SC(3) CR-R20
Sustainability Committee
Inquiry into Carbon Reduction in Wales: Residential Carbon Reduction
Response From WWF Cymru
29 October 2007
The Welsh Context
Climate Change is a devastating consequence of our accelerating pressure on Earth’s natural systems. It is not the problem in itself. This agenda is often put in terms of carbon emissions and climate change, but the real problem is much wider. It is not only carbon but other climate change effects: it is not only climate change but other kinds of resource use: and for cities in affluent nations, it is not so much what they produce, as what they consume from other parts of the world.
WWF Cymru believes that in order to tackle climate change effectively we must tackle the root cause of climate change. Put simply, in Wales we are using resources at a rate so rapid, it is as though we had three planet’s worth of resources not one. It is only because others around the world use mere fractions of what is rightfully theirs that this rate of resource use 'appears’ to be possible. The reality is - it is not possible and the consequences are becoming evident, predictable and dire. If we do not act effectively now, they will become irreversible.
What is clear is that we need a new way of doing things that enables us to live and prosper on the resources of just the one planet that we have. Finding a way to transform our current systems and models so that they recognise that there are environmental limits is an ambition so large it could come to define our generation. WWF calls it One Planet Living.
WWF Cymru has published in the last week a ground breaking report called One Planet Wales - Pathways to a Sustainable Future. Produced by Joe Ravetz, at the Centre for Urban & Regional Ecology School of Environment & Development, Manchester University, this report is a small introduction to a huge topic. It cannot cover every sector in detail - rather, it aims to show signposts and stimulate further debate and research.
To achieve a sustainable One Planet Wales a step-change is needed right across the economy - a new system of production and consumption, where business success depends on resource efficiency and consumer value depends on quality rather than quantity.
Above all, 'One Planet Wales’ needs a 'commitment to change’ from the Welsh Assembly Government, together with the whole of the public sector. The Welsh Assembly will need to take the lead and coordinate actions from national to local level, on housing, transport, food chains and so on.
This means taking responsibility as stewards of our environmental assets and managing markets in those public goods - for the benefit of all. It also means working in multi-level governance with policies from UK or EU level: and multi-lateral governance in partnership with the private sector, civic sector and local communities. Political leadership is required to secure buy in from every sector in Wales as well as from individual consumers. It will require new relationships to be forged and an acceptance of new roles for the public sector in Wales.
The new Government of Wales must now step up and scale up our transformation to a One Planet Wales. Success will be measured only in action - by turning the 'problem’ of climate change and resource use into the 'opportunity’ for economic development and social progress.
Climate Policy VS One Planet Policy
At the moment there is a massive attention on climate change and carbon emissions policy. However it is clear that much if not most climate / carbon policy tends to be an end-of-pipe, problem-focused agenda:
The problem definition is based on accounting for carbon at the point of emissions:
The policy agenda tends to focus on climate impacts;
The business agenda tends to focus on energy and emissions technology.
In contrast it can be argued that the One Planet Economy theme aims towards a solutions- focused agenda:
It uses several types of 'footprint’ measures to identify total impacts, both direct and indirect, all the way to final consumption.
It focuses on imported goods and their embedded impacts: this gets past the 'green illusion’, in which the UK appears to be more sustainable simply by exporting its impacts to overseas.
It takes on the whole economy, with supply chains from origin to 'end-fate’, and with all its social, cultural and political dimensions.
Overall, the One Planet Economy theme looks for pro-active ways to turn the perceived 'costs’ of an emissions reduction policy, into the economic and social 'opportunities’ of a transformation strategy.
WWF Cymru’s Response
It is with this context that we make our response to the NAW Sustainability Committee consultation into Household Carbon Emissions. We see emissions reductions policy as an aspect of the more holistic need to achieve a One Planet Wales by 2050. If we can get that right, not only climate change but the many other disastrous consequences that include social injustice and biodiversity loss on an unprecedented scale caused by this pattern of development can be necessarily avoided.
That means getting four times more efficient right across the economy. Our lighting for example could offer the potential to demonstrate such possibilities of efficiency via technology if (for example) the use of energy efficient bulbs coupled with adequate behaviour change was widespread across the economy via the banning of incandescent bulbs.
