School of Environmental Design and Management
Design for sustainable Cities and Urban Regeneration
Eco towns Report
Student HEMIS: 370615
Date: 12 January 2009
Executive Summary
This report considers the possibility of becoming involved in the Eco-towns Initiative while being cautious about the potential challenges that the initiative might incur. The report identifies the main challenges to meeting the Eco-towns agenda and the potential solutions. The report also provides recommendations on the design together with the social, economic and physical solutions that can be devised to counter the identified barriers to the achievement of the objectives.
Contents
.Introduction
2.Background to the Initiative
3.The Eco-towns Initiative
4.Key elements of the Eco- towns Programme
5.Evaluation of the Eco-towns Initiative
5.1 Creating New Settlements
5.2 Achieving Zero Carbon Standards
5.3 Provision of Adequate Facilities
5.4 Provision of Affordable Housing through Mixed Tenure
5.5 Management of the Eco- towns Development
6. Potential Solutions and Alternatives
7. Conclusion
8. Recommendations
. Introduction
The UK Government is currently facing the biggest housing shortage over the last ten years. The Government has introduced a range of initiatives to combat this problem under the Sustainable Communities Plan (www.cabe.org.uk ), the most recent of which is the Eco-towns agenda. This initiative is to be implemented across many of the developing towns in England. Even though the initiative will bring opportunities to the UK, it will no doubt face many different challenges. (www.tcpa.org.uk)
This report is prepared for the Board of the Housing Association and provides an overview of the Eco-towns Initiative and a critical evaluation of it. Furthermore, it highlights the key challenges faced, the key objectives involved, potential solutions to the challenges and a conclusion.
2. Background to the Eco-towns Initiative
Over the past two decades, our society has realised that we are living beyond our means and that we need to pay more attention to the protection and conservation of our environment. The increasing burden being placed on the planet as a result of man's activities and his over consumption of natural resources is no longer sustainable. (DTI, 'Review of Sustainable Construction', 2006 p. 6)
The major strategy for the UK came from the Government's 'A Better Quality of Life - A Strategy for Sustainable Construction 1999' (www.berr.gov.uk) which provided the first steps to improving standards in the Construction Industry. This strategy encouraged new developments to consider the environmental, social and economic issues and highlighted ten themes for action. Following this, the Sustainable Communities Plan was introduced in 2003. This was brought in to resolve housing supply pressures and addressed this by designating four growth areas. The aim of this plan was to increase house building to around 200,000 new homes a year, from figure of around 140,000. (www.communities.gov.uk) The idea was to create hearty communities rather than soulless housing estates by addressing the issues of environmental, social and economic sustainability together.
The Government realised the challenges they might face when tackling these ambitious housing plans. In order to aid these plans, two further initiatives were created:
'Growth Point' - in 2005 twenty nine UK authorities were invited to
apply for financial support in order to change the quality and quantity
of new housing in their localities.
'Eco-towns' - in May 2007 Gordon Brown committed to building a
series of Eco-towns, freestanding settlements of between 5,000 and
20,000 homes, "intended to exploit the potential to create a complete
new settlement to achieve zero carbon development and more
sustainable living using the best new design and architecture", as stated
in the Government Communities progress report.
(www.communities.gov.uk)
3. The Eco-towns Initiative
The Government Communities Progress Report states, "Eco-towns bring together the two concepts of new settlements and environmentally sensitive development to meet the challenges of climate change and housing growth". (www.communities.gov.uk)
Eco-towns are a new concept and will be built from scratch; they aim to be designed to a high standard and the key focus is the environmental impact, for example conserving / reusing energy, water reduction and ways to limit carbon emissions. The Eco-towns will create affordable housing for future generations to live in a sustainable fashion. The Eco-towns will host a community environment with their own public transport, healthcare, schools, shops, jobs, leisure facilities and public spaces. (www.direct.gov.uk)
4. Key Elements of the Eco-towns Programme
The Government proposed a prospectus in which they listed the five key essentials of an eco town:
(i) Eco-towns must be new settlements, separate and distinct from existing towns but well linked to them. They need to be additional to existing plans, with a minimum target of 5,000 - 10,000 homes;
(ii) the development as a whole should reach zero carbon standards, and each town should be an exemplar in at least one area of environmental sustainability;
(iii) Eco-town proposals should provide for a good range of facilities within the town - a secondary school, a medium scale retail centre, good quality business space and leisure facilities;
(iv) affordable housing should make up between 30 and 50 per cent of the total through a wide range and distribution of tenures in mixed communities, with a particular emphasis on larger family homes;
(v) a management body which will help develop the town, provide support for people moving to the new community, for businesses and to co-ordinate delivery of services and manage facilities.
