Opinion of the Economic and Social Committee on 'Sustainable development in building and housing in Europe` (97/C 355/05)

On 20 March 1997 the Economic and Social Committee, acting under Rule 23(3) of its Rules of Procedure, decided to draw up an opinion on 'Sustainable development in building and housing in Europe`.

The Section for Regional Development and Town and Country Planning, which was responsible for preparing the Committee's work on the subject, adopted its opinion on 16 September 1997. The rapporteur was Mr Wilms.

At its 348th plenary session (meeting of 1 October 1997), the Economic and Social Committee adopted the following opinion by 84 votes to one with six abstentions.

1. Introduction

1.1. The Treaty of Amsterdam established sustainable, environmentally sound development as a major objective of European environmental policy.

Central to this is a concern to make long-term provision for the environment, in order to prevent lasting environmental damage and to preserve natural resources for future generations.

1.2. This objective calls for structural change in the economic and political arena (White Paper on Growth, Competitiveness and Employment). The necessary, sustainable restructuring of industrial society requires the active participation of all members of society (i.e. economic, political and social) in environmental protection.

1.3. Among the measures mentioned in the fifth environmental action programme () are:

- more environmentally sound management of resources,

- a move towards integrated conservation across all environmental media,

- action to reduce energy consumption, and

- new paradigms for environmentally compatible urban development.

1.4. At the same time, the final report by the European Commission on 'European sustainable cities` has outlined the current debate and the recommendations to be drawn from it with regard to urban and regional planning. The report highlights the need for an ecosystem approach, innovative urban management and sustainable waste management as a precondition for the sustainable development of urban settlements.

1.5. The ESC considers building and housing to be particularly suited to the implementation of these objectives because:

- people in our latitudes spend most of their lives inside buildings, and housing is a basic need,

- the building industry plays a very important role within individual economies,

- building and housing consume a large amount of material and energy,

- this sector produces a disproportionately large amount of waste,

- high unemployment in individual countries is partly due to the slump in the building industry.

1.6. Another aspect which has been neglected in the past is the increase in land occupied by housing and transport. This has had considerable impact on the environment.

1.7. The ESC sees its task as promoting integration of the three 'pillars` of lasting and environmentally sound development, i.e. the economic, social and ecological dimensions. The social dimension also includes the cultural aspect which is extremely important, especially in the area of building and housing.

The following are some of the objectives in the field of building and housing:

1.8. Economic dimension

- reduction of the cost of buildings over their life cycle (production, operation, maintenance, dismantling and removal, recycling ...) inter alia by using modern technologies at every stage of the life cycle (e.g. computer-aided design, energy-saving technologies, selective dismantling and removal, mobile recycling),

- incorporation of innovative measures, methods and technologies, such as those being developed under the Thermie 'City of the Future` programme,

- more favourable investment in conversion and maintenance as opposed to new construction,

- increased spending on technical and social infrastructure (e.g. water and sewage treatment, efficient energy generation and distribution, provision of nursery schools, health and youth centres),

- increased development potential for small businesses and services.

1.9. Ecological dimension

- reduction of land used,

- halting overdevelopment of the landscape,

- increased use of planning instruments such as development plans and land-use plans, drawn up with appropriate public participation,

- gearing the use of building materials to the conservation of resources (e.g. reducing the consumption of raw materials, reducing the amount of waste),

- avoiding the use of pollutant materials in the construction, conversion and use of buildings,

- reducing greenhouse gas emissions (e.g. CO2, halogenated hydrocarbons from buildings, by saving energy and using environmentally friendly building materials.

1.10. Social dimension

- ensuring everybody has adequate living space (appropriate to age and size of household),

- taking account of the wishes of future occupants in the case of new and converted buildings,

- affordable housing for all, including lower-income groups,

- creation of a suitable living environment which underpins social integration,

- reducing social tensions and conflicts by preventing exclusion, making social and cultural services accessible and affordable and providing opportunities for participation,

- networking of work, housing and leisure,

- healthy living inside and outside the home,

- creation and securing of jobs in the building and housing sector,

- consistent health and safety measures in the building sector,

- preserving and fostering the 'cultural heritage`, which is reflected particularly in historic buildings and patterns of habitation and in Europe's architectural diversity, and which plays a key role in the development of a local identity,

- integrating cultural values, typical forms of social interaction and architectural options with technical and ecological considerations to create and preserve the cultural identity of a locality,

- stronger links between urban settlements as places to live and work and the countryside around them in order to encourage the flow of materials back and forth between town and surrounding countryside and to maintain the latter's role as a retreat and recreational area.

