Student Name: Keith Colville

Matriculation Number: 09017835

MSc in Public Sector Leadership

Module: SOE11670

Postgraduate Practice Report

Has Perth & Kinross Council positioned itself to reduce energy

consumption to achieve Scottish Government’s 2020 and 2050 Carbon

Reduction targets?

Executive Summary

The Report’s purpose

The purpose of this report is to ascertain whether Perth & Kinross Council has

positioned itself to reduce energy consumption with a view to achieving the

Scottish Government’s Carbon Reduction targets

Methodology Used

The qualitative data was collected through a staff survey, which attempted to

capture the attitudes of staff with regard to energy conservation within the

office estate.

The quantitative data was collected from a combination of Perth & Kinross

Council’s ‘Community Plan and Single Outcome Agreement’, its ‘Business

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Management & Improvement Plan’ performance indicators and the Council’s

Energy Management system ‘Stark’.

Main Conclusions

The overall conclusions reached through research for this report are:

Perth & Kinross Council is not on track, in terms of its energy

consumption, to achieve the Scottish Government’s carbon reduction

targets and failure has the potential to bring financial sanctions for the

Council.

large-scale capital expenditure in energy efficiency measures (due to

the high initial cost and long pay-back periods) is not considered

appropriate for Perth & Kinross Council in its journey towards carbon

reduction and that no-cost, low-cost measures through staff co-

operation, prudent investment in building insulation & lighting projects

and improved building management are likely to prove more effective in

assisting the achievement of the government’s outcomes.

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Acknowledgements

I would like to thank everyone who has helped me, not just during the writing

of my dissertation, but throughout the duration of the course; particularly my

family for understanding why I had to work and not spend all my “spare” time

with them, my work colleagues for their help and support, the senior

management of Perth & Kinross Council for allowing me the opportunity to

participate in this course of study and the staff and lecturers at Napier

University for their endless support and guidance.

However, the following individuals deserve particular mention for their specific

support; I thank you all:

Lynn Speedie - for being the reason I did this course in the first place

Barbara Renton - for being my Mentor

Lorraine McCowan & Marjory Mentiply - for putting up with me every day

Steve Frew & Gillian Strachan - for giving me all the energy information

Connor Wilson - for all his help on the survey

Russell Goldsmith - for help with the survey and associated assistance during

the course

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1.0 Identifying the problem

1.1 Perth & Kinross Council; its organisational context and the department’s particular responsibilities.

Perth & Kinross Council was created in 1996, under the Local Government

etc. (Scotland) Act 1994.

Politically, Perth & Kinross Council is represented by two MPs, two MSPs and

forty-one Councillors. The Council has a minority political Administration

formed by the Scottish National Party (SNP).

The Council has a revenue budget of £325m, employs over 5000 staff and

has an estate of some 400 non-domestic properties, spread over an area of

some 5,286 square kilometres.

Current expenditure on energy is £4m per annum, with the cost of the

resultant carbon tax being £230k per annum.

Responsibility for energy management lies within the Council’s Property

Division, which is part of The Environment Service.

1.2 The overall aim and project/ research objectives.

Within Perth & Kinross Council’s Corporate Plan, it states that “The Council is

committed to ensuring that we maintain and enhance the environment in a

way that is sustainable for future generations….” It goes on to state that, “We

are working to reduce the carbon footprint of the area and have invested in

green developments such as…energy efficiency measures in our buildings to

reduce both our consumption and our impact on the environment. We are

also working to reduce the carbon footprint of the area by promoting

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renewable energy generation through on-shore wind and micro-generation at

community, business and domestic level.”

In an attempt to ascertain at what stage the Council is with regard to the issue

of achieving the Scottish Government’s Carbon Reduction targets* (Figure 1),

this report will examine whether the duties contained within the Climate

Change (Scotland) Act 2009, are part of a Council strategy to reduce carbon

emissions.

The duties within The Act (Section 44) require that a public body must, in

exercising its functions, act:

in the way best calculated to contribute to delivery of the Act’s

emissions reduction targets;

in the way best calculated to deliver any statutory adaptation

programme;

in a way that it considers most suitable.

In 2007, in addition to meeting the requirements of the legislation, the Council,

along with each of the other thirty-one Scottish Local Authorities, signed-up to

‘Scotland’s Climate Change Declaration’, with the resultant commitment to

meeting the following three imperatives:

reducing greenhouse gas emissions;

adapting to the unavoidable impacts of a changing climate;

working in partnership with communities to respond to climate change.

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If Perth & Kinross Council fails to meet the targets set by the Scottish

Government, particularly in respect of the 2020 target, which is currently less

than seven years away, it risks financial sanctions as the result.

The report and accompanying research will examine whether Perth & Kinross

Council has positioned itself to meet the above requirements by analysing

what it is doing currently to meet these and its strategy for the future in terms

of energy-related carbon reduction.

*Carbon Reduction Targets

The table below presents the Scottish Government’s Carbon Reduction

targets for comparison with that of the UK Government.

Figure 1

% Reduction Target (from 1990 baseline)

Year

Scottish Government 42% 2020

80% 2050

UK Government 34% 2020

80% 2050

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2.0 Literature Review

2.1 Review of the relevant models, concepts and theories

There exists a plethora of models for carbon accounting and calculation of

carbon emissions. The challenge for local authorities is selecting a model or

concept that meets the needs of their own policies, plans and particular

demographic make-up.

Much of the research and modelling that the Scottish Government, in

particular, has produced in respect of carbon reduction in terms of energy has

centred on domestic properties. Given that this report is looking at what the

Council is attempting to achieve with regard to reducing energy consumption

in its non-domestic properties, it will examine whether there is scope for the

models, concepts and theories that have been developed for domestic

properties to be adapted for the non-domestic situation.

2.1.1 Models, Concepts and Theories

Energy-related research shows that the most fundamental indicators: energy

consumption, fossil fuel dependence, import dependency, CO2 emissions,

and energy prices are moving in the wrong direction (Forfás, 2006) and is

occurring on UK, European Union (EU) and global levels.

Factors driving this research can be classified in the following categories:

environmental

political and regulatory

economic

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corporate social responsibility

Within the relatively small confines of Scotland, models, concepts and

theories used for the ‘built environment’ include the following:

The Individual, Social and Material (ISM) approach is a tool the Scottish

Government advocated in its report, ‘Low Carbon Scotland, Meeting the

Emissions Reduction Targets 2013-2027’. The report states that influencing

the population’s behaviours is of critical importance in ensuring the success of

its (The Scottish Government’s) policies and proposals and therefore meeting

Scotland’s ambitious climate change targets.

The Individual context focuses on people’s values, attitudes and skills which

drive choices and behaviours.

The Social context is about how we act as individuals and how that is

influenced by the behaviour society expects, recognising that the world we

live in works to either promote or constrain our behaviours.

The key principle of the ISM approach is that the development of a package of

interventions that targets all three contexts (people’s values, attitudes and

skills) is likely to be more successful in bringing about significant and long-

lasting change Darnton and Horne (2013) and Darnton and Evans (2013).

Whilst the ISM model is currently used by the Scottish Government to

influence the population, mainly in a domestic sense, the model may be

adapted to influence staff in a work situation.

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Top-down Model: (Swan and Urgusal 2009) focuses on the relationship

between the energy sector and the economy.

The model aims to fit historical energy or CO2 data to the organisation’s

property estate but without referring to the end use of the energy or indeed

the types of buildings in the equation, using macro-economic trends (e.g.

unemployment), climate and construction rates as input factors (Kavgic et al.

2010).

The advantage of this model is that it relies on historic, aggregated energy

data, which is usually readily available and straightforward to implement.

However, the counter-argument to this is that changes to building standards

or new technologies are likely to skew the analysis (Kavgic et al. 2010).

Bottom-up model: (Kavgic et al. 2010) combines data from many

disaggregated components, weighted according to their impact on energy

usage and can be used to compare the impact of carbon reduction in two

ways; building physics and statistically.

The building physics method builds up an overall picture of energy

consumption in one building from each end use, based on measurable data

(Zhao & Magoules 2012). The idea is, that representative data from each

building type is combined to give a stock level model according to the quantity

of each fuel type use (Kavgic et al. 2010).

