View
217
Download
0
Category
Preview:
Citation preview
8/13/2019 h Res Plan Considerations
1/114
8/13/2019 h Res Plan Considerations
2/114
8/13/2019 h Res Plan Considerations
3/114
Report for
Mr John Wood
Director of Environment
Hertfordshire County Council
County HallHertford
SG13 8DN
Main Contributors
Alan Chaplin
Jenni Heaton
Issued by
Alan Chaplin
Approved by
Entec UK Limited
Atlantic HouseImperial WayReading RG2 0TDEnglandTel: +44 (0) 1189 036061Fax: +44 (0) 1189 036261
Hertfordshire CountyCouncil
HertfordshireEnvironmental Forum
HertfordshireTechnical ChiefOfficers Association
HertfordshireRenewable EnergyStudy
Planning Considerations
July 2005
Entec UK Limited
8/13/2019 h Res Plan Considerations
4/114
8/13/2019 h Res Plan Considerations
5/114
i
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
Executive Summary
The achievement of sustainable development will require action by many people and
organisations. It will require radical changes in the way we plan and make decisions; in
the way we live and carry out our business. Facing up to these radical changes will
strengthen us as a region now and benefit generations to come. (Source: The East of
England Sustainable Development Framework, October 2001, The East of England
Regional Assembly and The East of England Sustainable Development Round Table)
Entec UK Ltd was engaged by the clients, Hertfordshire County Council, Hertfordshire
Environmental Forum (HEF) and the Hertfordshire Technical Chief Officers Association
(HTCOA), to undertake research to identify the realistic potential for renewable energy
development in the county and to explore the opportunities and constraints to this form of
development.
PPS22 sets out the Governments national land use planning policies for renewable energy. The
ODPM has also produced Planning for Renewable Energy: A Companion Guide to PPS22
offers practical advice as to how these policies can be implemented on the ground. The
Companion Guide also includes examples of best practice.
The East of England Regional Spatial Strategy (December 2004) is currently undergoing review
and a draft version was the subject of consultation from 8 December 2004 to 16 March 2005.
An Examination in Public is scheduled to begin on 13 September 2005.
Renewable energy is used to describe the various ways in which continuous energy flows that
occur naturally in the environment, from the sun, wind, oceans, plants and the fall of water, are
harnessed. Energy from waste is also referred to as renewable energy where it emanates fromwithin the earth.
National policy is to encourage the development and use of renewable energy resources where
they have prospects of being economically viable and environmentally acceptable. The aim is
to reduce the adverse environmental impacts of producing energy from fossil fuels, notably
carbon dioxide (CO) emissions. In addition, renewable energy sources can also contribute
towards the greater diversity and security of the nations energy supply.
The accompanying technical report on renewable energy in Hertfordshire, which has also been
prepared by Entec, concludes that there is the technical potential within Hertfordshire to achieve
the levels of renewable energy production proposed in the East of England Sustainable
Development Round Table Study.
If the 2010 regional targets are to be met, onshore wind must be encouraged, along with all
other forms and scales of renewable energy schemes. In order to meet the 2020 targets,
emerging technologies, such as biomass, will be needed, although the long initiation periods for
bringing such development into operation means that proposals must be brought forward now.
Renewable energy in new development will only make a marginal difference to meeting the
regional targets, but would help encourage more affordable and a greater choice of renewable
energy technologies in the market place, as well as possibly raising public awareness.
8/13/2019 h Res Plan Considerations
6/114
ii
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
Planning applications for renewable energy projects should be assessed against specific criteria
set out in local development documents, as well as the East of England Regional Spatial
Strategy.
Local planning authorities may include policies in local development documents that require a
percentage of the energy to be used in new residential, commercial or industrial developmentsto come from on-site renewable energy developments.
The opportunity for incorporating renewable energy projects in all new development should be
considered.
Authorities will need to have a clear understanding of energy usage in their areas in order to set
clear baselines and be able to track progress against effective targets.
The options for the planning system in Hertfordshire are set out in terms of three broad ways in
which the planning system might engage in the future in the promotion of renewable energy:
Business as usual;
What is possible; and
Extending the case for renewables.
Business as usual is not considered to be an option if Hertfordshire and the East of England
intend to move towards, yet alone reach, their own targets.
In terms of what is possible, there is the technical potential within Hertfordshire to achieve the
levels of renewable energy production proposed in the East of England Sustainable
Development Round Table Study.
The last option, extended, provides the basis for blue sky thinking by the local authorities in
particular, which might provide a convenient way of kicking off the Local DevelopmentFrameworks that are due to prepared over the next few years.
A number of possible actions and considerations flow from the extended position:
Renewable Energy in New Development
The application of renewable energy as a requirement to (virtually) all new
development, particularly for residential development, appears to offer an
opportunity that should be seriously considered if there is a serious intent to meet
renewable energy targets at the regional and county levels
If this approach was to be adopted, the local authorities would need to think about
seeking to remove, or at least modify, in Policy ENV8, sub-paragraph (c), of thedraft East of England Plan the words above the same threshold, in order to
ensure that a regional policy allows local development documents to require all
developments (or at least all residential development) to incorporate equipment for
renewable power generation so as to provide at least 10% of their predicted energy
requirements.
If this was introduced into the development plan via the new Local Development
Frameworks, possibly just over half of the new dwellings proposed for
Hertfordshire in the current regional plan period to 2021 could become the subject
8/13/2019 h Res Plan Considerations
7/114
iii
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
of such a renewable energy requirement, so long as the RSS confirmed such an
approach and so long as the local planning authorities introduced the requirement
as a co-ordinated group.
Community Heating and CHP
Community heating schemes and combined heat and power are subjects that thelocal authorities should research in detail in due course if it is considered that there
may be future opportunities for these forms of energy production and distribution,
particularly with regard to the larger scale of developments that will need to be
considered in the county.
Wind Energy
With regard to wind energy, the local authorities should not only consider aiming
for at least 5 additional wind turbines in the county, but also whether the
community is willing to extend its ambitions to accommodating and actively
encouraging around 30 large wind turbines in Hertfordshire.
Planning Application Statements
With regard to energy consumption statements, local planning authorities should
consider whether they should specifically seek written evidence from applicants on
an examination of the options for different heating and power systems when certain
types of development proposals over a particular size are submitted as planning
applications.