1.11. There is already broad acceptance of the fact that our society's future can only be assured by adopting a model of durable, environmentally sound development. But a good deal of clarification is necessary to allow a realistic evaluation of the opportunities and risks involved. Durable, environmentally sound development can be achieved above all by fostering awareness of collective and individual responsibility, not least towards future generations.

1.12. Various approaches to a definition of sustainable building and housing are currently under discussion.

As is the case with 'sustainable development` in general, there is no single definition of 'sustainable building and housing`, either in the Member States or internationally.

1.13. The Committee acknowledges that the requirements for sustainable building and housing in conurbations differ in some respects from those in sparsely populated peripheral regions of the EU (e.g. the west of Ireland, the Highlands and islands of Scotland, the Pyrenees region or northern Scandinavia). Nevertheless, many of Europe's peripheral regions are situated in ecologically fragile climatic zones which place special demands on the sustainable management of the natural environment. The objectives of sustainable building and housing should therefore be taken into account with regard to these areas, too. However, the financial situation in these areas makes it particularly difficult to implement the objectives of sustainable building and housing.

1.14. The present opinion follows on in terms of subject-matter from the ESC's well-received opinion on the Green Paper on the Urban Environment (), but it focuses in more detail than the previous opinion on the area of sustainable building and housing. It goes beyond the previous opinion by concentrating predominantly, though not exclusively, on the urban environment.

2. General comments

2.1. The concept of sustainable development is increasingly finding its way into EU policy. Unfortunately, developments in individual sectors (e.g. agriculture, energy, regional and urban policy) often run in parallel but not necessarily in a coordinated way. Efforts should be made to achieve a better level of coordination. Although discussion on the subject of sustainable building and housing within the EU has only recently begun, a few fundamental points have already emerged.

2.2. For example, experts agree that utilizing existing building stock has economic and ecological advantages over new building in many cases. It is also clear that renovating and modernizing existing buildings is more labour-intensive and more difficult to automate than new building. Renovation and modernization make more sense from the point of view of employment.

2.3. The generation of a new impetus favouring the environment and employment is thus dependent upon a shift in building policy towards sustainable building and housing.

2.3.1. Implementing the objectives of sustainable building and housing requires a series of measures ranging from a reworking of legal regulations and a change of emphasis in promotion and research to the initiation of a comprehensive social debate on the elements and objectives of sustainable building and housing.

2.4. Although sustainable building and housing is often equated with environmentally friendly building, it must not be restricted to that. As already demonstrated, sustainable building and housing cuts across many different areas and should therefore be construed as an integral part of modern urban and spatial management.

Efforts to achieve sustainable building and housing have the following points in common:

2.5. Land management

Densities of settlement vary between EU Member States, but the overall trends - particularly in urban areas - are comparable.

2.5.1. The increase in the use of land for housing and transport is to the detriment of man and his environment. The consequences include: the destruction of habitats, impairment of leisure, pollution because of increased traffic, problems with the water supply.

2.5.2. Urban sprawl must be counteracted by intelligent land management. Various options are available here, one being that reuse of derelict areas (land recycling) must be given preference over developing greenfield sites and unencumbered open spaces.

2.5.3. In this context, land recycling must not be seen merely in terms of reusing individual plots or industrial sites; it can also involve reviving derelict cities or neighbourhoods.

2.6. Conservation of resources and materials (reduction of raw material and energy consumption)

A characteristic of the building industry is its particularly high consumption of materials and resources.

2.6.1. The extraction of raw materials (clay, sand, gravel, lime etc.) and their processing (cement, clinker, prefabricated sections) often do great damage to the landscape and ecosystems, are extremely energy-intensive and produce high levels of emissions.

2.6.2. There is also a considerable amount of transport involved in building, mostly by road, with additional implications for energy consumption and traffic volume.

