Low Emission Planning Developments & Outlook

Transcription

1 Low Emission Planning Developments & Outlook Maidstone, 21 st February 2017 Rob Pilling Programme Manager, The Low Emission Partnership

2 Evolution of Air Quality Planning Approaches X Traditional 1. Traditional Air Quality Management Primary emphasis to assessing concentrations EPUK Traditional + Mitigation 2. Traditional Air Quality Management, with emphasis on mitigation Low Emission 3. Traditional Air Quality Management with emphasis on mitigation underpinned by single point damage costs Bradford W. Yorks Sussex K&M? 4. Integrated Air Quality Management including assessment of mitigation benefits York Lancaster

3 Low Emission Planning Developments & Outlook (1) Scope& Process (2) Assessment & Performance (3) Emissions Assessment Guidelines and Examples (4) Tailoring the Approach

4 (1) Scope & Process

5 Aims Encourage developers to support action through the planning system to improve air quality, lower transport emissions and protect public health. And to tailor assessment and mitigation requirements according to site characteristics, relating both to the nature and scale of the associated impacts and risk.

6 Measures Financial Contrbns Further Mitigation On-site Technology Measures Mitigation Hierarchy Trip Reduction (TA/TP) Construction Practice EV Infrastructur Standard Mitigation

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8 Outcomes (1) Meets standard mitigation provisions (2) Provides balanced and proportionate emissions mitigation (3) Avoids unacceptable direct impact on local concentrations (4) Avoids the introduction of new unacceptable exposure

9 Process Same work flow for all sites Site specific detail is managed in the classification step Impacts and Mitigation Report Test Based Opinion Planning Determination Site Classification Mitigation and Assessment Reports and Decisions Standard Provisions Further Mitigation Exposure Measures Emissions Assessment Concentration Assessment Exposure Assessment

10 Classification X Smaller sites Larger sites with potential to generate higher levels of traffic and pollution. As type 2 but generating even higher levels of traffic, which pose a specific risk of more directly impacting existing areas of particularly poor air quality Any site with potential to introduce significant new public exposure to existing levels of poor air quality

11 X Example of map based site classification step taken from Lancaster Guidance Used to enable a simple distinction between sites potentially requiring concentration assessment and those which are unlikely to. No understanding of local air quality management required to use it.

12 (2) Assessment & Performance

13 Assessment Assessment is there to inform and service decisions There has been a tendency for assessment to dictate terms Concentration Assessment Exposure Assessment Emissions Assessment Concentration Assessment Exposure Assessment Emissions Assessment Traditional Concentrations and Exposure only Hybrid Traditional + Mitigation/Emissions LEP Integrated Emissions and Air Quality Within this, Emissions Assessment is the new kid on the block: -how is it done -how is the information used? - how are the results integrated with other assessments? - what is its status alongside the more traditional elements?

14 Emissions Assessment A quantitative assessment of changes in bulk emissions as a result of a development and any associated mitigation. Results are reported as tonnes of individual pollutants, and are also monetised as social damage (York Planning Guidance, 2015). Technical guidelines for undertaking emissions assessment for a development site. The intention is both to clarify and streamline the process, and also to encourage consistency and transparency in its reporting. (LEP, EMA-TG-2.0, 2016)

15 Emissions Assessment Methodologies Benefit-based valuation of mitigation Indicator AQ credit (% Base DC) Base Harm (5yr) 310,000 On-Site Measures 17% Aggregated damage Cost-based valuation of mitigation Indicator AQ credit Base Harm (5yr) 310,000 Cost of Mitigation 200,000 -Trip Reduction 14% -Tech Improvement 3% Residual Harm 83% Contribution 200,000 Net Mitigation 98% Disaggregated Damage Drill down detail: -sub fleets (site units / vehicle types) - pollutants -mass of emissions as well as monetised damage

16 Site Performance Expectations? => What is balanced and proportionate mitigation? => What is acceptable site emissions performance? Benefit-based valuation of mitigation Indicator AQ credit (% Base DC) Base Harm (5yr) 310,000 On-Site Measures 17% Aggregated damage Cost-based valuation of mitigation Indicator AQ credit Base Harm (5yr) 310,000 Cost of Mitigation 200,000 -Trip Reduction 14% -Tech Improvement 3% Residual Harm 83% Contribution 200,000 Net Mitigation 98% Disaggregated Damage Drill down detail: -sub fleets (site units / vehicle types) - pollutants -mass of emissions as well as monetised damage