8/13/2019 h Res Plan Considerations
8/114
iv
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
8/13/2019 h Res Plan Considerations
9/114
v
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
Contents
1. Introduction 1
1.1 The Study 1
1.2 Study Objectives 1
1.3 The Renewable Energy Options Report 1
1.4 Structure of the Report 2
1.4.1 Sections 2
1.4.2 Appendices 3
1.5 The Planning System 31.5.1 National Planning and Policy Statements 3
1.5.2 Regional Planning and Regional Spatial Strategies 4
1.5.3 Local Development Frameworks 4
1.5.4 The Development Plan and the Development Control System 5
2. The National Planning Context 7
2.1 Planning Policy Statement 22 (PPS22): Renewable Energy 7
3. The Regional Planning Context 11
3.1 East of England Regional Spatial Strategy (RSS) 11
3.2 East of England Sustainable Development Round Table,2001 11
3.3 East of England Draft Plan, December 2004 11
3.4 Regional Planning advice for Local DevelopmentFrameworks 13
3.5 Regional Planning Advice on Location 14
3.5.1 Sustainable Communities Plan growth areas 15
3.5.2 Settlements outside growth areas 15
3.5.3 Non-designated landscapes 15
3.5.4 Designated landscapes 15
3.6 Hertfordshire Structure Plan 16
4. The Local Planning Context 17
4.1 PPS12 on LDFs 17
8/13/2019 h Res Plan Considerations
10/114
vi
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
5. Planning Issues 19
5.1 The Different Forms of RE and their Implications forPlanning 19
5.2 Wind power 195.2.1 Project Initiation 19
5.2.2 Evaluation 20
5.2.3 Implementation 21
5.2.4 Maintenance 21
5.2.5 Decommissioning 21
5.2.6 Smaller Scale Turbines 22
5.2.7 Domestic wind turbines 22
5.3 Biomass energy 22
5.3.1 Co-firing 23
5.3.2 Large-scale power generation 235.3.3 Small to Medium-scale power generation and CHP schemes 25
5.3.4 Power generation from waste 25
5.3.5 Transport fuels 26
5.3.6 EIA requirements 26
5.4 Water power 27
5.5 Solar power 27
5.6 Landfill gas 28
6. Renewable Energy Development in Hertfordshire 29
6.1 The Potential for RE in Hertfordshi re 29
6.2 Meeting the Targets 29
7. Local Planning Approach 31
7.1 The Vision 31
7.2 Sustainability and Plan Objectives 31
7.3 The Wider Context 34
7.4 Woking Borough Council 34
7.5 Cornwall 35
7.5.1 Cornwall Structure Plan 36
7.5.2 The District Local Plans 36
8. Local Planning Policies 39
8.1 Local Planning Policies 39
8/13/2019 h Res Plan Considerations
11/114
vii
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
8.2 Good Practice 39
8.3 The Assessment of Policies 40
8.4 A General Cri ter ia-based Pol icy 42
8.4.1 Government Guidance 42
8.4.2 Woking Borough Local Plan 42
8.4.3 Penwith Local Plan 43
8.4.4 Rochford District Local Plan 43
8.4.5 Caradon Local Plan 44
8.4.6 Oldham Unitary Development Plan 44
8.4.7 London Borough of Merton 45
8.4.8 Recommended Policy Wording Checklist 46
8.5 A Policy for Renewable Energy in New Development 47
8.5.1 Government Guidance 47
8.5.2 Planning Officers Society 478.5.3 Woking Borough Council 48
8.5.4 London Borough of Merton 48
8.5.5 Oldham Metropolitan Borough Council 49
8.5.6 Recommended Policy Wording Checklist 50
8.5.7 South East Plan Opinion Poll 52
8.6 A Policy Support ing Small -scale Renewable Energy 53
8.6.1 Government Guidance 53
8.6.2 Community Involvement 53
8.6.3 Community-based Projects 54
8.7 Policies on particular types of Renewable Energy 548.7.1 Government Guidance 54
8.7.2 Penwith Local Plan 54
8.7.3 Oldham Unitary Development Plan 55
8.7.4 Caradon Local Plan 56
8.7.5 Recommended Policy Wording Checklist 57
8.8 Policies that promote a form of Renewable Energy in anArea 58
8.8.1 Government Guidance 58
8.8.2 Regional and Sub-Regional Considerations 59
8.9 SMART Polic ies 59
9. Planning Appl ications 61
9.1 Planning Applications 61
9.2 Housing Developments 62
9.3 Development Control Issues 63
9.4 Environmental Impact Assessments 64
8/13/2019 h Res Plan Considerations
12/114
8/13/2019 h Res Plan Considerations
13/114
1
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
1. Introduction
1.1 The Study
Entec UK Ltd was engaged by the clients, Hertfordshire County Council, Hertfordshire
Environmental Forum (HEF) and the Hertfordshire Technical Chief Officers Association
(HTCOA), to undertake research to identify the realistic potential for renewable energy
development in the county and to explore the opportunities and constraints to this form of
development.
1.2 Study Objectives
The objectives of the study were to:
! develop a clear understanding of the constraints and barriers to renewable energy project
development;
! develop realistic renewable energy targets with broad agreement from the key stakeholders;
! identify locational and technological criteria for assessing proposed projects;
! develop scenarios to aid the understanding of policy options and potential implications for
the county;
! develop model policies to inform local development frameworks and development control
decisions;
! improve understanding between planners, developers, potential developers and other key
stakeholders;
! present clear advice on how to maximise the potential direct and indirect benefits of
renewable energy developments; and
! maximise the training potential of this exercise for members and officers in the county.
1.3 The Renewable Energy Options Report
This report should be read with the Renewable Options Report which details the technical
background to renewable energy in Hertfordshire. Together, this and the Options report
represent the response to the objectives of the study and its brief. The Renewable Options
Report was first circulated as an interim consultation document in January 2005 when it
provided key information to stakeholders, illustrated what renewable energy could look like in
Hertfordshire, and identified what barriers are needed to be overcome to enable renewable
energy to happen. The January 2005 report was then updated following a workshop for
stakeholders and published in the form of a separate companion report, entitled Renewable
Energy Options for Hertfordshire.
8/13/2019 h Res Plan Considerations
14/114
8/13/2019 h Res Plan Considerations
15/114
3
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
Section 7 is an introduction to the local planning approach that authorities can consider,
including some examples of more general approaches to energy matters that certain local
authorities have adopted.
Section 8 sets out an analysis of possible approaches to the construction of local planning
policies, including examples from other authorities. The report provides a framework for localplanning authorities to be able to consider and construct their own wording and set of policies as
part of their Local Development Framework process.
Section 9 provides some basic guidance on dealing with planning applications in relation to
renewable energy proposals, including an example of advice to planning authorities in London.
Section 10 deals briefly with question of monitoring and the systems that will need to be
considered in the future.
Section 11 concludes by examining the options for planning, expressed in the form of business
as usual, possible and extended, including recommendations on future planning policy and
research.
1.4.2 Appendices
The report also contains the following additional information in the form of appendices:
Appendix 1 Recent Renewable Energy Planning Applications in HertfordshireAppendix 2 Examples of Renewable Energy SchemesAppendix 3 Public attitudes to Renewable EnergyAppendix 4 Renewable Energy in an AONBAppendix 5 Code for Sustainable BuildingAppendix 6 Sustainable Building Task Group ReportAppendix 7 Policy ENV8 in the Draft Regional PlanAppendix 8 Information Sources
1.5 The Planning System
In dealing with the role that the local planning system might play in the development of
renewable energy, a brief description of the planning policy context is described below. The
planning system in the UK operates within a hierarchical structure of guidance and plans
covering the national, regional and local levels.
1.5.1 National Planning and Policy Statements
Climate Convention (1997 Kyoto Conference)
Under the Kyoto Protocol, the UK has committed to reduce Greenhouse Gas emissions overall
by 12.5% below 1990 levels by 2008-2012.
Climate Change the UK Programme (2000, UK government)
In order to achieve the above target, the government has set a domestic goal of a 20% reduction
in CO emissions by 2010 set out in the Climate Change Programme.
The Energy White Paper Our energy future creating a low carbon economy (2003)
This white paper set out four key goals:
8/13/2019 h Res Plan Considerations
16/114
4
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
! To cut CO emissions by 60%, by about 2050
! To maintain the reliability of energy supplies
! To promote sustainable economic growth
! To ensure every home is adequately and affordably heated
Achieving emissions reductions of these magnitudes will require significant behaviouralchanges, with potentially major impacts on businesses and communities. Substantial
improvements in energy efficiency will be required, but will also have to be accompanied by a
major reduction in fossil fuel usage.
The Energy White Paper also sets a target to supply 10% of the UKs electricity from zero-
carbon, or carbon neutral, renewable sources (such as wind, wave, tidal, hydro and solar power,
and biomass) by 2010, and a target of 20% of the UKs electricity by 2020.
1.5.2 Regional Planning and Regional Spatial Strategies
Under the Planning and Compulsory Purchase Act 2004, existing Regional Planning Guidancedocuments (RPGs) are being replaced by new statutory Regional Spatial Strategies (RSS),
which will form part of the statutory development plan. Each RSS is intended to be more
regionally specific than previous guidance, reflecting regional diversity, and there will be
greater flexibility for a RSS to depart from national policy where that is justified by regional
circumstances.
The East of England Plan is, at the moment, a draft revision to the Regional Spatial Strategy for
the East of England. The formerly approved regional plan is known as Regional Planning
Guidance 14 (RPG14), whilst the new RSS will be referred to as the East of England Plan. The
East of England Plan is the document that sets out the strategy to guide planning and
development in the East of England to the year 2021.
