The Retrofit Toolkit
1The Retrofit ToolkitHelping Local Authorities to Kickstart Deep RetrofitPartners:www.retrofitacademy.org
2INTRODUCTIONThe government has pledged to invest 3bn intoenergy efficiency upgrades (retrofit) by March2021 through The Green Homes Grant (GHG)scheme. This is the first large-scale public investment into retrofitting the fabric of domesticproperty in almost a decade. Through the LocalAuthority Delivery Scheme (LADS), the Department for Business, Energy, and Industrial Strategy (BEIS) are challenging local government todrive the agenda.This is merely the prelude to decades of massscale retrofitting in the UK and indeed globally.The UK is committed to achieving net zerocarbon by 2050 – something which is patently impossible without addressing the existinghousing stock. With an estimated 27 millionhomes to decarbonise in less than thirty years,there is no time to waste. 27 million homes in the UK need retrofitting 30 years to 2050 That’s 900,000 homes per year Or 2466 homes per day Or 102 homes per hour or 1.7 homes per minute, every minute for thenext 30 yearsIt is already clear that we are not on this trajectory, and therefore the volumes required will increase exponentially. The Committee of ClimateChange reported to parliament that in 2019barely 20% of the improvements necessary toachieve the net zero target were installed:MEASUREREQUIRED VOLUMEFOR NET ZEROINSTALLED IN 2019Loft Insulation545,00027,000Cavity Wall Insulation200,00041,000Solid Wall Insulation90,00011,000Source: etrofitacademy.org
3To compound matters, the existing energyefficiency sector has not delivered the desiredoutcomes to date. Defect rates have beenhigh, and the media has widely reported on theunintended consequences of retrofit measures– especially relating to cavity wall and solid wallinsulation. Continuing to deliver sub-standardretrofit pushes the goal further away, not closer.However, the cost of delivering quality, deep retrofit is proving to be high in terms of materialsand labour and we lack the workforce requiredboth in terms of proficiency and volume.Yet there are reasons to be optimistic. New British Standards PAS 2030 (2019) and PAS 2035are driving unprecedented change in the supplychain. Large-scale pilot projects are beginningto deliver results. Regional and local government have declared climate emergencies andset even more ambitious targets to decarbonise. The Green Home Grant has demonstratedthe government’s willingness to invest, whilstprivate investors are keeping a watching brief.The Conservative Party’s manifesto promised a 9.2 billion investment into energy efficiency inthis Parliament.This paper outlines some of the potential solutions to these challenges. It focuses on whatlocal authorities can practically do to kick-startretrofit projects that will support sustainablejobs and economic growth.www.retrofitacademy.org
4The National Retrofit Programme (2020-2050)The vision for the National Retrofit Programme(NRP) outlined here draws heavily from a proposal developed by the Whole House RetrofitImplementation Group. This consists of representatives from The Retrofit Academy, BSI, BEIS,TrustMark and other key stakeholders. The NRPhas been led by Russell Smith of Parity Projectsand Retrofit Works, drawing on research fromLeeds Becket University and the New Economics Foundation.The NRP calls for the Green Home Grant to bethe launchpad for a sustained period of investment into high quality retrofitting, rather thansimply a short-term economic stimulus package. It is an opportunity not to be wasted, butthe investment should be channelled to enablefuture success. It should be addressed as amatter of national infrastructure – in fact, thegreatest engineering challenge in our history.www.retrofitacademy.org
5The NRP lays out the following short-term priorities: Establishing a National Retrofit Agency to coordinate the delivery of the thirty-year NRP,including full responsibility for the effective marketing of retrofit to consumers Extensive support to the energy efficiency industry to get the whole sector operating tothe new PAS standards An intensive period of recruitment and training to create jobs and develop supply sidecapability and capacity The fully funded, comprehensive assessment of hundreds of thousands of homes togather the data required to make informed decisions about the right strategy for thatproperty, landlord, tenant, or owner The creation of Medium Term Retrofit Plans for those properties to get them to Net Zero,or as close as practicable, by 2050, developed by qualified professionals The quality-assured installation of measures as per those plans, not at the discretion ofhomeowners or installerswww.retrofitacademy.org
