Zero Carbon School Buildings Consultation

Consultation

Launch Date 10 July 2008

Respond by 6 October 2008
Ref: Department for Children, Schools and Families

Zero Carbon School Buildings

The Department for Children, Schools and Families has set out its ambition for new school buildings to be zero carbon from 2016, and has appointed a Task Force to advise on how this might be achieved. We are undertaking this Call for Evidence to gather ideas, information and experiences to inform the Task Force’s early work.


Foreword from Robin Nicholson CBE, Chair of the Zero Carbon Task Force

Earlier this year the Secretary of State for Children, Schools and Families (DCSF) established a task force to advise on reaching the long-term goal that all new school buildings should be zero carbon by 2016. I am very pleased to be chairing the Task Force that is taking forward this work. I don’t under-estimate the challenge but I am convinced that schools, being at the heart of our communities, should show the way.

The Task Force has already identified a range of key issues that we believe will need to be addressed if we are to make progress towards zero carbon, and this Call for Evidence seeks your views on those issues. We want to know if you think we have identified the right issues; whether you think that those responsible for taking action will have access to the information they need; what the barriers are to making progress; and what can be done to stimulate action.

Once we’ve gathered information, the task force will write its initial report to the Government by December 2008.

Please do not feel that you need to have views on all of the issues highlighted to participate in this Call for Evidence. We want to hear as many views as possible, and will be very happy to receive your comments on one, some or all of the issues.

This Call for Evidence is aimed at adults. We are very keen to hear the views of children and young people and are conducting a separate exercise for them.



Robin Nicholson CBE, Chair of the Zero Carbon Task Force

1 Executive Summary
1.1 Introduction

The Children’s Plan sets out the Department for Children, Schools and Families (DCSF) ambition for all new school buildings to be zero carbon by 2016. We have appointed a Task Force to advise on how we can achieve this goal; and to develop a roadmap to zero carbon, setting targets and milestones along the way. This Call for Evidence will inform the Task Force’s early work.
This is just one of the ways in which we will be gathering views and data to inform the development of the roadmap. There will be other opportunities for consultation with stakeholders as work develops.
Within our definition of a zero carbon school building we are considering carbon emissions from the energy used by all activities across the school sites, around the clock (and not just those arising from education during standard school hours). However, the approach that we adopt for schools should align with that used for other buildings. The Department for Communities and Local Government (CLG) is currently determining how zero carbon should be defined for housing which will have implications for other building types, and we will be working closely as our work progresses.

1.2 Areas That Need To Be Addressed

Zero carbon is theoretically achievable on many school sites, but it may not be affordable. Most schools are using more energy than necessary and the energy performance of a number of recently constructed schools is worse than the designers and contractors thought it would be.
The Task Force believes that action is required in four key areas if we are to make progress towards the Department’s zero carbon goal:
•Reducing energy use in schools
•Sharing energy supplies
•Designing school buildings
•Exploring potential technologies

Efficient building design and reduction of energy demand are vital first steps and must be fully exploited before renewable technologies, either on site or off site, are considered for a scheme. It is only through a combination of measures that we will have any chance of reaching the goal of zero carbon.

In addition, the Task Force believes there is significant potential for teaching and learning through low carbon schools. We want to better understand what these opportunities are.

2 Background and Context

2.1 Climate Change And School Carbon Emissions

There is now an overwhelming body of scientific evidence that indicates that climate change is a serious and urgent issue. Emissions of greenhouse gases, particularly carbon dioxide, are the main cause of climate change. The UK emitted more than 150 million tonnes of carbon dioxide in 2004, of which around five million tonnes is attributable to the energy used within school buildings.

To reduce carbon emissions from schools, and in support of the Government’s wider targets to address climate change, the Children’s Plan sets out the DCSF ambition for all new school buildings to be zero carbon by 2016. We have now appointed a taskforce to advise on how to achieve zero carbon schools, whether the timescale is realistic and how to reduce carbon emissions in the intervening period. The Government is also looking at the potential for zero carbon developments in other sectors.

