The purpose of the planning system is to contribute to the achievement of sustainable development ...
... To achieve sustainable development, economic, social and environmental gains should be sought jointly and simultaneously through the planning system ...
... Good design is a key aspect of sustainable development, is indivisible from good planning, and should contribute positively to making places better for people ...
... Local planning authorities should adopt proactive strategies to mitigate and adapt to climate change, taking full account of flood risk, coastal change and water supply and demand considerations ...
National Planning Policy Framework, Department for Communities and Local Government, March 2012
Good Practice Guidance:
Sustainable Design and Construction
Upton, an exemplar development with houses built to high levels
of sustainability. The buildings pictured were designed by Gale & Snowden
Architects Ltd, who also acted as ecological design consultants for the site.
http://www.ecodesign.co.uk
Cross Sector Group on Sustainable Design and ConstructionAugust 2012
Introduction 03
Background 04
The role of planning, and its relation to Building Regulations 05
Formulating planning policies on sustainable design and construction 06
Justifying local requirements: evidence and viability 06
Examples of local plan policies 07
Development management 08
Annex 1–Examplepoliciesonsustainabledesignandconstruction(includingrelevantextractsfromInspectors’reports) 09
Annex 2–Exampleconditionsonsustainabledesignandconstruction 14
Annex 3–Comparisonofsustainableconstructionstandards 14
Annex 4–Organisationscontributingtoandsupportingthisguidance 15
Contents
Images from top:
The Green, the University of Bradford’s BREEAM Outstanding sustainable student village http://www.breeam.org/page.jsp?id=465
BREEAM Outstanding Houghton Primary Care Centre http://www.breeam.org/page.jsp?id=437
BRE’s Innovation Park provides a series of exemplar sustainable housing developments and a showcase for innovative and sustainable products http://www.bre.co.uk/innovationpark
Good Practice Guidance: Sustainable Design and Construction 03
1 TheLandscapeInstitutehasalsopublishedrecent guidanceongreeninfrastructure.
climate change http://www.tcpa.org.uk/data/files/PCC_Guide_April_2012.pdf
green infrastructure and biodiversity http://www.tcpa.org.uk/data/files/TCPA_TWT_GI-Biodiversity-Guide.pdf
recent guidance http://www.landscapeinstitute.org/policy/GreenInfrastructure.php
1 ThisguidancehasbeenproducedforusebylocalplanningauthoritiesinEngland,togetherwithlandowners,developers,businesses,townandparishcouncils,communitygroupsandothers.
2 Itsaimistoassistplan-makinganddevelopmentmanagementinsupportoflocalplanningauthorities’statutorydutytocontributetotheachievementofsustainabledevelopment,ofwhichsustainabledesignandconstructionisanintegralpart.
3 Whiletheguidanceisnotastatutorydocument,itneverthelesshasconsiderablesupportandcanbeexpectedtobeaccordedappropriateweightinbothplan-makinganddevelopmentmanagement.TheapproachessetoutintheguidancehavebeendesignedtosupportthepolicyintheNationalPlanningPolicyFramework(NPPF)andotherrelevantgovernmentstatutesandguidance.
4 Theguidancecannotcoverallplanningpolicyissuesthathaveabearingonsustainabledesignandconstruction.Someofthismaterial,includingfloodrisk,isdealtwithintheTechnicalGuidancetotheNationalPlanningPolicyFramework.Therelatedcross-sectorguidesonclimate changeandgreen infrastructure and biodiversity1providemoredetailonplanningpoliciesandimplementationinrelationtothoseissues.
5 TheguidancehasbeendevelopedfollowinganindependentlychairedeventheldatBREWatfordinDecember2011attendedbyrepresentativesofarangeofdeveloper,environmental,government,communityandprofessionalinterests.TherewasaconsensusthattherewasaneedforgoodpracticeguidanceonsustainabledesignandconstructiontounderpintheNPPF,notleasttoavoidaproliferationoflocalsustainabilitystandardsandassessmentmethodsthatcouldconfuseusersoftheplanningsystem.
6 Theguidancehasbeenproducedbycollaborativeworkingbetweenthepartiesinvolved,andissupportedbytheorganisationslistedattheend.
Introduction
Good Practice Guidance:Sustainable Design and Construction
04 Good Practice Guidance: Sustainable Design and Construction
2 (http://www.decc.gov.uk/en/content/cms/news/aes_2011/aes_2011.aspx)3 (http://www.communities.gov.uk/documents/planningandbuilding/pdf/1972728.pdf)
7 TheNPPFstatesthat“Thepurposeoftheplanningsystemistocontributetosustainabledevelopment”.Sustainabledevelopmentiskeytotacklingthelinkedchallengesofclimatechange,resourceuse,economicprosperityandsocialwell-being,andcannotbeachievedwithoutsustainablebuildings.Thisnoteprovidesguidanceonhowtheplanningsystemcanencouragesustainabledesignandconstructionaspartofthis.
8 Thenotecomplements“Planning for climate change”publishedbythePlanningandClimateChangeCoalitioninApril2012.TheClimateChangeAct2008containsastatutorytargetofsecuringareductionincarbondioxidelevelsof80%below1990levelsby2050,withaninterimtargetof34%reductionby2020.In2011theDepartmentofEnergyandClimateChangeandLocalGovernmentAssociationsignedamemorandumofunderstanding,outliningtheirsharedcommitmenttohelpingtosecurethisreduction.
9 Halfofallofthecountry’scarbonemissionscomefromtheenergyusedinconstructing,occupyingandoperatingbuildings.Ahighstandardofconstructionisthereforevitaltoachievingthesestatutorytargets.
