Savills latest research, explores the different targets in place across the UK, and considers whether national ambition is translating to local action, while noting that ‘Wales could provide a useful model to follow’.
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… variations stems….from…national policy that includes climate mitigation goals, but does not provide a clear pathway or baseline standards…
‘…Most local plans do not acknowledge the extent of the challenge…’
Savills writes:
National Frameworks
Are the correct planning frameworks in place for development to appropriately respond to the climate emergency?
The Climate Change Act 2008, as well as mandating greenhouse gas reduction targets to be achieved by 2050, also established the Climate Change Committee (CCC) as an independent, statutory body to advise the UK and devolved governments on achieving those targets. Whilst the 2008 Act creates a consistent overall framework, the policy interventions that are in place vary both between and within the nations. There is little consistency in how the overarching UK target to achieve net carbon zero by 2050 is being interpreted and implemented within the nations.
This variation stems partly from the different national planning frameworks that are in place across Great Britain, and partly from national policy that includes climate mitigation goals, but does not provide a clear pathway or baseline standards to meet these goals. Across England, Scotland and Wales, there are differing legislative frameworks and targets. Scotland is legally committed to net zero by 2045, and England and Wales by 2050, but Wales has ambitions to reach this target sooner.
Climate Emergency
This is a climate emergency!
The first climate emergency was declared in Melbourne, Australia in 2016, and since then declarations have been made in over 33 countries across the world. By declaring an emergency, a governing body acknowledges that it needs to act on both the causes and impact of climate change. It is a political commitment, but also provides the foundation for a regulatory framework. In a planning context, it prompts consideration of the location of development, modes of transport, energy efficiency, and clean energy production.
The first British council to make a declaration was Bristol in 2018. As of April 2021, 224 local authorities across England have declared a climate emergency, representing 71% of the country’s total. In Wales the proportion is even higher, with 73% of local authorities declaring a climate emergency. For Scotland, the proportion is slightly lower, at 20 authorities accounting for 63%. In Wales, there are some unique legacy issues and challenges associated with the nation’s industrial base and its power generation infrastructure. Here, national commitments and local strategies recognise that the next 10 years will be critical – with the objective to achieve two thirds of the reductions required to achieve net zero by 2030.
“Many local authorities are aiming to be more effective than the targets set by their respective national governments. 50% of local authorities are aiming for their activities to be net zero carbon by 2030”
Hamish Simmie, Associate, Residential Research
Many local authorities are aiming to be more effective than the targets set by their respective national governments. 50% of local authorities are aiming for their activities to be net zero carbon by 2030. In some cases, such as Gateshead and Chichester, this includes a specific commitment to ensure that all strategic decisions, and approaches to planning decisions are in line with a shift to net zero carbon by 2030. In other local authorities the targets set relate solely to the operation of their estate and services such as waste collection. Over a third of the councils that have set a net zero target date for their own operations have not set a goal for the whole council area.
There are some councils that are showing greater ambition. Winchester is aiming for the Council’s activities to be carbon neutral by 2024, with the wider district to reach net zero by 2030. Edinburgh and Highland lead the way in Scotland, with Edinburgh aiming for the city to be carbon neutral by 2030, and Highland setting the same standard for Inverness, with the rest of the council area to transition to a low carbon economy. Milton Keynes is aiming to be carbon neutral by 2030, and carbon negative by 2050. Across England, Scotland and Wales, 127 local authorities have committed to reach net zero at an earlier date than the national government.
How well are local plans in England responding to climate change?
Across England, there is little correlation between local authorities declaring a climate emergency and implementing climate mitigation and adaptation measures in their local plans. The Climate Change Committee declared in a 2020 report that “Most local plans do not acknowledge the extent of the challenge of delivering net zero and need significant revision“. Most recently, the UK Green Building Council co-ordinated a letter from business leaders to the Prime Minister, warning that the current planning system could not meet the pace of change needed to meet sustainability targets.
Of areas that have announced a climate emergency, 71% have an up to date local plan in place. But only 19% of these local plans contain specific energy efficiency or binding carbon policies. Encouragingly however, more recently adopted plans are the most likely to contain these types of policy. 50% of plans adopted in 2020 contain specific carbon emission reduction policies, compared to just 13% of those adopted in 2015.
Climate Emergency – Outlook
Key conclusions and recommendations
- The UK is yet to develop a consistent approach to climate adaptation and mitigation through the planning system. Local authorities in England particularly are currently given significant autonomy in determining their own environmental policies. As a result, there is significant variation in requirements for carbon reduction and climate mitigation policy, with some local authorities yet to include it in local plans in any meaningful way.
- In order to deliver a greater consistency of approach, a national or regionally prescribed policy for infrastructure provision and carbon emission reduction could be beneficial in line with the approach in Wales. Consistent policy across strategic planning areas will help ensure housing delivery continues to meet need while also driving a movement towards higher standards in environmental sustainability.
- It is important that national planning policy sets a level playing field for the development industry as soon as possible. In the context that a significant number of local authorities have declared a climate emergency, planning guidance should provide clear policy on ensuring energy targets are achievable and not simply aspirations. It should highlight the need for policies to be supported by robust evidence of viability on the basis of an increasing level playing field in respect of benchmarked standards. This will reduce costs and ensure delivery of dwellings/other development is not compromised.
- New development should contribute positively to climate change objectives, and the planning system should encourage new development to not only enhance the natural environment, but also positively support the development of low carbon energy technologies and industries supporting a low or net zero carbon industry. The NPPF could do more to actively encourage this through the application of the presumption in favour, and in its approach to the development of renewables in the countryside. A positive rather than punitive approach like this should cause the least disruption as the industry adjusts to more climate-resilient models.
- Wales could provide a useful model to follow. It includes guidance at a national level and sets a series of requirements, and outlines a broad spectrum of measures that will help to achieve them. The focus is on reducing impacts and emissions as well as increasing resilience and maximising environmental performance. This is already influencing emerging planning policy and decisions on which sites to allocate and which schemes to allow. The approach is likely to be strengthened with climate change driven from the centre of national and local government – and especially from the new Ministry of Climate Change.
- Scotland’s position is to an extent in transition, whereby the much anticipated revised National Planning Framework (NPF4) will, upon adoption by Scottish Ministers in 2022, assume an enhanced status and weight within the planning policy hierarchy. The precursor Position Statement (November 2020) was clear that the Scottish Government’s intention is to rebalance the planning system so that climate change is a guiding principle for all plans and decisions, with a focus on actively encouraging all developments that help to reduce emissions and stimulating the green economy by facilitating innovation, greener design and place-based solutions. Twelve key points are identified by the Position Statement to implement this ‘rebalancing’ and achieve net zero emissions by 2045. These will be detailed in the forthcoming draft NPF4 and, subject to public consultation and Parliamentary scrutiny, will require the new generation of Local Development Plan policies to be in compliance with these strengthened environmental provisions.