6ECONOMIC 15.3 billion in avoided CO2 6 billion resulting from improved air qualitySOCIAL Increase government tax revenues by 163 billion by 2030 Net government surplus of 60 billion by 2030 63.8 billion in energy bill savings, leaving more money in the pockets of residentsENVIROMENTALThe NRP outlines a series of benefits quantified in additional incomeor avoided expenditure that are eye-watering: 6.6. billion through improved health and a reduced burden on NHS and social care 6.6 billion through improved comfort and quality of life, enabling an aging populationto live at home for longerIn total, the NRP identifies: a combined 254 billion of undiscounted benefits by 2040. A cumulative 298MtCO2e, or 36% of the savings required for the 4th and 5thcarbon budgets.www.retrofitacademy.org
7EXISTING INITIATIVESSince the death of The Green Deal, governmentinitiatives in retrofit have been modest in scale.The largest of these is The Energy CompanyObligation (ECO). This is largely a fuel-povertyalleviation scheme through which energy efficiency measures are part-funded through alevy on electricity bills. The energy company isthen obligated to spend this money on energyefficiency measures for those classed as beingin in fuel poverty. It is estimated that the ECOmarket is worth 1bn a year and delivers in theregion of 180,000 – 200,000 measures per year.The ECO has been around since 2012 and hasbeen delivered in ‘rounds’ lasting three to fouryears each. We are currently in ECO 3, with ECO4 due to start in 2022. ECO 3 is still a measures-based scheme by design, but it is widelyexpected that ECO 4 will support the wholehouse retrofit approach called for under theNRP.NEW INITIATIVESThe Conservative government was elected ona manifesto which included significant newinvestment in retrofit. Some of these programmes have been brought forward as part ofthe Covid-19 recovery plan, whilst others havebeen created quickly as a means of economicstimulus.Home Upgrade Grant (HUG)A 2.5 billion grant funding scheme targeted atfuel poverty alleviation, potentially shifting thefocus away from the ECO. Plans are expectedto be announced in the next 12 months but it islikely that private tenure households will be ableto replace boilers, provide insulation and whollyreplace energy systems providing an averageannual saving of 750 a year.Social Housing Decarbonisation Fund (SHDF):a 3.8 billion Social Housing DecarbonisationScheme focusing on improving insulation andintroducing low carbon heat in 2 million socialhomes, reducing energy bills by an average of 160 a year. This investment is expected overthe next two Parliaments and has a target ofwww.retrofitacademy.orgachieving Energy Performance Certificate (EPC)Band C. Approaches are to be informed througha 50m innovation competition open to localauthorities, that will run across 2021.The Green Home Grant (GHG)A 2 billion investment to be spent in theorybefore the 31st March 2020, as part of theeconomic stimulus package. The Green HomeGrant is additional funding outside of the manifesto commitments. The GHG is split in to threeelements:1. 1 billion of vouchers worth up 5,000 areavailable to homeowners primarily to upgradeinsulation and introduce low carbon heat. Thesevouchers can be used to cover 75% of the totalcosts of the measure(s) introduced. Also available to social landlords.2. 500 million of vouchers worth up to 10,000available to those on low incomes or in fuelpoverty. These vouchers can cover 100% of thecost of the measure(s).3. 500 million in funding for local authoritiesthrough the Local Authority Delivery Scheme(LAD).
8The Local Authority Delivery (LAD) SchemeThe Scheme aims to raise the energy efficiency of low-income and low EPC rated homes (thosewith Band E, F or G).This includes those living in the worst quality off-gas grid homes, delivering progress towards reducing fuel poverty, the phasing out the installation of high carbon fossil fuel heating and the UK’scommitment to net zero by 2050.Local authorities in England (individually or as part of a consortium bid with other local authorities/partners) can submit bids for funding to improve the energy efficiency of the homes of low-incomehouseholds in their areas. Households should have a combined income of no more than 30,000 Homes to be improved should be currently rated as EPC E, F or G 100% subsidy for owner-occupiers (up to 10,000) Two third subsidy for social and private landlords (up to 5,000A further 300m for 2022 will be made available via the Local Energy Hubs later in 2020/21.Allocations to Local Authorities for future yearsunder LAD will be determined at the forthcoming Autumn Spending Review (2020).In the first round of funding, compliance withPAS 2035 and delivery under the TrustMark arepreferred but not mandatory. Projects under thenext LAD delivery phase ( 300m) for 2021/22will be to be required to have Trustmark registered status and, where applicable, PAS2035:2019 standards.www.retrofitacademy.org
