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Memorandum submitted by Groundwork UK (ACC05)
Summary
· Groundwork would like to see a prioritisation of the role of green infrastructure in minimising and managing climate change risks. The natural environment should be a major underpinning element of a statutory national adaptation programme. Green infrastructure strategies should also be incorporated into the Local Government Performance Framework, and embedded into planning processes.
· Adaptation measures delivering improvements to green infrastructure could contribute to a range of government objectives, particularly those tackling environmental, social and economic inequalities. Supported employment programmes in environmental management, for example, could meet adaptation needs in vulnerable areas whilst also tackling unemployment and supporting health services.
· Despite the cost-effectiveness of 'green' adaptation measures and the significant benefits it can provide, there is a lack of resources available for the creation and especially the long-term maintenance of green infrastructure. The expected squeeze on local authority spending is likely to put increased pressure on budgets for environmental management. Groundwork would therefore like to see green infrastructure given a level of recognition and investment comparable with that of 'grey' infrastructure.
· There is an important role for the third sector in helping individuals, local communities and businesses conduct their own climate change risk assessments and judge what actions they need to take. The third sector is particularly effective in engaging with those who are 'hard to reach'.
1. Introduction
Groundwork is an
environmental regeneration charity, supporting communities in need. We work in over
90% of the most deprived communities in
Our perspective on addressing the challenge of adapting to climate change is informed by our many years of experience in working alongside communities, public bodies, private companies and other voluntary sector organisations to deliver action that brings about concurrent social, economic and environmental benefits.
During 2007/08 our achievements included:
· 5,500 ha of land physically improved or maintained; · 177,000 trees planted; · Active support for 2,400 businesses; · Providing 59,000 weeks-worth of training; · Creating 2,900 jobs; · Helping 2,300 people progress back into education, training, employment or formal voluntary work.
2. The suitability of the processes and structures in and across Government departments for identifying, mitigating and managing these risks and determining the future priorities of central government's approach to adaptation (and the National Adaptation Programme).
2.1 Although a structure exists to facilitate interdepartmental working (i.e., through the ACC Programme Board), there is a need to develop more 'joined up' responses to the mitigation and management of climate change risks. We would also like to see a stronger emphasis on the mitigation, or minimisation as well as management of risk, for example by improving and increasing levels of green infrastructure.
2.2 Green
infrastructure can help alleviate the consequences of climate change by
providing cooling, wind breaks, water management, habitats for biodiversity and
improving air quality. Recent research
by the 'Adaptation Strategies in the Urban Environment' (ASCCUE)[2] suggests that adding 10% green cover to built-up urban areas could keep maximum surface temperatures at a 1961-1990 level up until the 2080s. In addition, green infrastructure can support efforts to cut carbon emissions by reducing the need for power consumption for heating and cooling, encouraging walking and cycling and also through carbon capture and storage.
2.3 Programmes to deliver improvements to green infrastructure could address risks identified by a range of departments, whilst contributing to departmental objectives. Supported work placements or volunteering activity in environmental management, for example, could meet adaptation needs in vulnerable areas, whilst also tackling unemployment, worklessness, and health inequalities.
3. The overall direction for work on adaptation, the effectiveness of the statutory framework, the allocation of powers and duties and how well issues like social justice are addressed in adaptation policies.
3.1 Groundwork supports the view of Natural England that adaptation of the natural environment should be a major underpinning element of a statutory national adaptation programme. To achieve this:
3.2 Statutory guidance on adaptation should highlight the specific contribution of green infrastructure to sustainable adaptation. These measures can be more sustainable and cost-effective than 'hard' engineering solutions, as they do not add to climate change, cause detrimental impacts or limit the ability of other parts of the natural environment, society or business to carry out adaptation elsewhere. Further guidance and information on 'green' adaptation measures should be signposted.
3.3 Adaptation and green infrastructure strategies should be incorporated into the Local Government Performance Framework and Local Area Agreements (for example by amending NI 188). They should also be included in Sustainable Community Strategies and the new Integrated Regional Strategies.
3.4 Measures of the adaptation of the natural environment should be included in Climate Change Public Service Agreements (PSAs).
3.5 Green infrastructure should be a key component of spatial planning, embedded into regional and local planning processes. We welcome government commitments to revise planning guidance on green infrastructure (see 'World Class Places', the new strategy for improving quality of place[3]), and also to review the Climate Change Planning Policy Statement.
