes. This is

characteristic of a predominantly rural area with a higher reliance on road transport.

• Flooding risk in East Devon is expected to worsen with projected sea level rises and

wetter winters. Areas of Flood Zones 2 and 3 are identified around all of the main rivers

in the District as well as many of their tributaries.

• There is strong support for significant weight to be given to low or zero carbon

construction throughout the District with house building being a key player.

Transition to a Low Carbon Economy

17.2 The Climate Change Act (2008)44 has put in place legally binding targets for the UK to

achieve an 80% reduction in greenhouse gas emissions by 2050 with reductions of

34% by 2020, against a 1990 baseline. Emissions from buildings account for

approximately half of all emissions nationally. There is little scope to force existing

buildings to become more energy efficient, other than by offering incentives to upgrade

and making renewable technologies a requirement of applications for refurbishment or

extension, but all new development will be required to be “low carbon”.

17.3 As demand for fossil fuel energy grows, energy prices are rising. This threatens the

security of energy supply as well as increasing the likelihood of fuel poverty. An

important means of mitigating this risk is by reducing the demand for energy from new

and existing development through improved efficiency measures.

17.4 There is strong evidence that the climate is changing45. The outcome for East Devon

is predicted to be increases in summer temperatures, greater fluctuations in weather,

uncertainty surrounding rainfall trends and an increased risk of flooding. These have

the potential to increase risks to health and comfort, cause damage to buildings and

infrastructure and increase building energy consumption from cooling. It is important

that new development responds to these risks.

17.5 In addressing climate change and energy security the planning process can not only

mitigate against the risks but can help to turn them into opportunities for local

businesses, giving East Devon a competitive advantage and helping it to prosper in the

future. The implementation of planning policy at a local level is crucial to deliver the

radical reductions in energy demand and greenhouse gas emissions required to

support the national transition to a Low Carbon Economy. The scope of policy can

cover the appropriate location and layout of new development, and provide active

support for energy efficiency improvements to existing buildings and the delivery of

renewable and low-carbon energy infrastructure.

17.6 All development proposals must be planned over the lifetime of the development to

ensure that the maximum potential for reducing carbon emissions and minimising the

risks posed by climate change are achieved. Developers must be mindful of the

carbon emission standards which will be required for later stages of the build

programme as decisions taken at the outset can compromise the viability of emissions

reduction in latter phases. In some parts of the District it will be possible to generate

energy locally at a scale which could serve the local area, for instance through a

Combined Heat and Power scheme. New development should include infrastructure to

enable it to be connected to such CHP schemes, whether they already exist or may be

provided in the future. Where low carbon technologies are not installed new buildings

should be designed for easy installation and/or adaptation at a later date.

Development that Minimises the Demand for Energy

17.7 Buildings and their associated infrastructure perform essential economic and social

functions, though they result in a significant environmental burden during their

construction, occupation and demolition.

17.8 The Government has established that through Part L of the Building Regulations 46,

emissions allowed from new buildings will be reduced incrementally and that “zero

carbon” buildings will be required within the plan period. The definition of “zero carbon”

has introduced three concepts; “energy efficiency”, “carbon compliance” and “allowable

solutions”.

17.9 Evidence suggests that in spite of increasingly strict standards at the point of build new

development often fails in practice to deliver expected carbon emissions reduction.

This may be due to the way in which occupants subsequently operate their buildings

rather than any fault with the building process. Developers will be expected to commit

to extended periods of Post Occupancy Evaluation and commissioning of building

systems to demonstrate their intent to ensure that new development operates as

effectively as possible and that calculated carbon reduction is realised in practice.

17.10 The broader sustainability performance of a development is most commonly measured

using either the Code for Sustainable Homes (CSH) for residential development or

BREEAM for non-domestic development. It is expected that these standards would be

used to demonstrate the environmental performance of developments greater than 10

homes or 1,000m2 for non-domestic buildings.

17.11 Recent analysis by CLG (2011)47 has shown that the most significant cost to meeting

the CSH is in reducing carbon emissions. The national timetable for “zero carbon”

homes is expected to require Code Level 4 energy standard from 2013 and Code

Level 5 energy standard from 2016. The CLG analysis has shown that the non-energy

requirements for CSH Code 4 can be achieved with minimal cost uplift for a broad

range of development types. It would therefore be reasonable to expect homes from

2013 to meet Code Level 4 of the CSH. Developers may feel there is additional value

in obtaining Codes 5 or 6 of the CSH from 2016 or earlier.

