Policy ENV11: Energy standards

Open22 Jan, 2024, 10:00am - 4 Mar, 2024, 11:59pm

Policy ENV11:  Energy Standards

1) Energy hierarchy

All development proposals will reduce carbon emissions in accordance with the following energy hierarchy (in order of preference):

  1. Minimise energy use through the layout, orientation and design of buildings;
  2. Maximise the fabric efficiency of buildings, and design and specify efficient building systems with fossil free heating; and
  3. Maximise on-site renewable electricity and energy storage.

Development proposals will not use fossil fuels burnt on-site and will minimise embodied and whole-life carbon.

Proposals for:

  • All new dwellings (including residential conversions); and
  • New non-residential development over 100sqm gross floorspace (including conversions and extensions) will submit an Energy Statement, which is proportionate to the scale and nature of the application, to demonstrate how these requirements have been met.

Householder development and non-residential developments of less than 100 sqm gross floorspace will not be required to submit an Energy Statement but will be expected to incorporate rooftop photovoltaics unless it can be demonstrated that it is not technically feasible, or not suitable for any other well-justified reason.

2) Net zero homes

All newly constructed homes will (based on predicted energy modelling methodologies and tools such as Passivhaus Planning Package (PHPP) or CIBSE TM54) have:

  • A space heating demand of no more than 15kWh/m2/yr; and
  • An Energy Use Intensity (EUI) of no more than 35kWh/m2/yr.

These energy demand standards must be met unless it can be robustly demonstrated through the design process that they would not be technically feasible or would result in a development that would be harmful to its setting or the character of the wider area.

In order to achieve a net zero operational energy balance, the annual amount of renewable energy generated will match or exceed the predicted total energy use of the building.  Where it can be robustly demonstrated that it would not be technically feasible or would cause harm to the setting or the character of the wider area to provide enough renewables on the building to match its total energy use, a net zero operational energy balance will be achieved through the provision of new, additional renewable energy capacity elsewhere on the site or, as a last resort, through payment into the council’s offset fund.

3) Reducing embodied carbon

Developments of 100 homes or more, and non-residential development of 10,000sqm or more, should calculate their embodied carbon emissions through a nationally recognised methodology and demonstrate the actions being taken to reduce these.

4) Improvements to existing buildings

The improvement and retrofitting of existing buildings will be supported where they comply with other policies in the Plan. When considering planning applications, weight will be given to significant improvements to the fabric efficiency of existing buildings.

7.79 In order to reduce whole-life carbon emissions, this policy seeks to reduce the amount of energy that new buildings will use, as well as minimising the embodied carbon used in their construction, maintenance and dismantling. In line with current best practice, the council’s requirements are framed around an energy requirement rather than a carbon standard.
7.80 All development will be expected to follow the energy hierarchy by prioritising orientation, layout and design, followed by fabric first measures and fossil free heating to minimise energy demand. Development must also maximise opportunities for renewable energy and give consideration to how it can store energy to avoid the need for fossil fuel generation at times of peak demand. Most types of planning application will need to submit an Energy Statement to demonstrate that the energy hierarchy has been followed and that any specific policy requirements have been met.

Requirements for new homes

7.81 All newly constructed homes in Basingstoke and Deane will have a net zero operational energy balance. This means that they will generate or offset at least as much energy as they use. It is recognised that the Future Homes Standard will require homes to be ‘zero carbon ready’ from 2025 (and so become zero carbon as the electricity grid decarbonises), but the Local Plan is going further and faster. The council’s climate change studies demonstrate why this is necessary and how it is achievable.
7.82 The policy sets out how net zero will be achieved and supports a fabric first approach. In line with industry best practice (supported by the Royal Institute of British Architects (RIBA) and the Low Energy Transformation Initiative (LETI) amongst others), the policy sets a space heating demand limit to ensure new homes are highly thermally efficient.  This is aligned with Passivhaus certified buildings and requires buildings to have a high level of insulation and air tightness. The policy also sets an energy use intensity (EUI) limit to reduce overall energy consumption. The EUI is the total energy needed to run the home over a year (per square metre) and covers all energy uses including space heating, hot water, ventilation, lighting and appliances. Buildings powered by fossil fuels would not meet these standards.  Once the fabric efficiency of the building has been optimised, the building’s total energy use should then be met through renewable energy on the building to achieve a net zero balance.

Where a net zero operational energy balance cannot be achieved on the building itself, the residual energy required to reach net zero will be generated elsewhere on the site, or as a last resort, through paying into an offset fund that the council will manage. The payment into the council’s offset fund will provide a sum of money to cover the purchasing and installation of a PV renewable energy system elsewhere in the borough which is able to generate a similar amount of energy. Further details will be set out in future guidance.

Non-residential development

7.84 It is recognised that there are challenges to reaching net zero carbon on some types of non-residential buildings due to their high energy use and relatively restricted roof area. Through the submission of an Energy Statement, proposals will need to demonstrate that they have followed the energy hierarchy and will minimise energy use and maximise renewable energy. In particular, the council will expect proposals to demonstrate that they have maximised opportunities for solar photovoltaics on the roof or other suitable technologies, with the expectation that this should generate at least 70KWh/m2 of building footprint/year. As set out in Policy ENV12, non-residential development of 1,000sqm gross or more will also be required to achieve at least BREEAM Excellent standard and meet the requirements of Outstanding standard for energy.

Embodied carbon

7.85 As the carbon intensity of the grid reduces, the embodied carbon and whole life carbon will become a greater component of a building’s whole life emissions. Developers should therefore give consideration to the energy and resource use associated with the raw material extraction, manufacture and transport of building materials and construction, and emissions associated with the maintenance, repair and replacement as well as dismantling, demolition and eventual material disposal of the building. Particular consideration should be given to the use of locally sourced and manufactured materials. Where buildings are being demolished as part of new development, an explanation should be provided as to why their reuse would not be possible or practical.
7.86 Developments will need to provide information about what measures they are taking to reduce embodied carbon as part of their Energy Statement. In addition, the largest developments will be expected to quantify their embodied carbon using the latest version of the RICS Whole Life Carbon Assessment for the Built Environment guidance or another a nationally recognised methodology. Further detail about how this should be provided will be set out in future guidance.

Conversions and extensions

7.87 Where existing buildings are being converted or extended, the council will encourage applicants to consider all opportunities to improve the fabric efficiency of that building. Where properties are being extended, rooftop solar panels should be incorporated generating at least 70KWh/m2 of new building footprint/year unless it can be robustly demonstrated that it is not technically feasible or suitable for any other reason. In determining planning applications, the council will give weight to the carbon savings from significant improvements.
Implementation and Monitoring

The policy will be implemented through:

  • Decisions on planning applications.
  • A Supplementary Planning Document to provide more detail about how the policy will be implemented, including guidance on the requirements of the Energy Statement and how the amount of offset will be calculated.
  • Establishing a council-managed offset fund.

The policy will be monitored against:

  • Number of homes given planning permission that met/did not meet the space heating and energy use intensity requirements.
  • Number of homes given planning permission that achieved/did not achieve a net zero energy balance on the building.
  • Number of homes given planning permission that achieved/did not achieve a net zero energy balance across the whole site.
  • Number of homes given planning permission that achieved/did not achieve a net zero energy balance by committing to pay into the council’s offset fund.



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