10 Sustainabledesignandconstructionisconcernedwithimplementingsustainabledevelopmentatthescaleofindividualsitesandbuildings.Ittakesaccountoftheresourcesusedinconstruction,andoftheenvironmental,socialandeconomicimpactsoftheconstructionprocessitselfandofhowbuildingsaredesignedandused.Thus,whileconsiderationofenergyandcarbonimpactsisanimportantelement,sustainabledesignandconstructiongoeswiderthanthis.Insummary,itseeksto:minimisetheuseofresources(includingenergyandwater);ensurethatthebuiltenvironmentmitigatesandisresilienttotheimpactofclimatechange;protectandenhancebiodiversityandgreeninfrastructure;providebuildingsandspacesthatarepleasantandhealthyforoccupiersandusers;ensurethesustainablesourcingofmaterials;andminimisewaste.
11 SustainabledesignandconstructionisofmajorimportancetotheUKeconomy.TheGovernmenthasstatedthattheGreen Dealwilltrigger£14billionofinvestmentto2022andsupportatleast65,000insulationandconstructionjobsby20152.TheexportpotentialofthesectorisdemonstratedbythefactthatUKcompaniesareheavilyinvolvedinhelpingrapidlygrowingeconomiessuchasChinaandBrazilwiththedevelopmentofinnovationparksandsustainableconstructiontechnologies.
12 StudiescommissionedbyCLG3indicatethatassustainableconstructionbecomesmorewidelyadoptedthesupplychainrespondsandcostsaredrivendown.
13 TheNationalPlanningPolicyFrameworkseekstopromotetheroleoftheplanningsysteminachievingsustainabledevelopment. Akeyelementofthisisthepreparationoflocalplanswhichensurethatdevelopmentislocatedinthemostsustainablelocations,takingaccountofissuessuchasminimisingtheneedtotravelandaccesstopublictransport,watersupply,andfloodrisk.Oncethelocationhasbeenchosen,achievingsustainabledevelopmentrequiresmasterplanningtobecarriedoutinsuchawayastomakebestuseofasite’scharacteristicsandtopography.
14 Masterplanningshouldalsobeundertakeninsuchawayastooptimisethesustainabilityofadevelopmentasawhole,takingaccountofwiderinfrastructureandotherissues.
15 Developersandplannersshouldbeawareofthedifferencesintheembodiedimpactsandthewholelifecostofbuildingmaterials.Thisshouldbeoneofthefactorstakenintoaccountbydeveloperswhendecidingbetweendifferentapproachestodevelopment,andindeedbetweenrefurbishmentandredevelopment.
16 Whilesustainabledesignandconstructionofnewbuildingscannotmakedevelopmentacceptableonlandinanunsustainablelocation,theyrepresentoneelementofmakingsettlementsmoresustainable.Thecontentsofthisguidancecovertheencouragementofhighstandardsofsiteandbuildingdesignandsustainableconstructionpractice,afterdevelopmentlandhasbeenallocatedthroughthelocalplanprocess.AstheNPPFnotes,“securinghighqualityandinclusivedesigngoesbeyondaestheticconsiderations”.Subjecttocertainprovisos,itstatesthatlocalplanningauthorities“shouldnotrefuseplanningpermissionforbuildingsorinfrastructurewhichpromotehighlevelsofsustainability”.
17 TheGovernmentisseekingtoencourageownersofexistingbuildingstomakethemmoreenergyefficientthroughprogrammessuchastheGreenDeal.ItalsorecognisestheimportanceofsustainableconstructioninitsHousing Strategy,whichacknowledgestherolethattheCode for Sustainable Homescanplay.ThestrategyemphasisestheGovernment’scommitmenttoimprovingthedesignandsustainabilityofhousinginwayswhichgivecommunitiesasay.Thisguidanceaimstohelpimplementthiscommitment.
Background
Planning for climate change http://www.tcpa.org.uk/data/files/PCC_Guide_April_2012.pdfGreen Deal http://www.decc.gov.uk/en/content/cms/tackling/green_deal/green_deal.aspxHousing Strategy http://www.communities.gov.uk/documents/housing/pdf/2033676.pdfCode for Sustainable Homes http://www.communities.gov.uk/planningandbuilding/sustainability/codesustainablehomes/
Good Practice Guidance: Sustainable Design and Construction 05
4 BREEAMisthemostfrequentlyusedassessmentandcertificationschemefornon-residentialnewbuildingsinEngland,andisalsowidelyusedinternationally.OtherassessmentschemesforbuildingsincludeSKA,theUS-basedLEEDandAustralianGreenStar.CEEQUALisanassessmentmethodologyforcivilengineeringprojects.Furtherdetailsoftheseschemesaregiveninannex3.
18 Localandneighbourhoodplanssetthecontextfornewdevelopment.Theycontainpolicieswhichoutlinethelocalplanningauthority’sobjectivesforitsarea,themainlocationsfordevelopmentandthekeycriteriaagainstwhichdevelopmentproposalswillbeconsidered.
19 Planninghasanimportantroleinencouragingandfacilitatingbuildingsthatmeethighstandardsofsustainability,insupportofitsstatutoryobjectivetocontributetotheachievementofsustainabledevelopment.TheNPPFstatesthatlocalplanningauthoritiesshouldplanfornewdevelopmentinlocationsandwayswhichreducegreenhousegasemissionsandactivelysupportenergyefficiencyimprovementstoexistingbuildings.