The ecological footprint measure shows that consumption by residents of Wales (5.25 global hectares per person) is using up the earth’s limited resources of bio-productive land area, at over 3 times their per capita share (and rising).
As a service-led economy Wales is now exporting its environmental impacts, by importing more from overseas, even while local environments are cleaner & greener.
To reduce the current footprint of Wales residents to the world average 'fair share’ of bio-productive land area in 2050, would need at least a Factor of Four increase in resource efficiency (given that population is rising and bio-productive land area is reducing).
Such resource efficiency improvement can be both cause and effect of economic development and social progress.
To achieve this by 2050 would take a resource efficiency increase of about 3.5%, year on year, right across the board - transport, housing, industry and so on. This is the fundamental 'One Planet’ benchmark, which can be applied to products, lifestyles, policies and so on.
Assuming that economic growth continues at around 2.5%, and overall footprint reduces at around 3.5%, the overall 'decoupling’ of economy from environmental impact would be about 6% - over twice the rate in recent years.
Summary:
Housing and the Built Environment - Towards a One Planet Wales
A Factor Four efficiency transformation in the built environment is a challenge - at present, most 'sustainable construction’ activity is tinkering at the margins. But there is potential at each stage of the chain: low impact materials, strategic management of the building stock, energy upgrading, and demand side management in households and organizations. There are examples of near zero-carbon and zero-waste buildings, and the property market needs to provide incentives to encourage these.
Even in 2007 much of the Wales housing stock has low efficiency, and much commercial property is difficult to upgrade. The construction industry has a major role in the economy, but often resists changes in labour and skills.
From the supply side we can see a high-tech innovation approach, based on national / global carbon trading. On the consumer side there is demand side management, community enterprise, and local carbon saving initiatives.
The combination could be achieved through public procurement, progressive incentives, and tariffs on energy demand and supply, and localized innovation programmes in the construction and materials industries. At present there are new initiatives such as the emerging markets for carbon trading, offsets or other incentives, but there are many open questions in how to make these work. For example who controls local business rates, or has the power to set local carbon levies?
Built Environment - Summary Recommendations from The One Planet Wales Report
Sustainable material supplies, with majority re-use / recycling
'Sustainable construction’ policy, with market transformation via innovation, capacity building, fiscal incentives, planning & building regulations.
Major efficiency upgrading of the entire building stock, using the carbon levies / trading for investment.
Procurement of 'carbon neutral’ buildings on full-life costing basis for all public buildings and contracts: (as per WAG aspiration by 2011).
Consultation Questions
WWF Cymru has tried to make clear in the preamble to this response that what is needed is a commitment to One Planet Wales by 2050, ultimately a factor four reduction in resource use right across the economy rather than focusing on just a few sectors as this consultation does and as the One Wales agreement has. This report might consider that approach as 'tinkering around the edges’. It is also critical to recognise that while this may be a distant target, in order to achieve this, we must begin now.
In the interests of responding constructively to this consultation, however that relates specifically to climate policy and the built environment, we will turn our attention to that in that context.
1. Is the proposed 3% annual reduction target by 2011 'in areas of devolved competence’ sufficient to enable Wales to make its full contribution to meeting UK wide targets? If not, what targets should be put in place?
"The era of procrastination, of half measures, of soothing baffling expedients, of delays is coming to a close, in its place we are entering a period of consequences” Winston Churchill.
The most compelling argument for Welsh targets for emissions reduction across the economy is that Wales should contribute a fair share of emissions reductions in order to play an equitable role in stabilising the world’s climate at not more than 2 degrees C above pre-industrial levels. For the UK to make a fair contribution towards the international effort to stay below 2ºC warming would mean delivering a reduction in carbon dioxide emissions of at least 80% by 2050. This equates to at least a 3% cut each year.
As a nation on a devolution pathway, Wales must consider what its own vision is for 2050. The procedural and institutional change to enable that vision to become reality will take many years. If our own vision is for a decarbonised economy by 2050, then our ambition must be explicit to all now with reduction targets in all sectors that can help us plot our course.