9SEEDS OF CHANGEFor decades, attempts to stimulate the energyefficiency market have failed. Most recently, TheGreen Deal (2012-2015) was an effort to stimulate the market by offering loans repaid throughenergy bill savings; an initiative holed below thewaterline by high interest rates. The remnantsof the energy efficiency industry has coalescedaround the Energy Company Obligation (ECO),which enables energy companies to use a levyon bill payers that must in turn be invested intoretrofitting properties occupied by those in fuelpoverty.In common with many similar funding schemesover time, the ECO has often resulted in a raceto the bottom, with the focus on deliveringindividual measures rather than addressingthe specific needs of the resident or propertyin question. Poor practices and inappropriatespecification led to a high level of defectivework, including very high-profile catastrophicfailures in Preston, South Wales and elsewhere.The government-sponsored Each Home Counts(EHC) Review was published in 2017 in response to these disasters, calling for root-andbranch reform of the industry and the way itis funded. To avoid repeating mistakes of thepast, EHC called for new approaches to ensurethe public are not put at risk and that projectsdeliver value for money without unintendedconsequences.www.retrofitacademy.orgThe Each Home Counts Review concluded thatthe following should be introduced to driveroot and branch reform of the energy efficiencysector: The introduction of the TrustMark as therecognised quality mark for the energy efficiency sector. All those engaged in design andinstallation of energy efficiency measures willbe assessed and certified under it. A code of Practice for the installation of homerenewable energy and energy efficiency measures so that the risk of poor-quality installationis minimised. The most high profile of theseare PAS 2030 (2019), the installer Standard,and PAS2035, the overarching Standard forenergy efficiency. Development of a Data Warehouse to storeinformation about all projects delivered underthe TrustMark.
10UNDERPINNING PRINCIPLESWhole House Retrofit – the recognition thatevery home is different and that the retrofit ofthat property must address all aspects of it holistically – the fabric, the services, renewablesand the people who live in it. The opposite of‘measures’-based retrofit which could, for example, see external wall insulation installed withoutensuring adequate ventilation.Fabric First – an approach to retrofitting homesthat aims to reduce demand for heat and poweras far as possible, through insulation combinedwith adequate ventilation, before specifyingservices and renewables. Improving the buildingfabric to minimise heat losses and maximise airtightness is sensible because insulation has arelatively low cost, a long-life and should only berequired once before 2050 for most properties.Building services, by contrast, have a short lifeand will almost certainly need to be replacedevery 10-15 years.www.retrofitacademy.org
11Projects that successfully apply the Fabric First approach are characterised by: An even all-round insulation around an entire property without gaps including insulatingexposed floors, walls and roofs An airtight building envelope that is also appropriately ventilated A reduction in air infiltration and leakage, especially in older buildings Vapour permeable construction to promote the safe passage of moisture Retaining thermal capacity inside the insulated envelope and with the aim of moderating internal temperatures. This ensures warmth in cold periods but also avoids overheating in summer.Design Input – acknowledging that retrofitprojects have often not involved professionaldesigners, EHC called for design to become asmuch an aspect of retrofit as it is in newbuild.With retrofit often failing at corners, junctionsand edges between systems and trades, robustconstruction details are required to ensureflaws are not built in.through Scheme Providers, which must conformwith TrustMark requirements.Consumer Protection – recognising that homeowners, residents and landlords have not always been well served by the energy efficiencymarket, Each Home counts called for a robustregime of consumer protection.Government schemes such as the ECO and theGreen Homes Grant Voucher Scheme, are nowonly open to TrustMark accredited companiesand individuals. For example, energy efficiency installers must be a member of one of theTrustMark approved schemes run by the Insulation Assurance Authority (IAA), Ocean, NAPIT orNICEIC. Whilst Retrofit Coordinators and RetrofitAssessors must, as individuals, be registeredwith Stroma, Elmhurst, ECMK, Quidos, RetrofitWorks or the IAA.Each Home Counts called for an industry-wideQuality Mark for the sector, that the publicwould recognise as the accreditation they canput their trust in. TrustMark, a government-sponsored construction quality scheme, was recognised as this Quality Mark. TrustMark is runTrustMark have created a Data Warehouse,where details about all energy efficiency projects delivered by TrustMark members must belodged. TrustMark also require all projects tocomply with British Standards PAS 2030 andPAS 2035.www.retrofitacademy.org
