National energy standards
6.1.1 In 2014 the Government reaffirmed its commitment to ensuring that new homes are built to a zero carbon standard by 2016, to reduce carbon emissions and household energy bills205. Clause 43 of the Deregulation Act 2015 introduced the provision to amend the Planning and Energy Act 2008 to prevent local authorities from setting domestic energy standards beyond the Building Regulations, with the intention that this would come into effect from the implementation of zero carbon homes in 2016. The Infrastructure Act 2015206 introduced the ability for off-site carbon abatement measures to be allowed in building regulations as part of Government proposals for zero carbon homes.
6.1.2 National maximum carbon dioxide emission standards are set out in Part L of the Building Regulations. Updates to Part L over the last decade have set out more stringent requirements for carbon dioxide emissions from new development to support the move to zero carbon homes. The most recent update in 2013 required new homes to emit 6 per cent less carbon dioxide than the previous 2010 regulations; a reduction on the 8 per cent target suggested in the consultation on the changes.207 Some commentators have suggested that this lower step change may mean the development industry could face a challenge in meeting zero carbon standards by 2016 and that stronger targets may have stimulated the installation and continued development of renewable energy technologies to support the move to zero carbon208.
6.1.3 Clause 43 of the Deregulation Act 2015 has not yet come into force. However the Ministerial Statement dated 25 March 2015 that accompanied the Governments housing standards indicated that they expect local planning authorities to take their proposed requirements for zero carbon homes into consideration when setting energy performance standards in the period to 2016. The minimum onsite energy performance requirement for zero carbon homes will be broadly equivalent to the Code for Sustainable Homes Level 4209, with developers having various options to meet the remaining carbon reductions, including further investment in onsite energy
205 Prime Minister’s Office, June 2014, The Queen’s Speech 2014 206 Part 5, Clause 37(4), Infrastructure Act 2015
207http://www.building.co.uk/zero-carbon-2016-target-%E2%80%98under- threat%E2%80%99/5058598.article
208 Renewable Energy Association, from: http://www.building.co.uk/zero-carbon-2016-target- %E2%80%98under-threat%E2%80%99/5058598.article
209 DCLG, 2015. Planning Update March 2015
performance and low carbon technologies or offset payments. Code 4 is broadly equivalent to a 25 per cent improvement on Part L 2010.
London Plan Policy
6.1.4 London Plan Policy 5.2 sets out a stepped approach for both residential and non- domestic buildings to reduce their carbon dioxide emissions over the plan period to 2031. From 2013 a target of 40 per cent210 carbon dioxide emissions reductions beyond 2010 Building Regulations has applied and is set to run to 2016, when the national policy requirement for zero carbon homes will take effect. The carbon dioxide reduction targets for domestic development are as follows:
Year Improvement on 2010 Building Regulations
2010 – 2013 25 per cent
2013 – 2016 40 per cent
2016 – 2031 Zero carbon
Fig 6.1.Carbon dioxide emissions reduction targets for new residential buildings in London
6.1.5 These targets were based on the specific opportunities in London to reduce carbon dioxide emissions211 and were established to provide a stepped approach to carbon dioxide reductions, ultimately leading to zero carbon residential buildings from 2016212. They support the Mayor’s strategic goal of reducing London’s overall carbon dioxide emissions by 60 per cent, beyond 1990 levels and demonstrate a commitment to reduce energy consumption in London from all major development, i.e. new build but also major refurbishments and extensions. The targets are also used to support the implementation of other London Plan energy policies, including policies 5.6 (decentralised energy in development proposals) and 5.7 (renewable technologies). Further detail to support this approach can be found in the Mayor’s studies on London’s decentralised energy capacity.213
6.1.6 The Mayor has set out an energy hierarchy to prioritise the order in which carbon saving measures should be applied to achieve the carbon dioxide emission reductions targets. This hierarchy is set out below.
Be lean: use less energy
Be clean: supply energy efficiently, particularly through the use of decentralised energy
210 Recalibrated to a 35 per cent improvement beyond Part L 2013
211 London South Bank University, 2009. Monitoring the London Plan Energy Policies – Phase 3: Part 1 report
212 Mayor of London, London Plan 2015. Consolidated with Alterations since 2011, Policy 5.2(B) 213http://www.london.gov.uk/priorities/environment/publications/decentralised-energy-capacity-study
Be green: use renewable energy214
6.1.7 The energy hierarchy offers an effective framework to guide energy policy and decision making by prioritising demand-side activities to reduce wastage and improve efficiency – a common-sense, cost-effective and sustainable energy policy aiming to reduce energy use before seeking to meet remaining demand by the cleanest means possible215. Although developments are encouraged to meet Building Regulations requirements through fabric efficiency measures alone when addressing the ‘be lean’ element of the hierarchy, the hierarchy framework does not set specific targets for low carbon or renewable technologies, recognising that there are a multitude of factors influencing the ability of developments to achieve carbon savings through different routes.
6.1.8 Policy 5.2 makes it clear that the carbon dioxide reduction targets should be met through on-site solutions if feasible, but that where it is clearly demonstrated that this is not possible, any shortfall may be provided off-site or through a cash in lieu contribution to the local borough, to be ring fenced in order to secure delivery of carbon dioxide savings elsewhere216. This reinforces the flexibility established through the objectives of the energy hierarchy and is line with the Government’s approach to zero carbon standards.
6.1.9 The targets in Policy 5.2 of the London Plan were originally set relative to Part L 2010 of the Building Regulations. Following the 2013 Building Regulations coming in to effect in April 2014, the Mayor has applied a 35 per cent reduction target beyond Part L 2013 – broadly equivalent to the 40 per cent beyond 2010 regulations set out in the London Plan. Retaining a flat percentage target across domestic and non-domestic buildings provides a clear, simple approach for developers to follow, particularly for mixed use developments.217.
6.1.10 These London Plan policies have been through examination prior to the Plan being adopted. Their application to strategic development schemes has therefore been endorsed through significant and extensive independent examination, and found in each instance to be sound. By retaining the current London Plan target, the Mayor seeks to encourage on-site carbon savings and, when these have been maximised, unlock the potential for carbon savings through investment in district energy and the
214 Mayor of London, London Plan 2015. Consolidated with Alterations since 2011, Policy 5.2(A) 215http://www.imeche.org/knowledge/policy/energy/policy/the-energy-hierarchy
216 Mayor of London, London Plan 2015. Consolidated with Alterations since 2011, Policy 5.2(E) 217 Greater London Authority, 2015. Energy Planning: Greater London Authority guidance on preparing energy assessments, p10-11
existing housing stock, where significant cost-effective carbon savings can be found.218 This approach is supported by the National Planning Policy Framework (NPPF).219
6.1.11 The proposed Minor Alterations to the London Plan will update the policy targets to take account of the 2013 Building Regulations, whilst clarifying the implementation of targets in the context of the Housing Standards Review and the Government’s zero carbon policies.