DEVELOPMENT CONTROL AND REGULATION COMMITTEE1st April 2015

A Report by the Assistant Director – Planning and Regulatory Services_____________________________________________________________________

District Allerdale Borough Council

Application No 2/2015/0030

Applicant Airvolution Energy Limited_____________________________________________________________________

PROPOSAL: Erection Of 3 Wind Turbines with a Maximum Blade Tip Height of up to 110m, Together with Associated Hardstandings, a Substation and Control Building, an Upgraded Access Junction; Connecting Internal Access Tracks Including a Potentially Extended Water Crossing, and Other Related Infrastructure

LOCATION: Land at White Lees Farm, Aiglegill Farm and West Farm, Aspatria, Wigton, Cumbria, CA7 2PL

1. RECOMMENDATION

1.1 That an objection is raised due to adverse landscape, visual and cumulative effects which are not outweighed by the environmental benefits associated with the renewable energy generation and carbon savings which would arise from this scheme.

2. THE PROPOSAL

2.1 The site comprises land associated with Whitelees Farm, Aiglegill Farm, and West Farm, 1.5km north west of Aspatria. The site lies within an agricultural landscape, adjacent to a dual line of 132kv pylons. The existing Westnewton wind turbines are located approximately 0.5km to the north of the site.

2.2 Several smaller villages, including Westnewton, Hayton and Prospect/Oughterside, lie within 2.4km. Langrigg, Mawbray, Allonby, Gilcrux, Arkleby, Plumbland and Blennerhasset are situated within 6km. The Solway Coast AONB lies approximately 3km to the west at its closest point.

2.3 The scheme comprises the following principal components:

Three wind turbines, each with a maximum height to blade tip of up to 110 metres;

A steel reinforced concrete foundation beneath each wind turbine;

A modified field access from the C2022 and upgraded access track;

New internal track, of a minimum 5m width to each turbine location;

Underground cabling to connect the wind turbines to a new on-site substation and control building;

Hard-standings, both temporary and permanent, near the base of each turbine to facilitate installation using a crane and to allow manoeuvring, and;

A temporary construction compound near the site entrance.

2.4 Access will be taken from the A596 south of the site via an upgrade to the existing access junction and a combination of upgraded and new access tracks to allow for the passage of construction and turbine delivery and maintenance vehicles to the proposed wind turbine locations.

2.5 The total annual predicted output is 18GWh per annum. It is estimated that enough electricity could be generated by the proposed development to supply the equivalent of approximately 4,200 households.

2.6 The planned operational life of the turbines is 25 years, after which time they would be removed and the site returned to its former status.

3. REPRESENTATIONS

3.1 The County Council Member for Thursby has submitted comments in regard to this consultation. These are included in Appendix 3 to this report, and will be forwarded to Allerdale Borough Council.

4 STRATEGIC ISSUES

4.1 The application has been assessed in regard to national and County Council planning policy. The policy base used to assess this application comprises the National Planning Policy Framework (NPPF), National Planning Policy Guidance (NPPG) and the Cumbria Wind Energy Supplementary Planning Document (SPD).

4.2 The NPPF includes a number of core planning principles of relevance to this proposal. These include the need to: secure high quality design and a good standard of amenity for all existing and future occupants of land and buildings; support the transition to a low carbon future - encouraging the use of renewable resources; take into account the roles and character of different areas; and recognise the intrinsic beauty of the countryside and the importance of supporting thriving rural communities within it.

4.3 Paragraphs 97 and 98 of the NPPF give specific guidance on renewable energy. The NPPF states that local planning authorities should recognise the responsibility on all communities to contribute to energy generation from such sources. Authorities are encouraged to have a positive strategy to promote energy from renewable and low carbon sources; design their policies to maximise renewable and low carbon energy development while ensuring that adverse impacts are addressed satisfactorily, including cumulative landscape and visual impacts; and consider identifying suitable areas for renewable and low carbon energy sources where this would help secure the development of such sources.