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(iii) Eco-town proposals should provide for a good range of facilities within the town - a secondary school, a medium scale retail centre, good quality business space and leisure facilities;
(iv) affordable housing should make up between 30 and 50 per cent of the total through a wide range and distribution of tenures in mixed communities, with a particular emphasis on larger family homes;
(v) a management body which will help develop the town, provide support for people moving to the new community, for businesses and to co-ordinate delivery of services and manage facilities.
The Eco-towns initiative will inevitably face challenges but will also create major opportunities for local authorities, house builders and developers who will all come together to create these Eco-towns.
(www.communities.gov.uk/documents/housing/pdf/ecotowns.pdf)
5. Evaluation of the Eco-towns Initiative
The evaluation of the Eco-towns initiative has been considered within the following five categories which are:
* Creating New Settlements
* Achieving Zero Carbon Standards
* Provision of Adequate Facilities
* Provision of Affordable Housing through Mixed Tenure
* Management of the Eco-towns Development
5.1 Creating New Settlements
According to the Times online, 46% of the general public are in favour of Eco-towns with a small level of 9% opposing them. The general public fear that because of poor planning of the Eco-towns, the end result will be the creation of poorly designed housing with monotonous styling and the potential of being located on green sites. Opponents of the plans for ten Eco-towns across England are outraged that the settlements will devour the countryside. (www.timesonline.co.uk)
The Government plans to incorporate "a commitment to high standards of architecture", as the designs will be overseen by various professional bodies.
(www.communities.gov.uk/documents/housing/doc/Eco-towns.doc).
The Government had planned that a competition would be held to set the design standards for its Eco-towns. Due to hostility towards the initiative however, the competition has been put on hold for at least a year, as reported by the bdonline website.
Given that the right approach is adopted, Eco-towns will provide an opportunity for planners and developers working with communities, to inspire and set standards for others to follow. (www.cpre.org.uk)
Government officials are very confident that the Eco-homes will become close knit communities, closely linked with other established communities. (www.communities .gov.uk)
Between 1955 and 1975, three million people moved from Britain's cities to new towns created after the Second World War. Most of these new towns were created in rural locations and were surrounded by green belt land. Unfortunately, these towns were criticised due to their poor quality and lack of design. (Cities People Planet book).
The Eco-towns concept has been welcomed by critics who claim that they draw more favourable comparison with the garden cities of the past as opposed to the more recent new-towns and thus have the potential to deliver genuinely positive living environments for those who inhabit them (the Chartered Institute of Water and Environmental Management, www.ciwem.org). Eco towns should be unique, giving local architects a chance to express themselves and creating landmarks although local communities should be able to voice their opinions and ideas.
5.2 Achieving Zero Carbon Standards
The term 'zero carbon target' set by the Government is very unclear and each department has its own views on what 'zero carbon' is. The Chartered Institute of Building (CIOB) believes that a new definition of 'zero carbon' should be agreed by the Government and the building industry as soon as possible. CIOB notes that " 'Zero carbon' is defined in a number of different ways in industry standards and best practice guides". (www.ciob.org.uk )
The GreenSpec website, www.greenspec.co.uk, reports on the common problem of Government departments having differing definitions of what constitutes a 'zero carbon' home. The Treasury definition states that a gas supply cannot be used in a 'zero carbon' home whilst the DCLG, via the Code for Sustainable Homes, suggests that gas supply is acceptable. (www.dclg.gov.uk) The most recent definition comes from the Code for Sustainable Homes (April 2008). The calculation for a 'zero carbon' home, according to this definition, includes all the energy consumed in the building, the contribution of energy from on-site renewable/low carbon installations, and off-site renewable contributions that are directly supplied to the dwellings by private wire arrangements. (www.ciob.org.uk)
The Government and Building Institutes need to decide on effective 'zero carbon' energy sources. The Direct Gov website claim there could be a range of renewable energy sources like wind and solar energy and also by other methods "which use energy which could otherwise be wasted such as combined heat and power plants". The Government also aim to minimise water use and waste (www.direct.gov.uk). Greenspec claim that renewable energy is unpredictable in that the new energy sources available may not be able to cope with the high demand for energy consumption. As a consequence, the Eco-homes will still use electricity which is supplied by fossil fuels. (www.greenspec.co.uk)
In March 2008, the Times online reported that "Gordon Brown's pledge to create a string of carbon-neutral 'Eco-towns' will prove unachievable unless the government buys carbon offsets". The Town and Country Planning Association (TCPA) believe that in order for the initiative to work offsets will need to be provided. Potentially without these costly offsets, the Eco-towns could become net generators of greenhouse gases (www.tcpa.org.uk). The chairman of the TCPA David Lock has commented, "There has never been a true zero-carbon settlement and the Eco-towns will not achieve it either. They will generate much less greenhouse gas than normal but to call it zero-carbon is slack language." (www.bardcampaign.com). A differing opinion came from Yvette Cooper (then Housing Minister) who stated in a Labour Party Conference that her aim was to develop "Eco-towns with 'zero-carbon offices, zero-carbon schools and zero-carbon pubs" (Eco-towns will break Gordon Brown's carbon pledge, www.timesonline.co.uk)
The RIBA believe in taking an holistic approach to zero carbon, "from the need for appropriate national planning, fiscal and development policy, to local community empowerment and behavioural change. From developments in transport infrastructure, to shifts in each of our daily
lifestyle choices and consumer attitudes". (www.architecture.com)
It is important that the Government and relevant bodies agree on a precise definition of 'zero carbon' so they can move on to plan how to tackle zero carbon towns effectively.
