Strategic Landscape Capacity Assessment for Solar Energy in Angus

2.1 Background & Approach

It is intended that this study provides an assessment of landscape capacity for solar photovoltaic development within Angus. This study has been carried out by a combination of desk study and on-site assessments by Angus Council landscape professionals. This assessment substantially relies upon much of the work contained within the Strategic Landscape Capacity Assessment for Wind Energy in Angus (2014) prepared by Ironside Farrar on behalf of SNH and Angus Council (the wind energy study). This background work has not been reproduced within this study, but is referenced where relevant. This consistency of approach is considered helpful to informing the preparation of Supplementary Guidance on Renewable and Low Carbon Energy Development.

In January 2016, Scottish Natural Heritage (SNH) published guidance on “Large Scale Solar Photovoltaic Installations: Considering Landscape, Visual and Ecological Impacts”. The SNH guidance seeks to promote a consistent and proportionate level of assessment.

The publication lists the key considerations which SNH would consider when proposed development would affect a sensitive landscape, such as National Scenic Areas and Wild Land Areas. These considerations include the landscape character assessment which should provide an indication of key landscape characteristics and sensitivities. Other considerations listed include equipment to be installed; layout and design; and ancillary infrastructure. These considerations contains no spatial or design guidance in relation to solar photovoltaic development from a landscape and visual perspective. The publication contains no landscape and visual guidance outwith “sensitive landscapes”.

The Building Research Establishment (BRE) National Solar Centre has published Planning Guidance for the Development of Large Scale Ground Mounted Solar PV Systems. The guidance is undated but refers to the second edition of the Landscape Institute/ Institute of Environmental Management & Assessment publication “Guidelines for Landscape and Visual Impact Assessment” which was replaced by the third edition in April 2013. The BRE guidance, within appendix A, prescribes methods for assessing landscape and visual impacts, which may need updating to reflect the changes within the third edition. The BRE guidance relates to the UK but the legislation, policy and guidance referred to relates to England. Notwithstanding this, there are broad similarities across the UK which gives the BRE guidance some relevance to solar PV development within Angus.

Cornwall Council has produced Renewable Energy Planning Advice which includes guidance in relation to solar photovoltaic development. Landscape and visual guidance produced by Cornwall Council in respect of solar photovoltaic is likely to be the most detailed produced by local authorities within the UK to date. Annex 1 of the guidance in An Assessment of the Landscape Sensitivity to On-Shore Wind Energy & Large-Scale Photovoltaic Development in Cornwall (March 2016). This assesses landscape capacity by landscape character area. Annex 3 Cumulative Impact Assessment Guidance for Cornwall – Solar Farms (March 2016) allocates one of four cumulative strategies to each of character area. This classification system is broadly similar to the typologies developed in respect of wind turbines as part of the Strategic Landscape Capacity Assessment for Wind Energy in Angus (2014). The general approach is broadly similar to that adopted by Cornwall Council in respect of both wind energy and solar photovoltaic planning advice.

Panels are arranged in groups or ‘arrays’ of around 18 – 20 panels. The panels are encased in an aluminium frame, supported by aluminium or steel stands, and the position fixed at an angle between 20 - 40 degrees from horizontal facing south. The arrangement of arrays tends to be regular in pattern. Ground mounted panel arrays tend to be 3 – 4m above ground level. They typically create a landscape element with a strong horizontal emphasis. Cornwall Council planning advice has noted that when viewed from a distance, solar developments can be perceived as forming a solid, continuous land cover which has been likened to standing water or poly tunnels. However, it should be noted that the panels may also be seen from behind or along the rows which makes the underlying pasture visible. The assessment considers the landscape capacity to accommodate solar PV development of one hectare in size or greater.

2.2 Angus Study

This study focuses on the local authority area of Angus. Whilst impacts upon the Cairngorms National Park have been considered as part of this study, no guidance is included in respect of those parts of Angus within the National Park.

Landscape capacity is derived from consideration of Landscape Character Sensitivity, Visual Sensitivity and Landscape Value. The wind energy study systematically assessed each of these factors for each landscape character type and these are contained within appendix 7 of the study. The Landscape Character Sensitivity and Visual Sensitivity assessments were however prepared in the context of wind energy development and therefore have appropriately highlighted factors and sensitivities particularly pertinent to the consideration of wind energy.

Figure 1: Summary of Factors to Consider in Judging Landscape Capacity

Swanwick, C. (undated) “Landscape Character Assessment Guidance for England and Scotland - Topic Paper 6: Techniques and Criteria for Judging Capacity and Sensitivity” Countryside Agency and SNH

A revised assessment of Landscape Character Sensitivity, Visual Sensitivity and Landscape Value in respect of solar PV development by landscape character type and sub-area is included as appendix A.

2.3 Landscape Character Sensitivity

Section 3 of the wind energy study details the landscape baseline. This baseline describes landscape character and maps both landscape and other designations within the study area. The underlying landscape character is not considered to have substantively changed since this was produced in 2013; therefore same baseline is used for the landscape baseline of this study.

