4 Adapting national infrastructure
and the built environment
Adaptation of national infrastructure
64. National infrastructure are the facilities, systems,
sites and networks necessary for the functioning of the country
and the delivery of the essential services upon which daily life
in the UK depends. The Government's Centre for the Protection
of National Infrastructure has identified nine sectors that deliver
essential services: energy, food, water, transport, communications,
government, emergency services, health and finance.[148]
THE REPORTING POWER
65. The Climate Change Act 2008 introduced the Reporting
Power through which the Government can require selected organisations
to report on the progress they are making in adapting to climate
change.[149] Of the
100,000 or so organisations covered by the new power, the Government
has identified around 90 priority organisations who will prepare
the first round of public reports due between July 2010 and November
2011. The priority organisations were selected because of their
responsibility for national infrastructure, vulnerability to the
projected impacts of climate change, and the absence of an existing
regulatory framework to address adaptation.[150]
They include the Environment Agency, water and energy companies,
regulators and organisations responsible for different aspects
of transport.[151]
The Government is also proposing to invite around 50 other organisations
to report. These organisations "[
] either do not quite
meet the criteria for inclusion but have highlighted their keenness
to report, or meet the criteria and would be considered part of
the priority list but do not sit within the legal definition of
[a] reporting authority".[152]
Invited organisations that do not sit within the legal definition
include: petroleum companies, electronic communications companies,
and major food retailers, supply and distribution companies.[153]
Each of the priority and invited organisations will be expected
to report their assessment of the risks climate change poses to
them, and the actions they are going to take in response.[154]
The Government will determine the organisations to be included
in the second round of reports, due in 2014 and 2015, after the
first Climate Change Risk Assessment.[155]
66. The Environment Agency welcomed the Government's
approach of asking a wide range of bodies to report as it believes
this will encourage them to properly address climate change.[156]
But the Adaptation Sub-Committee thought that the Reporting Power
should be more widely applied and should cover electronic communications
companies as they are vital for society's ability to monitor and
respond to extreme events.[157]
Consumer Focus suggested that the Reporting Power should be applied
to the housing sector, given "[
] the importance of
individuals' homes to wider society", and the financial services
sector, as it provides essential products and information.[158]
Consumer Focus also said that a voluntary invitation to organisations
in the food sector "[
] does not reflect the necessity
of food supplies and the level of risk they face from both gradual
climatic changes and severe climate events".[159]
67. The Reporting Power can be an important driver
for behavioural and institutional change. It should provide valuable
information on the preparedness of much of the country's critical
infrastructure. While many organisations could be required to
report, some important sectors of the economy, such as food and
electronic communications, are not covered by the Climate Change
Act 2008. The Government has asked organisations from these sectors
to report voluntarily. If organisations that have been asked to
report on adaptation fail to provide good quality reports, the
Government should bring forward amendments to the legislation
requiring them to do so.
ENSURING MAJOR INFRASTRUCTURE IS
ADAPTED
68. The Government has considered the need to address
climate change risks in major infrastructure. In 2009, a two-year
cross-government project was established to examine and implement
solutions to improve the long-term (i.e. 20-90 year timeframe)
resilience of new and existing infrastructure in the water, transport
and energy sectors. A review undertaken for the project found:
[
] that there is increasing awareness and
understanding of the need to adapt to climate change within [the
three] sectors. However, this has not generally led to adaptation
action, with the focus remaining on mitigation of climate change
impacts or short-term contingency planning [
] there is a
reluctance to plan for the long-term impacts of climate change
due to perceived uncertainty associated with the impacts of climate
change and the financial risks.[160]
69. Adaptation is also addressed in the new draft
National Policy Statements covering nationally significant infrastructure,
such as major energy generation facilities and major roads. Once
finalised, these Statements will inform planning decisions to
be taken by the new Infrastructure Planning Commission.[161]
The December 2009 Pre-Budget Report announced that Infrastructure
UK would be established to advise government on priorities for
long-term national infrastructure.[162]
Defra has said that Infrastructure UK will take account of the
impacts of climate change in providing advice.[163]