The East of England Plan is dealt with in detail in Section 3 of this report.
1.5.3 Local Development Frameworks
In September 2004 the Planning and Compulsory Purchase Act 2004 introduced significant
changes for development plan preparation. The old system of Structure Plans, Local Plans and
Supplementary Planning Guidance is now being replaced with Local Development Frameworks
(LDFs) for each local planning authority.
Local Development Frameworks are intended to streamline the local planning process, by
incorporating greater flexibility and front loading in the process, by increasing community and
stakeholder involvement, and by promoting sustainability. Local development documents
(which will make up the LDF) will go beyond the development and use of land, to include
policies that influence the nature of places and how they function. These documents are
intended to be developed via a continuous, rather than fixed, interval process. The LDF must be
in general conformity to Regional and National policies.
For renewable energy, regional guidance determines the broad criteria and locations for
development in order to guide the preparation of the local development documents. These
should contain a spatial strategy for renewable energy including type, mix and broad location of
development (with details and maps of specific sites and proposals if relevant).
8/13/2019 h Res Plan Considerations
17/114
5
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
LDFs will need to have regard for the resources, in broad terms only, likely to be available for
implementing policies that encourage renewable energy developments.
1.5.4 The Development Plan and the Development Control System
Section 38(6) of the Planning and Compulsory Purchase Act 2004 states that if regard is to be
had to the development plan for the purpose of any determination to be made under the
planning Acts, the determination must be made in accordance with the plan unless material
considerations indicate otherwise.
Where a policy or proposal exists in the development plan (i.e. in the adopted RSS or LDF)
which is relevant to a particular planning application proposal, then the decision-maker must
have regard to that policy or proposal, unless material considerations indicate otherwise.
The LDFs will therefore be crucial in setting the local policies and proposals for their areas,
which in turn will influence how prospective applicants and developers will look at the
opportunities and constraints within each administrative area.
8/13/2019 h Res Plan Considerations
18/114
6
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
8/13/2019 h Res Plan Considerations
19/114
7
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
2. The National Planning Context
2.1 Planning Policy Statement 22 (PPS22): RenewableEnergy
PPS22 sets out the Governments national land use planning policies for renewable energy. The
ODPM has also produced Planning for Renewable Energy: A Companion Guide to PPS22
which offers practical advice as to how these policies can be implemented on the ground. The
Companion Guide also includes examples of best practice. (For PPS22 and the guide, go to
http://www.odpm.gov.uk/stellent/groups/odpm_control/documents/contentservertemplate/odpm
_index.hcst?n=5681&l=3)
The Government is committed to delivering 10% of electricity from renewable sources by 2010
and 20% by 2020. PPS22 aims to strongly encourage the development of renewable energy
schemes, in both urban and rural locations, in order to contribute towards these targets. A range
of sizes of renewable energy developments are anticipated, from domestic through to
commercial scales, and utilising a wide range of different technologies (e.g. biomass, energy
from waste using biological and thermal processes, small hydro, solar electricity, solar heating
and wind).
PPS22 includes a number of key principles relevant to local planning authorities (LPAs) as
follows:
Local Development Documents should contain policies designed to promoteand encourage, rather than restrict, the development of renewable energy
resources.
Planning authorities should set criteria to be applied in assessing planningapplications for renewable energy projects. PPS22 underlines that particular
renewable energy technologies cannot be ruled out or restrained without sufficient
reasoned justification and that poorly justified constraints may be subject to
government intervention.
The wider environmental and economic benefits of renewable energy
proposals are material considerations in determining whether proposals shouldbe granted planning permission.
local planning authorities should not make assumptions about the technical and
commercial feasibility of renewable energy projects.
Small scale projects can provide a limited but valuable contribution to overall
outputs
Local Planning Authorities should foster community involvement in renewable
energy projects
8/13/2019 h Res Plan Considerations
20/114
8
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
Development proposals should demonstrate environmental, economic and social
benefits as well as how environmental and social impacts can be minimised
PPS22 and its Companion Guide provide specific advice to LPAs on the preparation of Local
Development Documents. A summary of the key elements, which are of relevance to
Hertfordshire, is set out below.
LPAs should only allocate specific sites for renewable energy in plans where a developer has
already indicated an interest in the site. Plans should set out criteria based policies for assessing
planning applications for renewable energy. It is likely that there will be two types of policy
areas dealt with by criteria-based policies, supported by an overarching policy in the core
strategy. These would relate to:
Standalone renewable energy schemes The Companion Guide states that it is
important that policies address the full range of technologiesand not just those
highlighted in the Regional Spatial Strategy. The policy should address impacts on
landscape, townscape, natural, historical and cultural features (possibly referenced
to a landscape Character and Sensitivity Assessment). There should also bereference to the impacts on the amenity of the area in relation to visual intrusion,
noise, dust, odour and traffic.
Integration in new development PPS22 states that LPAs may includepolicies
that require a percentage of the energy to be used in new residential, commercial
or industrial developments to come from on-site renewable energy developments.
Such policies should ensure that the requirement is only applied to developments
where the installation of renewable energy is viable. They should also be flexible
and not place an undue burden on developers in terms of the proportion or type of
renewable energy to be provided.
PPS22 also provides further policy advice on certain locational considerations. For example, inrelation to nationally recognized designations such as Areas of Outstanding Natural Beauty
(AONB), planning permission should only be granted where it can be demonstrated that the
objectives of the designation will not be compromised by the development. Small-scale
developments should be permitted provided there is no overriding environmental detriment.
With parts of The Chilterns AONB falling within Hertfordshire, an example is provided at
Appendix 4 on planning guidance published within the last year for the Blackdown Hills
AONB on renewable energy and wind turbines.
In Green Belts many renewable energy projects will comprise inappropriate development and
therefore careful consideration needs to be given to the visual impact of the project. Developers
will need to demonstrate very special circumstances, which outweigh any harm, if projects are
to proceed.
PPS22 also points out that LPAs should not adopt a sequential approach in considering
renewable energy projects, as most renewable energy resources can only be developed where
the resource exists. Some previously developed sites may, however, be suitable, particularly
where they are in remote locations unsuitable for other uses. It also states that many type of
renewable energy are capable of being accommodated in urban, as well as rural, areas and
that criteria based policies should reflect this situation.
PPS22 and the Companion Guide advise that Supplementary Planning Documents could play
a critical role in implementing renewable schemes. Topics that such documents might cover
8/13/2019 h Res Plan Considerations
21/114
9
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
include design guidance on integrating renewables, or site development briefs where renewable
generation is to be included.
8/13/2019 h Res Plan Considerations
22/114
10
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
8/13/2019 h Res Plan Considerations
23/114
11
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
3. The Regional Planning Context
3.1 East of England Regional Spatial Strategy (RSS)
The East of England Regional Spatial Strategy (December 2004) is currently undergoing review
and a draft version was the subject of consultation from 8 December 2004 to 16 March 2005.
An Examination in Public is scheduled to begin on 13 September 2005. Following the
Examination, the Panel will produce a report on its recommendations and, in the light of these
recommendations, the Secretary of State will propose changes to the draft East of England Plan.
These proposed changes will then be the subject of a further round of consultation before the
Plan is published in its final form by the Secretary of State.
3.2 East of England Sustainable Development RoundTable, 2001
In order to identify suitable regional targets to help meet national targets, the East of England
Sustainable Development Round Table regional partnership commissioned research that
concluded that the renewable energy technologies with the greatest potential for the region are
off-shore and on-shore wind, biomass, bio-fuels and solar power.
Table 3.1 Regional renewable energy targets fo r the East of England 2010 and 2020
2010 2010 2020 2020
Excl. off-shore wind Incl. off-shore wind Excl. off-shore wind Incl. off-shore wind
10% 14% 17% 44%
Although the report in 2001, Making Renewable Energy a Reality: Setting a Challenging
Target for the East of England, highlighted the fact that use of wind power is expected to
contribute significantly to meeting the 2010 target, developments using a range of technologies,
from domestic through to large commercial ventures, will also be required. Many renewable
energy technologies are best suited to small- and medium-scale generation and distribution such
that every area in the region, including those not previously accommodating generationinfrastructure, will need to promote renewable energy development. For those technologies not
yet commercially tested, demonstrator projects would need to be approved now in order to
establish effective operation in time to meet the targets.