The wind energy study provides an assessment of landscape capacity based upon the landscape character types within the Tayside Landscape Character Assessment (TLCA). In assessing capacity, the wind energy study recognised that some of the landscape character types in Angus cover extensive areas and show clear variations in character relating particularly to scale, topography and vegetation cover. As a consequence, the study identified sub-areas within some landscape character types with consistent characteristics which may have a bearing on sensitivity and capacity. In addition, some of the type boundaries within the wind energy study have been refined. These are listed within appendix 3 of the wind energy study. For consistency, this study assesses capacity and provides guidance using the same landscape character type boundaries and sub-areas as within the wind energy study. These are shown on figure 2.

Whilst most of the descriptions within Appendix 7 of the wind energy study have relevance to solar energy development, there are additional aspects of landscape character which are also relevant in terms of considering solar PV development. Solar energy development typically consists of rows of PV panels on frames tilted towards a southerly aspect. They therefore cover the underlying landscape and often form distinct blocks of development. Solar arrays are most suited to landscapes with a strong field pattern with differential cropping. Therefore, they are likely to be most suited to enclosed arable landscapes with strong framework of field boundaries, trees and woodlands. Conversely, they are less suited to unenclosed landscapes and enclosed upland farming landscapes where fields are typically pasture.

Similarly, woodland cover and field boundaries can strongly influence landscape capacity for solar PV development, in terms of providing a framework within which development may take place. This is different from potential landscape scale issues which may arise in respect of wind energy developments.

Lastly, landform is an important consideration for both wind and solar energy developments, but again the nature of how capacity is affected is different. In respect of wind energy, scale and the provision of backdrop are often important, but with solar PV sloping sites can increase prominence and lead to development being inconsistent with landscape pattern and form.

2.4 Visual Sensitivity

Section 4 of the wind energy study details the visual baseline. This baseline assessed the relative visibility and visual sensitivity of different parts of Angus. The same baseline is used for the visual baseline of this study.

The wind energy study provides an assessment in relation to visual receptors which include settlements, routes and viewpoints. This was carried out by Envision 3D, using a computer based technique in which the inter-visibility between receptors and landforms, or objects of specific heights on landforms, is determined. The method is described in appendix 2 of the wind energy study.

Appendix 4 of the wind energy study contains Visibility Analysis for Wind Turbines in Angus. This analysis has informed the assessment of visual sensitivity for each landscape character type within appendix 7 of the wind energy study.

Solar PV development cover parts of the landscape, therefore overlooking from higher ground is likely to be a consideration in assessing all proposals. However woodland cover can sometimes substantively influence visibility in some parts of the landscape. Whilst a number of different turbine heights are modelled within appendix 4, the zero metres above ground level is relevant to consideration in respect of solar PV development.

2.5 Landscape Value

The assessment of Landscape Value within the wind energy study is considered to be equally applicable for both wind and solar energy development. Accordingly, these tables from Appendix 7 of wind energy study have been reproduced within appendix A of this study without change.

2.6 Landscape Capacity Assessment

Section 3 of the study includes general guidance in relation to landscape capacity for solar photovoltaic development within Angus.

Section 4 is an assessment of landscape capacity by landscape character type and sub-area. It describes the characteristics of the type or sub-area and assesses the landscape capacity for solar PV development. It describes any variation in capacity within each sub-area and indicates areas or features which may be less suitable for solar PV development. The development size threshold of one hectare has made it possible to identify lower levels of capacity in landscapes which do not have capacity for larger developments. This study does not consider ground or roof mounted solar PV development. The descriptive criteria for landscape capacity thresholds are described in Table 2.1.

Table 2.1: Landscape Capacity Thresholds

Section 5 is an assessment of capacity and cumulative development. The wind energy study (section 2.7 of appendix 2) discusses in detail the issues involved in determining cumulative change thresholds and the acceptability of these changes. This rationale similarly applies to solar PV development and is relied upon without being reproduced. Key factors that affect the perception of cumulative change include:

• the distance between individual solar PV developments;
• the distance over which they are visible;
• the overall character of the landscape and its sensitivity to solar PV development;
• the siting and design of the solar PV development (particularly size and arrangement), and;
• the way in which a landscape is experienced.

The descriptions in Table 2.2 set out a graduated landscape typology and define increasing levels of cumulative landscape and visual impact of solar PV development by their effect on landscape character and the experience of those living and travelling through the landscape.

The landscape type for the solar PV development consented up to August 2016 has been assessed and mapped. The proposed limits to solar PV development by landscape type are also mapped.

Table 2.2: Description of Levels of Cumulative Solar PV Development

2.7 Seascape Character

Seascape refers to ‘an area, as perceived by people, from land, sea or air, where the sea is a key element of the physical environment’. The term is commonly used and is included within the definition of landscape contained within the European Landscape Convention.

This capacity study does not include a seascape baseline assessment nor does it include a formal assessment of impacts upon seascape character. It is however recognised that terrestrial solar PV development has the capacity to impact upon seascape particularly in relation to the landscape types closest to the coast. Notwithstanding this, landscape types closest to the coast have been assessed as having no or low landscape capacity for solar PV development, without consideration of seascape.