2.6.3. In this area there is an urgent need to reduce inputs by innovative, efficient production and processing.

2.6.4. Modern methods can also lead to a marked reduction in the amount of waste accumulated during the production process, thereby cutting down on costs and pollution (e.g. through dumping).

2.6.5. Given the sheer scale of material throughput, even small percentage savings, e.g. on individual building jobs, can have a considerable economic impact.

2.6.6. The move towards renovation and modernization of old buildings is particularly important here as, seen in the context of a life-cycle analysis, it involves much less material and energy than new building. In addition, waste generated per dwelling/production unit is reduced by several hundred percent.

2.6.7. The recycling of used building materials is a welcome development in principle, but it must be clearly understood that reuse, i.e. renovation and modernization, should take priority, in line with EU waste management policy.

2.6.8. In view of the large number of environmentally hazardous materials used in building in the past (e.g. asbestos, lead piping and paint, capacitors and sealants containing PCBs, PVC etc.), thorough decontamination must be carried out before recycling to prevent the release or dispersal of pollutants.

2.6.9. There will continue to be a need for new buildings. The experience of the recent past (increase in the types of materials used in building, especially composites) shows that thought must be given to subsequent demolition during the planning and building stages, in order to minimize use of non-recyclable materials.

2.7. Building management

2.7.1. In spite of the importance of new building, the growing trend should be towards conversion and multiple use. This will require the intelligent, innovative management of building work, which in the main will involve the renovation, modernization and conversion of existing buildings.

2.8. Changing practices

2.8.1. There is no doubt that technical improvement and innovation must be accompanied by a change in the practices of building users.

2.8.2. It is well known that increasing affluence has brought with it an increase in the per capita 'consumption` of living space in EU Member States.

2.8.3. Despite relative stagnation in population growth and increased housing stock, this has led in many EU states (in conurbations) to a housing shortage which has many implications, including drastic rent rises.

2.8.4. Scientific studies show that, even in the case of ecologically and economically sound renovation or new building, the expected potential for saving energy and water cannot be fully realized because users do not observe certain rules of conduct, out of either ignorance or negligence.

2.8.5. Typical examples of this are:

- incorrect ventilation,

- disregard for water-saving devices,

- uneconomical use of domestic appliances etc.

2.8.6. Turning the concept of sustainable building and housing into reality is not just a question of technical innovation; it also requires that users' needs are taken into consideration at the planning stage and that users are provided with information and, where necessary, change their habits. Efforts must be made to fill any gaps in public awareness.

2.8.7. This can only be achieved at European and national level through a debate encompassing the whole of society, and in individual cases by involving subsequent users at an early stage. It is worth highlighting the particular importance of non-governmental organizations and the voluntary sector in this respect. They fulfil an important function by disseminating information and implementing 'good practice`.

2.8.8. In the area of new building, there must be a move away from one-dimensional functionality towards multifunctionality.

2.8.9. The basic design of a building should allow it to be adapted to the changing needs of users, e.g.:

- large families,

- childless couples,

- older people,

- the disabled,

- small businesses and crafts.

2.9. The key elements of sustainable living and housing can be summarized as follows:

- maintaining existing stock instead of new building,

- further use before recycling,

- information,

- participation and guidance for users,

- substitution of energy and material resources with human labour,

- improving health and safety at work.

3. Objectives

3.1. Developing a paradigm

3.1.1. Discussion of the aims and practical aspects of sustainable building and housing has only just begun. It is therefore impossible at this stage to formulate a clearly-defined model.

3.1.2. However, in view of the problem, it is imperative that work continues on development of such a model. Further intensive scientific research and a broad-based debate involving all the relevant social groups must be an integral part of this work. Cooperation and partnership between different levels, organizations and interest groups is crucial.

3.2. Reducing material and energy consumption

3.2.1. Current thinking is that the question of material and energy flows is particularly relevant in the evaluation of sustainable building and housing.

3.2.2. Reducing these flows has a considerable impact on energy consumption (and thus CO2 emissions), land use, emissions and traffic pollution.

3.2.3. It also favours the conservation of nature and recreation areas, making a major contribution to pollution reduction and climate stabilization. This involves aspects of tropospheric and local climate conditions, as well as global climate protection.