20 TheBuildingRegulationssetminimumstandardsinrelationtoanumberofsustainabilityissues,suchasenergyefficiencyandwaterconsumption,aswellasmatterssuchasstructuralsoundness.Forhousing,theGovernmenthasadoptedtheCodeforSustainableHomesasawayofsignpostingthelong-termdirectionoftravelonsustainabledesignandconstruction.TheGovernment-ownedCodeencouragesavoluntaryprogressionbeyondminimumstandardsanddrivesinnovationandchangeintheconstructionindustry.Therearesimilarwidelyusedprivatesectorassessmentmethodsfornon-domesticbuildings4.Itisworthnotingthatsomestandardsprovidefixedratingsthatdonotchangesignificantlyovertime,whileothersareroutinelyupdated.Thiscanbeimportantwhendecidingwhatleveltospecifyinplanningpolicy.Seeannex3formoredetails.
21 Technology,materialsandtheBuildingRegulationsregimewillcontinuetoevolveinthefuture.Therewillbesituationswhereitcouldbeappropriateforlocalplanningauthoritiestoanticipatelevelsofbuildingsustainabilityinadvanceofthosesetoutnationally.Thesecouldinclude,forexample,where:
n thereareclearopportunitiesforsignificantuseof decentralisedandrenewableorlow-carbonenergyor aneedtosafeguardtheirpotentialfutureuse;or
n localcircumstances,suchashighwaterstress,mean thatdevelopmentwithouthighstandardswouldbe unacceptableforitsproposedlocation;or
n localevidenceshowsthattheimpactsofclimate changewillrequireadaptivemeasuresinsome buildingsandhomes.
22 ItisimportanttorecognisethatstandardssuchastheCodeforSustainableHomes,whiletakingaccountoftheBuildingRegulations,coverasignificantlywiderrangeofsustainabilityissuesthaniscoveredbyregulation.PartsGandLoftheBuildingRegulationsaddresswaterefficiencyandenergyuserespectively.TheCodeforSustainableHomesincorporatesthese,andinadditionaddressesotherimportantsustainabilityissuessuchasmaterials,waste,healthandwell-being,ecology,andmanagementofboththeconstructionprocessandthecompletedbuilding.
The role of planning, and its relation to Building Regulations
06 Good Practice Guidance: Sustainable Design and Construction
23 Whenproposinganylocalrequirementsforsustainablebuildingsplanningauthoritiesmustbeabletodemonstratewithclearrobustevidencethecircumstancesthatwarrantthis,focussingonlocalorsite-specificopportunitiesandconstraints.TheyshouldspecifytherequirementinawayconsistentwiththeGovernment’szerocarbonbuildingspolicyandadoptnationallydescribedstandards.
24 SchemessuchastheCodearedesignedsothattheycanbeappliedasappropriatetolocalcircumstances,whileatthesametimeprovidingaconsistentandwidelyunderstoodnationalframework.
25 AsignificantadvantageofusingtheCodeandsimilarschemesisthattheyinvolveindependentassessmentandaccreditation,overseenbytheUKAccreditationService.Forlocalplanningauthoritiesthismeansthattheydonotneedtoemployexpertstafftoassessadevelopment’scredentials,butareabletorelyonatrainedandlicensedindependentassessor.Atthesametime,developersandlocalcommunitiescanhaveconfidencethatadevelopmentisfairlyassessedagainstobjectivecriteria.
26 PoliciesonsustainabledesignandconstructionshouldbesetoutinadevelopmentplandocumenttoensurefullconsultationwiththelocalcommunityandotherstakeholdersandexaminationbythePlanningInspectorate.Suchpoliciesshouldfocusonlocalopportunitiesandconstraintswhilstavoidingtherepetitionofnationallyavailableinformation.
27 Sustainabledesignandconstructionhaveanimportantroletoplayinhelpingtoavoidincreasedvulnerabilitytotherangeofimpactsarisingfromclimatechangeandtomanagerisksthroughadaptation.TheEnvironmentAgency’s‘Climate Ready’programmewillbedevelopingtoolsandresourcesforthebuiltenvironment.
28 Tojustifylocalrequirementslocalplanningauthoritiesshouldbasethemonevidencethatisspecifictotheareatowhichtheyapply.Planningauthoritiesshouldalsobeabletodemonstratethattherequirementswouldnothaveanunreasonableadverseimpactondevelopmentviabilitywhenconsideredalongsideallotherrequirementsandthattheissueisnotalreadysatisfactorilydealtwithbyexistingstandards.Forexample,futurechangestoPartLoftheBuildingRegulationsmaymakeitunnecessarytoapplya“MertonRule”requirementforapercentageofenergydemandtobemetfromon-siterenewables.
29 Localplanningauthoritieswishingtoincorporatesustainableconstructionpolicieswithintheirlocalplansshouldprovideevidencefortheapproachwhichtheypropose.Forexample,largeurbanareas,particularlyinsouthernEngland,maywishtoplacemoreemphasisonensuringthatdevelopmentiswell-adaptedtocopewiththe“heatisland”effectthanpredominantlyruralauthorities.Similarly,authoritiesinareasofwaterstressmaywishtostipulatemoreexactingstandardsforwaterusethanthosewheresupplyisrelativelyplentiful.
30 Incasessuchasthis,localplanningauthoritiesshouldprovideevidencetosupporttheirpolicyapproach,inlinewithparagraph158oftheNPPF.Suchevidenceneednotbecomplex,andshouldwhereverpossibledrawonreadilyavailablesources.
Formulating planning policies on sustainable design and construction
Justifying local requirements: evidence and viability
Climate Ready http://www.environment-agency.gov.uk/research/137557.aspx
Good Practice Guidance: Sustainable Design and Construction 07
31 Policyrequirementsonsustainableconstructionshouldbeproportionatetothetypeofdevelopmentandshouldnotunreasonablythreatentheviabilityofdevelopmentwhichotherwiseaccordswithlocalplanpolicy.Inparticular,flexibilitymaybenecessaryonrefurbishmentprojectswhereitmaynotbepossibletomeetthesameperformancelevelsasnewbuildpolicyrequirements.