3 The Issues

3.1 Reducing Energy Use In Schools

A key step towards zero carbon is to reduce energy use in schools. To make progress in this area, the Task Force believes that there needs to be better management of schools’ facilities and equipment. It would also like to hear any suggestions that may allow education to be delivered in ways that reduce carbon emissions (e.g. are there different, less energy intensive ways of using school spaces to provide education?).

There are several issues that may need to be addressed: new ways of gathering data on school’s energy use; new approaches to energy management; refining aspects of school buildings that have inherently low demand for energy (e.g. design features which support passive heating or cooling or make use of natural light).

Evidence suggests that even when buildings are designed to be energy efficient, they often do not perform as intended or predicted. Indeed, in some cases energy use actually increases because of the combined effect of extra equipment/facilities within schools and their poor management/operation. For example, the Task Force is aware that some schools leave the lighting on 24hrs/day for security reasons, and that few of the power saving features of ICT equipment are used, with computers often being left on overnight and even during the school holidays.
In order to drive behavioural change, there will be a requirement from October 2008 for many schools to display details of their energy performance. But other measures, such as 'smart metering', may be required to enable performance of schools to be better managed.

3.2 Sharing Energy Supplies

Schools must use energy to function, and can therefore only become zero carbon if zero carbon sources of energy can be supplied to schools. These sources include solar, wind and biomass.
Individual school sites may not be well suited to take the greatest advantage of renewable energy sources: schools do not have a year round or round the clock demand for heat and power; and environmental conditions may not support renewable energy systems such as solar or wind power.
More may be achieved by planning and integrating energy supply systems across local communities, and by investing in renewable energy and shared heat supplies in suitable locations other than within school grounds. The Task Force is aware of schools that are served by community heating schemes - shared energy systems can be extremely carbon efficient, particularly where they are considered in the context of major local development, re-development or regeneration.
Where community based energy schemes are unsuitable and renewable energy systems are not viable on school sites, investment off-site may be an option.

3.3 Designing Low Energy School Buildings

Energy demand in schools can be significantly reduced by improving insulation, improving air-tightness, making best use of natural light, use of efficient equipment (such as high efficiency lighting, low flow taps, etc.) and making sure things are switched off when not needed.
As buildings and equipment become more sophisticated, there is a risk that more energy is used and that their operation becomes more complicated. The Task Force believes that the most effective buildings are those which are robust and require little effort to run.
The Task Force also believes that building professionals should, as a priority, focus on designing for manageability, providing controls that are simple to understand and use. There is also a need to develop skills within the design and construction industries to ensure that schools are built to the necessary quality standards.

3.4 Exploring Potential Technologies

If we are to deliver zero carbon schools by 2016, the Task Force believes that we will need to better understand how currently available technologies perform in practice; how they need to be developed in order to improve their effectiveness and/or reduce (capital and whole life) costs; and how untried potential solutions can be identified and developed.

There are several issues that may need to be addressed: new ways of gathering data on school’s energy use; new approaches to energy management; refining aspects of school buildings that have inherently low demand for energy (e.g. design features which support passive heating or cooling or make use of natural light); refining existing and discovering new low carbon sources of heat and power.

We can learn from other low carbon buildings or technologies in the UK and elsewhere in the world - many of these solutions are being developed for all building types, but it may be that some low carbon solutions are particularly appropriate for schools.

3.5 Teaching And Learning

The school curriculum should develop pupils' awareness and understanding of, and respect for, the environments in which they live, and secure their commitment to sustainable development at a personal, local, national and global level. DCSF’s Sustainable Schools web-site sets out the opportunities for sustainable development across Key Stages 1 to 4 and within the 14-19 qualifications.

