Newcastle upon Tyne: Environmental planning and energy saving policies

Abstract:

Since the beginning of the 1990s the City of Newcastle upon Tyne has been trying to integrate energy considerations into overall urban planning. With the assistance of the European Commission the City's situation has been reviewed in order to detect areas for further environmentally compatible measures. The case study has been selected as a local planning approach in a political system which abolished the regional planning level in the mid-1980s. In this context:

• the collection of data from different environmental sectors has led to compatible energy information on supply and use;
• the aspects of energy use have been integrated into different planning processes; the setting up of two alternative scenarios on the environmental future stimulated support for new measures in the field of energy policy;
• in the area of combined heat and power the City Council favoured small and medium scale solutions;
• the study of comprehensive planning established the basis for valuable know-how on sustainability.

Concept and aims

At a time when industrial activities in the traditional centres of heavy industry and manufacturing are declining, the primary challenge is to create new types of economic opportunities in a framework that is sustainable. The City of Newcastle took the chance in 1989 when the European Commission DG 17 sent the City Council an invitation to submit proposals for an Urban Energy Strategy. Due to political backing it had been agreed that a team should be assembled which, beside the City‘s Development Department, included the major energy suppliers, the City‘s two universities and the public transport operators. The strategy of comprehensive environmental planning was prepared in parallel with the formulation of a major land use and traffic plan which will shape Newcastle until the year 2006. The simultaneous planning had the advantage that the energy dimension had been introduced into the City planning functions.

The urban environmental strategy in Newcastle upon Tyne set itself the target to reduce carbon dioxide emissions associated with energy use by 30% by the year 2006. By the year 2010 it is estimated that the maximum potentials of reducing the environmental impact of energy use could be 45% in carbon dioxide emissions, 82% in carbon monoxide, 89% in sulphur dioxide, and 76% in oxides of nitrogen. Such a far-reaching policy has to address projects in the energy generation sector, the control of traffic and substantial improvements in domestic, commercial and industrial energy efficiency. The energy saving policy is based on three themes:

1. Energy conservation;
2. Fuel switching;
3. Small and medium scale co-generation (CHP).

The Newcastle strategy for Energy and the Urban Environment was prepared in three stages:

1. Establishing base year information (the year 1990 as reference point);
2. Preparation of alternative scenarios;
3. Preparation of an action plan.

The establishing of base year information constitutes an essential part of the complete strategy as the planners have to obtain information from a number of sources (the electricity and gas supply utilities, British Coal, oil supply companies, and the regional transport companies). The Newcastle Development Department used the TEMIS model which has been developed by the German ÖKO Institut in Darmstadt. The main purpose of this model is to provide an analytical tool to enhance comparative information on environmental aspects of energy use. It describes, for example, information on efficiency, emission control characteristics, fuel type etc. However, the system had to be adjusted for the specific UK situation. The following information was collected on energy supply and use within Newcastle upon Tyne:

• Electricity consumption: The annual electricity consumption during the period 1988 to 1990 was broken down between domestic, industrial and commercial use. The data was supplied in respect of post code sub areas within the City. This level of detail made it possible to examine overall trends in consumption and to cross reference with other areas, especially the housing sector.
• Source of electricity supply: The breakdown between different forms of generation used to supply electricity typically consumed was obtained from the National Grid Company seven year plan.
• Gas consumption: Annual gas consumption was supplied by British Gas Northern on the same basis as electricity consumption information.
• Coal use: Estimates of coal-derived solid fuel used in the City were made on the basis of data supplied by British Coal.
• Transport fuels: Data on transport energy was the most complex to assemble and required the use of an existing model for the assessment of alternative highway proposals in the area. The model provided an aggregate of the total vehicle kilometre per day for all traffic in Newcastle for the given year.
• Energy use in the housing sector: A survey of the City housing stock was completed, identifying the number of dwellings with each main dwelling type. A small sample of dwellings were then assessed to determine the local energy characteristic using the National Home Energy Rating System.
• Renewable energy potentials: Data was taken from an energy study on the North East of England and the work of the University of Northumbria Photovoltaic Applications Centre, and the University of Sunderland Renewable Energy Centre.

The collected data pinpointed the direction of the preparation of alternative scenarios and the areas for activities. The analysis concluded:

• The extent to which natural gas is already used is beneficial for the environment as it supplied 41% of Newcastle’s energy requirements in 1990. Within the domestic sector the great majority of households use gas for space heating. About 64% of homes have gas fired central heating, and a further 19% rely on gas fires. In contrast only 7% of houses have electrical central heating systems. The focus for future actions must be the efficient use of fuel. In particular, within the domestic market better levels of insulation and progressively more efficient boiler plants are the key areas for action. Local authority investment in the housing stock and encouraging occupiers to invest in improvements are vitally important.
• Electricity is used predominantly for industrial processes, appliances and lighting. On the supply side, CHP at a range of different scales offers great potential for environmental gains. Changes in fuel mix are also relevant as in 1990 electricity accounted for just 20% of energy used in Newcastle, but is responsible for 81% of SO₂ emissions, 50% of CO₂ emissions and 37% of NO_x emissions.
• Transport fuels already make a significant contribution to atmospheric emissions as the use of oil-derived fuels for transport accounts for 22% of all energy used in the City. The introduction of catalytic converters on new cars will help ease some of the street level problems, but increasing traffic levels will add to the overall problem. The City influence is only limited as the control of fiscal and regulatory policies, which affect transport, is with the central government.
• Energy from renewable sources is relatively limited. In the long term new sources of renewable energy must be introduced. Wind energy generated in the region could technically supply 17% of the electricity usage of the region (equals 2% of the total energy requirements), but landscape conservation will be a major limiting factor. Hydro-energy offers only a modest perspective as it is estimated at about 0.5% of the region’s electricity requirements. At the time of the conception of the environmental planning and energy saving policy solar and photovoltaics only started to gain ground, whereas the City already had some experience with energy from refuse. Since 1979 the Byker Waste Reclamation Plant provided heat to the houses of the adjacent Byker District Heating Scheme and a further promotion will result in a total 75 GWh per annum of heat.

The first stage of environmental planning, that of data collection and assessment, contributed directly to the preparation of two alternative scenarios for the City’s energy future:

1. the business as usual scenario and
2. the new policy initiatives approach.

The scenarios outline the foreseeable development in the absence of any significant new, politically driven changes as well as the effects of a turn-around policy that would apply to a wide scale introduction of technologies in the fields of CHP, energy efficiency, renewables, and restraint of car use in favour of public transport. The special characteristic of the latter one is that in each case the technology is not in doubt, but the restriction is the lack of political will and institutional barriers. Furthermore, the first scenario is incorporated within the second, as it describes what is almost certain to happen.

The differences in the reduction levels reveal significant environmental gains, if the environmentally compatible scenario could be implemented successfully. Without a progressive implementation the expected reduction in the year 2010 would -6% in CO_2, -51% in CO, -14% in SO_2, -30% in NO_x, and - 15% in CH_4, whereas the optimal goals could be -45% in CO_2, -82% in CO, -89% in SO_2, -76% in NO_x, and -75% in CH_4. In consequence, the New Policy Initiatives for sustainable development describe what can be achieved, if the right framework and the political support are present. A co-operative approach is required from a wide range of agencies from the government to businesses and households, as well as the City Council, if the initiatives to save energy and reduce pollution identified are to be implemented. The Newcastle Action Plan is designed to promote the implementation of measures in all energy-related areas.

Implementation

The original Action Plan of the progressive scenario drew proposals under four broad headings:

1. Combined Heat and Power;
2. Energy Efficiency;
3. Renewable Energy;
4. Traffic and Transport.

In regard to CHP, the City‘s Fourth Energy Project proposes the development of a combined cycle gas fired CHP station with an electrical rating of 150 MW and a typical annual output in the order of 1,000 GWh, at an efficiency of 45%. Compared to the 1990 level of energy consumption in Newcastle this represents 83% of the electricity used. The proposed station would also supply hot water for space heating, largely displacing existing gas and oil fired boilers. The overall efficiency of the station would be about 80%. In addition, small scale CHP projects would also contribute to the local energy savings. The Byker District heating, which serves 2,200 dwellings, a swimming pool, school, library and other community buildings, has been expanded with a further 3.4 MW electricity generator producing 26.8 GWh of electricity per annum. Another important CHP project has been the Freeman Hospital which produces 39.4 GWh of electricity per annum plus 90 GW hours of heat. The power from this CHP project is also distributed to other facilities like government offices, Polytechnic and University premises, and schools.

In energy efficiency the focus is on the financial support and consultancy for domestic customers and public and small firms. Since the publication of the Energy and Urban Environment Strategy Report the Local Information and Advice Centre has been opened for the public and small firms located in a shopping area. Extensive use is made of funds available under the national Government programmes to insulate and draftproof homes of those eligible for grants. This Home Energy Efficiency Service is targeted at low income home occupiers. Currently, the City Council is preparing to implement the requirements of the Home Energy Conservation Act which will bring a new boost to the field of domestic energy savings. At the moment the main problem is the gap between knowledge and financial resources.

The activities in the area of renewable energy sources are still in progress. At present about 4% of Newcastle energy comes from this type of energy. However, the City Council estimates that an increase to at least 10% is possible within the next 10 - 20 years. The City energy planners have close ties with energy initiatives in the field of environmentally compatible energy policy. In co-operation with Professor Bob Hill of the University of Northumbria, the U.K.’s largest solar powered building was built in the heart of the city. At the pilot demonstration project a solar photovoltaic wall cladding added to a five-storey administration building was tested which generated 50% of the buildings’ electrical requirements at peak production (approximately 32 MWh per annum). However, at the moment the city-wide promotion of this technology is uneconomic, but new guidelines for the design of houses and commercial buildings should make more use of renewable energy sources like passive solar energy, for example for house heating or the avoidance of air conditioning in offices.