32 Planningauthoritiesshouldensurethatwhatisproposedisviable,havingregardtotheneedtocontinuetoimprovestandards,theoverallcostsofbringingsitestothemarket(includingthecostsofanynecessarysupportinginfrastructure)andtheneedtoavoidanyadverseimpactonthedevelopmentneedsofcommunities.Developmentproposalsshouldprovidecompetitivereturnstodevelopersandlandowners.Proposalsshouldnotresultinrequirementsforpublicservicesorinfrastructurewhichareunaffordable,orareotherwiseunsustainableinthelongterm,forexamplebecausetheyarenotresilienttoclimatechange.
33 Atthesametime,authoritiesshouldrecognisethatdevelopmentviabilitycanvarysubstantiallybothovertimeandfromoneschemetoanother.OneoftheimportantaimsofschemessuchastheCodeforSustainableHomesistodrivechangeinthesupplychainandtherebytoreducecosts.Forexample,CLG researchindicatesthatinthethreeyearstoAugust2011theextracostsofbuildingtoCodelevel3fellbyapproximatelythreequarters.
34 Localplansshouldhighlighttheadvantagesofconsideringsustainabilityissuesasearlyaspossibleinthedevelopmentprocess.Thiscanhelptoachievemoresustainableoutcomesandtoreduceoverallcosts.
35 Inconsideringthecarboncompliance(on-sitecarbontargetforbuildings),localplanningauthoritiesshouldtakeaccountofcurrentGovernmentpolicyonachievingzerocarbonperformance. Fornewhousingthedevelopingpolicyseekstoestablishrealisticlimitsforcarboncompliance,andallowsforthefullzerocarbonstandardtobeachievedthroughtheuseof“allowablesolutions”-envisagedasmainlynear-siteoroff-sitecarbon-savingprojectswhichcompensateforcarbonemissionsreductionsthataredifficulttoachieveonsite.TheZero Carbon Hubhasproposedadeliveryframeworkforallowablesolutions. TheGovernmenthasyettomakeadetailedpolicyannouncementonthedeliverystructureandscopeofallowablesolutions. Somelocalauthoritiesarealreadyexploringtheuseofcarbonoff-setfundsandcommunityenergyfundsasawayofdeliveringtheconceptofallowablesolutionsintheirareas.Forhousing,zerocarbonrequirements(carboncompliancecoupledwithallowablesolutions)willbedrivenintomainstreamnewhomesbyBuildingRegulations(ApprovedDocumentL1A,2016). Asimilarmechanismisexpectedtobedevelopedfornon-domesticbuildingsandintroducedin2019.
36 SomeadviceontestingtheviabilityoflocalplansiscontainedintheJune2012report of the Local Housing Delivery GroupandtheAugust2012guidance from the Royal Institution of Chartered Surveyors.
37 Thisguidanceemphasisestheimportanceofspecificlocalevidenceandassessmentindevelopinglocalplanpolicies.Forthisreason,itdoesnotseektopromotemodelpolicies,aswhatisapplicableinonepartofthecountrymaybeinappropriateinanother.
38 However,localplanningauthoritiesmayfindithelpfultoconsiderexperienceelsewherewhendevelopingtheirownpolicies,providedtheyrecognisethatthisisnotasubstituteforlocalevidence.Annex1containsexamplesofsuchpolicies.
39 Therearefurtherdetails,includingexamplesofadoptedlocalplanpoliciesonsustainabledesignandconstruction,thetypeofevidencerequiredtosubstantiaterequiringparticularlevelsofconformity,andexperienceoftestingtheseatexamination,ontheBREEAM website.
40 FurtherdetailsoftheCodeforSustainableHomescanbefoundintheTechnical Guide 2010.
Examples of local plan policies
CLG research http://www.communities.gov.uk/documents/planningandbuilding/pdf/1972728.pdfZero Carbon Hub http://www.zerocarbonhub.orgReport of the Local Housing Delivery Group http://www.nhbc.co.uk/NewsandComment/Documents/filedownload,47339,en.pdfGuidance from the Royal Institution of Chartered Surveyors http://www.rics.org/site/download_feed.aspx?fileID=12271&fileExtension=PDFBREEAM website http://www.breeam.org/page.jsp?id=268Technical Guide 2010 http://www.planningportal.gov.uk/uploads/code_for_sustainable_homes_techguide.pdf
41 Oncepoliciesonissuessuchassustainablebuildingstandardsordecentralisedenergysupplyhavebeenadoptedwithinalocalplanorneighbourhoodplan,developmentwillbeexpectedtocomplywiththepolicies,inaccordancewiththeprincipleoftheplan-ledsystem.Ifadeveloperconsidersthattherearereasonswhyonaparticularsitesuchpoliciesshouldnotbecompliedwith,forexampleduetoexceptionalcostsofsitereclamation,itwouldbeforthedevelopertomakethecase.
42 Discussionandconsiderationofsustainabledesignandconstructionissuesshouldtakeplaceattheearliestpossiblestageinthedevelopmentprocess.Thiswillprovidethegreatestopportunitiesforawell-designedandconstructeddevelopmentandatthesametimeenablecoststobeminimised.Thereisevidencethathighlysustainablebuildingscanbeproducedatlittleornoadditionalcost5,providedsustainabilityisdesignedinfromtheoutset.
43 Localplanningauthoritiesanddevelopersshouldthereforeconsidersustainableconstructionissuesinpre-applicationdiscussions.Whereasustainableconstructionassessmentofaproposeddevelopmentwillberequired,developersareadvisedtoengageanassessorattheearliestpossiblestageasthisislikelytoprovidethebestbalancebetweenmaximisingthesustainabilitypotentialofthedevelopmentandminimisingcosts.Theachievementofmeetingthenecessarypolicyrequirementsshouldbecapturedwithinasustainabilitystatement,whichcanformpartofthedesignandaccessstatement.Theneedforsuchastatementshouldbediscussedatthepre-applicationstage.