3.3 East of England Draft Plan, December 2004
The East of England Regional Spatial Strategy (December 2004), when eventually approved,
will form the statutory framework for local development plans and transport plans produced by
8/13/2019 h Res Plan Considerations
24/114
12
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
the local authorities in the region. The draft plan aims to address the four keys areas of
sustainable development, namely:
Social progress which recognises the needs of everybody
Effective protection of the environment
Product use of natural resources
The maintenance of high and stable levels of economic growth and employment.
In order to enable the quantum move required towards the use of renewable energy, there are
many policies within the Spatial Strategy specifically designed to promote its usage. These are
summarised below: -
Policy SS16: Quality in the built environment
Promotion of design excellence, including increased building energy efficiency and use of
renewable energy supplies.
Policy NSR1: Promoting cluster and strategic sites
Renewable energy highlighted as an emerging strategic employment cluster / sector.
Policy NSR5: Transport infrastructure
Transport improvements to support renewable energy generation will be prioritised (subject to
site approval).
Policy GYL1: Economy and regeneration
Promotion of renewable energy employment cluster (utilising existing offshore engineering
skills).
Policy KL1: Kings Lynn sub-region
Attraction of investment in expanding economic sectors, including bio-fuels and other
renewable energy technologies.
Policy T11: Environment and safety
When implementing renewable energy, transport planning, movement corridors and investment
should minimise environmental damage and take into account national designations and
landscape character.
Policy ENV8: Renewable energy and energy efficiency
This is the main policy for the promotion of energy efficiency and renewable energy. The draft
policy and its supporting text, as published in December 2004, is reproduced in full at
Appendix 7.
8/13/2019 h Res Plan Considerations
25/114
13
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
3.4 Regional Planning advice for Local DevelopmentFrameworks
The draft version of the East of England Regional Spatial Strategy (December 2004) currently
requires Local Development Documents to: -
Contain policies for promoting and encouraging energy efficiency and renewable
energy, presuming in favour of renewable energy development.
Require developers to maximise energy efficiencies to be gained from sustainable
design and construction, community heating and combined heat and power
schemes
Encourage developers to strive to achieve energy efficiency standards that exceed
minimum standards.
Require energy consumption statements for development proposals above a
threshold of 1000 sq. m., or 50 dwellings, in order to ensure that the technical,environmental and economic feasibility of alternative systems such as
decentralised energy supply systems based on renewable energy
combined head and power (CHP)
district or block heating or cooling, if available
heat pumps, under certain conditions
are considered and taken into account before construction starts.
Require all developments above a threshold of 1000 sq. m., or 50 dwellings, toincorporate equipment for renewable power generation so as to provide at least
10% of their predicted energy requirements.
Specify the locational and other criteria by which applications for renewable
energy developments will be assessed.
Define and relate renewable energy and energy efficiency policies to the
Sustainable Communities Plan Growth Areas, the settlements outside these Growth
Areas, and designated and non-designated landscapes, in accordance with the
detailed guidance provided in the RSS.
Favourably consider the onshore developments associated with offshore energy
generation.
Encourage the use of existing infrastructure and the under-grounding of cables
connecting new plant to the grid, wherever possible.
Encourage methane exploitation from appropriate landfill sites, provided this is not
used to prolong landfill operations beyond currently agreed targets.
Actively encourage the development of community-based schemes in accordancewith the detailed guidance provided in the RSS.
8/13/2019 h Res Plan Considerations
26/114
14
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
The RSS considers that supplementary planning guidance and development briefs should be
used by the local planning authorities to support the above policies, where appropriate.
Renewable energy technologies include photovoltaic energy, solar-powered and geo-thermal
water heating, wind (onshore and, where relevant, offshore), energy crops and biomass, energy
from human sewage and agricultural plant and animal waste, but not energy from domestic orindustrial waste, except the harvesting of methane from existing landfill sites.
3.5 Regional Planning Advice on Location
Appendix C of the draft East of England Plan provides further guidance to LPAs on locational
considerations and criteria. This states that Renewable energy developments have to be
located where they are technologically and economically feasible. As this can range from
heavily urbanised to remote rural areas, all parts of the region are potentially suited to some
form of renewable energy technology. Areas of search for renewables are not considered
appropriate at this time asrenewable energy technology is subject to rapid technological change,
with new, and more efficient, equipment constantly coming on-stream.
The Appendix sets out principles for determining locational criteria for renewable energy
development based on:
A regional energy hierarchyi.e. in descending order of priority;
o use less/reduce the need for energy
o use energy more efficiently
o use renewable energy
o use clean and efficient technology for fossil fuel powered heating and co-generation.
A spatial approach - local development documents should define and relate
renewable energy and energy efficiency policies to:
o sub-regional growth areas
o settlements outside growth areas
o non-designated landscapes
o designated landscapes.
Small-scale and community-based schemes appropriate to local need are mostlikely to be permissible in areas which are:
o within or close to settlements
o within suitable landscapes
o close to the origin of the energy resource
o close to groups of buildings (in rural areas).
8/13/2019 h Res Plan Considerations
27/114
15
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
LPAs are advised to incorporate detailed criteria related to the following spatial
categoriesin their local development documents.
3.5.1 Sustainable Communities Plan growth areas
These are seen as areas of maximum potential for the development of renewable energy
technologyand the application of energy efficiency measuresby virtue of the opportunities for
new homes, business and commercial developments.
Given the scale and level of development the scope for energy efficiency measures, combined
heat and power (CHP) and district heating schemes presents the region with a significant
prospect of meeting energy saving and climate change/greenhouse gas emission targets.
The major opportunities are seen as energy from sewage waste, wind, solar and methane.
Agricultural land within the growth areas also has potential for energy crops with the added
advantage of reduced transport distances to generation plants that will be easier to locate on
urban / urban edge sites.
3.5.2 Settlements outside growth areas
Whilst development rates will be slower in these areas than the Sustainable Communities Plan
growth areas there is still seen to be significant potential to develop renewable energy and
energy efficiency measures in new development.
Renewable energy technology opportunities will be more limited, with solar and small-scale
wind being most suitable. Settlement edges however, will have potential for larger-scale wind,
energy crops, energy from sewage waste and landfill methane. Towns will also provide
locations for siting generation plants for combusting energy crops from adjacent farms.
3.5.3 Non-designated landscapes
These areas comprise primarily agricultural land and woodland, covering the majority of the
regions area. The non-designated landscapes are likely to be the principal locations for large-
scale developments associated with wind, biomass and agricultural wastes, with their related
combustion plants and infrastructure. They may also be the areas to accommodate smaller-
scale developments, including individual, or small groups of, turbines, hydro schemes and
sewage plant bio-gas installations.
The Appendix states that the potential for using these developments as a focus for
regenerating the rural economy should be a major policy objective of local development
documents.
3.5.4 Designated landscapes
Areas statutorily designated internationally and nationally for the protection of theirlandscape quality, coastal heritage, biodiversity, cultural and heritage interests designations
are not considered to be suitable for the construction of large-scale renewable energy
infrastructure, especially wind-turbines. However, small-scale developments of wind
turbines, energy crops, hydro schemes and bio-gas from small sewage plants may be acceptable.
8/13/2019 h Res Plan Considerations
28/114
16
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
Developers should be required to undertake assessments to demonstrate that adverse impacts
can be satisfactorily addressed. They should also show that that there is an overriding need for
the development in terms of local social and economic conditions.
The Appendix also states that Local Development Documents and Supplementary Planning
Documents should specify detailed criteria specifying energy efficiency standards in excess ofthe minimum (using SAP rating, Ecohomes rating or BREEAM (the Building Research
Establishment Environmental Assessment Method). Local planning authorities should require
that all new residential development achieve an NHER of at least 10.