The model makes use of large amounts of data, but not historical, which

makes it very time-consuming and expensive to collect. By applying

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appropriate weightings to the sample, the energy usage for the organisation’s

stock can be calculated.

It should be noted that the model’s implementation is more difficult with non-

domestic property due primarily to the greater interaction between activity and

building type.

The Statistical model correlates historical energy consumption with other

variables, such as the weather, heat loss coefficient or the heat capacity

factor (Zhao & Magoules 2012).

The model relies primarily on historical data from energy bills, enabling it to

account for occupant behaviour, economic and social effects, allowing energy

consumption for each property type to be calculated (Kavgic et al. 2010).

As with the building physics model, this method has similar drawbacks when

dealing with non-domestic properties.

To conclude this section; the top-down approach is a relatively simple method

to use, but fails in its ability to provide detailed information with regard to a

profile for energy / time / temperature.

The bottom-up models allow for more account to be taken of variables such

as the building fabric, new technologies and the way in which energy is used

in particular buildings.

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2.1.2 Literature Review

With regard to available literature on the subject of carbon reduction, as with

models, concepts and theories, there is much that deals with the housing

sector, but with the exception of Government and other public sector reports,

little deals with non-domestic buildings. However, as mentioned above, much

of what has been researched for a domestic scenario may, in theory, also be

suitable for adaptation in a non-domestic situation.

There is evidence that where the government supports carbon reduction

technology, the uptake of that technology is much greater in the market place.

For example, Brown et al. (2007) suggests the Japanese success of

integrating fuel cell technology within the country’s residential combined heat

and power system is the result of a partnership between the government and

industry.

West et al. (2010), states that the implementation of regulations and policies

has a positive effect on the uptake of renewable technology (through the

understanding of public opinions and the application of this to policies).

Negro et al. (2012), suggests that there is a need for policy makers to address

the apparent diffusion that exists among renewable energy technologies.

The above views would appear to be supported in Scotland, but this is

perhaps more to do with the fact that government funding is available for the

implementation of ‘green’ technologies, thereby enhancing the appeal of

certain products.

Monaghan & Powell (2011) highlight that there is a certain amount of tension

between the different technologies in terms of affordability, stating that

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technological performance (lowest possible energy use and carbon

emissions) is important, but if the technology is not affordable, its selection

may be affected.

The above view is endorsed by Caird et al. (2007) and Element Energy

(2008), concurring that the financial aspect of carbon reduction technology

(e.g. high capital cost of the system and long payback periods) is the main

factor preventing householders from adopting the technology.

This view further emphasises the point that whilst carbon reduction is a good

thing and legislatively imperative, it comes at a price, not only for

“householders”, but similarly for public and private sector organisations.

Audit Scotland endorses this in its report ‘Renewable Energy’ (September

2013), further emphasising the point regarding the high cost of renewable

energy projects, stating that the Scottish public sector’s combined budget for

20013/14 and 20014/15 is £264m, against £209m in the previous 11 years.

Despite this fact, the report states that “renewable energy projects are

progressing more slowly than anticipated due to factors such as the current

economic climate and changes in UK energy policy.”

As a consequence of the above, the report’s author believes that public

bodies are experiencing delays in spending the funding available to the public

sector; why is this?

Audit Scotland are of the opinion that whilst some sources of renewable

energy such as hydro-electricity and on-shore wind technology are well

developed, other sources, for example, off-shore and wave technology power

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generation are not only less developed, they are considerably more expensive

to produce.

Having stated the Audit Scotland view, if we look at a relatively small in-land

local authority, such as is the case with Perth & Kinross Council, most of

these types of renewable technologies, with the exception of hydro-

generation, are not considered, mainly due to location and cost.

The Scottish Government in its report ‘A Low Carbon Strategy for Scotland’,

states that, “Scotland’s emissions have fallen by 21.2% from 1990, reaching

the half-way point in achieving our Climate Change Act target of reducing

emissions by 42% by 2020” [sic].

Perhaps surprisingly for a Government publication, the above statement is

largely unsupported within the report itself and certainly this paper will, in the

case of Perth & Kinross Council, demonstrate that, with regard to energy

consumption, the reverse of that statement is in fact the case.

A further Scottish Government report, “2020 Routemap for Renewable Energy

in Scotland”, makes equally bullish claims in respect of the perceived impact

of renewable energy production in Scotland by the year 2020, claiming that

“This routemap sets out a comprehensive path of actions to deliver on

Scotland’s ambition to be the powerhouse of Europe.”

Given the view expressed by Audit Scotland in its report, ‘Renewable Energy

September 2013’, in respect of the development and cost of large-scale

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renewable energy schemes, particularly with regard to, the as yet under-

developed off-shore wind and tidal power production, the claims by the

Scottish Government would appear to be somewhat ill-conceived.

2.1.3 The conceptual framework

As stated at the beginning of this section, there is much in the way of models,

concepts and literature that can be drawn on in respect of Carbon Reduction,

albeit that much of it is designed for a domestic situation. Having stated that,

though the subject matter of this report is very much about a real-life subject

rather than something which is theoretical and therefore actual data is used to

emphasise the points.

The conceptual framework underpinning this report can be best explained in

the form of a model (Figure 2), thus:

Figure 2

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ScottishGovernment Legislation

e.g. Climate Change (Scotland) Act 2009

Strategy Practice

Monitoring Reporting

Interpretation

Internal

External

UK/European legislation

Scotland’s Climate Change Declaration

SINGLE LOOP LEARNING

DOUBLE LOOP LEARNING

The model shown above is a combination of the concepts of single and

double loop learning Argyris and Schön (1978: 2), in that the Council has a

goal to achieve (Carbon Reduction) and there is a logical path for the

interpretation of the legislation, the subsequent formulation of the strategy to

achieve the goal, the work to achieve the goals set by the strategy, followed

by subsequent monitoring and reporting.

Double–loop learning is the concept of modifying, or possibly even the

rejecting the goal, in the light of experience.

The concept of Single-loop learning is the repeated attempt at the same

problem, with no variation of method and without ever questioning the goal.

Clearly, the Council is not in the business of accepting or repeating a failed

process; the model shown as Figure 2 shows therefore, the intervention of an

external agency (in this case the Scottish Government), thereby allowing the

process to be changed or modified according to the results reported.

For the model to work in practice there are certain key variables that need to

be considered, such as:

willingness of staff to play their part in reducing energy consumption;

the financial constraints within the public sector, reducing the ability to invest

heavily in large-scale energy conservation measures;

the reliability of data on energy consumption;

whether the targets set by the Scottish Government are realistic and

achievable;

15

with the exception of Government-produced literature on the subject, there is

little in the way of academic literature on the subject of Carbon Reduction in a

non-domestic situation.

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3.0 Methodology

3.1 Aims and objectives

The overall objective of this report is to look at whether Perth & Kinross

Council has positioned itself to contribute to the carbon reduction targets set

by the Scottish Government. This aim is not therefore theoretical, it is factual;

either the Council is or isn’t addressing the issue of Carbon Reduction. This

makes some of the research relatively straightforward, in that establishing the

extent to which the Council is organising itself to achieve the targets should

be a matter of obtaining and analysing the performance data.

3.2 Research Approach

The most challenging part of the exercise is ascertaining whether the methods

used for measuring performance are reliable, accurate and are based on

methodologies that are robust and can stand up to scrutiny.

3.3 Data Collection and Analysis Methods

The research methods therefore, will be a combination of qualitative and

quantitative measures.

The quantitative data that is available as evidence of the Council’s

performance measures and how it is organised to meet the government’s

targets is publicly available in the form of Perth & Kinross Council’s

‘Community Plan and Single Outcome Agreement’ and its ‘Business

Management & Improvement Plan’ performance indicators.

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The quantitative data therefore, will be a combination of primary and

secondary material; the secondary data that will help inform the report will be

mostly that described above in the form of performance indicator data.

The primary data; is that collected on a monthly basis and used by the

Council to monitor energy budgets. This information is used to help predict

not only the budget out-turns, but as a consequence, energy consumption.