3.6 New national Planning Policy Statements should draw together the following:
- The supplement to PPS1 on planning and climate change - PPS12 on Local Spatial Planning (which requires local planning authorities to assess green infrastructure requirements) - PPG17 on open space, sport and recreation - PPS9 on biodiversity and geological conservation - PPS25 on development and flood risk - PPG13 on transport planning in order to promote urban green ways for cycling and walking.
3.7 All local authorities should prepare a green infrastructure strategy. If adopted as a Supplementary Planning Document, this can enable implementation across administrative boundaries e.g., at a sub-regional level.
3.8 Local authorities should also adopt Natural England's 'Accessible Natural Greenspace Standard' where appropriate. This states that people living in towns and cities should have an accessible natural green space less than 300 metres (5 minutes walk) from home.
3.9 Social justice and adaptation policies: Residents in deprived urban areas are more likely to be vulnerable to the impacts of the 'urban heat island effect' and at a greater risk of flooding due to a lack of green infrastructure.
3.10 In hot weather, intense micro-climates, a lack of tree cover, higher concentrations of air pollution, combined with a greater prevalence of people with heart and respiratory disease result in excess deaths (around 2,000 in the 2003 heatwave)[4]. Deprived communities in urban areas are likely to experience rising levels of fuel poverty. Poorer residents often live in older houses which are harder to heat in winter and harder to cool in summer.
3.11 A lack of green infrastructure in urban areas also increases the risk of flooding. In the floods of 2007, two-thirds of the 57,000 homes affected were flooded from surface water run-off overloading drainage systems.[5] Residents in deprived areas are likely to be less aware and worse prepared for an extreme weather event like a flood. According to the Environment Agency, poorer people are likely to be more exposed to flooding, but less likely to have home contents insurance.[6] [7] [8] Improving green infrastructure around housing (and on housing with green roofs and walls) is a cost-effective and sustainable means of surface water management.
3.12 In recent years, however, the trend has been towards a decline in green cover in urban areas. This has resulted from development pressures, an increase in the use of front gardens for car parking spaces, and householder extensions. There has also been a lower rate of tree planting over the past decade[9], with more threats to older trees. In addition large native trees have tended to be replaced with smaller, ornamental types which provide less shade[10]. Proposals to reduce planning controls for businesses undertaking minor works could also threaten the retention of urban trees and greenery. Climate change will create challenges for the management of green infrastructure, for example irrigation in times of drought so that it continues to provide cooling benefits when it is most needed. There are opportunities to provide this through the collection and storage of rainwater, which would also help to reduce flooding incidences.
3.13 A programme of urban greening could support trainees in implementing environmental improvements both to increase green cover and make practical differences to the quality of life in deprived communities. This could include: · the promotion and development of green roofs in targeted inner city locations · the installation of rain water collection systems for irrigation · natural flood management techniques such as restoring upland catchment areas and flood plains, and installing sustainable urban drainage systems.
3.14 Our experience has also shown that employment programmes with an environmental focus are particularly effective in making the link between worklessness and wellbeing. Working in the natural environment can provide mental and physical health benefits and help overcome barriers to employment. It attracts high rates of volunteering and provides popular work placements for the long-term unemployed, people with learning difficulties and with mental health problems. Environmental programmes working with disaffected or truanting children, officially described as Not in Education, Employment or Training (NEET), have also proved remarkably successful.
3.15 For
example, Groundwork installed green roofs on the Treverton Estate in
3.16 From a social justice perspective, it is therefore imperative that adaptation policies prioritise green infrastructure improvements in areas of urban deprivation, where climate impacts may be high, but the lack of awareness and multiple pressures faced by these communities means that adaptation will be a low priority. In order to achieve improvements on a sufficient scale (e.g., achieving a 10% increase in urban green cover), and to allow planting time to mature (e.g., for trees to develop a large enough canopy to provide shade), immediate action is required.
4.
o Building capacity to adapt to climate change o Specific actions to adapt to climate change, such as in investment in flood risk management or the resilience of critical national infrastructure o Helping individuals and organisations conduct their own climate change risk assessments and judge what actions they need to take.
4.1 Green infrastructure can provide cost-effective adaptation solutions. The Natural Economy Northwest programme[11] has outlined a method for calculating the economic value of these measures by balancing the cost of investment with the benefits of: · savings from reduced energy use and lower insurance premiums; · the lower costs of 'soft' as opposed to hard engineering measures; · savings resulting from carbon capture and storage; · increased investment levels and employment creation in previously vulnerable communities.