17 Emissions and Mitigation Statement For Townsland Park - a large urban located business-led mixed-use development The base fleet calculation estimates total traffic at 66,500,000 km/y, with associated emissions of 97t NOx and 8t PM10 over the 5y impact/benefit period. This represents a combined damage of 795,000 over 5 years. The largest contributors are cars (business) accounting for 59% of emissions and damage costs. The second largest contributors are cars (staff) accounting for 37%of emissions and damage costs. A package of on-site mitigation is proposed, which combines visitor and staff travel plans with an on-site fleet management plan. This is supplemented with a financial contribution for additional emission reduction measures. Estimated benefits from the on-site measures correspond to a 13% reduction in NOx, 10% reduction in PMand 13% ( 102,000) reduction in overall damageacross the benefit period (5 years). An additional financial contribution of 500,000 is proposed towards supplementary emission reduction measures. Combining the latter with the on-site mitigation benefits ( 102,000) indicates a total mitigation credit of 602,000. This corresponds to 76% of base fleet impacts. (This example, though based on a real site, is an invention for illustrative purposes only)

18 Combining the Tests Tests (1) Meets standard provisions for mitigating emissions (2) Provides balanced and proportionate emissions mitigation (3) Avoids unacceptable direct impact on local concentrations (4) Avoids the introduction of new unacceptable exposure Scenario 1 - on-site measures, plus contribution (as previous slide) (1) CEMP and EV requirements met Met (2) 13% on-site and 76% total mitigation credit proposed Met (3) No significant impact on local concentrations Met (4) No new exposure concerns Met Scenario 2 - limited on-site measures, no contribution (weaker mitigation) (1) CEMP and EV requirements met Met (2) 3% on-site and total mitigation credit proposed Not Met (3) No significant impact on local concentrations Met (4) No new exposure concerns Met

19 Source: Air Quality Planning Guidance (Medway Council, April 2016)

20 Interpretation of Concentration Assessment Results Traditional (fine control) (Ref: EPUK, Dec 2014) Low Emissions (back-stop control) An increase of 5% or more of the corresponding limit value is cause for concern. If the impact occurs within an AQMA, or would of itself lead to the potential creation of a new or extended AQMA, this indicates a severe impact on local concentrations. Severe impacts are likely to lead to objection and refusal.

21 (3) Emissions Assessment Guidelines & Examples Technical Guidelines for undertaking site emissions assessment Example Emission Assessment undertaken by the LEP based on real site data. Available on the Low Emission hub

22 Emissions Assessment Guidelines How well does the proposal manage site emissions?

23 Emissions Assessment Stages Design Base Fleet Mitigation Performance

24 Finch Manor Full application for erection of 128 residential dwellings with associated access and landscaping following the demolition of existing buildings. Design Description (excerpts) Design The City Centre is located within 2km. The area is conducive to with well surfaced and street-lit footways. There are a variety of cycle routes and the whole of the City sites within 5km of the development. The nearest bus stop is located approximately 50m away on Stonewall Road. There is 1 bus per hour to the city centre available throughout the daytime Monday to Saturday. As per regional plan, family houses are provide with two parking spaces per dwelling. For dwellings without a garage, a garden shed will be provided for cycle storage. Separate pedestrian and cycle linkswill be provided to the west of the site to Donald Road, via the allotments, providing a direct link to Christ Church Primary School (Cost 20,000) Whilst the site is well located in relation to bus stops, services are relatively infrequent and the development will provide a transport contribution which will be used to improve public transport frequency for 5 years:-(i) Provision of a bus service operating every 20 minutes during the peak hours (ii) An increase in the daytime bus service from every 60 minutes to every 20 (Cost 150,000)

25 Base Fleet Estimate Fleet Activity Emissions Costs Base fleet is split into three sub-fleets by vehicle and journey type Traffic activity estimated using Trip Data Calculator(based on TRICS) Emissions calculated using Defra EFT Damage costs calculated using Defra AQ factors km/5y DC/5y Resident s Cars 10,500, ,000 Delivery Vans 42,000 1,000 Delivery Trucks 8, Total 10,550, ,700 Headlines -Resident s car journeys > 98% of impacts -5 yremissions -2.9 t NO X and 0.3 t PM 10-5 yrdamage cost - 119k Detail Standard reporting book with method statement, data sources, assumptions and detailed pivot tables

26 Proposed Measures Residents Travel Plan and EV car club Travel Plan 10% reduction in resident trips EV Car Club Reinforces the Travel Plan Plus 5% improvement in remaining NOx/PM10x (Source: Low Emisison Toolkit Benefits Evidence Review) Emission Reductions (t/5y) Damage Costs Avoided ( /5y) M-ID Measure NO x PM10 x PM10 n NO x PM10 x PM10 n Total M1 Residents' travel plan , ,527 11,764 M2 EV Car Club , ,619 Site Total , ,527 16,383 Headline Benefits Travel Plan 11,764 EV care club 4,619 Combined 16,383 Detail Standard reporting book with method statement, data sources, assumptions and detailed pivot tables

