Greater Manchester, home to over 2.8 million people, has set an ambitious target to become carbon-neutral by 2038.
Greater Manchester, home to over 2.8 million people, has set an ambitious target to become carbon-neutral by 2038. The Greater Manchester Combined Authority (GMCA) is made up of the ten Greater Manchester city councils and mayors, who work with other local services, businesses, communities and other partners to improve the city-region.
With over £104 million in grant funding secured through the Public Sector Decarbonisation Scheme (PSDS), the GMCA region is leading the way in decarbonising public buildings and advancing toward its climate goals.
In 2022, the total emissions were 10.8MTCO2. That is 8.3MTCO2 lower than the 2005 emissions, but 5.6MTCO2 over the annual budget allocation that has been set to enable the region to achieve carbon neutrality by 2038.
As part of its Vision for a Greener Greater Manchester, the region has a shared goal to reach climate neutrality by 2038 and leverage this transition to reduce inequalities across the city region. The plan aims to actively engage both residents and businesses in creating and sustaining a thriving, carbon-neutral environment. This ambitious vision includes cleaner air and water, increased urban greening, energy-efficient buildings powered by renewable energy, healthy locally produced food within a circular economy, and a commitment to managing rural environments for nature recovery and wildlife protection.
A core priority for the Greener Greater Manchester initiative is decarbonising the built environment. The PSDS, a government-funded programme, supports public institutions in transitioning from fossil fuelled to low-carbon heating systems, with £2.5 billion allocated for this purpose. Working closely with local authorities, the GMCA has implemented 807 measures across 217 sites, including air source heat pumps, solar panels, energy management systems, and insulation, in collaboration with 29 partners.
Among the projects funded, Tameside Council’s Active Hyde Leisure Centre saved 858 kWh annually, cutting 2,732 tonnes of carbon. Bolton Council’s Ladybridge High School saved 1.2 million kWh, reducing carbon emissions by 3,204 tonnes, while Salford’s Turnpike Depot saved 103,300 kWh, cutting emissions by 417 tonnes.
The PSDS project was primarily financed through government grants, with local authorities and public sector organisations providing additional funds. Initially, grants covered 100% of costs, but in later waves, they covered less than 40%, driving innovation in funding and delivery approaches.
Deep-Dive: National Cycling Centre, Manchester City Council (2021-2023)
Manchester City Council is committed to become zero carbon by 2038 at the latest. The National Cycling Centre ‘Velodrome’ was selected as a pilot for the public sector decarbonisation initiative within the corporate real estate of city council owned and operated buildings. The Velodrome’s high energy consumption, driven by extended operating hours and large public events, contributed to its selection, along with the Manchester Aquatic Centre. The Velodrome is expected to save up to 517 tonnes of carbon emissions annually.
Several factors influenced the Velodrome’s inclusion:
- High Carbon Emissions: Leisure venues like the Velodrome consume significant amounts of energy, contributing substantially to the city’s carbon footprint.
- Prime Location: Its popularity as a sports venue made it an ideal candidate to showcase the potential of public building decarbonisation.
- Scheduled Renovation: Built in 1994, the Velodrome was due for mechanical and electrical updates. With £2.5 million in PSDS funding, the council added this to its planned £27 million renovation, making it the UK’s first all electric Velodrome.
- Lifecycle Assessment: Manchester City Council maintains a pipeline of public buildings requiring updates based on lifecycle assessments. This approach ensures infrastructure is updated when necessary, reducing construction waste and allowing informed decision-making for decarbonisation projects.
Challenges Faced by Manchester City Council:
- Costs of Equipment: Decarbonisation projects are costly. for example, heat pumps and their infrastructure cost considerably more than comparable gas-powered boilers.
- Long lead times: Joint procurement across councils helps mitigate costs, but equipment is often made to order, leading to long delivery times.
Reflecting on the Public Sector Decarbonisation Scheme at the Greater Manchester level
What were the key drivers?
- Multilevel Governance: The GMCA acts on behalf of the National Government to disburse funding at the city council level. The programme application to mobilise national funding was submitted by the GMCA, while bringing together a consortium of city councils within its jurisdiction. Each city council has its own local implementation team to select buildings and deliver the project on site. Monthly meetings with all the involved city councils were held to facilitate joint procurement, problem solving and peer to peer learning.
- Political Commitment: The PSDS strengthens Greater Manchester’s position as a national leader in climate action, driving resilience and reducing fossil fuel dependency.
- Economic Support: Government grants help to make decarbonising buildings more financially viable , especially when invest-to-save models aren’t sufficient.
- Social Engagement: GMCA’s public engagement on carbon reduction involves communities and organisations across the region, increasing awareness.
- Technical Innovation: The programme targets aging fossil fuel systems, incorporating smart energy features to enhance building performance and energy management.
- Legal Framework: The UK’s 2050 net-zero commitment and Greater Manchester’s 2038 neutrality target provide legal backing for decarbonisation efforts.
What barriers did the city encounter?
- Political: Early funding rounds required projects to be completed in one year, limiting long-term planning. Though newer waves offer more flexibility, the competitive nature of applications remains a challenge.
- Economic: Reduced grant funding and rising costs affect project viability and the ability of partners to cover project costs.
- Social: Limited administrative resources within some councils can stretch capacities, and centralised management through the GMCA has mitigated some of these issues.
- Technical: Strict funding conditions, such as the requirement to replace fossil fuel systems, sometimes restrict local asset planning.
- Legal: Complex legal agreements required for consortium bids pose challenges, especially with the precision needed for compliance.
Lessons Learned
- Collaboration is Crucial: Strong partnerships between the GMCA, local authorities, and public bodies were essential for overcoming challenges and ensuring the programme’s success.
- Flexible Funding: Adaptable funding mechanisms are necessary to respond to changing conditions and ensure the programme's long-term viability.
- Local Autonomy: Greater control at the local level over budgets and strategy enables more tailored and effective decarbonisation efforts.
- Data-Driven Decision-Making: Robust data collection is critical for informed decision-making and precise resource allocation.
Factors for Upscaling to Other Contexts
- Performance Monitoring: Consistent data collection against baseline metrics is crucial for measuring impact and scaling success.
- Live Data Platforms: Using live data platforms allows real-time tracking of progress, refining strategies for future decarbonisation projects.
- Pipeline of Projects: Maintaining a list of priority buildings ready for renovation ensures efficiency when funding becomes available.
- Leveraging Existing Funding: Identifying existing funding sources and projects already slated for renovation helps maximise resources.
- Setting an Example: Decarbonising public sector buildings demonstrates the potential for similar efforts in the private sector, driving broader change.
By following these lessons, Greater Manchester is paving the way for a greener, carbon-neutral future, setting an example for other regions aiming to reduce their carbon footprint through strategic decarbonisation.