The qualitative data will be collected by way of interviews with individuals from

the Council’s Corporate Management Group (acting as ‘Climate Champions’)

and a staff survey that will attempt to examine staff attitudes to energy

conservation within the office estate.

The qualitative data collected, in the manner described above, will be

designed to capture not only the attitudes of staff and management with

regard to energy conservation, but hopes to elicit ideas that could help reduce

the Council’s carbon footprint to help inform future strategy on the subject.

Whilst the project will rely on analysis of a mix of qualitative and quantitative

data, an Action Research approach will be used, focusing on pragmatic and

solution-driven research rather than testing theories.

Furthermore, Action Research, because it is real, has more obvious relevance

in practice.

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3.4 Constraints and limitations

The main strength of the approach to my research, as described above, is

that I am dealing with not only a tangible subject, but an imperative that is

required by legislation. Therefore, while there is a theoretical aspect to the

subject, in that one cannot predict outside issues that may influence energy

consumption, such as: political factors; weather conditions; utility company

pricing policy and the size of the Council’s own estate, this is a very real issue

and the intention is that the report and the research in to it will provide the

Council with proper insight in to the success or otherwise of its achievement

towards meeting the Scottish Government’s targets.

The weakness of my proposed Action Research approach is probably that for

me, as researcher, I take on responsibility for encouraging change as well as

for the research and the risk of personal over-involvement has the potential to

influence the results.

In addition, the objective of Action Research is intended to achieve the

outcomes of Action (change) and Research (understanding); which may be

time-consuming and complex to conduct.

3.5 Ethical Considerations

It is anticipated that during my research, there will be two main areas where

consideration of ethics will need to be observed: the staff survey (qualitative

data) and when using the performance/financial data (quantitative data).

In the case of the survey information, it is vital that the participant’s ideas,

views and confidentiality are respected, not only morally, but also in terms of

the Data Protection Act (1998).

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With regard to the use of performance and financial data; permission to use

that information in my research will be sought from the Council’s Chief

Executive, who has already approved the dissertation topic in terms of its

relevance to the organisation.

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4.0 The Analysis

4.1 Background

This report examines in detail whether the goal of carbon reduction is a reality

and if there has been any attempt by the Council to align this work with the

Scottish Government’s carbon reduction targets in terms of its energy

consumption.

The Scottish Government’s carbon reduction targets, as defined in the

Climate Scotland Act (2009) are as follows:

By 2020 – 42% reduction (from 1990 baseline)

By 2050 – 80% reduction

The UK Government targets, for comparison, are:

By 2020 – 34% reduction (from 1990 baseline)

By 2050 –80% reduction

Under Perth & Kinross Council’s ‘Corporate Energy Management and

Conservation Policy’, approved by the Strategic Policy and Resources

Committee on 14 September 2011, a number of statements are made with

regard to energy conservation measures for the Council’s building stock, such

as:

“Implement the Council’s commitments under the Local Authority

Carbon Management Programme, the Scottish Climate Change

Declaration and in respect of all relevant legislation”

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“Make provision (budgetary)……..for an appropriate level of energy

management and conservation management…..”

Further statement of intent is contained within the ‘Perth and Kinross’s

Community Plan and Single Outcome Agreement 2013 – 2023’. It states: “All

Community Planning Partners are committed to and have made progress in

reducing their carbon footprint and we have made progress on all seven

‘Scottish Climate Change Declaration’ commitments.”

The Council’s ‘Five-year Climate Change Declaration Report’ (submitted to

the Scottish Government in July 2013, as part of the Scottish Climate Change

Declaration commitment) also makes a statement of intent regarding carbon

footprint reduction, citing the completion of actions within the ‘Carbon

Management Strategy and Implementation Plan’ (CMSIP) as the principle

means of achieving that particular goal; however this document expired in

2012.

It appears therefore, that the Council’s “policy” is stated in a number of

documents, along with the solutions in respect of the actions that will be taken

to achieve the policy aspirations.

The fact however that the policy, or policies and mitigating actions are not

contained within one document could perhaps be a barrier to successfully

reducing carbon.

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Despite the Council’s claims and aspirations that are contained in the three

documents mentioned above (The Corporate Energy Management and

Conservation Policy, Perth and Kinross’s Community Plan 2013 – 2023 and

The Five-year Climate Change Declaration Report), it is considered that they

are relevant only if they address the six points noted below and are part of a

Council strategy to reduce carbon emissions (previously referred to in Section

1 of this report).

The Climate Change (Scotland) Act (Section 44) requires public bodies in

exercising its functions, to act:

in the way best calculated to contribute to delivery of the Act’s

emissions reduction targets;

in the way best calculated to deliver any statutory adaptation

programme;

in a way that it considers most suitable.

The Council has also signed-up to ‘Scotland’s Climate Change Declaration’,

with the commitment of meeting the following three imperatives:

reducing greenhouse gas emissions;

adapting to the unavoidable impacts of a changing climate;

working in partnership with communities to respond to climate change.

Whether the Council is meeting these points will be analysed and the results

described within this section of the report.

23

Included within the research is an analysis of whether the Council’s “energy

conservation measures” are achieving that stated in Council policy.

In examining the above, the research will establish if a new direction to carbon

reduction is required, whether additional funding is needed and if so, where

the Council might source it and are there areas of activity within the energy

sector that the Council could be examining that would further increase its

ability to reduce carbon emissions.

Scotland’s Climate Change Declaration recognises that Scottish local

authorities play a key role in their collective response to the challenge of

climate change and are required to publicly demonstrate their commitment to

action by agreeing to issue the annual statement, detailing the progress of

their climate change response.

As part of this commitment, the ‘2020 Climate Group’ was established by Ian

Marchant, Chief Executive of SSE, in 2009, to consider how Scotland’s

business, voluntary and public sectors can work together to help achieve

Scotland’s emissions reduction targets.

Although the ‘2020 Group’ is independent of the Scottish Government, it

seeks input and guidance from it (The Scottish Government) where

appropriate.

24

Within the remit of 2020 Group, it states that, “The process is driven by the

Sustainable Scotland Network (SSN), with support from the Scottish

Government, and we will continue to work with SSN, the COSLA (Convention

of Scottish Local Authorities) and individual local authorities to ensure the

success of the initiative, aligning it with related reporting requirements in the

broader public sector.

It should be noted that part of the remit of the ‘2020 Group’ is to ensure that

each local authority nominates a ‘Climate Champion’ under the requirements

of ‘Scotland’s Climate Change Declaration’.

In the case of Perth & Kinross Council, this role was allocated to its Corporate

Management Group (Depute Directors and all Heads of Service).

However, recent evidence gathered during an interview with the chair of the

Corporate Management Group (CMG) revealed that the CMG was unaware

of the role allocated to it, or the duties it was expected to perform within that

role as stated in ‘Scotland’s Climate Change Declaration’.

It should also be noted that a further group is involved in the process to

deliver the statutory annual emissions reduction targets required by the

Climate Change (Scotland) Act 2009, that is ‘The Climate Change Delivery

Board’, chaired by the Director-General Enterprise, Environment and Digital

and consists of Scottish Government directors from the sectors of energy,

housing and transport and is the delivery mechanism that co-ordinates

Scottish Government action on climate change.

25

Could it be the case that the number of bodies “responsible” for assisting in

the delivery of the Scottish Government’s Carbon Reduction Targets is

actually a barrier to achieving the goal?

Perth & Kinross Council is in a similar position to the rest of the public sector

in that the drive to make savings in every area of activity is a financial

necessity. This includes ensuring that there is a strategy in place to save

energy by, as far as is practicable, making buildings as energy efficient as

possible.

Whilst this is an aspiration that all local authorities should strive for as a

matter of course, carbon reduction should be driven by the aforementioned

imperatives in Scotland’s Climate Change Declaration and the Climate

Change (Scotland) Act 2009. The practical implication of research in the

chosen area has the potential to highlight whether the Council has positioned

itself to meet these requirements.

Reduction of the Council’s carbon footprint has the knock-on effect of

potentially reducing the Council’s energy bill and limiting the amount paid to

the Scottish Government under the Carbon Reduction Scheme.