One of the main concerns of any Government is committing to a target that cannot be guaranteed, that could be interpreted, (most readily by government opposition) as a 'government failure’. To avoid a scenario where a Government is exposed to criticism because it has been unable to influence measures beyond its direct control would require a genuine and unprecedented cross party consensus. The Climate Change Commission for Wales should be tasked with delivering the Wales wide target that applies beyond areas of direct devolved competence. The politics must be taken out of climate change if more ambitious targets are to be considered. WWF Cymru suggests this is critical.
WWF Cymru has warmly welcomed the commitment within the One Wales document for "Wales to play the fullest possible part in reducing its CO2 emissions”, recognising that this cannot be a short-term project and will require radical change. WWF Cymru particularly celebrates the aim to achieving annual carbon reduction-equivalent emissions reductions of 3% per year by 2011 but believes that in order for Wales to play an equitable role in reducing its emissions at a rate, that the IPCC now deems necessary, the 3% target should apply to the total of Wales’ emissions from production rather than specific sector over which Wales has direct legislative competence. There is need for co-ordination with regional bodies, UK Government the EU and international bodies. But Wales with its many initiatives and partnerships also needs to take the lead - to promote, facilitate, innovate and generally make things happen at the national and sub national level.
The devastating impacts of climate change are now well documented, the science is proven, what remains is to identify clear pathways to decarbonisation of economies that Stern echoes is necessary to address this global problem. Morally we have a duty to stop asking "if” and to start pooling our enormous potential in Wales to demonstrate "how”. If we in Wales, as a self confessed central player in the Network of Regional Governments for Sustainable Development are to convince other countries to take action on the scale necessary, we must show that ambitious emission reductions can be achieved at reasonable cost in our own societies, even with the challenges of heavy industry, of devolution and of energy production industries.
Developed countries are responsible for 75% of the greenhouse gases derived from the burning of fossil fuels. As we are aware, many people in less industrialised countries are already feeling the devastating impacts of climate change having contributed little to the problem nor benefited from industrialisation with fossil fuels. We in Wales have a greater capacity to cut our emissions and should be making the greatest effort to do so over the next decade.
UK wide targets are irrelevant; what matters is what is necessary. The RCEP’s 60% target was proposed in 2001 - it is based on old science. RCEP assumed stabilisation at 550ppm CO2 only. This would give us warming of 3.5-4°C. Policy incoherence creates risks and uncertainty for business and investors.
For the UK to make a fair contribution towards the international effort to stay below 2ºC warming would mean delivering a reduction in carbon dioxide emissions of at least 80% by 2050. This equates to at least a 3% cut each year across the whole economy.
Political consensus must be achieved to depoliticise the issue of climate change. We must work together inside of government, outside of government and between governments to make our vision for 2050 a reality.
2. Should the emission reduction target be based on Welsh consumption, or production, or both (i.e. should it take into consideration the carbon dioxide generated in Wales (production), or the carbon dioxide emissions that Wales’ residents are responsible for, regardless of their source (consumption)?
WWF Cymru proposes that considering emissions from 'consumption’ in Wales as well as 'production’ would be the most effective approach.
This is important because an assessment of different models could lead to different results, both in the amounts of carbon dioxide we are aiming to reduce and the measures that might be implemented to achieve those reductions. In the end it’s a choice between two models: the standard "territorial” model based on datasets used by the UK Greenhouse Gas Inventory (GHGI) and the National Atmospheric Emissions Inventory (NAEI) [1], which forms the basis of the UK Government’s international commitments e.g. Kyoto, and the ecological footprint model [2], calculated by the Stockholm Environment Institute for WWF, according to Global Footprint Network standards, and adopted by WAG as an indicator.
The "territorial” model considers the carbon dioxide emissions produced by each sector of the national economy within the country boundaries, and excludes aviation and shipping. However, a country that has high levels of imports of manufactured goods and energy would exhibit a paradox of a high standard of living coupled with a low level of GHG emissions. Conversely, a country that produces goods for another country or exports energy (such as Wales) would have to "pay” for the carbon dioxide associated with something they will never benefit from.
The Ecological Footprint is based on the actual consumption of goods or services by an individual, or the aggregation of individuals in any geographical area (e.g. nation). If something is produced in country X and used in country Y, the EF is accorded to individuals in country Y. As a result, the Greenhouse Gas (GHG) inventory, a sub-set of the Ecological Footprint calculation, assigns a lower level of GHG emissions to developing (or exporting) countries and a higher level to developed ones (or importing). This type of accounting can be seen as "fairer” because it makes final users pay the GHG "bill”.
