Memorandum submitted by Groundwork UK
(FP 27)
SUMMARY
With a quarter of all carbon emissions generated
by our homes and with more than 4 million people facing fuel poverty,
co-ordinated action is needed to ensure everyone has a warm, insulated
home and to encourage people to reduce their domestic carbon emissions.
The government's current reliance on market incentives
and energy providers to achieve these reductions will not achieve
legally binding targets. We also need more effort to ensure our
homes and communities are protected against the unavoidable impacts
of a changing climate.
Our evidence focuses on the following:
— There is an urgent need for a government-led
national programme of retro-fitting houses to reduce emissions
and create housing that will be resilient to climate change, bringing
third sector providers together with the insulation industry and
the energy companies to ensure maximum take-up.
— Community based, intermediary organisations
are best placed to reach fuel poor households. Delivery through
community-based partnerships would be particularly effective in
increasing access to priority groups.
— Technical measures and advice must be
combined with community development expertise, and a focus on
education and changing behaviours. (As provided by our Green Doctor
service—see case study below). Particular attention needs
to be paid to the needs of consumers who are vulnerable and who
have special needs.
— Energy efficiency solutions need to be
offered together with referrals to other local support services
in order to effectively tackle fuel poverty (eg, advice on benefits
and debt relief), as also provided by our Green Doctor service.
— As unemployment is a major contributor
to fuel poverty, delivery should be linked to job creation initiatives.
This should include the Department for Work and Pensions' employment
provision, for example the new Future Jobs Fund and the Department
for Innovation, Universities and Skills future skills strategies.
1. INTRODUCTION
The Groundwork Federation is a group of charities
supporting communities in need. We work with partners to help
improve the quality of people's lives, their prospects and potential
and the places where they live, work and play.
Our vision is of a society of sustainable communities
which are vibrant, healthy and safe, which respect the local and
global environment and where individuals and enterprise prosper.
We operate across England, Wales and Northern
Ireland, and work on thousands of individual projects each year.
Our Trusts work in over 90% of the most deprived communities in
England and Wales, and we deliver a range of home energy efficiency
programmes and projects with the aim of tackling both carbon emissions
and fuel poverty.
2. THE COHERENCE
OF THE
GOVERNMENT'S
INITIATIVES ON
ENERGY EFFICIENCY
Existing and hard to treat homes
2.1 There a gap between government aims
on energy efficiency, carbon emissions reduction and adaptation
to climate change, and current plans for delivery. There is therefore
an urgent need for a government-led national programme of retro-fitting
houses to reduce emissions and create housing that will be resilient
to climate change, bringing third sector providers together with
the insulation industry and the energy companies to ensure maximum
take-up.
2.2 Groundwork supports government ambitions
for all lofts and cavity walls to be insulated where practical
by 2015 and for all homes and other buildings to have received
a whole house package by 2030. (Heat and Energy Saving Strategy).
However, in light of this target, the aim for only 7 million homes
to have had the opportunity to take up a "whole-house"
package of measures by 2020 is not sufficiently ambitious.
2.3 It will be important that specific provision
is made for hard to treat homes. 50% of individuals in fuel poverty
live in hard to treat properties (Preston et al 2008).[71]
According to the Energy Efficiency Partnership for Homes, more
than 7 million dwellings cannot have their energy efficiency improved
through cavity wall insulation, efficient gas boilers or a combination
of these. In addition, the number of cavity wall dwellings which
will still need wall insulation is over 7 million. Delivery through
area-based schemes which can benefit from economies of scale,
in addition to the targeting of low income groups, is therefore
needed.
2.4 We also support the Sustainable Development
Commission recommendations on existing housing,[72]
in particular that a standard for sustainable existing homes is
needed, and that VAT on refurbishment and new build should be
equalised.
2.5 There is also a need to adapt homes
and neighbourhoods for climate change in order to reduce energy
consumption for cooling. Deprived urban areas are more likely
to be vulnerable to the impacts of the "urban heat island"
effect. This is due to lower levels of tree cover and other green
infrastructure, combined with higher concentrations of air pollution
and a greater prevalence of people with heart and respiratory
disease. For example in the heat wave of 2003 there were 2,000
excess deaths in the UK (35,000 deaths across Europe), with the
hot weather producing an increase in the number of days of higher
air pollution. Events such as this are likely to become a normal
occurrence by the 2040s. These weather conditions will be considered
cool by the 2060s. 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 cool in summer
as well as being harder to heat in winter.