ADAPTATION IN REGULATED INDUSTRIES
70. Adaptation in regulated industries such as water
and energy needs to be supported by regulatory frameworks.[164]
In responding to the Environment, Food and Rural Affairs Committee's
2009 report on the latest Ofwat price review for the water industry,
the Government recognised that there:
[
] is a question about whether a system
of economic regulation that was set up to extract maximum efficiencies
post privatisation is appropriate in the more complex world of
today, with social and environmental issues assuming a greater
profile, and fundamental challenges about the fitness for purpose
and quality of infrastructure, particularly in the face of climate
change.[165]
71. The Secretary of State for the Environment, Food
and Rural Affairs told us that Ofwat will be required under the
Reporting Power to "[
] report on what it intends to
do to adapt its regulatory system."[166]
He also said that the time had come to ask whether the current
regulatory framework for the water industry sufficiently takes
account of climate change adaptation. Defra's Chief Scientific
Adviser, Professor Robert Watson, told us that as part of adaptation
the country needs to think about infrastructure in a more holistic
way, and recognise the major interconnections between different
sectors.[167]
72. We agree with the Secretary of State that it
is time to review whether the regulatory framework for water adequately
supports adaptation. Like Ofwat, the principal duties of Ofgem
focus on affordability and the cost of services to the consumer,
with sustainable development addressed in its secondary duties.[168]
The Government should ensure that its economic regulatory frameworks
are promoting adaptation actions that improve the resilience,
and therefore long-term reliability, of services provided to consumers.
Regulated companies should be required and enabled to take urgent,
efficient and effective adaptation measures within, and across,
the different sectors of national infrastructure.
LOCAL AUTHORITIES
73. Local
authorities have a key role in addressing climate change impacts,
including: as transport and planning authorities; through housing
and building control; as providers of green space, and through
their work with other local delivery partners, such as the Environment
Agency.[169] Local
authorities were not included in the list of priority organisations
for the Reporting Power because adaptation is included in the
local authority performance framework.[170]
The adaptation performance indicator (NI 188) aims to embed the
management of climate change risks and opportunities across each
local authority's (and their partners') services, plans and estates.
NI 188 requires local authorities to assess and rate their progress
in identifying and managing climate change risks.[171]
The Audit Commission examines local authorities' performance against
all the 198 national indicators as part of Comprehensive Area
Assessments.[172]
74. NI 188 is unusual amongst national indicators
as it is processrather than outcomedriven. Guidance
for local authorities, prepared in 2009 by the Local and Regional
Adaptation Partnership Boardwhich supports local government
and regional bodies on adapting to climate changeexplains
why a process indicator was selected.[173]
Understanding of the adaptation agenda was not sufficient to specify
outcomes and, as climate impacts are local, it is not possible
to have a generic indicator applicable to all areas.[174]
The Local Government Association told us that there will be a
time when NI 188 will need to become more outcome-based.[175]
75. The Environment Agency told us that the introduction
of NI 188 will drive adaptation work at the local level.[176]
The GLA felt there was a case for moving quickly to a more outcome-based
metric. They said that the introduction of outcome-focused indicators
on mitigation had increased the engagement of local authorities.[177]
76. Fifty six of a possible 152 local authorities
and their partners have prioritised the adaptation indicator by
including it within their local area agreements that run from
April 2008 to March 2011. Of these 56 authorities, 82% had met
or exceeded the targets set for the first year, 2008-09.[178]
Research undertaken by the Commission for Architecture and the
Built Environment (CABE) shows that climate change adaptation
is one of the least integrated policies across local authorities.
CABE argued that the evidence base for the adaptation indicator
should be strengthened, and all local authorities should be required
to target improvements in performance against NI 188.[179]
77. Less than 40% of authorities have selected the
adaptation indicator as one of their priorities for the period
April 2008 to March 2011. This reduces the effectiveness of the
indicator in driving performance improvements. The Government
needs to monitor the performance of local authorities in adapting
to climate change. It must apply the Reporting Power to local
authorities if they are not making good progress. The Government
had good reason for including a process-based indicator for adaptation
in the current set of national indicators. However, as understanding
of the adaptation agenda improves, the Government must develop
indicators for adaptation that address local authority outcomes.