Under the traditional IPCC/Kyoto approach, countries could reduce their emissions by relocating their polluting industries to developing countries, whereas with the footprint approach the location of emitting processes is irrelevant. Adequate incentives and enforceable policies are required for business under both models, since under the footprint model, producers are not directly motivated to reduce emissions. However government action to reduce emissions from industries in their country will result in a reduced footprint for consumers buying that industry’s goods and services. Consumers should under both scenarios be encouraged, through incentives and penalties, to assume responsibility for choosing producers/suppliers which reduce GHG emissions; alternatively consumption limits can be agreed through trading or quotas.
Polluting industries and processes can be more directly regulated through the "territorial” model, hence it can be concluded that both approaches - producer and consumer responsibility - are needed and assessments should be made by taking both into account. It makes sense for the UK Government, with powers (or responsibility for implementing EU laws) over industrial processes, large power stations and vehicle emissions, to employ both methodologies side by side. However for a country like Wales, which has few powers to regulate industrial processes or emissions from vehicles but greater influence over planning, housing and local government functions (which impact on consumer decisions rather than industrial processes) the footprint approach may be more effective. However WAG and others in Wales must maintain incentives and enforce penalties so that major carbon emitters in Wales become more carbon efficient, at the same time as helping consumers reduce consumption of products and power. Both approaches are necessary if the footprint is to be reduced.
Comparison of the Carbon Dioxide Emissions in Wales and the UK According to "Producer” and "Consumer/Footprint” Approaches:
Using the 'footprint’ approach, each person in Wales is responsible for 11.3 tonnes of CO2 through his or her consumption of materials and fossil fuels. The 'territorial” approach (emissions that are actually released on the territory of Wales) shows a very different picture. Here we see that 14.5 tonnes of carbon dioxide are being released per person within one year. Therefore, in Wales the consumption of carbon dioxide is lower than what is produced within its boundaries. At the UK level it’s the other way round: each UK resident is responsible for 10.3 tonnes of carbon dioxide under territorial emissions and 11.5 for consumption. This means that the UK as a whole 'imports’ CO2 emissions that have occurred during the production of products that are then imported into the UK. This "overseas impact” is an estimated 12% on top of the territorial emissions.
The per capita emissions in Wales are high because of heavy industry and power stations: the fact that consumer emissions in Wales are significantly lower demonstrates that in terms of carbon dioxide emissions Wales is carrying the environmental burden for consumption that occurs outside its territorial boundaries. Using a consumer (footprint) approach, the economic costs fall more equally on those who benefit from the industrial processes causing the emissions.
Reducing Wales’ carbon footprint by 3% per year is therefore an essential, achievable and measurable target for the Welsh Assembly Government, in conjunction with reducing emissions from production.
3. What particular challenges does Wales face in reducing carbon dioxide emissions from households, and how can these challenges be overcome?
The Profile of the Housing and the Built Environment Sector
The built environment can be divided into three main strands:
Housing - generally more data and defined standards (floor space, efficiency etc)
Other commercial, industrial and public buildings, of all shapes and sizes
Other infrastructure and engineering, with overlap to transport and utilities sectors.
In each of these there are distinct stock-flow effects: i.e. the average turnover in the building stock is 1-2% per year. The whole sector is very dependent on energy supply, but this is a long term stock issue, as much as the day to day usage.
For demonstration buildings it appears possible to achieve ultra low energy usage, with increasing capital costs towards zero energy: however for the mainstream industry it appears to be very difficult to improve efficiency, as there are many institutional barriers. The much larger issue is the residual building stock and the actions which may improve it. There appear to be many barriers and disincentives to rational behaviour, such as the split of responsibility between landlords and tenants: and much centres on the 'apparent’ social cost of carbon / fossil fuel energy.
A Factor Four efficiency transformation in the built environment is a very challenging goal - at present, most 'sustainable construction’ activity is marginal to this bigger picture. We can at least point to potential transformations at each stage of the chain:
Building materials and sources: more renewable materials, less high-energy materials such as cement or aluminium.