4.2 Despite the potential savings to be made by employing this approach, there are currently few resources available to provide for the creation and particularly the long-term maintenance of extensive green infrastructure. The expected squeeze on local authority spending is likely to put increased pressure on budgets for environmental management. Without adequate investment, the multiple benefits green infrastructure can provide will not be realised. As the Landscape Institute maintains[12], green infrastructure should be given a level of recognition and investment comparable with that of 'grey' infrastructure, and to achieve this, government should develop a national funding stream for strategic green infrastructure investments through the Comprehensive Spending Review and annual Budgets.
4.3 Government should increase its investment in green jobs as part of its economic stimulus package, prioritising support for adaptation as well as mitigation activity. The Sustainable Development Commission[13] has urged the Government to commit 50% of the total funding provided for economic recovery plans on green measures, up to £30 billion a year for the next three years. Through the Future Jobs Fund, for example, it is proposed that at least 10,000 of the 150,000 jobs it aims to create will be green jobs. The DWP should ensure that adaptation activity is supported through this and future investment.
4.4 We also support CABE's[14] proposals for CLG and DECC to co-create a Sustainable Neighbourhoods scheme to be delivered by local authorities and the voluntary sector. This could create ownership of the adaptation agenda through collective action at a neighbourhood level. CABE have also proposed that Defra run a competitive funding programme to promote urban green ways, with the Queen's Jubilee in 2012 to be marked with the opening of hundreds of new greenways in every major conurbation across the country.
4.5 There is an important role for the third sector in helping individuals, local communities and businesses conduct their own climate change risk assessments and judge what actions they need to take. The third sector is particularly effective in engaging with those who are 'hard to reach'.
4.6 Consultation with local communities is crucial to developing adaptation actions that will work best on the ground. It should form a fundamental part of the process of developing adaptation strategies from the outset, and ensure communities are given opportunities to be involved in decision-making and active participation. Third sector organisations like Groundwork can support the engagement of local people, for example, in the design and management of public spaces. Groundwork can help ensure that these spaces meet users' needs, considering the likely increase in use with the changing climate. Community engagement on public space can also provide opportunities to raise awareness about the impacts of climate change and what action people can take to minimise the negative impacts for themselves and their environment.
4.7 The third sector can also support businesses in undertaking adaptive action, particularly reaching out to small and medium enterprises. Groundwork's Environmental Business Services can provide low cost, tailored solutions, often achieving benefits by working collectively with other local businesses, and contributing to wider environmental improvements in the local area.
5. Whether work on adaptation should be embedded into existing sustainable development frameworks, and if so how might be this achieved.
Adaptation should be embedded into existing sustainable development frameworks at all levels. As stated above in section 3, it is also important that adaptation and green infrastructure strategies are incorporated into the Local Government Performance Framework and Local Area Agreements. They should also be included in Sustainable Community Strategies, the new Integrated Regional Strategies and embedded into regional and local planning processes.
2 October 2009 [1] i.e., 90% of the worst 20% super output areas in [2] Gill, S.E., Handley, J.F., Ennos, A.R and Pauleit, S. (2007) Adapting Cities for Climate Change: the role of the green infrastructure. [3] 'World class places: The Government's strategy for improving quality of place' CLG, 2009 [4] Royal Commission on Environmental Pollution (2007) Twenty Sixth Report: The Urban Environment [5] Pitt, M (2007) Learning lessons from the 2007 floods, Interim
Report, Cabinet Office, Changing Climate for Business', UKCIP 2009) [6] Environment Agency (2003) Environmental Quality and Social Deprivation: R&D Technical Report E2-067/1/TR Fielding J, et al (2005) Flood Warning for Vulnerable Groups: A Qualitative Study, Technical Report to the Environment Agency [7] Fielding J, et al (2005) Flood Warning for Vulnerable Groups: A Qualitative Study, Technical Report to the Environment Agency [8] Whyley C, McCorrick J & Kempson E (1998) Paying for Peace of Mind: Access to Home Contents Insurance for Low-Income Households [9] 'Greening the [10] Britt, C and [11] 'The economic benefits of Green Infrastructure: The public and business case for investing in Green Infrastructure and a review of the underpinning evidence' ECOTEC for Natural Economy Northwest, 2008 [12] 'Green infrastructure: connected and multifunctional landscapes'. Landscape Institute Position Statement 2009 [13] 'A Sustainable New Deal', Sustainable Development Commission 2009 [14] 'Hallmarks of a Sustainable City', CABE 2009 |