The built environment
78. The extent to which the built environment is
adapted to climate change depends on the actions of a range of
decision makers, including: developers; building companies; insurance
companies; property owners and occupants; and public sector bodies,
including regional development agencies and local authorities.[180]
During this examination we looked at whether good use was being
made of the spatial planning system and green infrastructure in
adapting the built environment. We also looked at the progress
being made to adapt our existing housing stock.
THE LOCAL PLANNING SYSTEM
79. For CABE, spatial planning was key to delivering
strategic climate change and sustainability objectives.[181]
The Planning and Climate Change Coalition believed that the planning
system's potential to help build community resilience, by getting
the right development in the right place in a fair and transparent
way, was not being realised because of a lack of resources, skills
and political commitment.[182]
One of the organisations within the Coalitionthe Town and
Country Planning Associationtold us that the "[
]
number of planning applications [
] that go through the system
with no consideration of climate change or adaptation at all [
]
is frightening".[183]
80. The Government is revising its main planning
guidance on climate changethe 2007 supplement to the Planning
Policy Statement on Delivering Sustainable Development.[184]
The Planning and Climate Change Coalition recognised that the
current guidance sets out the case for action, but identified
a gap between the policy ambition and real-world change.[185]
They recommended that the revised guidance should state that:
Planning permission should be granted only where
there is clear evidence that the proposal (in so far as it is
capable of doing so) would [
] make a significant contribution
to reducing greenhouse gas emissions; and make a significant contribution
to reducing vulnerability and building resilience to climate change
impacts.[186]
81. The Planning and Climate Change Coalition argued
that local authority members and officers should be trained on
climate change by a new body with responsibility for advising
and supporting local government on adaptation and mitigation (see
paragraph 32).[187]
The shortage of planning skills on climate change in part reflects
a longer-term and wider problem of an overall shortage of staff
and skills in planning departments. The Communities and Local
Government Committee examined this issue in their July 2008 Report
Planning matterslabour shortages and skills gaps.[188]
In its November 2008 response, the Government accepted that "[
]
addressing the identified shortages, in both numbers and skills,
is a major challenge. The programmes which are either already
underway or proposed are long-term measures and their impact will
be seen over a period of years rather than instantly."[189]
The Department for Communities and Local Government intends that
planning departments should benefit from the £10 million
of funding it announced in March 2010 for improving the skills
and capacity of local authorities to deal with climate change
(see paragraph 34).
82. The planning system is central to tackling adaptation.
The potential of the planning system to build community resilience
to climate change impacts is not being realised due to weaknesses
in planning guidance, some local authorities not treating adaptation
as a priority, and gaps in skills. In revising its guidance on
planning and climate change, the Government must make adaptation
and mitigation more central to the planning system. New developments
should only be permitted if they are suited to future climates,
and support the overall resilience of the built environment. Past
experience clearly demonstrates that issuing planning guidance
is not enough to ensure change. The Government needs to make sure
that revised planning guidance, and action to improve the skills
and capacity of planning departments, improves decision making.
GREEN INFRASTRUCTURE
83. Green infrastructure comprises a suite of urban
and rural land engineering measures such as sustainable urban
drainage, water catchment and storage, porous paving, greater
tree cover and more open green spaces.[190]
Green infrastructure is sustainable and multifunctional. It can
help urban environments to cope with some of the extreme effects
of climate change, such as flash flooding and urban heat, as well
as making urban environments more attractive, healthier and economically
competitive.[191] Green
infrastructure can also help reduce the environmental impact of
urban growth by, for example, promoting biodiversity and the conservation
of landscape.[192]
84. The Royal Commission for Environmental Pollution
argued in 2007 that the natural environment should be at the heart
of urban design and management.[193]
CABE told us that, whilst Departments have recognised that green
infrastructure can help them deliver their policy objectives,
they have overlooked its crucial role in climate change adaptation.[194]
Natural England considered that "Green infrastructure, the
environment and climate change should be part of single conversations
between DCLG, Defra, DECC, and Homes and Communities Agency so
the synergies are recognised and valued".[195]
They also told us that there should be a binding requirement for
the provision of green infrastructure within new housing developments.[196]
The Landscape Institute argued that the Government's July 2009
planning guidance on Ecotowns fails to recognise that green infrastructure
needs to be planned early in the development process if its adaptation
potential is to be maximised.[197]
Groundwork UK said there were inadequate funds to create and maintain
green infrastructure.[198]
85. In May 2009, the Government announced it would
revise its planning guidance on open spaces, sport and recreation
to provide a "[
] clearer message to local authorities
about the vital and multifunctional roles of green infrastructure,
and what is expected of them in its provision".[199]
At the time we agreed this Report the Government had just begun
consulting on revised guidance.[200]
86. The Government is not utilising green infrastructure
to tackle the impacts of climate change. In updating its planning
guidance on open spaces, sport and recreation, the Government
must set out the strategic role green infrastructure should play
in climate change adaptation. The Government should also promote
green infrastructure as part of the National Adaptation Programme.