The aforementioned six points have been extracted from a combination of

The Climate Change (Scotland) Act (Section 44) and ‘Scotland’s Climate

Change Declaration’. It is considered that the imperatives contained within

these points are and should be the corner-stone on which all local authorities

26

base their Carbon Reduction strategies and any other statements with regard

to how they work towards the goal could be considered extraneous.

Act in the way best calculated to contribute to delivery of the Act’s

emissions reduction targets;

Act in the way best calculated to deliver any statutory adaptation

programme;

Act in a way that it considers most suitable;

Reduce greenhouse gas emissions;

Adapt to the unavoidable impacts of a changing climate;

Work in partnership with communities to respond to climate change.

As this report is specifically aimed at energy consumption in the Council’s

non-domestic estate, it will look at how the Council is set up to deal with the

points above that are most relevant to the specific subject area, which in the

author’s own view are:

Act in the way best calculated to contribute to delivery of the Act’s

emissions reduction targets;

Act in a way that it considers most suitable;

Reduce greenhouse gas emissions.

Taking the three imperatives above as one “goal”, examination of what the

Council needs to achieve can be measured, despite considering that the first two

points are somewhat nebulous, in that without a prescribed strategy for achieving

27

the targets, each local authority will have its own idea on how the targets can be

achieved.

The third point is more direct, but again is vague on how this might be achieved.

Consideration of the “goal” is analysed thus:

It is considered that Conceptual Framework within which the Council operates in

respect of Carbon Reduction (illustrated in Figure 2), forms the basis of delivery

of the targets, as it states: the legislation, the strategic direction and the

monitoring and reporting that underpins the strategy, allowing the Council to

measure performance.

The imperatives, “Act in the way best calculated to contribute to delivery of

the Act’s emissions reduction targets”, “Act in a way that it considers most

suitable” and “Reduce greenhouse gas emissions” are essentially about the

Council putting a strategy in place to deliver the Act’s emissions targets and

working in a way that will achieve that goal. Is the Council achieving this?

As previously stated, there are a number of documents that the Council has

published containing “strategy”, thus:

28

The ‘Corporate Energy Management and Conservation Policy (ref)’, contains

the statements:

“Implement the Council’s commitments under the Local Authority Carbon

Management Programme, the Scottish Climate Change Declaration and in

respect of all relevant legislation.”

“Make provision (budgetary)……..for an appropriate level of energy

management and conservation management…..”

‘Perth and Kinross’s Community Plan 2013 – 2023’states:

“All Community Planning Partners are committed to and have made

progress in reducing their carbon footprint and we have made progress on

all seven Scottish Climate Change Declaration commitments.”

The Council’s ‘Five-year Climate Change Declaration Report (2013)’ cites

completion of actions within the ‘Carbon Management Strategy and

Implementation Plan’ (CMSIP) as the principle means of achieving carbon

reduction.

To answer the questions posed by the three imperatives one has to look at

whether the statements have any substance in fact, examining whether the

Conceptual Framework (Figure 2) that the Council has in place to manage the

process of carbon reduction is actually delivering results in practice.

Within the ‘Corporate Energy Management and Conservation Policy’, it states

“Perth and Kinross Council will reduce its energy consumption and costs,

29

together with its carbon emissions, across its entire property portfolio, for the

benefit of the environment and the community....”. To support that statement,

seven policy objectives are listed:

Maintain a high profile for energy management and conservation within

and out-with the Council and take steps to secure ‘exemplar authority’

status in this field.

Implement the Council’s commitments under the Local Authority

Carbon Management Programme, the Scottish Climate Change

Declaration and in respect of all relevant legislation.

Make provision within the Capital and Revenue programmes for an

appropriate level of energy management and conservation investment,

including the maximum use of external funding and Spend to Save

initiatives.

Ensure all new Council buildings, building extensions, or maintenance

works exceed by a minimum of 10% overall the standards of energy

management and conservation laid down in the current Building

Standards Regulations.

Ensure all existing buildings retained within the Estate, are brought up

to the minimum standards in section 4 above within a ten year

programme. Where this is not practical, review the buildings retention

within the Corporate Asset Management Strategy. Where an existing

building is extended, converted, or refurbished, the minimum standards

shall apply at the time the extension is constructed.

30

Implement measures to ensure the optimum operation of the Council’s

buildings, maintaining minimal energy consumption consistent with

location, Service needs and building users.

Explore innovative use of new technology and other developments,

including district heating initiatives, to reduce energy consumption and

carbon emissions and to generate energy for the Council’s use.

The policy goes on to state:

A higher standard of energy conservation is needed in order to achieve

the Council’s targets for reducing our carbon footprint. These

improvements will:

Reduce energy consumption and in doing so minimise revenue

expenditure;

Assist compliance with increasingly demanding legislation, avoiding

potential financial penalties;

Reduce the Council’s ‘carbon tax’ payments;

Ensure that the Council acts sustainably in respect of the management

of its property assets.

Has consumption been reduced since 2011 when the report was approved by

committee?

In an effort to ascertain whether these statements have resulted in action to

actually reduce energy consumption, an examination of the five years up to

and including 2013 has been undertaken (see appendices 1a – 1d), with the

analysis summarised below:

31

4.2 An analysis of fuel consumption v cost of fuel v area of estate

The main types of fuel consumed by Perth & Kinross Council are: electricity,

gas, oil and biomass.

Whilst biomass and oil are not included in the calculation for the Carbon

Reduction Commitment (CRC), they are used within this analysis to illustrate

points. The CRC is a UK mandatory ‘cap and trade scheme’ proposed to cut

carbon emissions by 1.2 million tonnes per year by 2020.

CRC targets large non-energy intensive private and public sector

organisations within the UK, whose combined electricity use through half

hourly metering exceeds 6,000 MWh per year. Approximately 3,000

organisations with an energy spend greater than £500,000 are taking part.

The main fuel types were all compared against cost and area of the Council’s

estate over the period 1 April 2008 until 31 March 2013, giving five complete

years data (appendices 1a – 1d). (Source: Council’s Energy Management

System, ‘Stark’)

Over the period of the analysis, the greatest percentage rise in consumption

(806%) is seen in the use of biomass. This is probably not surprising as

during the period of the analysis the number of biomass plants in use within

the Council estate has risen from two to eight.

The increase in the consumption of the more traditional fuels of gas and

electricity at 10.20% and 27.28% respectively, can be interpreted thus:

When compared to the percentage increase in the area of the Council’s estate

(24.93%), gas (10.20%) appears to compare favourably, with electricity

32

(27.28%) consumption increasing slightly more than the size of the estate in

terms of percentage.

In real terms, electricity consumption has risen in almost direct proportion to

the size of the estate, whilst gas consumption has risen by some 15% less

than the size of the estate.

It is a fact that the majority of the Council’s non-domestic properties (48%) are

heated by gas; but is this reduction due to a heating policy, milder weather or

the introduction of energy efficiency measures and what do the above figures

mean in terms of carbon reduction?

Examining the carbon emissions from electricity, gas and oil (biomass is

carbon-neutral) over the same period as the above analysis (1 April 2008 - 31

March 2013) the following was found:

Carbon Emissions (Tonnes of CO2) from electricity, gas and oil (1 April

2008 - 31 March 2013)

Utility 2009 2010 2011 2012 2013 %rise

2009 -

2013

Electricity 9,772 11,106 11,192 11,719 12,407 26.95%

Gas 7,562 7,602 8,432 7,615 8,337 10.24%

Oil 1,339 1,151 1191 1,115 1,253 (6.36%)

18,673 21,997 17.80%

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The above figures indicate that carbon emissions from the Council’s main

energy sources have risen by nearly 18% over the review period.

To put this figure in to context, a comparison to the 1990 baseline needs to be

done in order that progress towards the 2020, 42% target can be measured.

The Council’s current increase from 1990 levels of CO2 production is 26.6%

or 4628 tonnes of CO2 (see Figure 3 below).

Figure 3

Year CO2 (tonnes) Target Saving

required

Government

Target

1990/91 17,368 10,074 7,294 42%

2012/13 21,996 10,074 11,922 48%

What does this mean for the Council in terms of the Scottish Government’s

Carbon Reduction targets?