2.6 Green infrastructure networks have an
increasingly important role to play in the management of urban
temperatures. Research by the University of Manchester on "Adaptation
Strategies in the Urban Environment" (ASCCUE)[73]
suggests that adding 10% green cover to built-up urban areas could
keep maximum surface temperatures at a 1961-90 level up until
the 2080s. We want to see an expansion of these important networks
and urge government to commit to increasing green space, tree
cover and green roofs across the UK.
The need for a community-based partnership approach
2.7 Community based, intermediary organisations
are best placed to reach fuel poor households. Groundwork has
extensive experience of delivering home energy efficiency projects
in disadvantaged areas (see case studies below). This tells us
that technical advice must be combined with community development
expertise. Particular attention needs to be paid to the needs
of consumers who are vulnerable and who have special needs. Equal
opportunities and diversity issues also need to be addressed.
An enabling, capacity building approach is essential to support
local residents in decision-making about initiatives in their
area, and to ensure that the programme has maximum benefit and
long-term impact.
2.8 However, although the Government has
stated its preference for the Community Energy Saving Programme
(CESP) to be delivered through community-based partnerships (see
DECC/CLG CESP Consultation Response and Analysis),[74]
this is not a requirement and there is no reference to this in
Ofgem's Guidance. There is a danger that in practice there will
be a failure to realise the benefits of community partnership
working that the government wishes to see.
2.9 Energy efficiency solutions also need
to be offered together with referrals to other local support services
in order to effectively tackle fuel poverty (eg, advice on benefits
and debt relief). Groundwork's "Green Doctors" (see
case study) provide links to other agencies and services available
to low income households, both energy and non-energy related.
2.10 Groundwork Trusts are currently working
with community groups in several areas to enable them to engage
with the CESP process and shape the delivery of CESP in their
neighbourhoods. They are also seeking to help co-ordinate the
delivery of CESP with existing initiatives to achieve joined-up
solutions to the problems that disadvantaged communities face.
2.11 Groundwork's "Green Doctors"
visit homes in deprived wards to install energy efficient measures
free of charge and give residents advice on saving energy and
reducing fuel bills.
Householders targeted by fuel poverty projects
are difficult to reach, and persistent attempts to eradicate fuel
poverty have had relatively low impacts. Green Doctors help overcome
this by addressing educational and behavioural aspects as well
as technological solutions. Investing the time to talk to people
in their own home means they can provide tailored advice, and
"trouble shoot" problems such as a lack of understanding
about how to control heating systems, or fitting low energy light
bulbs for elderly residents who might not be able to do this themselves.
Green Doctors also serve as a referral point
for other agencies and services available to low income households,
both energy and non-energy related.
The Green Doctor programme began in Leicester
where it has proved extremely popular, and saved householders
nearly £10,000 in fuel bill savings in just three years.
It has been calculated that if this programme were to be rolled
out across the whole of the UK, this approach could achieve a
13% reduction in household CO2 emissions.
Job Creation
2.12 Links should also be made to other
government departments' activity to support the creation of "green
jobs". This should include the Department for Work and Pensions'
employment provision, for example the new Future Jobs Fund and
the Department for Innovation, Universities and Skills future
skills strategies. One of the key aims of the UK Low Carbon Transition
Plan is the creation of green jobs.[75]
The Local Government Association report "Creating green jobs:
Developing local low-carbon economies", estimates that 20,000
new jobs could be created in home energy efficiency.
2.14 The CESP is being delivered in areas
of high worklessness and therefore creates a unique opportunity
for joined-up working. Worklessness itself is a major contributor
to fuel poverty. Suppliers and generators should be encouraged
to achieve local spend as much as possible in order to create
a local multiplier effect. There are a number of successful examples
of energy efficiency schemes favouring local employment while
complying with procurement rules. This can create a win-win situation
for communities benefiting from CESP. The CESP could also stimulate
market demand for home energy efficiency products and services,
but there may not be sufficient capacity to meet a significant
upturn. Government intervention will therefore be required to
support the development of a skill base in these areas.
2.15 Tackling worklessness is one of our
main areas of activity, and we have recently been awarded substantial
funding from the DWP's Future Jobs Fund to create training and
job opportunities.[76]
In many proposed CESP delivery areas, Groundwork Trusts will be
supporting local unemployed people who could be trained for such
tasks as surveying, installing installation (loft, cavity wall,
solid wall), draughtproofing, and small scale renewables such
as solar hot water. Further opportunities will exist for home
energy advice through Green Doctor type schemes. Aligning Future
Jobs Funding with CESP funding in this way would represent excellent
value for money.