Departments must deliver green infrastructure that supports adaptation
and wider policy objectives by working more effectively across
departmental boundaries. We recommend that the Government aligns
the work of key departments on green infrastructure, and identifies
a department to act as a green infrastructure champion.
ADAPTING EXISTING HOMES
87. There are 26 million homes in the UK, and around
85% of them are expected to still be in use in 2050.[201]
These homes were at best designed to be resilient and suited to
the current climate, rather than future climates that will bring
hotter temperatures and increased risk of flooding.[202]
A 2008 report by three regional climate change partnerships identified
cost effective measures to reduce the scale of climate change
impacts on homes, but noted that take up is low because of a lack
of awareness and limited availability of skilled installers.[203]
The GLA believed that people could be put off adapting their homes
because of long pay back periods and concerns about hassle and
inconvenience.[204]
They argued for the removal of VAT on adaptation measures and
the establishment of integrated retro-fit programmes covering
adaptation, energy efficiency and water efficiency.[205]
The GLA identified the main barriers to establishing an integrated
programme as different funding streams and the fact that "[
]
at all levels of government these issues are handled by different
departments".[206]
88. The country is currently making slow progress
on the major task of adapting our current housing stock so that
it is suitable for future climates. The Government and public
sector bodies need to enable the adaptation of private and social
housing. We recommend that the Government remove any administrative
barriers, and encourage local agencies, to establish one-stop
shop services capable of providing the public with integrated
retrofitting programmes covering adaptation, water efficiency
and energy efficiency. In our 2009 report on Green Jobs and Skills
we recommended that the Government immediately and substantially
increase the scale and speed of its programmes to improve the
energy efficiency of existing buildings.[207]
An integrated retrofitting service would aid take-up, promote
actions that support both adaptation and the efficient use of
resources, and help reduce costs, by limiting the number of times
that service providers need to enter people's homes.
89. There are limited incentives for property owners
to adapt their properties. Consumer Focus argued that "Better
information on past flooding, and future flood risks, should be
provided through a compulsory flood report in Home Information
Packs."[208] Currently
the vendor is required to answer questions on past flooding and
whether they have checked data provided by the Environment Agency
on flood risk.[209]
Consumer Focus also argued for cooling measures, such as air conditioning,
to be included in Energy Performance Certificates.[210]
The GLA pointed out that the inclusion of water in Energy Performance
Certificates would reinforce the link between water and energy
efficiency.[211]
90. Insurance can enable losses from climate change
to be spread across time and individuals. Insurance payments and
premiums can be structured to provide incentives for individuals
to change their behaviour and adapt properties.[212]
Defra has reported that following the floods in 2007, some insurance
companies changed policies to encourage the uptake of measures
that reduce flood risks.[213]
Lord Smith of Finsbury, the Chairman of the Environment Agency,
wished that insurance companies were readier to adjust premiums
to reflect levels of flood resilience in properties and to encourage
better resilience to be put in place.[214]
The Environment Agency has had quite productive discussions with
some insurance companies about how they can help people improve
the resilience of properties once they have been flooded through
simple measures such as waterproof plaster and raising electrics.[215]
However, the GLA told us that when people make a claim after being
flooded they get a like for like replacement and not measures
that would improve the flood resilience of their properties.[216]
91. The Government should strengthen the currently
weak incentives for people to adapt their homes. Options include,
broadening the coverage of Energy Performance Certificates, and
requiring more information on the flood resilience of homes to
be included within the overall Home Information Pack. The Government
should also press the insurance industry to encourage and assist
homeowners to improve the flood resilience of their properties.