To achieve the Scottish Government’s target of a 42% reduction on 1990

levels by 2020, the Council is required to reduce its carbon emissions through

energy usage by some 11,922 tonnes of CO2 (or 54%) over the next seven

years.

In a similar vein, achievement of the Scottish (and UK) Government’s target of

80% reduction on 1990 levels by 2050, the Council is required to reduce its

34

carbon emissions through energy usage by some18,522 tonnes of CO2 (or

84%) in the next thirty-seven years.

How can these targets be achieved?

To answer this question, it is desirable at this point to return to the three

imperatives (the “goal”) and revisit them in terms of deciding whether the

Council is in a position to meet the Carbon Reduction targets with regard to its

consumption of energy:

Act in the way best calculated to contribute to delivery of the Act’s

emissions reduction targets;

Act in a way that it considers most suitable;

Reduce greenhouse gas emissions.

Where is the Council currently in achieving the “goal”?

In terms of the Council’s‘ Corporate Energy Management and Conservation

Policy’, and the statement, “Perth and Kinross Council will reduce its energy

consumption and costs, together with its carbon emissions, across its entire

property portfolio….”; the evidence stemming from analysis shows, on the

face of it, that this isn’t being achieved.

Apart from the lack of evidence to demonstrate that the Council is monitoring

its performance in respect of the statements made in the ‘Corporate Energy

Management and Conservation Policy’, the reason for this apparent lack of

35

progress appears to be down to the fact that the size of the estate has grown

in size during the period 2009-2013 by some 25%, resulting in an increase in

CO emissions during the same period of some 18%.

This statistic indicates that, on the face of it, despite the growth in the size of

the estate, energy efficiency measures have been partially successful in

restricting the growth of CO emissions. This is mainly due to the fact that the

increase in the size of the estate has been due to the commissioning of six

new schools in 2010 and whilst they have all been constructed in line with the

building standards in terms of energy efficiency (in place at that time), there is

an issue in that these schools have been built and are managed by the private

sector and are subject to a “normalisation” period.

Normalisation in this type of contract is the “bedding-in” period for the building

and allows for a period of stabilisation, during which it is intended that realistic

energy consumption figures should be established.

However, as the contract between the building’s contractor (facilities

management provider) and the Council has a sharing mechanism in respect

of any energy savings achieved after the normalisation period, it could be

suggested that it is in the interests of the contractor to try and maximise the

baseline consumption figure, thus making it easier to achieve savings in the

first year following normalisation, thereby increasing the return payable to the

Contractor through the sharing mechanism.

36

The strategy stated in the ‘Corporate Energy Management and Conservation

Policy’ that has been developed by Perth & Kinross Council to meet the

targets is apparently, at this stage, failing to not only to deliver a reduction in

emissions, but it is evident that carbon emissions with regard to energy

consumption are on an upward plane.

This is amply demonstrated by the trend shown in the past five years

(2008/09 – 2012/13), where emissions have increased from 19,367 tonnes of

CO2 in 2008/09 to 21,996 in 2012/13, an increase of some 2629 tonnes of

CO2.

Even if the Council was to maintain current carbon emissions for energy at

current levels, the analysis shown above in Fig x indicates that over the

coming seven years until 2020, energy use would have to reduce by some

12,000 tonnes of CO2 or 54%.

Similarly, on current emissions levels, energy consumption needs to reduce

by some 18,500 tonnes of CO2 (or 84%) by 2050

What can the Council do to halt the upward trend and start to make progress

towards, initially, the 2020 target?

37

Referring again to the “goal”:

A 54% reduction in current levels of CO2 emissions is a considerable target

for the Council to aspire to; what should happen regarding future strategy,

expenditure and actions that need to be in place to achieve this?

A 54% reduction is not attainable without considerable investment in

infrastructure improvements and energy efficiency measures that would save

the Council over 1700 tonnes of CO2 per annum recurring for the coming

seven years.

What does a saving of 1700 tonnes of CO2 look like in terms of investment in

each of the seven years in question?

Using the most recent full year figures available (2012/13) i.e. 78,359,705

kWh of energy consumed, producing 21,996 tonnes of CO2, the Council will

need to reduce the amount of energy it consumes, recurring, by 6,057,205

kWh or 7.73% per annum, assuming no rise in current consumption levels.

To put this reduction in to context, the average energy consumption of a large

secondary school is in excess of 4,000,000 kWh of electricity and 600,000

kWh of gas per annum, producing some 1100 tonnes of CO2.

Therefore the Council has to reduce its energy consumption by an equivalent

of eleven secondary schools over the next seven years just to meet the

38

requirements of the Government’s 2020 target, without taking account of the

further savings necessary to meet the 2050 target of an 80% reduction.

A major influence with regard to the increase in carbon emissions is the

apparent lack of recognition of the impact that new projects may have on the

Council’s ability to decrease its carbon footprint.

For example, within the Council’s capital programme there exists the

construction of a new-build secondary school in addition to the current estate.

There is however no evidence within the Business Case or the Strategic

Environmental Assessment of a consideration of the carbon emissions likely

as the result of this project, which is due for completion in 2016.

This example illustrates the need for the likely carbon footprint implications

from new construction projects to be properly measured, assessed and

communicated, thereby ensuring the Council is in a position to take account of

and make the necessary provision with regard to mitigating the resultant

impact.

Part of this assessment is ensuring that staff with the necessary knowledge

and expertise on the subject of carbon emission impact are consulted at an

early stage in the planning process for new builds, when appropriate controls,

such as energy efficiency measures, can be included as part of the project.

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4.3 Mitigating Actions

Actions to mitigate the rise in carbon emissions from energy consumption, in

light of the findings earlier in this report, need to be considered, given that the

indications with regard to carbon emissions suggest that to meet the

government-imposed targets, the Council would need to close the equivalent

of eleven secondary schools by 2020.

Clearly, closure of buildings on a scale such as that, in order to achieve the

2020 target is unrealistic, but can the necessary reduction be achieved in

another way?

In terms of investment in energy efficiency measures, the Council currently

bases installation of the various types of types of technology under this

umbrella on a pay-back period of seven years, but what would be the level of

expenditure necessary to achieve the reduction (using current consumption

levels) of nearly 12,000 tonnes of CO2 by 2020?

Typical of the type of energy efficiency measures the Council currently invests

in are: biomass heating plants, Light-emitting diode (LED) lighting, improved

insulation and heating controls. Whilst these methods are effective in

reducing energy consumption and therefore CO2 emissions on a relatively

small scale, real savings are only made where large-scale building retro-fit

programmes are undertaken and these are achieved only through huge

capital investment.

40

Other measures that can be undertaken are investment in photovoltaic panels

(solar energy capture) or wind-generated power, which are considered

carbon-neutral and benefit the Council not only in reducing CO2, but also

attract income from the government in the form of revenue known as a

‘Renewable Heat Incentive’, which is basically money received from the

government, payable for generation of excess power that can be captured by

the national grid.

That said, to achieve the reductions necessary to meet the 2020 emissions

targets, it is estimated that Perth & Kinross Council would need to invest

around £9,000,000 in energy efficiency measures for its current building stock

to achieve the energy reductions necessary.

Having stated the above findings from the ‘analysis of fuel consumption v cost

of fuel v area of estate’, it is necessary to look at carbon reduction in a more

feasible and pragmatic way. For this to be achieved, the co-operation and

input of staff is vital.

Staff attitude and a desire to assist the Council save energy and as a

consequence, reduce carbon emissions would go some way to alleviating the

issue.

Possibly the most powerful motivating factor in achieving staff buy-in is

equating the cost of energy consumption to salaries, that is, informing staff

that perhaps the only feasible way of reducing the Council energy carbon

footprint is the closure of buildings such as Primary Schools and area offices,

41

with the consequential loss of jobs through consolidation of the estate and the

achievement of economies of scale.

An average Primary School in Perth & Kinross, with a roll of two-hundred and

fifty pupils consumes some 200,000 kWh of energy per annum. Closure of

such a building could save the Council around 50 tonnes of CO2, recurring,

per annum.