4.4 The NPPF states that when determining planning applications, local planning authorities should not require applicants for energy development to demonstrate the overall need for renewable or low carbon energy, and approve the application if its impacts are (or can be made) acceptable.

4.5 Paragraph 109 outlines guidance in regard to conserving and enhancing the natural environment, which includes the need for the planning system to contribute to the protection and enhancement of valued landscapes.

4.6 National Planning Policy Guidance (NPPG) has been published in regard to the development of renewable energy. The guidance states that ‘The National Planning Policy Framework explains that all communities have a responsibility to help increase the use and supply of green energy, but this does not mean that the need for renewable energy automatically overrides environmental protections and the planning concerns of local communities’.

4.7 The guidance states that landscape character areas could form the basis for considering the location and scale of renewable energy developments, with local level assessments highlighted as an appropriate scale for assessing the

likely landscape and visual impacts of individual proposals

4.8 The guidance also states that ‘local planning authorities will need to ensure they take into account the requirements of the technology and critically, the potential impacts on the local environment, including from cumulative impacts. The views of local communities likely to be affected should be listened to.’

4.9 The guidance clarifies the approach which should be taken to issues of noise, safety, electromagnetic transmissions, ecology, heritage and shadow flicker.

4.10 Additional guidance in regard to wind energy developments in Cumbria is contained in the Cumbria Wind Energy Supplementary Planning Document (SPD), which was adopted by Allerdale Borough Council in 2007. The SPD, alongside the Cumbria Renewable Energy Study (2011), addresses the concurrent needs, outlined in the NPPF and supporting guidance, for local planning authorities to prepare positive strategies in regard to renewable energy development, and conserve and enhance valued landscapes. The approach underpinning the SPD is explained in Part 1, paragraph 1.22, which states ‘It is important that we look favourably on wind energy development that does not cause unacceptable harm to our built and natural environment. When preparing wind energy proposals, a range of environmental, social and economic effects need to be considered’.

4.11 The SPD includes a detailed landscape capacity assessment, which highlights the key characteristics and particular sensitivities which inform the potential capacity of different landscape areas to support wind energy development. This has been developed to enable a consistent and holistic approach to be taken when considering the effects of wind energy development on the distinctive and often high quality landscape character of Cumbria.

Landscape, Visual & Cumulative Effects

Landscape Effects

4.12 The majority of the landscape within the 6km of the site, wherein the Cumbria Wind Energy SPD states that wind turbines will be either ‘dominant’ or ‘prominent’ falls within landscape types 5 ‘Lowland’ and 2 ‘Coastal Margins’ as defined by the Cumbria Landscape Character Guidance and Toolkit (CLCGT). The site itself lies within Landscape Type 5. The Cumbria Wind Energy SPD judges Type 5 as having moderate capacity overall to accommodate turbine development.

4.13 The SPD states that: ‘Greatest potential occurs in the open flatter areas and broad ridge tops’, but highlights potential limiting factors: …A key characteristic limiting capacity is the dispersed pattern of numerous small rural settlements making it difficult to site developments sufficiently distant so as not to adversely affect their sense of scale and character. Settlement size and pattern suggest that up to a small group of turbines would generally be appropriate. Other more localised sensitivities include potential erosion of peaceful rural backwater qualities and impact on valued views…’

4.14 In regard to the setting of national designations, the ‘contribution of the quieter hinterlands to a sense of remoteness and the sequence of contrasting landscapes in the Solway Coast AONB’, and open and sequential views from tourist routes within the AONB towards the Lake District fells are highlighted.