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Glossary - www.cpni.gov.uk Back
149
Defra, Adapting to Climate Change: Ensuring Progress in Key
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150
National Audit Office, Adapting to climate change, 2009,
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151
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152
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153
Defra, Adapting to Climate Change: Ensuring Progress in Key
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4.4 Back
154
Defra, Adapting to Climate Change: Ensuring Progress in Key
Sectors: 2009 Strategy for exercising the Adaptation Reporting
Power and list of priority reporting authorities, 2009, para
1.17 Back
155
Ev 123 Back
156
Ev 83 Back
157
Ev 109 Back
158
Ev 147 Back
159
Ev 148 Back
160
URS Corporation Ltd, Adapting Energy, Transport and Water Infrastructure
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161
Ev 124 and Infrastructure Planning Commission, National Policy
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162
HM Treasury, Pre-Budget Report 2009: Securing the recovery:
growth and opportunity, 2009, p 64 Back
163
Defra, Adapting to Climate Change: Analysing the Role of Government,
2010, section 3.3.3 Back
164
Ev 18 Back
165
Environment, Food and Rural Affairs Committee, Fourth Special
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166
Q 284 Back
167
Q 307 [Professor Watson] Back
168
Ofgem, About us - www.ofgem.gov.uk and Ofgem, the Department
of Energy and Climate Change and HM Treasury, Memorandum of
Understanding, 2010 - www.ofgem.gov.uk Back
169
Environment Agency, UKCIP and the Local Government Association,
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170
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5.6 Back
171
Local and Regional Adaptation Partnership Board, Adapting to
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p 4 - www.lga.gov.uk Back
172
Communities and Local Government Committee, Thirteenth Report
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HC 649-I, para 27 Back
173
The Local and Regional Adaptation Partnership Board includes representatives
from a number of organisations including Defra, the Department
for Communities and Local Government and the Local Government
Association. Back
174
Local and Regional Adaptation Partnership Board, Adapting to
climate change: Guidance notes for NI 188, 2009, p 5 - www.lga.gov.uk
Back
175
Ev 179 Back
176
Ev 84 Back
177
Q 141 [Ms Dedring] Back
178
Ev 118 Back
179
Ev 170 Back
180
Defra, Adapting to Climate Change: Analysing the Role of Government,
2010, para 3.2.2 Back
181
The Commission for Architecture and the Built Environment, Spatial
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182
Planning and Climate Change Coalition, Position Statement,
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183
Q 120 Back
184
Department for Communities and Local Government, Consultation
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in a Changing Climate, March 2010 and Department for Communities
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Climate Change, Supplement to Planning Policy Statement 1,
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185
Planning and Climate Change Coalition, Position Statement,
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186
Planning and Climate Change Coalition, Position Statement,
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187
Planning and Climate Change Coalition, Position Statement,
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188
Communities and Local Government Committee, Eleventh Report Session
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189
Department for Communities and Local Government, Government
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190
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191
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192
Royal Commission for Environmental Pollution, The Urban Environment,
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193
Royal Commission for Environmental Pollution, The Urban Environment,
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194
Ev 168 Back
195
Ev 16 Back
196
Ev 9 Back
197
Ev 162 Back
198
Ev 152 Back
199
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200
Department for Communities and Local Government, Consultation
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201
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202
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203
The Three Regions Climate Change Group, Your home in a changing
climate: Retrofitting existing homes for climate change impacts,
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204
Q 137 Back
205
Q 140 and Ev 71 Back
206
Q 139 and Q 141 Back
207
Environmental Audit Committee, Second Report Session 2009-10,
Green Jobs and Skills, HC 159-I , para 51 Back
208
Ev 148 Back
209
Department for Communities and Local Government, Property Information
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210
Ev 148 Back
211
Ev 70 Back
212
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2010, section 3.1 Back
213
Defra, Adapting to Climate Change: Analysing the Role of Government,
2010, section 3.1.3 Back
214
Q 179 Back
215
Q 176 Back
216
Q138 [Mr Nickson] Back
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