5.3 Provision of Adequate Facilities
Local Authorities which oppose Eco-homes consider that they will become isolated areas with high density housing which will exploit green areas (www.timesonline.co.uk). The Deputy Director of Reform, Elizabeth Truss comments, "the eco homes planned already are far from local conveniences". (www.ElizabethTruss.com). The argument is that if they are located in hard to reach areas, residents will generate carbon emissions getting to and from amenities and workplaces. Building Talk reports that "Eco towns will just be plonked in the countryside miles from jobs, shops, public transport and essential services such as sewers and water, and at a time when public spending is getting tighter, few eco-towns will actually work". (www.buildingtalk.com). The general feel is authorities believe that the Eco-towns will become commuter dormitories or green ghettos instead of thriving communities (www.rics.org).
The Campaign to Protect Rural England (CPRE) believe "For eco-towns to succeed they must be well integrated with existing settlements and agreed with, not imposed on". Government officials are very confident that the eco homes will become close knit communities closely linked with other established communities (www.cpre.org.uk). The former Housing Minister Caroline Flint commented "These towns would include at least 30 per cent affordable housing, high-quality public transport links and enough community facilities and jobs will be provided to avoid them becoming commuter 'burbs". She also believed the average home will be within ten minutes walk of frequent public transport and everyday neighbourhood services. (Eco towns: a design for life, www.timesonline.co.uk)
5.4 Provision of Affordable Housing through Mixed Tenure
The Government recognises the need for social housing, for those who are unable to afford to rent or buy a home. The Government aims for 3 million new homes by 2016 - 70,000 of these will be affordable homes, and 45,000 will be available for rent. (www.housingcorp.gov.uk). The Royal Town Planning Institute notes that the Government will invest £6.5 billion into the social housing scheme to provide affordable housing, (www.rtpi.org.uk). Due to the current economic climate, nearly 1.7 million households are waiting for social housing. Local councils believe this figure will rise to 5 million by the year 2010, as reported by the National Housing Federation (The housing crisis, england.shelter.org.uk).
The right mix of tenure is crucial to ensure people are able to relocate in times of change, an example of this is the baby boom. In order for Eco-towns to be truly sustainable they need to cater for all types of household sizes and budgets (Housing: Building a Sustainable Future, www.publications.parliament.uk). The affordable housing sector has shrunk over the past 30 years because tenants have been able to buy their housing after they were given the right to buy or right to acquire. This has increased the demand for affordable housing (Mixed communities, england.shelter.org.uk).
Mixed communities are being encouraged by the Government. Mixed communities can be seen as a way of reducing the risk of dysfunctional communities developing, ensuring that vulnerable households are not all concentrated in the same area. It also means that lower-income households have better access to the amenities and employment opportunities enjoyed by wealthier households (Mixed income, mixed
tenure, mixed communities: what do we know? (www.housingcorp.gov.uk)
5.5 Management of the Eco-towns Development
For Eco-towns to thrive, a management process needs to be implemented. Three main themes need to be addressed in order to create success:
* Understanding the big picture; clarifying the main objectives of a sustainable community and what is required to achieve them.
* Facilitating achievement through planning and design.
* Creating opportunities for the community vision, values, ownership and pride. (Sustainable Business Magazine v09 ).