2.16 Groundwork Creswell's `Safe and Warm'
programme has helped over 2,000 households in need by installing
insulation and energy saving measures, and provided long term
unemployed individuals with the opportunity to gain new skills
in the field of construction. Work has involved loft insulation,
cavity wall insulation, pipe lagging and tank jackets, draught
proofing and the installation of energy saving measures such as
dusk-while-dawn lights.
2.17 Groundwork Creswell have also created
"the Greenhouse Initiative" which restores vacant property
ensuring that the houses use a wide range of energy saving devices
and renewable energy measures. The improvements, which include
insulation, solar hot water and a rain harvesting system, far
exceed current building regulations. They also tackle fuel poverty
by lowering heating bills. The initiative not only ensures more
sustainable homes, it also provides work for local people. The
work to re-design and rebuild properties provides long term unemployed
people with the skills and experience needed to re-enter the workplace.
3. THE METHODS
USED TO
TARGET ASSISTANCE
AT HOUSEHOLDS
WHICH NEED
IT MOST
The need to focus on "hard to treat"
homes
3.1 We support the focus of the CESP and
the proposed CERT extension on areas of disadvantage, families
in fuel poverty and hard-to-treat homes. However, whilst these
have concentrated on those areas with the highest levels of income
deprivation, there should also be a focus on areas with high levels
of solid wall housing.
The CESP scoring system needs to be sufficiently
weighted to encourage deliverers to adopt a whole house approach
from the outset, so that there are sufficient incentives to tackle
hard-to-treat homes. Groundwork is also concerned that charging
may present a barrier to resident take up of the measures offered
through CESP.
It should also be noted that private landlords
may try and increase rents following the installation of measures
to improve energy efficiency, which could counteract the programme
benefits in terms of tackling fuel poverty.
3.2 The importance of independent energy
advice and support for householders to achieve longer term behavioural
change.
A recent Ipsos MORI survey commissioned by Groundwork,
which asked 1,009 people in Great Britain about energy efficiency
in their homes, found that people want help and advice to encourage
them to install energy saving measures in their homes, but would
not select energy companies to provide this service:
— nearly half (48%) would be more likely
to install energy saving devices in their homes if they were offered
some practical help and advice; and
— only 13% of those without cavity wall
insulation and 8% without loft insulation would choose a contractor
provided by an energy company.
Despite the fact energy companies offer subsidies,
they are still not a popular choice, perhaps because they are
perceived as having a vested interest in customer's energy use.
Advisors from community-based organisations may be more trusted,
and better able to combat fuel poverty by connecting people with
other local services.
3.3 Groundwork would like to see government
energy efficiency initiatives have a much stronger emphasis on
longer-term behavioural change. Technical measures alone are not
sufficient to achieve this. They must be supported by effective
communication, and a focus on meeting individual needs. This approach
has been successfully demonstrated by Groundwork's Green Doctor
programme (see case study above). A network of independent energy
advisers, experienced at working with communities, could help
facilitate a mass take-up of energy saving measures.
3.4 Home energy audits are likely to be
most useful when they provide a comprehensive service: conducting
the audit, and signposting accredited implementation services
and funding assistance where applicable. To achieve maximum impact,
there should also be follow-up support available, eg to ensure
that once energy saving devices have been installed they are used
correctly. It is essential that all home energy audits are delivered
by trained and accredited personnel. It is important that minimum
standards are agreed, but there should be a range of routes to
achieving these minimum standards and also the opportunity to
achieve enhanced standards. To be fully effective, home energy
audits will need to be delivered by personnel with strong community
development skills in addition to technical skills.
February 2010
71 See "Opportunities to Improve Hard to Treat
Homes within CERT", Energy Efficiency Partnership for Homes.
http://www.sd-commission.org.uk/pages/existing-homes.html Back
72
http://www.sd-commission.org.uk/pages/existing-homes.html Back
73
Gill, S E, Handley, J F, Ennos, A R and Pauleit, S. (2007) Adapting
Cities for Climate Change: the role of the green infrastructure. Back
74
http://www.decc.gov.uk/Media/viewfile.ashx?FilePath=Consultations\CESP\1_20090710114123_e_@@_CESPGovtresponseJuly09.pdf&filetype=4 Back
75
http://www.decc.gov.uk/en/content/cms/publications/lc_trans_plan/lc_trans_plan.aspx Back
76
http://www.groundwork.org.uk/news/detail/index.asp?id=129 Back
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