Returning to the input and co-operation of staff; it is vital therefore that staff

are informed of the likely impact and consequences of energy consumption

remaining at current levels and the factors required to mitigate them.

The following text relates to the staff survey carried out (14 February 2014 –

28 February 2014) as part of the research for this report, with the concluding

paragraphs highlighting the results and making comment regarding the staff

feedback.

4.4 Staff Survey Analysis

The aforementioned survey was distributed through Perth & Kinross Council’s

intranet site, to which some 3500 staff have access.

The survey was distributed on 14 February 2014 and was available until 28

February 2014. (detailed results are presented as Appendix 3)

During this period the total number of responses received was 174, or just

under 5% response rate.

42

Whilst the response rate is disappointing, it is felt that the results can be

safely extrapolated to provide an indication of the attitudes that prevail within

the staff cohort and can be used to plan a way forward in terms of how they

can contribute to energy efficiency and ultimately carbon reduction with regard

to energy.

With regard to the analysis of the results; perhaps the greatest influence on

staff being encouraged to save energy can be through the realisation of how

much it actually costs and how savings can then be equated to jobs, i.e. every

£25k saved is the equivalent of an administrative assistant.

Do these results tell us anything about the Council’s ability to meet the

Carbon Reduction targets set by the Scottish Government?

Clearly, staff participation is vitally important to the Council in its journey

towards achievement of the Government’s targets and despite the relatively

low response rate to the survey it is possible to draw conclusions from the

results and they are summarised thus (Figure 4):

Figure 4

Question 1 75% of the respondents thought energy management to be important.

Question 2 A high percentage of staff are aware of the need to turn off equipment

when not required.

Question 3 Current information to staff on energy efficiency is not conveying the

message and the strategy for this needs to be revised.

Question 4 Whilst the survey indicates that information on energy efficiency appears

43

to be insufficient, the responses to this question are contrary to that

position in that staff still have an awareness that it is important to the

organisation whether that be from a cost or environmental angle.

Question 5 Responses indicate that staff don’t have a grasp of the cost to the Council

of energy. This lack of understanding of the cost manifests itself in some

of the other responses (which ones?)

Question 6 The responses to this question are directly linked to question 3, where the

answers conveyed the message that energy efficiency information is

insufficient.

The fact that nearly 59% of responses to question 6 states that the

motivation for saving energy at work is “receiving regular information

updates” supports the view expressed in question 3 and provides

assistance to the Council in terms of future strategy.

Question 7 The responses to both questions 3 and 6 tie in to this question, which

asks which communication tools influence staff to the greatest extent; the

responses indicate that the Council’s intranet is the best medium for

dissemination for this type of information.

Question 8 The positive response to this question is less than 13%, but as previously

stated, if 1 in 8 Council employees are willing to participate actively in

energy awareness raising, this equates to some 600 people. The issue

would be how this could be organised to make their participation effective.

In summing up the subject of the staff survey, whilst as was previously stated,

the response rate is less than 5% of staff estimated to have access to a

personal computer, the information gleaned will be particularly useful

regarding the way in which the subject of energy efficiency is disseminated to

staff and through which medium.

44

The survey also indicates that staff require more information regarding the

cost of energy for the organisation and what the impact is for the Council of

not reducing its carbon footprint.

Returning to the comment earlier in the report regarding the possible closure

of buildings and the resultant consolidation of the estate; this possible

scenario is particularly emotive and may serve as a driver to “encourage” staff

to become more aware of the need for carbon reduction, particularly as the

survey indicates that only around a quarter of staff have an awareness of the

Council’s energy costs.

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5.0 Conclusion

5.1 Introduction

This section will review and summarise the dissertation research, identify the

main methods used for researching the problem statement and discuss the

implications of that research.

5.2 Problem Statement and Methodology

Before starting to summarise the findings of this report and draw conclusions,

it is necessary to return to the original question:

“Has Perth & Kinross Council positioned itself to reduce energy

consumption to achieve Scottish Government’s 2020 and 2050 Carbon

Reduction targets?”

The report has attempted to distil the information available within both Perth &

Kinross Council and the Scottish Government, to a point where it was

possible to ascertain what it is the Government expects in terms of its carbon

reduction targets and establish whether the Council, in terms of energy

consumption, has positioned itself meet these expectations.

The methodology used for the research was to look at whether the Council

had a strategy to address Carbon Reduction and a process therein to deal

with the problem.

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5.3 Research Summary

It was found that although no formal methodology had been adopted by the

Council to deal with the problem of Carbon Reduction, research established

that there is a framework in existence that presents a logical path for:

interpretation of the legislation; the formulation of the strategy to enable the

legislation to be actioned; monitoring of progress and reporting of results.

This framework, despite not being formalised, became the Conceptual

Framework on which the report’s research was based.

The reasoning behind the decision to adopt this model was that the

combination of single and double-loop learning provided clarity to the process,

with a specific goal, whilst allowing that process to continue as long as it was

required to do so.

The research methodology emanating from the use of this model was a

combination of quantitative and qualitative data to look at whether the Council

was answering three basic questions with regard to its consumption of

energy, these being:

Act in the way best calculated to contribute to delivery of the Act’s

emissions reduction targets;

Act in a way that it considers most suitable;

Reduce greenhouse gas emissions.

The findings are presented below.

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6.0 Findings

The high cost of energy efficiency measures and the long pay-back

periods involved is a barrier to large-scale implementation.

The Council’s Carbon Reduction “policy” and subsequent mitigating

actions are contained within a number of documents and may be

perceived as a barrier to successful completion of the processes

necessary to reduce carbon emissions.

Council policy is not aligned to the requirements of the Climate Change

(Scotland) Act 2009 or the requirements of ‘Scotland’s Climate Change

Declaration’.

The Scottish Government has a number of organisations involved in

assisting with Carbon Reduction in the public sector. This fact may be a

barrier to successful achievement of the Governments Carbon Reduction

targets in that each of the groups has their own message, which could

potentially lead to conflicting or confusing messages being issued.

Perth & Kinross Council’s ‘Corporate Energy Management and

Conservation Policy’ that was approved in 2011, is outdated and does not

reflect current activity within the area it purports to support.

48

The objectives within Perth & Kinross Council’s ‘Corporate Energy

Management and Conservation Policy’ are largely unsupported by a

monitoring process and subsequent performance indicators.

To achieve the Scottish Government’s 2020 carbon reduction target, the

Council is required to reduce its carbon emissions through energy usage

by nearly 12,000 tonnes of CO2 over the coming seven years.

Within business cases for large capital building projects, there is little

evidence to suggest that the resultant increase in carbon emissions as the

result of the project, are being considered.

To achieve the Carbon Reduction necessary (12,000 tonnes of CO2) to

meet the 2020 target, the Council would need to close the equivalent of

eleven secondary schools or invest an estimated £9m in energy efficiency

measures for its buildings.

The staff survey found that current information issue by the Council on

energy efficiency is not conveying the message to staff and there is a need

for the strategy on information dissemination to be revised.

The staff survey also found that most staff are unaware of the cost of

energy to the Council and more information is required in respect of the

impact to the Council of failing to reduce its carbon emissions.

To conclude the ‘Findings’ section of this report; taking account of the

research undertaken, the overall conclusions reached is that Perth &

49

Kinross Council is not on track, in terms of its energy consumption, to

achieve the Scottish Government’s carbon reduction targets and failure

has the potential to bring financial sanctions for the Council.

The research also concluded that large-scale capital expenditure in

energy efficiency measures (due to the high initial cost and long pay-

back periods) is not considered the way forward for Perth & Kinross

Council in its journey towards carbon reduction and that no-cost, low-

cost measures through staff co-operation, prudent investment in building

insulation & lighting projects and improved building management are

likely to prove more effective in assisting the achievement of the

government’s outcomes.

7.0 Recommendations

Due to the high cost of implementing energy efficiency measures in the

Council’s buildings and the long pay-back periods involved, it is

recommended that the following no cost or low cost measures are

implemented:

Increase knowledge and awareness of energy efficiency and

carbon management issues through the establishment of

‘Energy Champions’.

Implement measures to monitor carbon emissions on a

building by building, department by department basis.