3.3. Sustainable and innovative forms of working

3.3.1. Once the major infrastructure and reconstruction projects in the eastern EU are completed, the emphasis will be on maintenance and conversion of existing building stock in the medium term.

3.3.2. The jobs lost because of productivity gains and automation in the 1990s will not be restored in traditional sectors, even if the economic situation picks up.

3.3.3. It is therefore critical to create sustainable and innovative forms of working.

3.3.4. There will be a need for renovation and modernization, which would also make ecological sense.

3.3.5. The aim must therefore be to address this employment potential in collaboration with the social partners with an eye to the future and to foster it with the aid of appropriate flanking measures.

3.4. Training

3.4.1. To make the most of the employment potential mentioned above, there has to be a willingness to face new job requirements.

3.4.2. The main element of this is learning new skills, such as handling unfamiliar materials and processes, selective demolition, sorting waste on the building site etc.

3.4.3. However, so far, no such training has been available for the workers concerned.

3.4.4. Experience with ecological building reveals inadequate knowledge at all levels (from planning to construction).

3.4.5. The preservation of older and historical buildings and the repair of environmental damage also require specialized skills.

3.4.6. From the above can be drawn the following recommendations on vocational and further training.

4. Recommendations

4.1. In view of the broad range of social, ecological and economic issues involved, the ESC urges the Commission to make 'sustainable building and housing` a focal point for research in the sequel to the fifth framework programme. This should be coordinated with the Committee's recommendations in its Opinion on the fifth framework programme: scientific and technological objectives and with the other Structural Fund instruments.

4.2. Research in this field is in its infancy throughout the EU and has long been restricted to largely isolated schemes in individual Member States. In view of the major challenges which sustainable building and housing involve, as well as the far-reaching implications, a new approach is required if the stated goals are to be achieved. Given the lack of coordination and the transnational importance of the issue, there is a need for a stronger, comprehensive commitment from the EU.

4.3. A bank of reliable data is needed to provide the basis for sound policy decisions. For this purpose, it would be useful for Member States to liaise and exchange experience on sustainable building and housing.

4.4. In addition to the central questions of environment and energy, the ESC sees this issue as particularly relevant to innovation and competitiveness, especially for small and medium-sized businesses. More research needs to be done on the potential savings in natural resources, energy and land use, as well as on the impact on employment. The findings should serve as the basis for EU support programmes and initiatives.

4.5. Efforts should be made to link up with these other areas.

4.6. Appropriate financial support should be given to innovatory pilot and demonstration projects which further the requirements of European environmental policy, such as participation (Local Agenda 21). Innovative approaches to overcoming obstacles to the restoration and modernization of rented accommodation (financial and legal problems between landlords and tenants) should also be encouraged.

4.7. The most important thing is to evaluate the situation in individual EU Member States in the light of common examination and approval criteria, and to discuss the implications of sustainable building and housing, with a view to reaching a workable European definition.

4.8. The Commission is asked to consider which 'sustainable building and housing` strategies would have the most beneficial effect from an economic, ecological and social point of view.

4.9. Current thinking sees great potential for employment in the renovation and modernization of existing buildings. However, this requires that workers have the necessary skills and training.

4.10. The Commission should propose ways for the acquisition of skills by young and older workers in the growth area of modernization and renovation.

4.11. With due respect for the subsidiarity principle, efforts are being made to develop directives or recommendations with regard to basic standards for sustainable building and housing. These include definitions of target variables and parameters (e.g. targeted reduction for the amount of land used, recommended targets for the use of recycled material, house-building programmes with the emphasis on sustainable building and housing, etc.) and uniform arrangements for collecting and publishing relevant data at national and EU level.

4.12. The Committee feels it is necessary to provide the parties most directly involved in implementing sustainable building and housing (e.g. towns and municipalities, organizations and private companies) with adequate information and recommendations. Innovative implementation strategies, such as environmental contracting, financial incentives and profitability studies, modernization of the relevant regulations, participation by ordinary citizens, are of particular interest and should be drawn up on the basis of experts' reports and/or seminars and workshops.

Brussels, 1 October 1997.

The President of the Economic and Social Committee

Tom JENKINS

() OJ C 138, 17. 5. 1993; OJ C 140, 11. 5. 1996.

() OJ C 269 of 14. 10. 1991.