Building design and specification: more low-impact design on eco-building sustainable communities lines:
Building stock and life cycle: new-build design for long-life and loose fit: coordinated upgrading of existing buildings for energy & services efficiency.
Planned replacement of the least efficient portion of the UK building stock, as proposed in the'40% house’ research programme.
Building performance: beyond the Eco-Homes 'excellent’ standard, to the Code for Sustainable Homes Level 5-6 with its goals of zero-carbon and zero-waste.
Overcoming the Challenges from Reducing Carbon Dioxide Emissions from Households
Tackling Household Emissions from New Homes
The need for a common standard
When WWF began its One Million Sustainable Homes (OMSH) campaign, we initiated a stakeholder consultation to identify the barriers to the mainstreaming of sustainable homes. One of the 6 key perceived barriers was the lack of consensus around a common standard. This was exemplified by our discussions with financial institutions about the potential introduction of market based consumer incentives to encourage the purchase of sustainable homes (e.g. preferential mortgages and insurance products). The companies expressed concerns about the lack of a common standard to attach such incentives to, and we believe this has delayed their introduction. We firmly believe that the Code has the potential to fill this gap and provide clarity and consistency to all those involved in the development process, as well as offering opportunities for introduction of market-based, fiscal and planning incentives.
WWF was represented on both the Sustainable Buildings Task Group (SBTG), which originally recommended the development of the Code, and the Code Senior Steering Group. We therefore have a very strong interest in seeing that the new Code meets the objective of greatly reducing the environmental impact of new homes, and over time of the existing housing stock and other buildings. WWF Cymru strongly advocates the adoption of the Code for Sustainable Homes in Wales by the Welsh Assembly Government.
WWF also firmly believes that in order to ensure that the wider sustainability aspects of developments which are not addressed under EcoHomes, such as community participation in decision making, community infrastructure and business development opportunities, the Welsh Assembly Government must also require the use of the ODPM/WWF/BRE Regional Sustainability Checklists for Developments.
WWF Cymru strongly advocates the adoption of the Code for Sustainable Homes in Wales by the Welsh Assembly Government.
Welsh Assembly Government must also require the use of the ODPM/WWF/BRE Regional Sustainability Checklists for Developments.
Tackling Household Emissions from Existing Buildings
Buildings are responsible for almost half of the UK’s carbon emissions, with domestic buildings contributing 27%. The UK government has set a target of a 60% cut in emissions by 2050, however it is predicted that two thirds of the dwellings that will be standing in 2050 already exist. So, if we are to reduce our ecological footprint and move towards 'One Planet Living’, it is vital that we address the environmental performance of our existing homes. The challenge we face is to 'retrofit’ sustainability into our lives in a way that will enhance our sense of community, happiness and wellbeing, and will reduce our impact on the planet. An additional challenge is that Wales has some of the oldest housing stock in Western Europe.
The graph shows the potential impact of a range of measures on reducing the household footprint of typical affluent areas such as Solihull. While the available data indicates that it may not currently be possible to reduce suburbia’s footprint to a sustainable 'One Planet’ level, it is clear that very significant reductions are possible, and further research and foot printing 'Average’ analysis may reveal even greater reductions.
Welsh Assebbly Government
Use Ecological Footprint (it is already a critical indicator for sustainable development) to inform policy decisions and develop strategies for a One Planet Wales. Only by clearly understanding our 'environmental baseline’ will we be able to decide the necessary measures to move from 'three planet living’ to One Planet Living.
Provide a strong policy and regulatory framework to facilitate One Planet Living for existing homes.
Provide incentives, grants and support to local authorities, communities and individuals to encourage the take-up of sustainable options: for example, retrofitted renewable energy systems and water efficiency measures.
Publish a strong Code for Sustainable Existing Homes and require mandatory assessment of all homes.
Invest in research to provide a greater understanding of the barriers to behaviour change in communities and among individuals.
Regional and Local Authorities:
Adopt Ecological Footprint as a regional/local indicator for sustainable development and use it to inform decisions and develop strategies for One Planet Living in the region.
Set targets for Ecological Footprint stabilisation and reduction.
Work with business to facilitate the development of energy service companies, and link council tax charges to improvements in home energy and environmental performance.
Work with local communities to understand the barriers to sustainable lifestyles.