44 Planningconditionsshouldnormallyberelatedtoidentifiablestagesintheassessmentprocess.Forexample,thePlanningInspectoraterecommendaconditionwhichpreventsoccupationofdwellingsbuilttoaspecifiedleveloftheCodeforSustainableHomesuntilapost-constructioncertificatehasbeenprovidedtothelocalplanningauthority(seeAnnex2).Inallcaseslocalplanningauthoritiesshouldsatisfythemselvesthatanyconditionisappropriatetotheparticularcircumstancesoftheproposeddevelopmentandlocalarea,andmaychoosetoapplydevelopmentmanagementprinciplesflexiblytofacilitateratherthanfrustratedesirabledevelopment.Conditionsshouldalsocomplywiththelong-establishedteststhattheyshouldbenecessary;relevanttoplanning;relevanttothedevelopmenttobepermitted;enforceable;precise;andreasonableinallotherrespects.TheBREEAM websitecontainsexamplesbothofconditionsandofappealdecisionsrelatingtosustainabledesignandconstruction.
08 Good Practice Guidance: Sustainable Design and Construction
Development management
5 http://www.bre.co.uk/page.jsp?id=1809
BREEAM website http://www.breeam.org/page.jsp?id=268
Annex 1 Example Policies on Sustainable Design and Construction (including relevant extracts from Inspectors’ reports)
Good Practice Guidance: Sustainable Design and Construction 09
The examples in this annex are of local plan policies that have been adopted, together with relevant extracts from the inspector’s/examiner’s report. They should not be viewed as model policies, as what is appropriate in any given area will depend on local circumstances and evidence. However, they may be useful as examples of policy approaches that have been judged sound.
Residential Development
Newresidentialdevelopmentwillmeetthefollowingminimumstandardsofconstruction:
n Minordevelopment-CodeforSustainableHomesLevel3
n Majordevelopment-CodeforSustainableHomesLevel4
n From2013:Alldevelopment-CodeforSustainableHomesLevel4
n From2016:Alldevelopment-CodeforSustainableHomesLevel6
Non-Residential Development
Newnon-residentialdevelopmentwillmeetthefollowingminimumstandardsofconstruction:
n Minordevelopment-BREEAMVeryGood
n Majordevelopment-BREEAMExcellent
n From2013:Alldevelopment-BREEAMExcellent
Renewable energy
MajordevelopmentshallachievethefollowingminimumreductionsintotalCO2emissions(regulatedandunregulatedenergyuse)fromrenewableenergyorlow/zerocarbonenergygenerationonsiteorinthelocalityofthedevelopmentaslongasadirectphysicalconnectionisused,unlessitcanbedemonstratedthatsuchprovisionisnottechnicallyoreconomicallyviable.
ThepercentagereductionsinCO2emissionsshouldbebasedontheestimatedCO2emissionsofthedevelopmentaftertheinstallationofenergyefficiencymeasuresrelatedtoeithertheCodeforSustainableHomes,BREEAMorequivalentmethodhasbeenapplied.
Residential Development:
n A10%reductioninCO2emissions;
n from2014:A20%reductioninCO2emissions;
n from2016:ZeroCarbon
Non-Residential Development:
n A10%reductioninCO2emissions;
n from2014:A20%reductioninCO2emissions;
n from2019:ZeroCarbon
The following example from West Berkshire Council illustrates a policy on sustainable design and construction which has been examined and adopted following the publication of the NPPF (Core Strategy adopted 16 July 2012)
Policy CS 15 - Sustainable Construction and Energy Efficiency
131 Policy CS16 Sustainable Construction and Energy Efficiency.FollowingthehearingsinNovember2010,IrequestedthattheCouncilconsultonachangetothispolicytodeletetherequirementsrelatingtotheCodeforSustainableHomes(CfSH)andBREEAM.ThiswasbecauseIwasnotsatisfiedthattheserequirementswerejustifiedinrelationtothennationalpolicyintheSupplementtoPPS1(December2007)particularlyparagraphs30-32.ThatSupplementhasbeenreplacedbytheNPPF.
132TheNPPFrequires(paragraphs94-95)localauthoritiestoadoptproactivestrategiestomitigateandadapttoclimatechange.Whensettinganylocalrequirementsforabuilding’ssustainabilitytheyshouldtodosoinawayconsistentwiththeGovernment’szerocarbonpolicyandtoadoptnationalstandards.TheparticulartestsforthejustificationofsuchlocalstandardspreviouslyintheSupplementhavebeendropped.TheNPPFdoeshoweverrequire(paragraph21)investmentnottobeoverburdenedbythecombinedrequirementsofplanningpolicyexpectations.
133TherequirementsinCS16refertonationallydescribedstandardsconsistentwiththeGovernment’szerocarbonpolicy.Thereisanadditionaladministrativecostburdeninprovidingthesupportingevidenceatapplicationstageandsubsequentlydemonstratingcompliancewithsuchapolicy.TheenergyefficiencylevelsrequiredbytheCodearecurrentlyplannedtobeachievedbyfurthertighteningoftheBuildingRegulationsto2016.MeetingtheseenergylevelsrepresentsthemostsignificantaspectsofmeetingtheCodeinconstructionterms.AstheCouncilisnotproposinganyaccelerationofthiselementcomparedwithwhatislikelytoberequiredundertheBuildingRegulations,theadditionalcostburdenoftheCouncil’spolicyisunlikelytobesubstantial.