4.15 The CLCGT further refines type 5 into sub-types. The site lies within sub-type 5a ‘Ridge and Valley’.

4.16 The CLCGT states the following in regard to 5a: ‘Despite the concentration of large scale wind energy schemes that dominate the landscape around Workington, many parts remain intact and retain the sense of a pleasant, peaceful working farmed landscape… The peaceful pastoral atmosphere away from busier parts is sensitive to large scale development… Undeveloped areas of ridge tops and valley rims are sensitive to large scale ridge line development where significant contrast could arise between small scale settlements and large scale features such as large scale wind turbines and pylons…. Large scale wind energy schemes have already changed the character of the sub type, particularly around Workington. Without careful control parts of this sub type could become defined by wind energy development. This could have knock on effects on the character of adjacent landscape types due to the far reaching visual effects of such development… Wind turbines and other energy infrastructure should be carefully sited and designed to prevent this sub type becoming an energy landscape.

4.17 Type 5b ‘Low Farmland’ lies within approximately 300m of the northernmost turbine. The following CLCGT guidance for 5b is therefore also of relevance: ‘This is a traditional working farmed landscape, interspersed with large scale industrial developments in the countryside… The open and uninterrupted views to the Solway Firth and Lakeland Fells are sensitive to tall infrastructure development… Wind energy schemes have already changed the character of the adjacent Ridge and Valley sub type and without careful control this could be replicated here… Energy infrastructure including nuclear and large scale wind energy generation, pylons and substations should be carefully sited and designed to prevent this sub type becoming an energy landscape.’

4.18 CLCGT guidance for landscape sub-type 2c is also of particular relevance, since the main area of visibility within the Solway Coast AONB falls within this sub-type: ‘Open, flat, larger scale landscapes with big expansive skies and long views of the sea and Lakeland and Scottish Fells contrast with undulating enclosed and intimate landscapes… The open views across adjacent marshes and flats out to sea and inland to the Lakeland Fells are sensitive to large scale infrastructure development.’

4.19 In very close proximity to a major wind farm (typically up to 2km away), it is generally regarded that a ‘wind farm landscape’ is created, due to the dominance of the structures upon the character of the landscape within this zone. The site is located within very close proximity (approximately 500m at its closest point) to the existing Westnewton turbine development. The Westnewton turbines have created a wind farm landscape within their immediate context. Therefore, it is not considered that the addition of the three proposed turbines will significantly alter landscape character within the 1-2 km zone.

4.20 At distances beyond the 1-2km zone however, the underlying rural landscape character - the ‘pleasant, peaceful working farmed landscape’ alluded to by the CLCGT - of the area begins to reassert itself. In this context, the turbines would result in a net adverse effect, through increasing an industrial influence in a largely undeveloped wider landscape. From the north and the west, the long distance views towards the Lake District fells, which are highlighted as characteristic in the CLCGT, would be interrupted by the turbines. The setting of Westnewton and Hayton, which are small scale, vernacular settlements, would be adversely affected by the scale and nature of the turbines, given their proximity to the site (approximately 1.5km).

Visual Effects

4.21 The settlements of Hayton, Aspatria, Prospect and Westnewton all lie within approximately 1.5km of the site. Substantial effects are predicted by the applicant upon some receptors in all of these settlements, although it is key to note that the turbines will be screened from a number of points, resulting in negligible effects in these cases. Westnewton, to the north, is likely to experience the most significant visual effects. This gives rise to concern over potential cumulative visual effects (see below).

4.22 The turbines will be visible from the Solway Coast AONB. From Allonby, where the applicant has prepared a photomontage, the turbines will be seen end-on, and as such, will appear as a small, discrete group in the wider panoramic view eastwards towards the Lake District. The most significant effects upon visual receptors are likely to be when the development is viewed at a wider angle, to the north, so that they take up a larger proportion of the skyline. In conjunction with the adjacent Westnewton scheme, they will have a notable effect upon views towards the Lake District fells, and the setting of the AONB. The turbines will be visible along the B5300 coastal road north of Allonby – which is highlighted as a sensitive route in the Wind Energy SPD.