Local Development Documents, supported by supplementary guidance, should also specify
detailed locational criteria related to the following renewable energy technologies; solar
photovoltaic, solar thermal, wind, small scale hydro, biomass and combined heat and power.
These criteria should focus on encouraging the development of such technologies and
mitigating their effects, rather than as a basis for justifying the refusal.
3.6 Hertfordshire Structure Plan
Until the East of England Plan is adopted, the development plan for Hertfordshire will comprise
the adopted Hertfordshire Structure Plan and all relevant adopted Local Plans. Policy 54 deals
with energy generation and states that, where there is a viable choice between development to
generate energy by renewable or non-renewable means, priority will be given to renewable
generation, subject to the other policies of this Plan. Renewable energy developments are
supported subject to their impacts.
8/13/2019 h Res Plan Considerations
29/114
17
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
4. The Local Planning Context
4.1 PPS12 on LDFs
Planning Policy Statement 12 (PPS12) on Local Development Frameworks (LDFs) outlines the
new system of development plans. The shift towards community involvement, sustainability
and spatial planning lie at the heart of the change. This approach will require the integration of
environmental, social and economic considerations in the light of local conditions. In order to
improve efficiency and effectiveness of the planning system, there is an emphasis on the
principle of front-loaded and evidence-based decision-making.
The Local Development Frameworks portfolio will consist of : -
A Statement of Community Involvement
Development Plan Documents
A Core Strategy
Policies and proposals on land-use topics (including site-specific allocations)
Area Action Plans
A Proposals Map
Supplementary Planning Documents
Within Hertfordshire, 10 separate local planning authorities (LPAs) will be preparing LDFs, all
of which will need to include the subject of renewable energy development proposals. A Local
Development Scheme, submitted by each LPA, sets out the LDF programme and timetable.
PPS12, in respect of the LDF, talks of LPAs having a proactive positive approach to managing
development that is:
Flexible
Appraised for sustainability
Managed efficiently
Sound and based on robust credible evidence
and that:
Strengthens community and stakeholder involvement
Front-loads the process
PPS12 states that LPAs should adopt a spatial planning approach to LDFs in order to ensure
the most efficient use of landand to approach this objective by balancing competing demands
within the context of sustainable development.
8/13/2019 h Res Plan Considerations
30/114
18
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
PPS12 explains that the new form of spatial planning:
Goes beyond traditional land use planning;
Means that planning can consider the wider issues (such as the issues associated
with carbon reduction and renewable energy promotion);
Enables development and land use plans to be brought together with other policies
and programmes; and
Means that there is a need to work collaboratively.
8/13/2019 h Res Plan Considerations
31/114
19
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
5. Planning Issues
5.1 The Different Forms of RE and their Implications forPlanning
Renewable energy is used to describe the various ways in which continuous energy flows that
occur naturally in the environment, from the sun, wind, oceans, plants and the fall of water, are
harnessed. Energy from waste is also referred to as renewable energy where it emanates from
within the earth. National policy is to encourage the development and use of renewable energy
resources where they have prospects of being economically viable and environmentally
acceptable. The aim is to reduce the adverse environmental impacts of producing energy from
fossil fuels, notably carbon dioxide (CO) emissions. In addition, renewable energy sources can
also contribute towards the greater diversity and security of the nations energy supply. It mustbe recognised, however, that some renewable energy resources can only be utilised where they
occur and that often their location will be, as a matter of necessity or convenience, in rural areas
and open landscapes. It is the planning system that is left to try to ensure that a balance is
achieved between utilising and, indeed, encouraging the particular energy resource and the need
to take account the potential impact on the local environment and amenities.
5.2 Wind power
5.2.1 Project Initi ation
Wind energy is recognised as one of the most promising renewable resources and the
technology is well advanced. Wind turbines can be deployed singly, in small clusters, or in
larger wind farms. Developers are generally attracted to areas of higher elevation and open
landscapes in order to find the best wind resource with sufficiently high annual mean wind
speeds. Knowledge of the local wind resource is critical to designing a wind energy system and
predicting its output. For domestic installations, a good source of information on local wind
speeds is the NOABL database. For a major wind farm development, a developer would
normally need to seek permission to erect a temporary mast of at least 40 metres in height for
monitoring the wind speeds for a period of between 12 and 18 months.
The scale of the proposed wind power development is seen by developers as crucial to the
planning risk. Many developers have chosen to concentrate on developments over the 50MWthreshold defined by Section 36 of the Electricity Act, which require DTI approval, rather than
rely on the unpredictability of local authority planning approvals. However, Hertfordshire is
probably not best placed to win large-scale development due to local wind conditions.
Similarly, small-scale schemes tend to involve local power distribution and often local
ownership, significantly improving local support. It is the mid-range schemes (5 to 30MW)
which have encountered the most resistance during the planning process. In order to meet the
regional targets, it will be essential to promote schemes of all scales to obtain maximum benefit.
Therefore, it is important that planning policies and guidance are tailored to meet the needs of
each of the various scales of development.
8/13/2019 h Res Plan Considerations
32/114
20
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
In order to reduce risk, developers will seek out those local authorities offering favourable
development climates, i.e. those adopting a proactive rather than reactionary stance. The cost of
local educational programmes (for the general public, planning officers and committee
members) has been a significant factor in development appraisals, encouraging developers
towards local authorities that have engaged with the impact of renewable energy as part of their
Agenda 21 work.
5.2.2 Evaluation
Local authorities can significantly increase the likelihood of development proposals coming
forward by producing indicative potential development maps for their areas. These could
indicate not only wind speed data and grid accessibility information, but also safeguarded areas
(e.g. airport/low flying/radar zones, areas of high landscaping sensitivity), transport route
separation zones, communication line-of-site pathways, residential developments and
cumulative wind-farm development separation data. Indications could be given for which areas
could accommodate large schemes, which would be more suitable for mid-range schemes
(depending on the particulars of the site), and which could at best support small-scale schemessubject to sensitive development.
Visual amenity is often a primary factor in planning applications. Individual turbines and wind
farms are highly visible over wide areas and while it might be possible to locate such
developments in sympathy with the landform and existing features in the landscape, regard must
also be paid to their wider landscape impact. (For example, grid connections could be routed
underground, to ameliorate visual impact, though this will considerably add to development
costs and environmental disturbance). There is also a need to consider the potential cumulative
impact that might occur with two or more schemes in an area. i.e. The number, size, layout,
colour, height, profile and cumulative impact of the proposals need to be considered, together
with the impact of additional power lines, fencing, buildings, sub-stations, access tracks
(including surfacing materials, cuttings, embankments, drainage channels), and anemometermasts.
Wind turbines can also cause problems of shadow flicker, reflected light, television and radio
interference and noise, both from the turbine and the blade movement. A suggested minimum
separation could be specified in planning policies between wind turbines and nearby dwellings
in order to prevent issues of visual and noise disturbance, or left variable (but sufficient)
depending on factors such as wind direction or background noise. The potential for noise
generation is generally the biggest factor for deciding how much generating capacity can be
installed at a potential site. During the EIA and site design process, noise minimisation will
often heavily influence the layout and design.
Wind turbines can also affect electromagnetic signals as used by television broadcasting andradio communications, although many options for fixing potential television reception problems
are available. Fixed communication links require a line-of-sight path between the transmitter
and receiver and thus a wind farm can be designed so that turbines are placed away from the
line of sight in order to avoid affecting such communication links. The Radio-communications
Agency (RA) holds a central register of all civil radio communications installations in the UK.
Areas of nature conservation or archaeological importance are normally avoided by developers,
although protected species or habitats might exist at any site. In many cases, archaeological
features are relatively small and in a buried, or ruined, state. It is relatively straightforward for a
wind farm to be designed around such features and proper on-site construction standards will
8/13/2019 h Res Plan Considerations
33/114
21
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
ensure that such protected sites remain intact. More significant cultural heritage features and
their settings are, of course, protected from any developments through national and local
planning policy. Due to the large investment in planning and developing wind infrastructure,
larger-scale developers are inclined to avoid areas with designated protection policies in
development plans, such as Green Belts and AONBs, although it is not uncommon to come
across proposals for individual turbines in such areas.