27 Headline Indices Base Impacts Emissions impacts and associated damage costs associated with the occupation and use of the site On-site Mitigation Credit Credit attributed for proposed on-site mitigation Off-site contribution Credit attributed for proposed supplementary contribution Design Credit Credit attributed for specific design features (evidenced, additionaland going beyond standard practice) Total Mitigation Credit Sum of attributed credits Net Residual Impacts Base Impacts Minus TMC

28 Headline Indices Base Impacts 119,000 On-site Mitigation Credit 16,000 Off-site contribution 0 Design Credit 0 Total Mitigation Credit 16,000 (13%) Net Residual Impacts 86,000

29 Design Credit? Design Design Credit The assessment methodology ensures that direct emission effects are taken into account both in the base fleet and through mitigation. Some wider AQ benefits may however be missed, not least strategic interventions which encourage system or behaviour transformation over the longer term. Design Description Provide a summary of the site, emphasising features, which influence the nature and scale of traffic generation. Including those relating to Location, Access and Facilities. Site features should demonstrate good environmental design and seek to reduce traffic generation and associated emissions as far as possible. In order to recognise and encourage such wider benefits, and at their discretion, the planning authority may award Design Credit for AQ benefits not otherwise captured as part of the core methodology. Any such benefits must be well described, realistic and clearly additional both to (i) good environmental design and (ii) the quantified mitigation benefits.

30 Headline Indices Base Impacts 119,000 On-site Mitigation Credit 16,000 Off-site contribution 0 Design Credit 17,000 Total Mitigation Credit 33,000 (28%) Net Residual Impacts 86,000

31 Headline Indices Base Impacts 119,000 => What is balanced and proportionate mitigation? On-site Mitigation Credit Off-site contribution 16,000 75,000 => What is acceptable site emissions performance? => What is technically, practically and politically feasible? Design Credit 17,000 Total Mitigation Credit 108,000 (91%) Net Residual Impacts 11,000

32 Worked Examples 1. Residential 128 dwellings 2. Supermarket 10,000 sqm GFA 3. Business park 38,000 sqm GFA (B1) Available for download on the Low Emission Hub: Workshop and training materials also available

33 (4) Tailoring the Approach

34 Lancaster Guidance Development Draft Guidance Aug-Sep 2016 Regional Event Nov 2016 Policy Drafting Dec 2016 Available:

35 Local Pathways

36 Local Guidance Templates => Choice of templates, design questionaireand tuning guidelines to establish help establish best approach for local needs Template 1 Standard mitigation only Template 2 Standard mitigation for all sites plus additional on-site measures for larger sites Options (i) Mitigation benefits assessed on cost-basis or benefit-basis. (ii) Concentration assessment interpreted as fine control or backstop Template 3 Standard mitigation for all sites plus additional on-site measures for larger sites potentially supplemented by a financial contribution

37 Design Brief and Questionnaire Common aims, principles and structure? Use of standard mitigation for all sites? Use of further mitigation for larger sites? Inclusion of developer contributions as part of further mitigation? Use of Emissions Assessment to mediate the balance/extent of further mitigation? Emissions Assessment Approach Concentration Assessment Test (1) Aggregated or Resolved Damage (2) Cost or Benefit-Based valuation of mitigation Traditional (graduated fine control) or Low Emissions (back-stop control) => Choice of templates and tuning guidelines to establish best approach to me local requirements

38 Features X Aims Three distinct air quality concerns: Emissions, Concentrations, Exposure Measures Broad structure provides comprehensive framework while retaining flexibility to adopt and adapt best of current practice Outcomes Use of explicit independent tests strengthens transparency, simplifies decision processes and retains flexibility Assessment Strengthened methodology and status for emissions assessment options to include: - assessment of mitigation benefits -simplified interpretation of concentration results Performance Methodologies for assessing overall site performance And work ongoing towards benchmarking and standards

39 Outlook and Opportunities Measures Policy Assessment Performance Process Make them work better and better! Tackle technical, practical, financial and political challenges On-site interventions and off-site contributions Capture learnings and collaborate Reinforce a distinct coherent approach, which moves beyond traditional LAQM with some bits bolted on Adopt robust emissions assessment methodologies, give them due status and get the best out of them Strengthen evidence, knowledge and transparency Establish credible benchmarks and standards Pursue continuous improvement Work with the guidance materials we have Strengthen and refine them through use and collaboration

40 Policy Text & Checklist The Hub Planning Guidance Emissions Assessment Guidelines Tailoring the Approach Design Brief & Options (DBO) Templates (T1-3) LEP Board: York, Lancaster, Mid Devon and Greenwich Projects & Development Worked Examples Classification (12) Emissions Assessment (3) Opinions (12) Workshops & Training Emission Calculations Reference Sites Area Appraisal Method Tools & Datasets