Conclusion
While the footprinting scenarios suggest that One Planet Living is difficult to achieve in existing homes and communities, because much of the infrastructure is already in place, it is clear that very significant opportunities exist for large reductions in residents’ impacts. For this to be achieved, it will require a combination of 'top down’ and 'bottom up’ action.
Clear responsibility lies with the Welsh Assembly Government government, which must set the necessary overarching regulatory and enabling framework to deliver One Planet Living.
Regional and local authorities must also develop strong policy frameworks to encourage, provide incentives, and where appropriate require greater sustainability in their existing suburbs. Business must also play its part and work with government and consumers to develop new business models, such as energy services companies that will deliver exciting opportunities for greater energy efficiency and decentralised energy generation in the suburbs.
Finally, in order to achieve One Planet Living, we must make it easy, attractive and affordable for individuals and communities to choose more sustainable options.
Developing a better understanding of the barriers and motivations to more sustainable lifestyles is key, as is encouraging individuals and communities to take responsibility for their footprint through a combination of local community action, incentives and regulation.
Detailed Recommendations for Tackling Emissions from Existing Homes
Zero Carbon: Reducing Carbon Dioxide Emissions By Optimising Building Energy Demand And Supplying From Zero Or Low Carbon And Renewable Resources
Welsh Assembly Government
On the assumption that Building Regulations are devolved:
Part L Building Regulations should be extended to require improvements in existing homes - i.e. through 'consequential improvements’
Ensure that a robust Code for Sustainable Existing Homes (CSEH) is developed and over time extend the energy performance certificate to an assessment of all homes against the Code on sale/purchase/change of occupancy
Enable the introduction of council tax incentives linked to energy performance certificates/CSEH,
Require a percentage of renewable energy generation and improvements in energy efficiency from existing communities through the new Planning for Climate Change Policy Statement
Facilitate the development of energy services through a trial voluntary supplier cap and trade system in Wales
Require smart metering
Lobby the UK Government to legislate against inefficient appliances that can be left on standby.
Lobby the UK Government to reduce VAT on energy saving technologies and equipment, and increase labelling of appliances and fittings.
Increase fiscal grants for micro-generation and renewable energy community schemes
Require/facilitate the installation of micro generation technologies through the planning system
Local Government
Give council tax rebates for increased energy efficiency and enhanced environmental performance of homes
Introduce requirements for renewables in existing communities
4. To what extent has the Welsh Assembly Government been successful in utilising the powers available to it in order to reduce household carbon dioxide emissions?
Wales based data covering the period 1999 to 2002 show greenhouse gas emissions from the residential sector rising significantly from 1.2 MtC to 1.4 MtC. Clearly policy until now has been failing to plot a downward trajectory for CO2 emissions from the domestic sector.
The Welsh Assembly Government has a strong opportunity to provide clarity to business and industry of its intentions by adopting the Code for Sustainable Homes at the earliest opportunity. This can be done in the absence of devolving Building Regulations but is clearly something that stakeholders have expressed to WWF is of prime importance to achieve consensus around a common standard.
5. Could alternative targeting of Welsh Assembly government financial resources lead to greater household emissions reduction than is currently being achieved? If so, where could additional resources lead to greatest impact? (with evidence)
Whichever the devolution path taken by Wales and the wider public sector, it is clear that we need to bring to the One Planet agenda every kind of financial power available to the public sector. We see the greater challenge not in identifying how additional resources should be spent but in fact where additional resources should come from. We have thus answered the question accordingly.
The overall context for this is national macro-economic policy, assumed as the UK Treasury’s 'golden rule’ and 'sustainable investment’ rules on the overall limits to public spending. Within this there are many possibilities, to be explored by Wales and the wider public sector:
Carbon emissions trading and quota schemes: graduated to be tax neutral and progressive.
Eco-systems 'lifetime credit’ schemes: e.g. product impact charging.
Activity / infrastructure levies and re-investment: e.g. congestion charging with reinvestment in public transport.
Each of these is to be combined with regulation and behaviour incentives.
Each of these should be devolved to the most local level on the principle of subsidiarity.
The whole package should add up to serious and strategic investment for market transformation in key sectors.
6. What examples for other administrations (devolved, UK, overseas) where other means have been used to achieve reductions in household carbon dioxide emissions, could be adopted in Wales under current powers?