50

Ensure that heating plant run times are properly matched to

building occupancy.

Explore the possibility of building cleaning being undertaken

during opening hours, thereby reducing the necessity to heat

and light the building out of hours.

Implement software that switches off computer equipment at

a set time each day, thereby reducing the drain on the

electricity supply through computers and associated

hardware being left on after hours.

Heating temperatures within the Council’s buildings should

be reduced by at least 1 degree, which the Carbon Trust

estimate will reduce the heating bill by some 8% (Source:

Carbon Trust Heating Control Technology overview

CTG002).

The Carbon Trust estimates that ICT equipment in the server

rooms of large buildings currently consumes 15% of total

electricity used in offices (Technology Overview - introducing

energy saving opportunities for business – Carbon Trust).

The Council should increase the temperature in server

rooms, by reducing the amount of cooling, from current

levels of 18 degrees C to between 21 and 23 degrees C is

estimated to reduce bills for a typical office building by some

5%.

Use of personal equipment such as fans and heaters should

be restricted to exceptional circumstances.

51

It is estimated that implementation of the above low cost / no cost

measures could save the Council some 10% on its electricity bill, realising

savings of up to £400,000, with the resultant carbon reduction of some

1900 tonnes of CO2, recurring.

The Council’s policy on Carbon Reduction should be contained within one

document, with the purpose of consolidating the governance of the

scheme under one banner, along with the actions necessary to achieve

the targets set by the government.

The six imperatives contained within the Climate Change (Scotland) Act

2009 and ‘Scotland’s Climate Change Declaration’ should be adopted as

Council policy. To achieve this, Council policy should be re-written,

Committee approval sought for the changes and an Energy & Climate

Change Group established to monitor compliance with policy performance

and effect actions necessary to achieve the said imperatives.

The Scottish Government has engaged a number of organisations to

assist with Carbon Reduction in the public sector. This fact may be a

barrier to successful achievement of the Government’s Carbon Reduction

targets in that each of the groups has their own message, which could

potentially lead to conflicting or confusing messages being issued.

The Scottish Government should be lobbied with the purpose of reducing

the number of organisations involved in assisting the public sector with

52

Carbon Reduction to one, thereby ensuring that one message is delivered,

along with a common set of outcomes.

Perth & Kinross Council’s ‘Corporate Energy Management and

Conservation Policy’, approved in 2011, should be re-written to reflect

current activity and specify the strategy for the Council going forward.

With the objective of ensuring proper governance is in place for the

achievement of the outcomes associated with Perth & Kinross Council’s

‘Corporate Energy Management and Conservation Policy’, the Council

should ensure that proper performance indicators are developed,

supported by a robust monitoring process.

The Council should establish a board to develop a robust plan, with

specific objectives for carbon reduction, based on a revised Corporate

Energy Management and Conservation Policy, based on the conceptual

model highlighted within the body of this report.

All Council Business Cases submitted for consideration should be subject

to assessment of the possible impact of carbon emissions.

The Council should establish a staff awareness campaign, ensuring that

the message of energy efficiency and the reasons for it are conveyed,

including information on energy cost and carbon emission impact. This

should be accompanied with the appointment of Energy Champions (at a

53

senior level) within each Service, with responsibility for ensuring that

directions from the Climate Change Board are implemented.

54

8.0 References

Argyris, C., & Schön, D.  (1978) Organisational learning: A theory of action perspective. Addison Wesley

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Brown, J.E., Hendry, C.N. and Harborne, P. (2007), An emerging market in fuel cells? Residential combined heat and power in four countries, Energy Policy, 35(4), 2173-2186.

Caird, S., Roy, R., Potter, S. and Herring, H. (2007), Consumer adaption and use of household renewable energy technologies, Design Innovation Group: http://design.open.ac.uk/research/documents/OURptRenewablesExecSummFinalDec07.pdf

Carbon Trust Heating Control Technology overview CTG002 - http://carbontrust.quadrant.uk.com/Presentations/Heating%20Workshop.pdf

Climate Change (Scotland) Act 2009

CRC Energy Efficiency Scheme - Detailed guidance - GOV.UK

Darnton and Horne (2013), Influencing Behaviours – Moving Beyond the Individual – A User Guide to the ISM tool.

Darnton and Horne (2013), Influencing Behaviours – A Technical Guide to the ISM tool.

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Element Energy (2008), The Growth Potential for Microgeneration in England, Wales and Scotland, Department for Business, Enterprise and Regulatory Reform:http://webarchive.nationalarchives.gov.uk/+/http://www.berr.gov.uk/files/file46003.pdf

Energy Saving Trust (2011) - Local Authority Funding Guide http://www.energysavingtrust.org.uk/content/download/29231/350586/version/1/file/Local+authority+funding+guide.pdf

Forfás, (2006) http://www.sciencecouncil.ie/media/asc060618_sti_strategy.pdf

Kavgic, M. et al., 2010. A review of bottom-up building stock models for energy consumption in the residential sector. Building and Environment, 45(7), pp.1683–1697.

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Monaghan, J. and Powell, J.C. (2011), A comparison of the energy and carbon implications of new systems of energy provision in new build housing in the UK, Energy Policy, 39(1), 290-298.

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Perth & Kinross Council (2013) – Year 5 Climate Declaration Report - http://www.keepscotlandbeautiful.org/media/50742/Perth-and-Kinross-Year-5-Climate-Change-Declaration-Report.pdf

Perth & Kinross Council: Community Plan and Single Outcome Agreement 2013-2023. http://localapps.pkc.gov.uk/favicon.ico

Perth & Kinross Council: Corporate Plan 2013-2018. http://www.pkc.gov.uk/article/3087/Corporate-Plan-2013---2018

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Appendix 1 (a)

Electricity Consumption v Cost v Area of Estate

(Source: Perth & Kinross Council’s Energy Management System ‘Stark’)

Year Ending 31 March

Electricity - Consumption kWh

% diff since previous year

Cost - Pounds

% diff since previous year

Area of Estate (GIA)*

% diff since previous year

Tonnes of CO2

2009 18,063,433 2,040,715 329,835 9,772

2010 20,528,332 13.65 2,351,348 15.22 363,842 10.17 11,106

2011 20,687,374 0.77 1,882,602 (19.94) 384,393 5.35 11,192

2012 21,679,494 4.80 2,145,592 13.97 409,026 6.02 11,719

2013 22,990,745 6.05 2,498,555 16.45 412,063 0.74 12,407

Estimated CO2 emissions for 2013/14 11,507 Tonnes

*Gross Internal Area

Consumption

During the 5 years of the analysis, electricity consumption has risen by 27.28%.

Cost

Over the same period, the percentage rise in cost is 22.44%

Area

The area of estate has increased by 24.93%.

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Appendix 1 (b)

Gas consumption v Cost v Area of Estate

(Source: Perth & Kinross Council’s Energy Management System ‘Stark’)

Year Ending 31 March

Gas - Consumption kWh

% diff since previous year

Cost - Pounds

% diff since previous year

Area of Estate (GIA)*

% diff since previous year

Tonnes of CO2

2009 41,205,046 902,417 329,835 7,562

2010 41,406,192 0.49 1,217,945 34.96 363,842 10.17 7,602

2011 45,925,330 10.91 1,387,051 13.88 384,393 5.35 8,432

2012 41,477,850 (9.68) 1,121,841 (19.12) 409,026 6.02 7,615

2013 45,406,460 9.47 1,353,995 20.69 412,063 0.74 8,337

Estimated CO2 emissions for 2013/14 7,649 Tonnes

*Gross Internal Area

Consumption

During the 5 years of the analysis, gas consumption has risen by 10.20%.

Cost

Over the same period, the percentage rise in cost is 50.04%

Area

The area of estate has increased by 24.93%.

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Appendix 1 (c)

Biomass consumption v Cost v Area of Estate

(Source: Perth & Kinross Council’s Energy Management System ‘Stark’)

Year Ending 31 March

Biomass - Consumption kWh

% diff since previous year

Cost - Pounds

% diff since previous year

Area of Estate (GIA)*

% diff since previous year

Tonnes of CO2

2009 580,000 35,960 329,835 0

2010 1,792,450 209.04 65,860 83.15 363,842 10.17 0

2011 3,822,830 113.27 105,083 59.55 384,393 5.35 0

2012 4,512,450 18.04 128,828 22.60 409,026 6.02 0

2013 5,254,730 16.45 154,310 19.78 412,063 0.74 0

*Gross Internal Area

Consumption

During the 5 years of the analysis, biomass consumption has increased by 806%.

