Unlocking housing with recycled materials

The UK government’s ambitious plan to “get Britain building again” is to be put to proof over the next five years after the 2024 Labour manifesto promised “1.5m new homes over the next parliament”. To help reach this target by 2029, pledges have been made to update the National Planning Policy Framework (including introducing new golden rules for releasing low-quality green belt land for development) and restore local authorities’ mandatory housing targets. However, so far little has been said about how the UK government can positively influence the construction of new homes to meet both housing and sustainability targets. Modular construction, prefabrication and greater standardisation have all been cited as potential methods for boosting the production of affordable housing. However, little consideration has been given to how recycled and non-standard materials can play an important part in this drive for affordable housing. Benefits of reuse According to 2020 statistics from the Department for Environment, Food & Rural Affairs, it is estimated that in the UK we generate between 53.6m tonnes and 67.8m tonnes of non-hazardous construction and demolition waste each year. While the figures indicate a high recovery rate of construction and demolition waste (around 90% on average), reuse has lagged behind. Onward use of materials is largely confined to the conversion of mineral waste into usable aggregates (such as in the manufacture of concrete). The concept of reuse in construction is not new – the sandstone blocks from Hadrian’s Wall were widely reused, including for the construction of the 12th-century Thirlwall Castle in Northumberland. Importantly, increased reuse of building materials will play a key part in the construction industry’s response to the climate emergency, but it could also play a role in addressing the shortage of affordable homes in the UK. The benefits of reuse include: Cost and resource efficiency – Repurposing materials could bring potential financial benefits. By way of example, repurposing viable steel components in times of material scarcity is likely to be more cost effective than navigating an inflated market for their virgin counterparts. Time – Reuse, particularly of elements left in place, such as existing foundations, could reduce construction and lead times, which often hamper large-scale developments. Innovation – Achieving better affordable housing requires innovation (which remains lacking in this sector). Given the inherent opportunity to achieve cost and time benefits and meet urgent environmental commitments, the reuse of materials provides the ideal vehicle to drive innovation in this sector. Challenges in the UK Nevertheless, reuse of materials in construction remains a process that is difficult to navigate and lacks government-backed incentives. Although Labour’s manifesto has it committed to delivering the targets set out in the Environment Act 2021, this promise has been criticised for not going far enough. The UK lacks a unified approach to reuse. The current landscape is a patchwork of: the Waste (England and Wales) Regulations 2011, which require reporting on the quantities of construction and demolition waste generated; highly specific disincentives such as the aggregates levy on virgin sand, gravel and rock, and quality protocols on certain types of reused materials (such as aggregates); and non-mandatory certification schemes such as BREEAM Infrastructure (formerly CEEQUAL), which typically include a waste management element with points to be gained for achieving a specified level of landfill diversion or recycling. It should be noted that the Carbon Emissions (Buildings) Bill would have required whole-life carbon emissions of buildings to be reported and set limits on embodied carbon emissions in the construction and use of buildings. However, it has been almost two years since it underwent its first reading in the House of Commons. This piecemeal approach does little to incentivise reuse. On the contrary, current regulations have the potential to operate as a disincentive. For instance, if building components or materials are removed from a demolition site, they are automatically classified as waste. The conversion of that waste back into a marketable product capable of being reused involves lengthy testing obligations and unclear regulations, which are not readily applicable to reused materials and can price small-scale innovators out of the market and ultimately slow down the construction process. Alternative approaches In contrast, the Netherlands and Japan impose direct regulations to incentivise the recovery and reuse of construction and demolition waste, driving change through larger projects while allowing smaller, less resource-rich projects time to adapt. France takes this further, with recent environmental building regulations (referred to as RE2020) stipulating that project specifications for new buildings must include an assessment of the climate change impact of the construction itself (including materials and the construction process), which must be kept updated throughout the building’s lifetime. The RE2020 requirements become more stringent every three years to ensure that emissions continue to reduce. Considerations for change There remains work to be done. A proposed solution is the implementation of express legislative requirements for reuse, coupled with clarity (through government-led regulation) on what is expected of a “specification for reuse”. The combination of these measures could be the impetus required to drive change, assist in the timely delivery of more affordable housing and offer the public sector an opportunity to lead by example. It should be said that reuse is by no means the answer to all problems. In recent history, no government has met the affordable housing target it set for itself and the challenge remains significant. Many developers and housing associations have raised valid concerns around the financial viability of building affordable homes at the rate demanded by current targets. There is therefore no question that investment from both the public and the private sector will be required. However, striving to reach twin targets of sustainable and affordable housing development may well provide the impetus for public sector construction clients to act as role models for reuse and be actively involved in early adoption. Mariya Rankin is a senior associate at Eversheds Sutherland Photo © Ian Murray/imageBROKER/Shutterstock