12Competent and Qualified Workforce – EHCconcluded that the energy efficiency sector hadskills and knowledge gaps from top to bottom.It concluded that experience had for too longbeen taken as evidence of competence andcalled instead for nationally recognised qualifications to be the benchmark underpinned byrobust national occupational standards. In otherwords, there needs to be round pegs in roundholes and increased professional accountability.Examples of people in the energy efficiency industry undertaking roles for which they are notqualified include:Domestic Energy Assessors (DEAs) being asked to specify measures to be installed, althoughoften lacking in the required expertise to do so. Many DEA have only had basic training.Design work undertaken by people without any formal design qualifications, or missingaltogetherInstallation work undertaken by people without any trade qualifications, although approved byvarious competent person schemes.This has led to PAS 2035 introducing a seriesof new roles, which can only be filled by peopleboth qualified and TrustMark accredited. For example, the vital role of the Retrofit Coordinatorcan only be undertaken by a holder of the Level5 Diploma in Retrofit Coordination and RiskManagement, whilst the TrustMark schemescan only accept applications from holders ofthis qualification.www.retrofitacademy.org
13PAS in PracticeTwo new British Standards were published in May 2019 which fundamentally change the way inwhich the energy efficiency industry must approach retrofit projects. Many people criticise theseStandards for being overly complex and expensive. But at the heart of them is a very simple retrofitprocess that can enable the delivery of good outcomes that are both compliant and good practice.PRELIMINARYCONSIDERATIONSPROJECT INCEPTIONENGAGEMENT ADVICEClauses 4 and 5Clause 13RETROFIT COORDINATORAdvisor, Assessor,Designer and EvaluatorClause 6 and Annex ARISK ASSESSMENTPaths A B CSTEP 2Annex BClause 7DWELLINGASSESSMENTincluding ventilationClause 8Evaluationreported andfeedbackPath AonlyPaths B & CIMPROVEMENT OPTIONEVALUATION &MEDIUM TERM PLANSIGNIFICANCEASSESSMENTTraditional andProtected buildingsINSTALLATIONTESTINGSTEP 4improClause 13DESIGNClause 9STEP 3Clause 8ADVICE ONimprovement optionsClause 9PAS2030STEP 1Annex C, DCOMMISSIONINGHANDOVERSTEP 5PAS2035 Clauses 10-12MONITORING ANDEVALUATIONClause 14HANDOVER ADVICESTEP 6Clause 13Figure 1 The PAS 2035 Retrofit Process showing the installation phase in the context of the wider project (courtesy of BSI)www.retrofitacademy.org
14BSI PAS 2030 (2019) is superficially an update of the PAS 2030 (2017) Standard for installers.However, it is far more substantial than this because for an installer to comply with the 2019 Standard, they must also comply with the entirely new PAS 2035 Standard. In other words, the installation phase of a project is seen in the context of a wider project, not something that happens inisolation.BSI PAS 2035 takes a little time to get your head around, but its well worth the time and effort.Boiling it down to the fundamentals, there are six key stages to a PAS 2035 retrofit project, each ofwhich have a clear outcome:STEP 1Preliminary assessment andadvice to the homeownerUnderstanding what the homeowner wantsto achieve and how they plan to pay for it, captured inthe form of an Intended Outcomes statement.Risk AssessmentDeciding how much risk is involved in the project,which determines how it will be managedmoving forwards.Whole Dwelling AssessmentProviding accurate data about the property sothat the right decisions can be made about it.STEP 2STEP 3STEP 4Design and CoordinationUsing the data gathered to create a plan forretrofitting the property over the next 30 years,deciding what to do in what order. Followed bycreating an appropriate design.InstallationThe measures are installed, tested, andhanded over to the resident so they knowwhat’s happened and how to adapt.STEP 5STEP 6Monitoring andEvaluatingwww.retrofitacademy.orgEnsuring the owner is satisfied with the project andthat they have not experienced any snags.
15PAS Retrofit RolesPAS 2035 also introduces a series of defined roles to ensure it is clear who is responsible for whatat each stage of the project. It further defines what qualifications and accreditations they musthold, but we can leave that for another time.The roles are:Retrofit EvaluatorRetrofit AdvisorProfessional with the skills tounderstand why a project has notdelivered as expected.Provides independent advice to homeowners.Retrofit InstallerA company who installs themeasures that the Coordinator andDesigner have specified. Alsoresponsible for testing andcommissioning new systemsand handing them over tothe occupier orowner.www.retrofitacademy.orgPAS 2035ROLESRetrofit DesignerRetrofit AssessorAn architect or otherdesign professional whopro
This is merely the prelude to decades of mass-scale retrofitting in the UK and indeed globally. The UK is committed to achieving net zero carbon by 2050 – something which is patent-ly impossible without addressing the existing housing stock. With an estimated 27 million homes to decarbonise in less than thirty years, there is no time to waste.
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