17.12 Proposals for well designed, sustainable buildings will be supported unless it would

cause harm to a heritage asset or its setting, and this would not be outweighed by the

proposal’s wider social, economic and environmental benefits. This will also apply in

the case of refurbishment of existing development, for example regarding the fitting of

external insulation to properties with solid walls.

17.13 Higher levels of building sustainability, in advance of those set out nationally, will be

sought for larger scale developments such as those in the West End or other localities

in the District where there is the potential for over 10 hectares of new development

either housing or other buildings.

17.14 Proposed development will demonstrate how the scheme presented will minimise

vulnerability and provide resilience to impacts arising from climate change.

Specifically, this will include the increased risk of summertime overheating and

subsequent potential requirement for artificial cooling, water stress, and flooding.

Renewable and Decentralised Energy

17.15 Whilst reducing the demand for energy through efficiency measures will be crucial to

lowering carbon emissions, reducing the carbon intensity of the energy we consume

will also play a critical role in helping the UK is to meet its climate change targets. The

Renewable Energy Directive (2009)48 sets a target for the UK to achieve 15% of its

energy consumption from renewable sources by 2020. As well as reducing

environmental impact, renewable energy can also offer diversity and security of supply.

East Devon recognises its responsibility to contribute to energy generation from

renewable or low-carbon sources in the District.

17.16 The potential renewable energy resource in the District has been assessed by the

Council49. There is the potential to adopt a variety of technologies at different scales,

from domestic to commercial, across the District. This ranges from a relatively modest

number of commercial scale wind turbines, which could provide a quarter of all carbon

savings from renewable energy, to a very large number of much smaller on-site

installations such as photo voltaic panels to produce domestic electricity and hot water,

and heat pumps.

17.17 A large proportion of East Devon’s land area is covered by environmental designations

such as Areas of Outstanding Natural Beauty. Much of the coastline is also designated

as a World Heritage Site. Once these, and other constraints such as wind resource

and exclusion zones around existing houses have been accounted for, there is still the

potential for some commercial scale wind generation within the District. There is also

the potential for a Centralised Anaerobic Digestion plant and large photo voltaic.

17.18 Significant weight will be given to the wider environmental, social and economic

benefits of renewable or low-carbon energy projects whatever their scale. Planning

permission will not be refused for a renewable energy project because local renewable

energy resources have been developed.

17.19 Analysis by the Council has shown that there is great potential for on-site renewable

energy technologies. As the requirements of Part L of the Building Regulations are

tightened, increasing amounts of low or zero carbon technologies will be required.

Incentive schemes such as the Feed-in Tariffs and the Renewable Heat Incentive have

improved the viability of small scale renewable energy. As such specific percentage

targets for the proportion of energy met by renewable energy sources are not

stipulated. Reducing the demand for energy through efficiency measures still remains

a cost effective means of helping to meet the regulations, and could help reduce the

size of required renewable technology.

17.20 The presumption will be made in favour of sustainable development for community-led

initiatives for renewable and low carbon energy, including developments outside such

areas being taken forward through neighbourhood planning.

17.21 New development should come forward in locations and ways which reduce

greenhouse gas emissions. This means locating development close to everyday

facilities and public transport. The density and mix of building types and use proposed

in a development should be mindful of the energy load across the development. Higher

densities and combinations that provide a balanced heat load are likely to provide

greater potential for cost effective low carbon energy solutions.

17.22 District Energy Networks enable the use of large scale heat and/or electricity

generation technologies to supply a number of nearby homes and businesses.

Networks can vary in size from 20 homes to 2,000 homes or more. Even when using

natural gas, Combined Heat and Power (CHP) systems can provide significant carbon

emissions reduction. However it is important the CHP systems are designed to avoid

the situation where excess heat is not used while electricity is generated. Small gas

CHP systems can be viable for as few as 250 homes. On a larger scale the district

energy system East of Exeter is perhaps the best example of renewable CHP in the

country.

17.23 In parts of the District where there is the potential for over 10 hectares of new

development (either housing or other buildings), developers will be expected to

contribute to community heating, hot water and cooling systems and CHP and provide

the infrastructure required as an integral part of the development. Where it is proposed

not to employ such systems, developers must demonstrate why they are not viable

over the life of developments in that locality.

