good practice guidance: sustainable design and construction and planning/good_practice... · good...

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/


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


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


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.


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)


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


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


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%



2019 ZCNDB 100%


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.


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.


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.


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

CSH Level 6 Tindal Street by Speller Metcalfe architects http://www.spellermetcalfe.com/eco-build/services-experience/breeam-csh

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