Low and zero carbon buildings present a range of opportunities for teaching and learning. We would like to understand how the sustainable features of a building can be made ‘visible’ to pupils, how systems can be monitored, and how they might support teaching and learning across all areas of the curriculum.

4 How To Respond

4.1 Responding To This Call For Evidence

Responses to this Call for Evidence can be completed online at www.dcsf.gov.uk/consultations, by emailing completed response forms to ZeroCarbonSchools.CONSULTATION@dcsf.gsi.gov.uk, or by downloading a response form which should be completed and sent to:
Consultation Unit
Ground Floor, Area B
Castle View House
East Lane
Runcorn
Cheshire WA7 2GJ

4.2 Contact Details

If your enquiry is related to the DCSF e-consultation website or the consultation process in general, you can contact the Consultation Unit by e-mail: consultation.unit@dcsf.gsi.gov.uk or by telephone: 0870 000 2288.

If your enquiry is related to the policy content of this call for evidence then please contact the DCSF National Enquiry Line by e-mail: info@dcsf.gsi.gov.uk or by telephone: 0870 000 2288.

5 Additional Copies
5.1 Electronic Copies
Additional copies are available electronically and can be downloaded from the Department for Children, Schools and Families e-consultation website at:
https://www.dcsf.gov.uk/consultations

6 Plans for making results public
6.1 After we’ve gathered information through this Call for Evidence, the Task Force will write its initial report to the Government at the end of the year. We will make their report available on the DCSF e-consultation web-site during January 2009. This will be accompanied by the results of the Call for Evidence and the Department's response.

Appendix 1
1 Details of DCSF's Zero Carbon Task Force
1.1 Membership
Robin Nicholson (chair), Edward Cullinan Architects/CABE
Irena Bauman, Bauman Lyons Architects
Bill Bordass, Willian Bordass Associates/Usable Buildings Trust
Sally Brooks, DCSF
Simon Burton, Faber Maunsell
Lizzie Chatterjee, Sustainable Development Commission
Peter Clegg, Feilden Clegg Bradley
Andrew Cripps, Buro Happold
Vic Ebdon, Devon County Council
Andrew Ford, Fulcrum Consulting
Prof Brian Ford, School of the Built Environment, University of Nottingham
Mairi Johnson, CABE
Anthony Karabinas, Communities and Local Government
Steve Lucey, BECTA
George Martin, Willmott Dixon
Jon Mussett, BRE
Mukund Patel, GEMS Education
Justin Slater, Partnerships for Schools
Deb Thomas, Arup
1.2 Terms Of Reference
Aim of the Task Force is to:
•Develop a roadmap to zero carbon for all new schools by 2016; supported by research, including setting out clear targets and milestones along the way;

•Make recommendations for the best way of implementing the roadmap in projects delivered through BSF (including Academies) and non- BSF projects;

•Identify any limits for energy efficiency for agreed school types and locations, i.e where it is agreed that zero carbon cannot be achieved;

•Identify exemplary developments, either existing (eg where low carbon energy infrastructures are in place) or planned (eg eco towns) and explore their potential for roll out;

•Scope the potential for reducing carbon emissions in refurbishment projects;
This will require consideration of:

•The cost, benefits and affordability of proposals, and potential impact on the capital programme;

•A working definition of a zero carbon school which will include energy used to heat, cool and light the building, together with energy used to power equipment used within the school;

•A mechanism to calculate the performance of a zero carbon school;

•Available technologies and future potential for developing technologies to enable the target of 2016 to be met;

•The opportunities provided by a zero carbon new building for teaching and learning.

The Task Force will NOT:
•Consider carbon emissions beyond those attributable to the energy used within the building;

•Address broader educational and sustainable schools issues which are not related to reducing carbon emissions from new building or refurbishment.

•Consider carbon savings through offset or other measures to link with schools overseas

The Task Force will aim to ensure that carbon reductions are met in an efficient and socially responsible way - to discourage measures to achieve zero carbon school buildings which pass the burden elsewhere.

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