17.24 District energy systems rely on high numbers of users to make them viable so it is

essential that, where new development is happening within reach of an existing or

potential heat network, that new users connect to the system and provide infrastructure

to easily enable subsequent future development to also connect to the network. While

heat is not regulated in the same way as gas or electricity, heat network operators offer

competitive long term contracts typically at prices slightly under those of substitute

fossil fuel systems. Capital costs are similar to traditional heating systems and

equipment is much more compact compared to fossil fuel alternatives.

17.25 The West End is planned to contain approximately half the proposed housing and

employment space in the District. Proposed development in this locality should

connect to the District Energy Network.

Consultation Local Plan – Draft Strategy 34

Decentralised Energy Networks

Decentralised Energy Networks will be developed and brought forward. New development

(either new build or conversion) with a floor space of at lEast 1,000m2 or comprising ten or

more dwellings should connect to any existing, or proposed, Decentralised Energy Network in

the locality to bring forward low and zero carbon energy supply and distribution.

Where there is no existing Decentralised Energy Network in the locality, proposals for larger

developments of 10 hectares (either housing or other buildings) or 300 houses should

evaluate the potential for such systems and implement them where they are viable over the

life of the developments in the locality. Consumer choice of energy sources will be retained

when decentralised Energy networks are developed.

How we reached this Policy position:

We are legally required to achieve an 80% reduction in greenhouse gas emissions by 2050

with reductions of 34% by 2020, against a 1990 baseline. Emissions from buildings account

for approximately half of all emissions nationally so there is huge scope to reduce emissions

as part of new development.

Consultation demonstrated strong support for setting challenging renewable energy

production and carbon reduction targets, although significant concerns regarding the possible

environmental impact of major schemes for instance wind turbines may be supported.

Policy recognises that on major development sites the economies of scale are such that much

higher measures can be incorporated, therefore the thrust of Policy is to encourage and

support small scale renewable energy production and carbon reduction measures whilst

setting strict requirements in larger schemes.

www.eastdevon.gov.uk/new_local_plan_publication_draft_dec_2011_lowres.pdf

The Sustainability Appraisal provided detail and analysis:

RESOURCE CONSUMPTION AND CLIMATE CHANGE

Key Issues

Energy Consumption

• Devon currently receives around 1.8% of its energy supply from renewable

sources, mainly methane gas from landfill and small hydro schemes.

• East Devon has achieved greater improvements in domestic energy efficiency

than the South West region overall – 19.8% compared to 15.3%.

• High renewables targets were set by the now abolished South West RSS.

There is significant scope within East Devon for small-scale community based

energy production and combined heat and power (CHP) schemes.

 Waste

• Household waste levels in East Devon are increasing year on year whilst

landfill capacity in the District is becoming depleted.

• There is an ongoing drive to increase levels of recycling and composting.

 Climate Change

• The biggest contributors to CO² emissions in East Devon are the road

transport and domestic sectors at 36.8% and 35.8% respectively. Across the

South West overall, the top two contributors are the industry and

commercial sector and domestic sectors, at 36.1% and 32.8% respectively.

• Per capita CO² production is high in the East Devon District (8.4 tonnes)

compared with Exeter (5.7 tonnes) but is similar to the regional average of

8.2 tonnes. This is characteristic of a predominantly rural area with a high

reliance on road transport.

• Incidences of flooding in East Devon are expected to increase with projected

sea level rises and the onset of wetter winters. Areas of land classified as

Flood Zones 2 and 3 are identified around all of the main rivers in the

District as well as many of their tributaries.

Sustainable Development and Climate Change

• Climate change is one of the most significant challenges that faces East Devon

and the issue needs to be given due consideration in decision making.

Innovative solutions need to be sought to ensure that other sustainability

considerations (such as the conservation and enhancement of the landscape)

do not constrain low and zero carbon development as it is often possible to

achieve positive outcomes where there may initially appear to be conflicting

concerns.

• Allocating specific sites for renewable energy production sends a positive

message to developers that the District is proactive in encouraging renewable

and low carbon energy generation.

www.eastdevon.gov.uk/plg_preferredapproachsareport.pdf

And a lot of other documentation used in strategic planning at the District Council takes climate change very much into consideration, such as the Strategic Flood Risk Assessment from Halcrow:
www.eastdevon.gov.uk/plg_sframainreport01.pdf

Very positive is how the District Council has engaged with the Futures Forum on these issues:
Futures Forum: Development for Sustainability: Futures Forum meeting
Futures Forum: Development for Sustainability: sustainable communities
Futures Forum: Development for Sustainability: sustainability appraisal
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