The traffic and transport sector is a difficult area within the urban environmental strategy as environmental gains contribute little to the overall balance due to the steady growth of traffic. In addition, the planning practice has become more fragmented when the Tyne and Wear County Council was abolished in the mid-1980s. As there is no planning authority for the Tyneside conurbation, the policy of traffic restraint is limited to the City area. The City Development Plan proposes a re-ordering of traffic priorities in favour of public transport, cycling and pedestrians. A further study of energy and transport is currently underway with assistance from the European Union.

Results and Impacts

By the mid-1990s investment in energy efficiency was saving the City Council over £1 million every year. Energy consumption in municipal buildings has been reduced by 50%. The energy savings result in an annual reduction of 50,000 tonnes of CO_2.   

In 1996 the City Council carried out a five year review  of the Energy Strategy in order to identify what changes occurred between 1990 and 1995 in terms of energy use and pollution.

The findings show that:

- Overall energy use remained almost static

- Individual energy use dropped by 16%

- Reductions were made in oil and coal use, there was a 1% increase in gas use and a 5 % increase in electricity use.  However there was a 23% increase in energy use in respect of road transport and a 60% increase in air traffic energy use.

- Carbon dioxide emissions fell by 2.7%, largely due to the replacement of coal fired power stations with gas fired. Additional emissions information:

• Carbon monoxide emissions (C0) emissions increased by 25%
• Sulphur dioxide (S0₂) emissions reduced by 15.7%
• Oxides of nitrogen emissions reduced by 2.7%
• Methane (CH₄) emissions reduced by 11.6%

- No large or medium scale CHP plants have been established.

- There is a good level of co-operation between a wide range of agencies in respect of energy efficiency and a number of innovative demonstration projects have been set up in Newcastle. However, there has been a substantial reduction in the amount of money invested in energy efficiency by the City Council.

Traffic growth is the biggest challenge in respect of energy use, and although City Centre traffic reduction measures have been proposed, they are unlikely to lead to an overall reduction in car use. Improvements in the fuel efficiency of cars and the introduction of catalytic converters were lost by the scale of traffic increase.

The overall message from the five year review was that static energy consumption can be seen as a modest success, however, many further opportunities for reducing energy consumption have not been realised. These findings show that the original Newcastle scenario ”Business as Usual” was correct in its assumption that reduced emissions would be achieved without any new initiatives. The potential to achieve overall reductions in energy use was not realised, due to a lack of effective policy initiatives.

Regionally there has been increasing activity in energy planning. Regional planning guidance is now to include guidance on renewable energy developments, and a new renewable energy agency Renew North has been set up.

A revised action plan has been produced setting out what would be necessary for achieving the objectives of the original Scenario 2. In addition to measures included in the action plan of the 1990 study (most of which has not occurred), the review suggested the following:

The UK government should:

• Include City scale CHP in its CO₂ reduction programme
• Introduce fiscal incentives for CHP
• Give local authorities new powers and responsibility to plan for the introduction of CHP in City energy and planning strategies.
• Introduce taxes which internalise the external costs of fuels
• Require local authorities to prepare comprehensive energy and environmental plans
• Increase resources available for home energy efficiency
• Set targets for installations of photovoltaics and active solar hot water systems
  • Initiate an urban demonstration pImplement the Newcastle HECA action plan
  • Seek greater resources for energy efficiency
• rogramme for solar buildings
• Give tax breaks to encourage investment in public transport
• Increase local authority funding for public transport infrastructure

Energy Utilities should:

• Develop data systems which allow monitoring of energy use to take place

The City Council should:

Source of Information

www.newcastle.gov.uk

City of Newcastle upon Tyne 1992: Energy and the Urban Environment. Strategy for a major Urban Centre Newcastle upon Tyne, U.K., Report in the framework of the European Commission action on Energy and Urban Environment, Newcastle upon Tyne

City of Newcastle upon Tyne 1996:  Energy and the Urban Environment Five year Review. Newcastle City Council

Nijkamp, Peter / Perrels, Adrian 1994: Sustainable Cities in Europe. A Comparative Analysis of Urban Energy - Environmental Policies, London

OECD (ed.) 1995: Urban Energy Handbook. Good Local Practice, Paris

Smith, Adrian 1995: Local Energy Planning in Newcastle upon Tyne, NSCA Conference, October, (ms.)

Personal communication with Helen Brownlie, April 2000

Contact:

Cities:

Newcastle upon Tyne :

Newcastle covers an area of 103 square kilometres. It was one of the industrial centres in the North of England. The northern region contains just over 3 million people and Tyne & Wear County 1.13 million. The City and the wider region has experienced a steady industrial decline over a lengthy period. Currently, only a third of the workforce has jobs in the industry and building sector. Manufacturing accounts for about 9% of jobs in the City. Northern Engineering Industries (NEI), the largest manufacturing employer in the City, makes steam turbines and a range of engineering equipment. Other companies manufacture armaments, pharmaceutical products, confectionery, printed material, bricks etc. Today 90% of the employment is in the service sector (retailing, distribution, transport etc.). The City Centre contains the largest single concentration of jobs, about 60,000. The next two most significant centres are the Department of Social Services National Government and the Regent Centre office complex to the north of the City Centre.

Population:

Project was added at 21.06.1996
Project was changed at 01.03.2001

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