Cost

Over the same period, the percentage rise in cost is 329%

Area

The area of estate has increased by 24.93%.

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Appendix 1 (d)

Oil consumption v Cost v Area of Estate

(Source: Perth & Kinross Council’s Energy Management System ‘Stark’)

Year Ending 31 March

Oil - Consumption kWh

% diff since previous year

Cost - Pounds

% diff since previous year

Area of Estate (GIA)*

% diff since previous year

Tonnes of CO2

2009 5,089,600 225,998 329,835 1,339

2010 4,376,511 (14.01) 190,940 (15.51) 363,842 10.17 1,151

2011 4,529,833 3.50 247,155 29.44 384,393 5.35 1,191

2012 4,238,539 (6.43) 273,706 10.74 409,026 6.02 1,115

2013 4,765,773 12.44 305,349 11.56 412,063 0.74 1,253

Estimated CO2 emissions for 2013/14 1,160 Tonnes

*Gross Internal Area

Consumption

During the 5 years of the analysis, oil consumption has reduced by 6.36%.

Cost

Over the same period, the percentage rise in cost is 35.11%

Area

The area of estate has increased by 24.93%.

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Appendix 2

Perth & Kinross Council – Carbon Emissions

The following table shows the current levels of CO2 emissions generated by Perth & Kinross Council through energy consumption compared to the 1990 baseline*

(Source: Perth & Kinross Council’s Energy Management System ‘Stark’)

Year kWh CO2 (tonnes) 42% 80%

1990/91 62,951,670 17,368 10,074 3,474

1991/92 63,330,114 17,454 10,074 3,474

1992/93 64,236,246 17,471 10,074 3,474

1993/94 67,656,825 18,452 10,074 3,474

1994/95 65,082,775 17,675 10,074 3,474

1995/96 65,206,783 18,019 10,074 3,474

1996/97 67,877,748 18,280 10,074 3,474

1997/98 61,979,054 17,060 10,074 3,474

1998/99 69,207,749 19,001 10,074 3,474

1999/2000 66,416,944 18,579 10,074 3,474

2000/01 70,771,484 19,241 10,074 3,474

2001/02 70,951,154 19,709 10,074 3,474

2002/03 72,015,896 20,579 10,074 3,474

2003/04 67,554,552 19,250 10,074 3,474

2004/05 70,390,574 19,984 10,074 3,474

2005/06 68,468,734 19,299 10,074 3,474

2006/07 66,740,032 18,951 10,074 3,474

2007/08 68,151,219 19,421 10,074 3,474

2008/09 67,737,457 19,367 10,074 3,474

2009/10 68,103,485 19,859 10,074 3,474

2010/11 74,965,367 20,815 10,074 3,474

2011/12 71,889,757 20,448 10,074 3,474

2012/13 78,359,705 21,996 10,074 3,474

Scottish Government target, 42% reduction on 1990 level by 2020 -11922 tonnes of CO2

UK Government target, 80% reduction on 1990 level by 2050 –18,522 tonnes of CO2

PKC current increase from 1990 level of CO2 production –26.6% or 4628 tonnes of CO2

Year CO2 (tonnes) TargetSaving

required % Saving

1990/91 17,368 10,074 7,294 42%

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2012/13 21,996 10,074 11,922 48%

*The 1990 baseline figure is calculated from ex Tayside Region data, as no CO2 emission records were calculated for Perth & Kinross County Council buildings until the formation of Perth & Kinross Council in 1996.

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Appendix 3

Survey Results

(Source: Perth & Kinross Council – www.SurveyGizmo.com)

1. Proper energy management is very important for Perth & Kinross Council?

Strongly agree - 75.9%

Agree - 21.8%

Neither agree nor disagree - 2.3%

Strongly disagree - 0%

Comment: Despite the low response rate, comfort can be taken from the

results that 75% of the respondents thought energy management to be

important. The small percentage of staff that don’t have an opinion is

considered insignificant, even if the survey results were extrapolated for the

total number of staff (5000) employed by the Council

2. Do you practice any of the following energy saving techniques at work?

Switch off monitor / PC when not in use? - 88.5%

Turn down radiators when warm? - 48.9%

Switch lights off in areas not being used? - 60.9%

Other - 10.3%

Comment: The results from this question proved that staff have some

knowledge of the need to conserve energy through switching off equipment.

Perhaps most significant is the number of staff that state they switch off lights,

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given that some 50% (source: ‘Stark’ Energy Management Database) of the

Council’s electricity consumption is through lighting.

3. Are you aware of any energy awareness activities that the Council has

undertaken recently?

Posters - 38.7%

Installation of 'Smart meters' - 43.4%

Bulletins on Council Intranet - 33%

Other - 6%

Comment: The responses to this question raise concern as clearly the

methods used to publicise energy awareness are not succeeding. The fact

that 43% of respondents are aware of the existence of Smart Meters is more

encouraging, but as they are predominantly contained within one office

building (housing around 800 staff), the percentage could reasonably be

expected to be higher.

4. In your opinion, what is the main reason we should reduce energy usage?

Cost - 49.4%

Environmental/carbon reduction - 48.9%

Public Relations - 0.6%

Other - 1.2%

Comment: The number of staff that thinks cost and carbon reduction to be

the main reason for reducing energy is very similar, suggesting that staff have

an awareness of the importance of energy saving, whatever their reason

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might be. Whether staff opinion is one of the other, both options are inter-

linked and saving on one will ultimately result in both a reduction in cost

(albeit with rising energy costs this might mean that saving energy will mean

that costs rise less steeply) and a reduction in the Council’s carbon footprint.

5. How much do you think the Council spends on energy (electricity, gas, oil and

biomass) for its buildings each year?

£1m - £2m - 12.6%

£2m - £3m - 29.9%

£3m - £4m - 25.9%

£4m - £5m - 23%

£5m - £6m - 8.6%

Comment: The Council’s actual spend on energy in the financial year

2012/13 was £4.3m, for which a quarter of the respondents picked the correct

category.

It is fairly clear that staff don’t have a proper grasp of the level of spend the

Council has to bear with regard to energy, gas, oil and biomass, despite the

fact that this figure is well documented in staff bulletins.

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6. What would be most likely to motivate you to save energy at work?

(% of the total respondents)

Competitions - 18.4%

Rewards - 32.8%

Regular information updates - 58.6%

Poster campaigns - 16.1%

Other - 13.2%

Comment: The fact that the highest percentage of response was for “Regular

information updates” indicates that perhaps the amount of information being

distributed to staff on energy efficiency is insufficient. Further research is

necessary on this answer to ascertain what sort of information update staff

require.

Further research is needed to ascertain what staff would regard as “rewards”,

given that a third of the respondents considered this to be important.

Should staff be rewarded for helping their employer save energy?

7. Which of the following communication tools influence you the most?

Intranet - 71.8%

Posters - 25.3%

Seminars/Workshops - 17.8%

Social Media - 20.7%

Other - 6.3%

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Comment: The response to this was expected in that two-thirds of Council

staff have regular access to a PC for work and this is recognised as being the

prime source for distributing information to staff.

This response informs the Council that seminars and workshops have a

limited effect when trying to disseminate information.

8. Would you be interested in participating as part of an Energy Awareness

Raising Team within the Council?

Yes - 12.6%

No - 87.4%

Comment: Whilst at first glance the positive response to this question

appears to be low and potentially disappointing, but the fact that 1 in 8

respondents indicated a desire to participate in an energy awareness

campaign, extrapolates to over 600 people within the Council’s staff cohort

that can potentially influence their peers to save energy.

Traditionally, when staff have been asked to participate in this type of

exercise, the response rate has been considerably lower than 12%,

suggesting perhaps that despite some of the other answers above are not

entirely indicative of current attitudes.

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