134TheEnvironmentAgencyexpressedstrongsupportforthepolicybecauseoftheneedtolimitdomesticwateruseinthisareaofwaterstress.Codelevels3-4introducetighterwaterrestrictionsthancurrentlyrequiredbytheBuildingRegulations.Onbalance,inthelightofthechangednationalguidance,CS16issoundassubmitted.
Inspector’s report to West Berkshire Council on Core Strategy 3 July 2012 - extract
10 Good Practice Guidance: Sustainable Design and Construction
Alldevelopmentproposalswilldemonstratehowtheywillincorporatesustainableconstructionstandardsandtechniques.
Unlessitcanbedemonstratedthatitwouldnotbetechnicallyfeasibleorfinanciallyviable,applicationswilldemonstratethattheywillbecompletedinaccordancewith:
Fornewdwellings,fullCodeforSustainableHomesstandardsortheequivalentof::
n AtleastCodeLevel3fromtheadoptionofthePlan;and
n AtleastCodeLevel4oncefurtherupdatestoPartLofBuildingRegulationshavecomeintoeffect(currentlyscheduledfor2013).
Forothermajordevelopments,BREEAM‘VeryGood’standard(oranyfuturenationalequivalent).
Evidence Base
NorthHantsRenewableEnergyandLowCarbonDevelopmentStudy2010
BlackwaterValleyWaterCycleScopingReport(2011)
The following example from Rushmoor Borough Council shows how evidence was used to justify a borough-wide policy for sustainable construction using the Code for Sustainable Homes and BREEAM.
Rushmoor Borough Council Core Strategy – Adopted October 2011
Policy CS - CP3 - Renewable Energy and Sustainable Construction
Inspector’s report (extract) 20 September 2011
Pursuing sustainable construction methods and low carbon energy sources
Good Practice Guidance: Sustainable Design and Construction 11
59 Theboroughispronetowaterstresswhichislikelytobeadverselyaffectedbyclimatechange.Theborough’sindustrialandcommercialusesgeneratehighemissionsofCO2relativetotherestofHampshireandtheSouthEast.Thissectoralsoproducesarelativelyhighproportionoftheborough’sCO2emissionsasawhole,albeitthisfactormayreflecttherelativelyhighconcentrationoftheborough’semploymentbase.Therenewableenergyandlowcarbondevelopmentstudyidentifiesthemeritofpromotingenergyefficiency,especiallyrelativetoneighbouringHampshirelocalauthorities.Thedevelopmentofapolicythatpromotessustainableconstructionmethodsand adistrictCHPnetworktoaddresstheforegoingchallengesisthereforeconsistentwithnationalpolicy,includingthesupplementtoPPS1onclimatechange,andRSpoliciestoo(CC3,CC4andNRM13).
60SomesubmissionsseektodilutetherequirementforCSHcomplianceand/orproposingalternativestoaBREEAMrating,includingrelianceonEnergyPerformanceCertificatesonly,orseekastricterprescriptionthanBREEAMespeciallyintheareaofwatermanagement.Asastartingpoint,theBREEAMratingapproachismoreappropriateasitaddressesanumberofclimatechangeindicatorsidentifiedintheCouncil’sevidencebase.
61 Atthesametime,thepolicyappropriatelyindicatesthatthevariousCSHandBREEAMratingssoughtarenotnecessaryifthisrequirementisnottechnicallyfeasibleorwouldmakeaprojectfinanciallyunviable.TheCouncil’sapproachissuitablypragmaticsoitisnotnecessarytoamendit.PCPE18oidentifiesarangeofallowablesolutionstoachievezerocarbondevelopmentand,onthisbasis,thepolicyisnotunreasonablyprescriptive.
Sustainable Construction and Reducing Carbon Emissions in New Development
TheCouncilwillencouragetheuseofsustainableconstructiontechniquesthatpromotethereuseandrecyclingofbuildingmaterials,maximiseopportunitiesfortherecyclingandcompostingofwasteonallnewdevelopmentproposals(residentialandnon-residential)andreduceCO2emissions.
ResidentialdevelopmentwillbeexpectedtomeettheCodeforSustainableHomesLevel3from2010,Level4from2013andLevel6from2016(orsuccessor)assetoutinTable 5.1below,unlessitcanbedemonstratedthatthisisnotviable.
Non-domesticdevelopmentwillbeexpectedtoachieveaBREEAMratingof‘VeryGood’andthezerocarbonfornondomesticbuildings(ZCNDB)targets(orsuccessor)assetoutinTable5.1below,unlessitcanbedemonstratedthatthisisnotviable.
Table 5.1: Domestic and Non-Domestic CO2 Reduction Targets
Sedgemoor’s policy for sustainable construction shows how higher levels of the Code for Sustainable Homes can be expected as national policy draws nearer to implementing Zero Carbon Homes.
Sedgemoor District Council - Adopted October 2011
Domestic Buildings Non Domestic Buildings
Year Code Level CO2 reduction Code Level CO2 reduction
2006 Buildingregs.2006 0% Buildingregs.2006 0%
2010 CfSHLevel3 15% ZCNDB 15%
2013 CfSHLevel4 26% ZCNDB 26%
2016 CfSHLevel6 100% ZCNDB 50%
2019 ZCNDB 100%
12 Good Practice Guidance: Sustainable Design and Construction
Site Development DPDPolicy DM5 - Sustainable Design and ConstructionTheCouncilwillpromotethehigheststandardsofsustainabledesignandconstructionthroughouttheboroughby:
n RequiringallnewresidentialdevelopmentstoachieveCodeforSustainableHomeslevel4from2011
n Requiringallresidentialconversionsandchangesofuse,whereappropriate,toachieveBREEAMEco-Homes(orequivalent)‘verygood’from2011and‘excellent’from2014
n RequiringallmajornonresidentialdevelopmentstoachieveasustainabilityratingundertheappropriateBREEAMscheme(orequivalent)of‘excellent’from2011and‘outstanding’from2017;
The London Borough of Sutton used a range of evidence, including on the viability of requiring higher levels of sustainable construction, to support their policy. Residential conversions and changes of use are also required to achieve high standards, reflecting the impact of existing buildings on the UK’s carbon footprint.