National grid connection, or the lack of it, is becoming an increasingly significant barrier to the
development of many wind farm projects. A connection to the local electricity network, which
can carry away all the generated electricity from the site at an affordable price, is essential for a
successful project. However, small-scale wind power is particularly suitable for remote off-grid
locations where conventional methods of supply are expensive or impractical.
As the proportion of energy generated from wind-power increases, the impact on grid balancing
becomes significant, and use of large-scale energy storage schemes such as hydro-pumping
become necessary. Local use and storage of the generated electricity mitigates this issue,
promoting the location of turbines in industrial or urban locations.
5.2.3 Implementation
Modern commercial wind turbines are extremely large structures, with a 2MW wind turbine
having blades of 40 metres in length that would arrive on site on 47 metre-long lorries. The
erection of a 2MW turbine requires either an 800 tonne mobile crane, or a massive crawler
crane. Traffic generation during construction needs to be considered and the roads to the site
must be able to accommodate the largest vehicles, as well as other construction traffic. It must
also be possible to build roads across the site, which allow the construction traffic to work.
Wind farm access roads and foundations could effect local hydrology, which in turn will have
an influence on local habitats and water abstraction. The restoration of temporary construction
roads back to their original land use could be a matter for planning conditions.
Typically a developer would expect a 9 to 30-month programme to develop a project (i.e. secure
planning consent and reach financial close), with a further 9 to 18-month programme for
construction. These time-scales are of course dependent upon the scale of the project, the site
location and the prevailing public opinion towards the proposal. Significant public opposition or
EIA issues can effectively prevent wind-power development due to excessive development
timescales.
5.2.4 Maintenance
The actual land take with wind turbines is minimal. Whilst wind farms usually extend over
large areas of land, traditional farming is relatively unimpeded and only about 1% to 5% of thewind farm area is normally rendered unusable for farming or other uses by the development.
Equipment maintenance generates little traffic, with most monitoring and control being
performed remotely.
5.2.5 Decommissioning
Since most wind turbines have an operational life of around 20-30 years, consideration should
be given to the future of the site. Turbines can be re-powered with more efficient (possibly
smaller) systems, or replaced, or removed completely. Decommissioning should be the subject
8/13/2019 h Res Plan Considerations
34/114
22
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
of appropriate planning conditions that require the reinstatement of the landscape and its
vegetation.
5.2.6 Smaller Scale Turbines
TV (Thames Valley) Energy provide the support for the Countryside Agencys Community
Renewables Initiative covering Berkshire, Buckinghamshire and Oxfordshire. Their
information sheet for community groups and not-for-profit organisations states:
Small wind turbines are sized at a hub height of 25 metres and under. Turbines need
to be mounted on a tower of a height that reduces the blocking effect of the buildings,
residential properties and trees. They are noiseless, but a planning application will be
required. Windspeeds are the vital factor, with wind speeds of 5 m per second and
above, at a height of 10m being recommended. Clearskies grants are available for 50%
of installed capital costs and a 6kW turbine will cost in the region of 19,000. This will
generate approximately 14,000 units of electricity when wind speeds average 5.5m per
second at a hub height of 15m.
5.2.7 Domestic wind turbines
Later this year, British Gas has announced that the company will be commencing a trial
programme of domestic-size wind turbines on houses in Scotland and South West England,
which, if successful, could be expanded to include properties across the whole of the UK. The
vanes extend to 1.75m (about 5ft 9in) from vane tip to vane tip. The structure bolts on to a
property wall or gable-end of a building, similar to a satellite dish, and stands about 2.5 metres
(about 8ft 2in) high. British Gas estimates that the small turbine would produce around 1
kilowatt of electricity, which might cut around one-third of an average household electricity bill
and reduce CO emissions by about half a tonne per annum. The turbine would cost around
1,500, including installation, and would operate in wind speeds as low as three miles per hour.It is the first time a major supplier has tested domestic wind turbines, although some
homeowners have already bought and installed such equipment. Properties taking part in the
trial will be in both urban and rural areas, although it clearly going to be easier to accommodate
such potentially noticeable and intrusive structures on larger and more isolated dwellings. In
many instances, planning permission is likely to be required, for example if the structure is
higher than the apex of the roof of a dwelling. The turbine manufacturer in the trial, Windsave,
would like to see permitted development status for all such devices so that homeowners do not
have to apply for planning permission on an individual basis, although this would appear to be
optimistic and possibly not acceptable to communities where the visual impact of such
equipment is perceived as far more obtrusive than ordinary TV aerials and satellite dishes.
5.3 Biomass energy
Biomass energy covers the full range from large-scale electricity production such as in
commercial co-firing power stations, down to medium and small-scale electricity and heat
production facilities, and domestic heating systems. It also covers transport fuels such as bio-
diesel and bio-ethanol derived from starch and oil crops and waste products.
8/13/2019 h Res Plan Considerations
35/114
23
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
5.3.1 Co-firing
Existing coal-fired power stations can burn up to 10% biomass products using existing
technology, (though 5% may be nearer the practical limit due to problems of feedstock
pulverization and combustibility). Co-firing is currently eligible for ROCs as a method of
promoting the production of local feedstocks, however this is likely to end in 2016, increasingfeedstock availability for dedicated biomass energy production.
A wide range of biomass feedstocks have been trialed including specialist wood crops, cereal
crops, olive pips, waste slurries and palm oil, though most are currently being imported due to
lack of appropriate and adequate local fuel supplies.
Increased transportation, associated with the shipment of bulky feedstocks, is the biggest
planning impact of co-firing technology. However, a significant proportion of power stations
currently use rail shipment. Since this method of renewable energy generation is unlikely to
persist once ROC eligibility is removed, significant development in new offsite infrastructure is
unlikely to be economically viable.
5.3.2 Large-scale power generation
In order to be economically viable, biomass plants require large volumes of suitable fuel to be
available at the lowest possible price, which generally means within a relatively close local area
of the installation. Biomass may also be hampered in part from the lack of a wide enough
market for the fuel that it requires to use and which therefore may not be made available in
sufficient quantities within an accessible distance of the plant.
Often biomass development occurs close to energy crop production sites or near specialist
feedstock production such as chicken farms. As technology improvements increase the variety
of viable feedstocks, the range of potential sites will grow.
By far the most obvious and wide-ranging visual impact in the countryside is the growing of theenergy crops, which of course does not require planning permission as such. (Although the
growing of biomass crops does not fall under the control of the planning system, the
Environmental Impact Assessment (EIA) Regulations introduced in February 2002 require land
owners of permanent pastures / semi-natural habitats to inform Defra before converting land to
intensive agriculture. Defra can then undertake an environmental assessment of this change and
can prevent harmful changes from taking place.)
Specialist wood crops such as willow or poplar are grown on a two to three-year rotation period.
Straw and whole crop cereals can also be used, both annual and less-energy intensive perennial
varieties. The growth of such crops could be undertaken on set-aside land and the production
of crops for fuel could prove a valuable form of diversification for local farmers. In order to
meet the targets defined from energy crops significant areas of land would need to be allocated
to energy crop production. This would primarily be agricultural land, though the possibility of
using brownfield land as part of a long-term reclamation process should not be ruled out.
There must be a sufficient supply of the feedstock, of an appropriate quality and over the long-
term, in order to operate the plant. The feedstock quality and consistency must be maintained
throughout the entire life of the project. Grant support is available for the establishment and
growing of energy crops, subject to certain rules, which include being located within a
reasonable distance of the end use (10 mile radius for small installations, 25 miles for large
installations), along with providing a minimum establishment of three hectares. One-off
8/13/2019 h Res Plan Considerations
36/114
24
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
payments are also available for the establishment of the crop. In the past, there was a
differential between short rotation coppice (SRC) and miscanthus. However, reform of the
Common Agricultural Policy (CAP) has made the enhanced rate for SRC redundant from 2005.