The success of an Eco-town will in large measure depend upon how well its infrastructure and communal facilities are managed after delivery. Long-term management and maintenance arrangements will need to be robust and well resourced (Eco-towns: One hell of a job, www.building.co.uk). In addition, the towns will supply plenty of support from the town's management organisation company whose role is to facilitate the social, institutional and professional infrastructure for business success. (Greener business in the Eco-towns, www.environment-agency.gov.uk)
6. Potential Solutions and Alternatives to the Eco-towns Initiative
Lord Rogers believes that urban regeneration would secure the social and economic prosperity of cities and strengthen their infrastructures while protecting the environment at the same time. Eco-towns, he argues, will damage both rural and urban environments, by increasing road congestion and carbon emission (Lord Rogers: Eco-towns big mistake, www.telegraph.co.uk).
Before using the green sites there are many disused airfields, old quarries and landfill sites that could be used (Urban Planning and real estate development 2nd edition). The problem with building on brownfield sites is that these sites are less profitable, but on the positive side brownfield sites introduce tax incentives for cleaning up contaminated land. (Sustainable Business magazine). A solution is by retrofitting, densifying and making existing towns green, rather than moving into the green zones (Eco towns: a design for life, www.timesonline.co.uk).
Where new build property is proposed, local authorities should look into developing opportunities on existing or adjoining settlements. By exploring these opportunities this will minimise land take and put good use to existing infrastructure and services (www.building.co.uk). Examples of this include Vauban in France, which is a new eco-district created from former army barracks. The district currently accommodates 596 dormitory rooms and 45 housing units. The greatest strengths of the Vauban project are the ideas, creativity and commitment of the people involved and their common goal in creating a sustainable and flourishing neighbourhood (Vauban France, www.cabe.org.uk).
It is clear that sustainability standards in the building industry are being improved and monitored. The Government should agree a defined and common sustainability standard for all the building industry and existing buildings should undergo a refurbishment using these standards (Eco towns a greener future? http://www.optimumpopulation.org). The standards should be used to improve energy efficiency. By developing on existing settlements and improving public services in these sectors this will be much more financially viable than building new eco towns (www.building.co.uk). Carbon emissions are likely to be increased with the use of cars commuting to the Eco-towns developments, by developing on existing settlements this is a better way of reducing travel volume (www.optimumpopulation.org). The fact is that building ten Eco-towns is barely going to dent the housing and carbon problems. There is the need to improve existing cities and housing urgently (www.timesonline.co.uk). If Eco-towns are to be created they should be quality developments and not quantity. (www.architecture.com)
An argument is that the most sustainable, ecologically friendly lifestyle in the UK is the city lifestyle. People in cities drive less, walk more and cycle more. Critics will argue that cities are full but this is not the case. There are hundreds and thousands of empty derelict properties located in London. (Daily Mail online, Why eco-towns will destroy the very environment they are supposed to save). The former Chief Planning Adviser to the Department of the Environment stated, "Ignore what the dark propaganda against eco-towns says. Eco-towns won't completely replace our old towns. We still need to repair and replenish our knackered old cities like London". (Eco-towns can't replace cities, http://www.bdonline.co.uk).
7. Conclusion
The report has referred to the known national housing shortage that exists. The recent Eco-towns initiative has been developed as one initiative to address this shortage. The report has commented on the many challenges facing the initiative and the possible solutions to the achievement of the Government's objectives.
The report has outlined the conflicting views about Eco-towns, some uncertainty which exists and further work which is required. At this stage therefore, some caution is needed in taking the Eco-towns initiative forward.
8. Recommendations
Clearly, there are conflicting opinions in respect of the Eco-towns Initiative. It is important therefore that recommendations be devised to consider the identified barriers to the achievement of the initiative's objectives. A framework of recommendations addressing the proposed design together with the social, environmental, economic and physical issues needs to be developed.
In terms of design, it is a pre-requisite that a common sustainability standard is agreed. Also, opportunities should be provided so that the planners, developers and communities can work collaboratively, to sift through the issues and identify acceptable ways forward. A desirable aim would be to achieve mixed income, mixed tenure and mixed communities. High standards of design within the permitted financial and other parameters should be a priority. Where possible and appropriate, the multi-use of space / buildings / facilities should be achieved through more joined up thinking between the various public, private and voluntary sector organisations.
With regard to the social, environmental, economic and physical issues, it is essential that sufficient levels of affordable housing are provided. It is vital that a community development is achieved with, for example, appropriate health care, schools, leisure and public spaces provision. The provision of shops, local jobs and business space would also be essential requirements for the new Eco-towns. Recommendations would also be needed, for example, for conserving / re-using energy, water use reduction, limiting carbon emissions and providing the necessary infrastructure including public transport provision.
References
Internet:
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Sustainable Business Magazine. (2008). Eco towns. V09