London Borough of Sutton – Development Management Development Plan Document (DPD) (adopted March 2012)
36 Theseissuesarecoveredby4policiesdealingwithSustainableDesign&Construction(DM5),ClimateChangeMitigation(DM6),ClimateChangeAdaptation(DM8)andWaterSupplyandWaterQuality(DM9).ThepoliciesarecomprehensiveandfocusedonsecuringakeyobjectiveoftheCStocreateasustainablesuburbby2024.PolicyDM5seekstopromotethehigheststandardsofsustainabledesignrequiringnewresidentialdevelopmenttoachieveLevel4oftheCodeforSustainableHomesandforallmajornonresidentialdevelopmentstoachieveaBREEAMsustainabilityratingof“excellent”by2011.ThisisinlinewiththetargetsforminimumimprovementssetoutinPolicy5.2ofthereplacementLPandtheCS’sobjectivetocreateasustainablesuburbby2024.TheCouncil’sevidencebaseshowsthesestandardsaredeliverableandwouldnotimposeexcessivebuildingcostsondevelopersthatwouldimpactontheviabilityofschemescomingforwardovertheperiodoftheplan.WhereviabilitywouldbeanissuethereisprovisionfortheCounciltotakethisintoaccountinconsideringapplications.
37 Thepolicydealingwithclimatechangemitigation(DM6)setsstandardsaimingata25%reductionincarbonemissionsfrom2011-2013and40%from2013-2016andzeroemissionsthereafter.ThisisinlinewiththeReplacementLP.InseekingtosecurethesetargetsdevelopmentsareexpectedtoapplytheMayor’senergyhierarchy.Applicationsforresidentialdevelopmentandmajornon-residentialdevelopmentswillbeaccompaniedbyenergyassessments.Againthereisflexibilityinapplyingthepolicywheretechnicaldifficultiesareapparentoreconomicviabilityisanissue.
38 TheCouncilproposeschangestoPolicyDM10(AirQuality)anditssupportingtexttobringitintolinewithPPS23(Planning&PollutionControl),theReplacementLPandotherrecentadviceonpollutioncontrol5.ThechangesaresetoutinCC PMC3, CC PMC4 and CC PMC5,whichIendorse.
39 Theplan’sclimatechangemeasuresareinlinewiththeCouncil’sClimateChangeAdaptationStrategy(CCAS)andtheMayor’sdraftCCASandtheReplacementLP.Themeasuresarecomprehensiveandfocused.ThetargetssetoutinthepoliciesareinlinewiththeCS’sobjectivestosecurethehigheststandardsofsustainabledesignandcarbonreduction.Thepoliciesasproposedforchangearesound.
Inspector’s report (extract) 3 November 2011
Issue 3 – Whether policies are effective in addressing climate change and resource management.
Good Practice Guidance: Sustainable Design and Construction 13
Waveney District Council’s AAP for Lowestoft Lake Lothing and Outer Harbour shows how higher requirements for the specific sections of BREEAM and the Code can be used where supported by the local evidence base.
Waveney District Council Lowestoft Lake Lothing and Outer Harbour AAP – Adopted January 2012
Withinthemainstrategicsites(KirkleyWaterfront/SustainableUrbanNeighbourhood/PetoSquare/PowerPark)developersmustdelivertheequivalentoftheenergyrequirementsofCodeforSustainableHomesLevel5(inresidentialbuildings)andBREEAMExcellent(inotherbuildings)unlessthesetechnologiescanbeproventechnicallyunsuitableorcommerciallyunviable.InvestigationsshouldbebasedonopportunitiesidentifiedintheRenewableEnergyandSustainableConstructionStudy.
Evidence Base
RenewableEnergyandSustainableConstructionStudy (AECOM,2009)
Policy WEW1 – Energy Requirements within the AAP Area (extract)
Policy WEW2 - Water efficiency and quality (extract)Developersmustexplorethepotentialtoimplementwaterrecyclingmeasuresonabuildingorsite-widescaletosignificantlyreducemainswaterdemandaspartofallnewdevelopmentwithintheAAP.
Withinthemainstrategicsites(KirkleyWaterfront/SustainableUrbanNeighbourhood/PetoSquare/PowerPark)developersmustdeliverinfrastructuretoreducemainswaterconsumptiontotheequivalentrequirementofCodeforSustainableHomesLevel5(inresidentialbuildings)andBREEAMexcellent(inotherbuildings)unlessthesestrategiescanbeproventechnicallyunsuitableorcommerciallyunviable.Investigationsshouldbebasedonopportunitiesidentifiedinthearea-wideWaterStrategyfortheAAP.
Evidence Base
WaterCycleStrategy-ScopingStudy (March2009)
Examiner’s report (extract) 1 November 2011
Justification of and Effectiveness of Enhanced Building and Development Standards
75 ThePlan’sprovisionsinrelationtoenhancedbuildinganddevelopmentstandardsrelatingtoenergywaterandwastearesetoutin:
-PolicyWEW1–‘Energy Requirements within the AAP Area’–whichrequiresdevelopersofthemainstrategicsitestodelivertheenergyrequirementsofresidentialbuildingstotheequivalentofCodeforSustainableHomes(CfSH)Level5andthoseofother(non-residential)buildingstotheBREEAMExcellentstandard.ThispolicyalsoencouragesdistrictheatingnetworkstoservedevelopmentsiteswithintheAAPareaandsubmissionofanenergystrategyanddeliveryplanalongsideanyplanningapplicationfordevelopmentintheAAParea.