CAP reform will also lead to replacement of the Arable Area Payments Scheme (AAPS) under
which set-aside payments are made. The AAPS will be replaced by a single payment scheme
from 2005. The current maximum limit for grant aid is 500,000. The establishment and
growing of biomass may be supported through other schemes, including the Woodland Grant
Scheme and the Farm Woodland Premium Scheme (on which there is up-to-date information
available on the Defra web site at www.defra.gov.uk).
Key issues for local planning authorities to consider when evaluating applications for biomass
plant are: -
visual intrusion, including any chimneys, noise from engines, boilers, handling
equipment and traffic,
light pollution from plant operational around the clock,
potential pollution of ground and water courses,
emissions into the air, and
traffic resulting from the transport of the fuel to the site and the subsequentremoval of by-products and any waste.
The kind of questions that would need to be asked about proposals that would generate a
significant amount of traffic would be:
What will be the traffic flows associated with the scheme?
What will be the emissions from the vehicles?
What access routes will be used for the delivery of the crop?
What traffic management controls will be needed and proposed?
What are the fuel handling and temporary storage requirements?
Planning authorities may wish to control the number of vehicle movements of construction and
operational traffic to and from the site in a specified period and, where possible, the route of
such movements, particularly of heavy vehicles, by imposing suitable conditions, or entering
into planning agreements with the developer.
As with all thermal treatment processes, most concerns expressed involve the emission ofpollutants to the atmosphere. (Pollution Prevention and Control for larger biomass plants is
covered by the Environment Agency).
Biomass developments are often seen as high-risk due to the high levels of investment finance
required, potential variability of local fuel supplies and the need for an affordable national grid
connection. However, with the increased interest in renewable energy technology as a
commercial investment and recent changes in the 2004 Energy Act concerning favourable grid
connection charging for renewable energy sources has lessened the financial barriers.
8/13/2019 h Res Plan Considerations
37/114
25
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
5.3.3 Small to Medium-scale power generation and CHP schemes
Many biomass plants will be small, only provide heat, and may be easily incorporated into
existing or new buildings. Where they are included in agricultural buildings, they may not
require specific planning permission if they are ancillary to the main use of the site. However,
heat and power generation plants will require planning permission. The generating plant andactivities directly related to it are subject to planning control, but the growing and harvesting the
biomass crops are outside planning control.
Small-scale schemes are now benefiting from maturing feedstock distribution networks, though
transport costs can still be significant for locations remote from centres of production, and costs
associated with storage requirements of sensitive fuels such as wood pellets. Fuel costs remain
high in relation to conventional heating fuels such as natural gas and heating oil, and generally
only warrant consideration for sites with no access to mains gas, and a need for constant heat
production, unless combined with traditional facilities.
CHP installations can improve economic viability by using heat off-take systems for use on
adjacent sites and facilities. These are best designed in at initial installation as retro-fitting costscan be prohibitive. Also the existence of a local market for the waste products e.g. as fertiliser
can significantly reduce running costs. However, unless ROCs are introduced for heat then
commercial CHP development is unlikely to increase significantly.
Biomass boilers for district heating, (where heat rather than energy is sold to consumers), are an
option but currently these are uncommon in the UK. Local authorities could require new
developments to consider the use of district heating, (particularly in thermally-efficient high-
density developments), or could mandate a minimum proportional of biomass heating provision.
The most economically viable schemes at present use standard gas burners combined with solar
(solar covering summer electrical needs, gas providing both electricity and heat in winter).
Typically a developer would expect a 9 to 30-month programme to develop a project (i.e. secure
planning consent and reach financial close), with a further 9 to 18-month programme for
construction. These time-scales are of course dependent upon the scale of the project, the site
location and the prevailing public opinion towards the proposal.
5.3.4 Power generation from waste
Waste products such as chicken litter as used on a commercial basis as a successful feedstock,
and trials are being conducted with other waste products such as used tyres. The digestion of
farm slurry can produce a gas rich in methane, which has in the past been used on a very small
scale to provide energy on the farmyard. It is possible, however, for slurry from several farms
to be concentrated at a sewage-treatment works and there combined with sewage from the main
drainage network before being subjected to digestion to produce bio-gas at an economicallyviable level. The energy produced can be in the form of heat as well as power. The main
planning implications associated with such development include concern over pollutants, traffic
generation, the visual impact of the digester tanks, gas holders and transmission lines and noise
emissions.
In order to be commercially viable, developments utilising waste products need to ensure long-
term feedstock supply contracts. (Typically 50-75% of revenues are derived from gate fees).
Most thermal technologies have limited fuel flexibility, and are unable to track fluctuations in
feedstock quality and availability over the life of the project.
8/13/2019 h Res Plan Considerations
38/114
26
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
The major public concern with the use of waste products as a feedstock is with emissions of
pollutants into the atmosphere, with difficult planning applications being referred to Public
Inquiry. Often Local Authority Waste Management Strategies preclude the use of incineration
as a means of final disposal. Such costs and delays are a major disincentive for investors.
5.3.5 Transport fuels
Bio-fuels will undoubtedly become an increasingly important transport fuel. Bio-diesel can be
used alone, or blended with fossil-derived diesel. It can be used with no engine modifications
and bio-diesel can even improve engine life due to increased lubrication. It can be delivered via
the existing fuel infrastructure (e.g. Tesco currently offer a 5% blend). Bio-ethanol can be used
as a supplement in petrol engines, but may require some engine modifications and development
of the nation-wide fuel delivery infrastructure.
The majority of feedstocks used for the production of bio-fuel and commodities traded world-
wide and therefore influenced by international trade agreements, and hence commercial
arrangements tend to be more complicated, particularly when considered against the typical
project investment time-scales of 15-30 years. Currently imported feedstocks such as palm oil
are more economically attractive than indigenous supplies (such as being used in the proposed
Teesside facility), although a bio-diesel pilot plant exists in Ashford using waste cooking oil
feedstock (benefiting from EU legislation forbidding the reuse of waste cooking oil in animal
feed).
Bio-fuels are more expensive to produce than fossil-derived fuels, but changes in the fuel duty
and the increasing cost of a barrel of oil are reducing the margin. Support is also available for
the establishment and growing of certain energy crops. This is significant since the economics
of production are heavily influenced by transport costs, necessitating a local plentiful supply of
feedstock. Major planning issues for fuel production facilities will involve feedstock and fuel
transportation, storage requirements (visual impact, land use, safety etc.) and pollution control(such as environmental contamination).
5.3.6 EIA requirements
All commercial biomass developments are likely to be subject to the need for Environmental
Impact Assessments where situated within a 'sensitive area' or the area of the development
exceeds 0.5 hectares. (Smaller thermal power station schemes would be considered eligible
under Schedule 2, "industrial installations for the production of electricity, steam and hot
water"). Where the process involves the collection, storage and processing of hazardous or non-
hazardous wastes, proximity to controlled waters (within 100 metres) is a relevant consideration
and likewise the collection and storage of combustible gases. The likelihood of significant
effects will generally depend on the scale of the development and the nature of the potentialimpact in terms of discharges, emissions or odour. For installations, (including landfill sites),
used for the deposit, recovery and/or disposal of household, industrial and/or commercial waste
(as defined by the Controlled Waste Regulations 1992), EIA is more likely to be required where
new capacity is created to hold more than 50,000 tonnes per year, or to hold waste on a site of
10 hectares or more.
8/13/2019 h Res Plan Considerations
39/114
27
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
5.4 Water power
Whilst older installations are likely to comprise a dam and storage reservoir, new developments
can be small in scale and utilise a natural pool, or head-pond, in order to supply a turbine via a
conduit. Water power normally produces electricity and the turbine can be installed in a
building the size of a domestic garage. Sites with less than a 2 m head tend to not to be cost-
effective, though pre-existing facilities such as at disused mills, especially when incorporated
with on-site energy usage can make refurbishment schemes financially viable. While water
channels and the buildings are likely to be visible, they are not necessarily detrimental to the
landscape and can often be screened. Extensive civil engineering works tend not to be required
for low-head schemes, where often the natural features of the watercourse are utilised, and
problems of noise and traffic movements are normally minimal once construction is complete.