UK Case Study: Mayor of London Climate Change Action Plan
In the Mayor of London’s Climate Change Action Plan, it is recognised that the "2025
target set out … (cannot be achieved) without a small number of key national regulatory and policy changes” (1). It is stated therefore that the "absolute priority for the Mayor, therefore, is to work with national government to introduce a comprehensive system of carbon pricing…. This plan, therefore focuses on what can be achieved over the next 10 years, but in the context of the types of changes that will be needed by 2025 and beyond” (2). WWF Cymru urges the Welsh Assembly Government to adopt a similar strategy in its development of targets that span the entire economy rather than limiting its progress to areas where it has direct political control which, while this is to be commended as an important first steps, lacks the ambition necessary to tackle the problem of unsustainable development.
There are some obvious similarities with the Greater London Authority and what it is attempting to achieve, in terms of emissions reductions with limited powers. While also acknowledging of course that London and Wales are very different in terms of the structure of their economies and the nature of their transport systems for example. Despite this recognition of the limit to power the Mayor of London recognises that London must make its full contribution to stabilising atmospheric CO2 concentrations at 450 ppm (3). London has adopted an ambitious target without the full portfolio of powers available to it to deliver the target on its own - success towards this target will be as a result of political will, strong leadership and capitalising on its strength’s - London’s sphere of influence.
The plan calls for London's annual carbon dioxide emissions to shrink from 44m tonnes to 18m tonnes by 2025 - an average reduction of 4% each year. These figures do not include emissions from aviation.
The plan outlines how the target will be achieved which includes the following measures:
Emissions from existing homes including a green homes programme to catalyse energy efficiency in homes, a socially progressive measure in its own right.
Emissions from existing commercial and public sector activity including a green organisations partnership that could reduce emissions from the sector by as much as 40% Emissions from new build and development - 1 million tonnes of CO2 per annum can be saved in 2025 through better enforcement of current regulations and the introduction of higher standards for domestic and commercial new build
Energy supply - including developing energy from waste, promoting on site renewables, lobbying for the expansion of renewable energy across the UK, developing large scale renewables in London and expanding CHP.
The London Climate Change Action Plan is correct when it states "quite good is not good enough. By demonstrating leadership in London, the Mayor will encourage the government to take the steps necessary to ensure that London and the UK play a leading role in averting catastrophic climate change.” (4)
The mayor's strategies seek to secure the large-scale infrastructure investment in transport, housing and services which can sustain the growth, but redress the shortages, spiralling prices, threats to the environment and social inequality which this growth has produced or exacerbated. Perhaps the Olympics is just what he has been looking for?
To do this the Mayor considers actions in all sectors:
Emissions from existing homes
Emissions from existing commercial and municipal activity
Emissions from new build and development
Emissions from energy supply
Emissions from ground transport
Emissions from aviation
WWF Cymru envisages the same goal for Wales - an overarching climate reduction strategy with an overarching long term vision coupled with a rate of annual progress that recognises actions that are and that are not within the direct sphere of influence of the Welsh Assembly Government. More trust must be placed in the hands of electorate to understand this distinction.
It is challenging but it can be done, like London, if everyone in Wales plays their part. This is not something the Welsh Assembly Government can tackle on its own, nor can business and industry or the people of Wales without commitment from the Welsh Assembly Government. This must be a commitment to tackle this issue together, in-partnership, in-campaign and in-coalition both inside Wales and outside her borders.
This Mayor of London’s Climate Change Action Plan is not legally binding. However the Mayor of London has:
Committed publicly in a high profile manner to this cause.
Committed significant financial resources by heavily prioritising his low carbon programmes
Committed the reputation of London as a major city, to deliver this agenda under the C40 programme
Committed to reporting annually on London’s carbon emissions as set out by the action plan
Overseas Case Study: Denmark (5)
"Despite having very different sized populations the per-capita consumption figures of the UK and Denmark are very similar; which makes Denmark a particularly useful comparison, in terms of energy use. In the 1970s when the world experienced a rapid rise in oil prices, Denmark, being heavily reliant on oil was hit very hard which required some drastic measures which included expanded use of combined heat and power,
phasing out oil fired central heating and replacing it with district heating networks, implementing much higher standards of building regulations and expanded renewable energy supplies especially biomass and wind.