-PolicyWEW2–‘Water Efficiency and Quality’–whichrequiresdeveloperstoexplorethepotentialforwaterrecyclingandmainswaterdemandreductionmeasuresonabuildingandsite-widescale,andwithinthemainstrategicsitestodeliverinfrastructuretoreducemains
waterconsumptiontotheequivalentofCfSHLevel5(inresidentialbuildings)andBREEAMExcellent(inotherbuildings)...
Thejustificationforthesepoliciesissetoutinaspecificsectionofthesubmitteddraftplan(s3.7,p65).ThissectiondrawsontheresultsofspecificstudiesincludingthedetailedRenewableEnergyandSustainableConstructionStudy(RESCS)andtheWaveneyDCandGreatYarmouthBCJointWaterCycleStrategyreport.DuringtheexaminationtheneedsforwaterdemandmanagementandrecyclingmeasureswassupportedbytheEnvironmentAgency.ThePlan’sprovisionsinrelationtowasteareconsistentwithGovernmentpolicyPPS10andwithbestpracticeprinciplesinthemanagementofconstruction.Theapplicationofenhancedstandardstoarea-andsite-specificopportunitiesisconsistentwithGovernmentguidancesetoutinthePPS1Supplement:Planning and Climate Change.
14 Good Practice Guidance: Sustainable Design and Construction
Annex 2 Example conditions on Sustainable Design and ConstructionThe Planning Inspectorate suggests the following model condition in relation to the Code for Sustainable Homes
Thedwelling(s)shallachieveaCodeLevel[statelevel]inaccordancewiththerequirementsoftheCodeforSustainableHomes:TechnicalGuide(orsuchnationalmeasureofsustainabilityforhousedesignthatreplacesthatscheme). NodwellingshallbeoccupieduntilaFinalCodeCertificatehasbeenissuedforitcertifyingthatCodeLevelXhasbeenachieved.
GovernmentguidanceonconditionsistobefoundinCircular11/95andatparagraph206oftheNPPF.
Annex 3 Comparison of sustainable construction standardsItisworthnotingthatsomestandardsprovidefixedratingsthatdonotchangesignificantlyovertime,whileothersareroutinelyupdated.Thiscanbeimportantwhendecidingwhatleveltospecifyinplanningpolicy.
Standard Fixed rating
Updated rating Reference Description
Code for Sustainable Homes •
www.communities.gov.uk/planningandbuilding/sustainability/codesustainablehomes/
TheGovernment’senvironmentalassessmentmethodforratingandcertifyingtheperformanceofnewhomes.
HCA Design Quality Standards and Housing Quality Indicators
• www.homesandcommunities.co.uk/hqi
The HQIsystemisameasurementandassessmenttooltoevaluatehousingschemesonthebasisofqualityratherthanjustcost.
Lifetime Homes • www.lifetimehomes.org.uk/
Seekstoprovidedesignsolutionsingeneralneedshousingthatcanmeetthechangingneedsofawiderangeofhouseholds.
Building for Life •www.designcouncil.org.uk/our-work/cabe/sectors/housing/building-for-life/
Standardforwell-designedhomesandneighbourhoods.
Secured by Design • http:/www.securedbydesign.com
Policeinitiativetoguideandencouragethoseengagedwithinthespecification,designandbuildofnewhomestoadoptcrimepreventionmeasuresinnewdevelopment.
Energy/CO2/renewables target (‘Merton Rule’, etc)
•www.merton.gov.uk/environment/planning/planningpolicy/mertonrule/what_is_the_merton_rule.htm
TheMertonRulewasthefirstlocalplanningpolicytosetarequirementonrenewableenergyforcertaintypesofnewdevelopment.ItwasnamedaftertheLondonboroughthatestablisheditin2003.
Building Regulations • www.planningportal.gov.uk/buildingregulations/
BuildingRegulationsapplyinEngland&Walesandpromotestandardsformostaspectsofabuilding’sconstruction,energyefficiencyinbuildings,theneedsofallpeople,includingthosewithdisabilities,inaccessingandmovingaroundbuildings.
Good Practice Guidance: Sustainable Design and Construction 15
BREEAM • www.breeam.orgEnvironmentalassessmentmethodandratingsystemforbuildings.ItisthemostwidelyusedsuchstandardintheUK
CEEQUAL • www.ceequal.com
Sustainabilityassessmentandawardsschemeforcivilengineering,infrastructure,landscapingandthepublicrealm,
LEED • www.usgbc.orgEnvironmentalassessmentmethodandratingsystemforbuildings.ItisthemostwidelyusedstandardintheUS
SKA • www.rics.org/skaEnvironmentalassessmentmethod,benchmarkandstandardfornon-domesticfit-outs.
n Fixedratingsprovidelongtermlevelsandcategoriesthatdonotchangeovertime.Amendmentstothetechnicalcriteriawithintheselevelsandcategoriesmayoccurtoensuretheyareuptodate.Forexample,theCodeforSustainableHomeshasratingsfrom1to6,withassociatedscoringandmandatorylevelstomeeteachlevelcriteria.Theselevelsdonotchangeovertimeevenwhenthetechnicalcriteriaareupdated.
n Variableratingsareupdatedsystematicallyonaregularbasistoalignthestandardwithcurrentrequirements.Assuch,theratinglevelsandcategoriesmayalsochange.ForexampleBREEAMisupdatedevery2to3yearswithanincreaseinthescoringcriteriatomakeitmoredifficulttomaintainthestatusquofromthepreviousversion.
Annex 4 Organisations contributing to and supporting this guidance