Cumulative Effects

4.23 The County Council have recently published work, produced in partnership with Allerdale Borough Council and other planning authorities, which considers the Cumulative Impact of Vertical Infrastructure (CIVI) upon landscape character and visual amenity. The CIVI work indicates that the landscape types, settlements and key routes in this area currently experience intermediate to significant cumulative visual effects arising from vertical infrastructure.

4.24 The site is located in very close proximity to an existing wind farm at Westnewton. Two more schemes, Wharrel’s Hill and Tallentire, lie within 6km. In addition, the site lies adjacent to a dual line of 132kv pylons. It is relevant to note that the pylons lie on the route of National Grid’s preferred option for the upgrade of the electricity distribution network across Cumbria. Larger pylons may therefore be introduced along this route within the next five to ten years.

4.25 The above assessment indicates that the turbines would result in an adverse effect upon landscape character and visual amenity in their own right. There is a

concern, given the recognised cumulative effects experienced in this location, that the turbines would also contribute to the increasing influence of vertical infrastructure, upon both visual amenity and landscape character. This would be counter to CLCGT guidance.

4.26 In Westnewton in particular, in conjunction with the existing Westnewton turbines, the addition of the proposed turbines would lead to an increasingly dominant effect upon the settlement, with a greater proportion of the key views from the settlement affected by turbine development.

Energy Contribution

4.27 National policy strongly encourages the use of renewable energy sources to help offset greenhouse gas emissions and the increasing reliance on imported energy supplies. They form part of a mix of energy resources being supported by Government. The Climate Change Act requires a 26% cut in carbon emissions by 2020, rising to 80% by 2050 (based on 1990 levels). The Renewable Energy Strategy, 2009 seeks to deliver European-set targets that will increase renewable energy generation to cover 15% of the UK’s energy needs. To achieve the 10 fold increase, substantial additional renewable electricity production will be required. The Government sees an expansion of wind energy capacity, both on and off shore, as key to meeting these targets.

4.28 Strategic planning policies support the development of renewable energy projects. As noted above, the National Planning Policy Framework encourages local authorities to support low carbon energy proposals that do not cause unacceptable harm to the local environment, and the Sub-Regional Spatial Strategy states that developments will be reviewed in relation to their contribution towards climate change.

4.29 The applicant calculates that the total annual electricity production of the proposed development would be approximately 18GWh per annum. In assessing this scheme, this contribution towards energy supply needs to be considered alongside the local impacts of the development, in accord with strategic planning guidance.

Archaeology

4.30 The Historic Environment Officer has no objection to the proposal in principal, providing the two conditions suggested are imposed with any subsequent planning consent. The full response is included in Appendix 1 to this report.

Highways

4.31 The Council’s Highways Development Manager has delegated authority to comment upon the scheme, and has submitted comments directly to Allerdale Borough Council. It is noted that the local highways authority has no objection in

principal to the proposal, providing that the necessary consents are obtained, and that Construction Traffic Management Plans and Construction Method Statements are prepared. The full response is included in Appendix 2 to this report.

Other Matters

4.32 It is welcome that the developer has recognised the need to remove all structures after the operation of the turbines cease. If Allerdale Borough Council resolve to approve the application, this requirement should be conditioned.

4.33 The decision making body should ensure other relevant issues, notably noise and shadow flicker, are addressed. The County Council Member for Thursby (see Appendix 3) highlights the need for further detail to be provided as to turbine type and design, in order that these factors can be properly assessed.

5. CONCLUSION

5.1 Strategic policy promotes renewable energy and looks to local planning authorities to support proposals for renewable energy developments which do not have unacceptable impacts.

5.2 Significant weight must be given to the contribution this development would make towards the production of renewable energy. Climate change is recognised as a fundamental issue in planning guidance, and the key role to be played by onshore wind turbines in seeking to address this is emphasised in government policy. However, the assessment contained in this report illustrates that this proposal gives rise to significant concerns in regard to the landscape, visual and cumulative effects; in particular the cumulative visual effects upon local residents and the character of landscape type 5, as well as the setting of the Solway Coast AONB.