The results are impressive. The rapid growth in national primary energy consumption halted and consumption has remained almost stable at about 800Pj per year ever since. Between 1975 and 1985 domestic energy consumption for space heating was reduced by 50%. Since 1985 it has been held constant by the continuing expansion of the district heating networks and the use of some newly found gas. By 2000 well over a half of Danish homes used district heating. The results of this attention to energy efficiency and renewable energy are very evident. The extensive use of CHP has also kept the national figure for losses of energy through an efficient system far lower than the UK’s.”
7. In the context of the Governments of Wales Act 2006, which further means of reducing carbon dioxide emissions from household could only be achieved with the introduction of further legislative competence for the National Assembly for Wales
Devolved Building Regulations
It is only critical that building regulations are devolved if the Welsh Assembly Government wishes to accelerate the rate at which we reach a zero carbon level in the Building Regulations. At the moment this date is set for 2016. The Welsh Assembly Government target date of 2011 can only be achieved if Building Regulations are devolved and the step change to zero carbon is accelerated ahead of the UK government programme. Clearly this ambition is to be commended and we look forward to progress on this.
8. If specific carbon dioxide emissions targets are to be set for Wales, should these targets be subdivided into shares by sector? If so what share of the total reductions should households comprise?
Returning now to the findings of the One Planet Wales Report - the overall target of 75% reduction in Wales’ Ecological Footprint by 2050, or -3.5% per year, is a top-down calculation which leaves little room for manoeuvre in specific sectors. For example, there are important differences between food, transport and construction, but they all need to converge to a fairly narrow range of around 65-80% reductions. The table below presents the rate of reduction considered possible. Remembering that these figures apply not to carbon emissions exclusively but to the rate of reduction of the ecological footprint, via which carbon emissions are tackled at the appropriate rate in any event.
In the context of carbon emissions (exclusively) WWF Cymru, in accordance with the rate of CO2 emissions reductions deemed necessary by the scientific community advocates reducing by at least 3% on average in every sector across the economy on an annual basis, allowing for some flexability.
Table 1: Summary Of Potential Impacts Of Sectoral Policies
Sector |
Current Ecological Footprint Target |
Ecological Footprint 2050 |
% reduction by 2020 |
% reduction by 2050 |
|---|---|---|---|---|
Food and drink |
1.29 |
0.41 |
30% |
70% |
Home and energy |
1.09 |
0.35 |
30% |
70% |
Travel and tourism |
0.88 |
0.24 |
35% |
75% |
Consumables |
0.64 |
0.17 |
35% |
75% |
Services and public |
0.65 |
0.14 |
39% |
80% |
Capital and other |
0.70 |
0.19 |
35% |
75% |
TOTAL |
5.25 |
1.39 |
35% |
75% |
Concluding Remarks
There is recognition from all parties that time is running out to identify solutions to the looming catastrophe that is unabated climate change. As nations we operate in a competitive global market, it is critical to achieving global consensus and urgent action on this issue that every nation is recognised to be playing fair and striving to achieve their commitments.
The choices we make now, will shape our opportunities far into the future. The cities, power plants and homes that we build today will either lock society into damaging over-consumption beyond our lifetime, or begin to propel this and future generations towards sustainable living.
Ring-fencing Wales’ response to climate change to three sectors appears to miss the fundamental point, that tinkering around the edges is no longer an adequate response to this problem. In order to reach the goal, of averting dangerous climate change will require a joined up holistic approach to tackling emissions right across the economy.
References:
(1)(2)(3) Page xiv, London CO2 Action Today to Protect Tomorrow, The Mayors Climate Change Action Plan, February 2007(4) London CO2 Action Today to Protect Tomorrow, The Mayors Climate Change Action Plan, February 2007
(5) Page 122, Energy Systems and Sustainability, Boyle, Everett, Ramage, 2004, Oxford University
WWF Cymru
Tŷ Baltig, Sgwâr Mount Stuart
Caerdydd CF10 5FH
Baltic House, Mount Stuart Square
Cardiff CF10 5FH
Ffôn/phone: 029 2045 4970
Ffacs/fax: 029 2045 1306