Visual and ecosystem impacts are very much site-specific. For example the risk of interference
with sensitive ecosystems or rare species is likely to be higher in national park or semi-
wilderness areas, and lower on existing weirs on lowland rivers. Input from wildlife of ecology
experts may be required as part of an Environmental Impact Assessment.Renewable energy generated from pre-existing commercial hydro-schemes does not count
towards the regional targets.
5.5 Solar power
Active solar systems are those which collect the suns radiation and transfer it in the form of
heat to water or air. Photovoltaic systems convert the suns energy directly into electricity.
Direct sunlight is not necessary to make these systems effective. Passive solar design uses a
buildings form, fabric and orientation to capture, store and distribute solar energy with a
consequent reduction in demand for additional heat and light. The installation of active solar
systems usually involves fitting solar panels to the roof, photovoltaic cells incorporated into
roof tiles or glazing, or a separate solar collector system in the grounds. The visual impact of
such installations will vary depending upon their context but particular attention should be paid
to their impact in Conservation Areas, on Listed Buildings and in other sensitive locations. This
is a form of energy which can be generated at the point of use and is available everywhere, and
also has only a limited impact in visual terms.
Solar systems often fall within permitted development rights for homeowners (where for
example a solar panel is more or less flush with an existing roof). However, for listed buildings,
conservation areas, buildings in Areas of Outstanding Natural Beauty or National Parks or
covered by Article 4 direction, blocks of flats, (or houses divided into flats), planning
permission may well be required. Photovoltaic products may be more suitable in areas wherevisual amenity is crucial.
Installations require maximum light and avoid possible shadows cast by adjacent buildings,
trees or other obstructions. The visual amenity of installations is good. Active solar thermal
collectors usually take the form of 3-4m collectors mounted on the roof, resembling dark roof
lights, arranged in banks on large-scale commercial premises. Photovoltaic collectors can exist
as panels on roofs or walls, or incorporated into the fabric of the building as external wall
cladding, roofing systems, solar roof slates or built into glass facades or roofs.
8/13/2019 h Res Plan Considerations
40/114
28
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
Heat pumps utilising solar heating of the ground are normally free from planning consents, but
are subject to building regulations.
5.6 Landfill gasLandfill gas is mainly a mixture of methane and carbon dioxide that can be used through
combustion for heating and electricity generation. In order to exploit landfill gas, a suitable site
must be available, which must be provided with a gas collection system and the necessary plant
for energy generation. This type of energy source is only available in commercially viable
quantities from extensive landfill sites. As waste is diverted away from landfill, this source of
renewable energy is likely to drop away.
8/13/2019 h Res Plan Considerations
41/114
29
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
6. Renewable Energy Development inHertfordshire
6.1 The Potential for RE in Hertfordshire
The accompanying Renewable Energy Options Report, which has also been prepared by Entec,
concludes that there is the technical potential within Hertfordshire to achieve the levels of
renewable energy production proposed in the East of England Sustainable Development Round
Table Study. However, achievement of the technical levels will be dependent upon a range of
external factors, such as developer uptake, aviation objections (potentially on commercial wind
projects) and consumer uptake.
One of the most important factors influencing the uptake is commercial competitiveness
(financial viability) and this is strongly influenced by much wider-ranging global political
factors, national policy and regulations, grant schemes and the fundamental economic viability
of the technologies. Many of these factors will be beyond the direct influence of stakeholders
within Hertfordshire.
However, for the more competitive renewable technologies, such as onshore wind, planning
policy will remain the critical issue for attracting commercial developers. Strong regional and
local level planning policies and increased public awareness can play a major part in attracting
developers and influencing the deployment of renewable technologies in Hertfordshire.
6.2 Meeting the Targets
In order to meet the 2010 targets defined in the East of England Plan onshore wind must be
encouraged, along with all other forms and scales of renewable energy schemes. In order to
meet the 2020 targets, emerging technologies, such as biomass, will need to make a major
impact. Due to the long initiation periods of many of these projects, effort must be expended
now in order to win over public opinion and bring developments forward. Although
requirements for renewable energy in new development will only make a marginal difference to
the direct achievement of targets, it could have an impact on the public perception of renewable
energy and the acceptability of new technologies.
Urban authorities in particular may wish to concentrate efforts on small-scale, building-based
embedded technologies such as solar, photovoltaic and small-scale wind solutions, with limited
large-scale projects on brownfield sites where the opportunity arises. However, rural authorities
may find projects that support the economy and promote employment more beneficial to their
communities.
The results of the assessment of renewable energy generation potential are set out in the
accompanying Renewable Energy Options Report for Hertfordshire and are reproduced below
for ease of reference.
8/13/2019 h Res Plan Considerations
42/114
30
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
Table 6.1 Potential renewable energy produc tion in Hertfordshire by 2010
Technology Potentialcapacity
(MW electri cal)
Potentialelectrical
output(GWeh/year)
Potential totalenergy outpu t
(GWh/year)
CO2reduction(tonnes
CO2/year)
WIND
Large Wind Turbines
Existing: 0.225
Possible: 10
Extended: 65
Existing: 0.25
Possible: 25
Extended: 163
Existing: 0.25
Possible: 25
Extended: 163
110
10,800
70,100
BIOMASS
Co-firing in large power plant 31 175 175 168,000
Dedicated CHP facility 17 125 285 94,000
Bio-diesel
Bio-Ethanol
39,000
107,000
Animal Slurries and AnaerobicDigestion
2 14 14 6,000
Sewage sludge (90% drysolids) EFW
4 30 30 13,000
MSW EFW 14 104 104 45,000
Small scale biomass-heatfacilities
N/A N/A 35 9,000
WATER : Hydro Low : 0.1
High : 2.0
Low : 0.6
High : 12.3
Low : 0.6
High : 12.3
260
5,300
WIND : Rooftop Low : 0.3
High : 7
Low : 0.3
High : 7
130
3,000
SOLAR ; Photo-Voltaic Low : 0.5
High : 12
Low : 0.5
High : 12
220
5,200
SOLAR : Thermal/Passive Low : 2
High : 137
500
34,300
8/13/2019 h Res Plan Considerations
43/114
31
s:\common\hannah\energy\entec planning considerations report (july 2005).doc July 2005
7. Local Planning Approach
7.1 The Vision
It is suggested that local planning authorities first consider whether the plan should start with a
vision for the area that covers the subject of renewable energy. The vision for the Local
Development Framework might be broad in terms of describing future aspirations for the area,
but local planning authorities can decide just how specific they wish to be, including whether a
vision for individual topics, such as renewable energy, might be an appropriate starting point.
However, this will obviously depend upon whether a single vision can be agreed.
Exactly how a local authority will approach the question of renewable energy will inevitably
become a controversial subject if the planning authority contemplates encouraging orpromoting such energy provision within their administrative area, as the Government is
seeking to encourage. Encouraging wind power would inevitably be a possible option if a local
authority were to be proactive in seeking to make a significant contribution to the provision of
renewable energy sources, although controversy could equally apply to other forms of
renewable energy, particularly where significant traffic and/or visual impacts may arise with
such developments.
In order for a local planning authority to test the context for drafting planning policies, it
might be felt appropriate, through the initial community involvement stages of plan making, to
invite views on what the community see as their overall vision for the subject. This could
provide the authority with an idea of the extent of any consensus on what the community
envisages and might accept within their own local area. The key words here are within theirown local area. Whilst it is not difficult to get a general consensus on the virtues that
renewable energy offers to society in general, it is a totally different consideration in how any
one local community sees its role and what that community would be prepared to accept in its
own back-yard.
As a consequence, the choices that are available to each local community need to be articulated
in a way i
Recommended