5.3 It is therefore considered that the landscape, visual and cumulative effects outweigh the wider benefits associated with the generation of renewable energy in this case. Given this, an objection should be raised against this scheme as, on balance, it is contrary to strategic planning policy contained in the NPPF, NPPG, and supporting guidance outlined in the Cumbria Wind Energy SPD.

Angela JonesAssistant Director – Planning and Regulatory Services

Contact

Richard Pearse

Principal Planning Officer: Landscape & Countryside

Kendal 01539 713427

Background Papers

Planning Application File Reference 2/2015/0030

Electoral Division Identification

Local Member: Cllr. Jim Lister, Aspatria ED

Adjoining Members: Cllr. Tony Markley, Solway Coast EDCllr. Roger Liddle, Wigton EDCllr. Duncan Fairbairn, Thursby EDCllr. Joseph Bowness, Bothel & Wharrels EDCllr. Alan Clark, Dearham & Broughton ED

Appendix 1: Historic Environment Response

Kevin KerriganHead of Development ServicesAllerdale Borough CouncilAllerdale HouseWorkingtonCumbria CA14 3YJ

11 February 2015Your reference: 2/2015/0030 Our reference: JNP/2150030

FAO: Steve Long

Dear Mr Kerrigan

Land at White Lees Farm, Aiglegill Farm and West Farm, Aspatria, Wigton

Erection of 3 wind turbines with a maximum blade tip height of up to 110m, together with associated hardstandings, a substation and control building, an upgraded access junction; connecting internal access tracks including a potentially extended water crossing, and other related infrastructure

Historic environment consultation

I am writing to you concerning the implications of the above application on the historic environment.

The EIA highlights that the proposed development site has a moderate potential to contain currently unknown archaeological remains of later prehistoric and Romano-British origin. This conclusion is based on the proximity and the number of similar remains recorded in the vicinity, although it has not identified that such a prehistoric site is known within 300 metres of the proposed development. I agree with the EIA that, on the balance of evidence, any such remains are unlikely to be of a significance leading to protection through designation.

I also agree with the recommendations in the EIA that any impact to archaeological assets by the construction of the proposed development can be mitigated through the implementation of a programme of archaeological investigation and recording. I advise that this archaeological work should be undertaken in advance of development and be commissioned at the expense of the developer. It can be secured through the inclusion of two conditions in any planning consent that may be granted and I suggest the following form of words:

Condition 1:

No development shall commence within the site until the applicant has secured the implementation of a programme of archaeological work in accordance with a written scheme of investigation which has been submitted by the applicant and approved in

writing by the Local Planning Authority.

This written scheme of investigation will include the following components:i) An archaeological evaluation;ii) An archaeological recording programme the scope of which will be dependant upon the results of the evaluation.

Reason: To afford reasonable opportunity for an examination to be made to determine the existence of any remains of archaeological interest within the site and for the examination and recording of such remains

Condition 2:

Where significant archaeological remains are revealed by the programme of archaeological work, there shall be carried out within two years of the completion of that programme on site, or within such timescale as otherwise agreed in writing by the Local Planning Authority: an archaeological post-excavation assessment and analysis, the preparation of a site archive ready for deposition at a store, the completion of an archive report, and the preparation and submission of a report of the results for publication in a suitable specialist journal.

Reason: To ensure that a permanent and accessible record by the public is made of the archaeological remains that have been disturbed by the development.

I trust this recommendation is acceptable. Please do not hesitate to contact me if you have any queries regarding the above.

Yours sincerely

Jeremy ParsonsHistoric Environment Officer

Cumbria County Council

Appendix 2: Highways Response

From: Richard.Hayward@cumbria.gov.uk Sent: 23 February 2015 16:55

This development was the subject of a Scoping and is thus supported by comprehensive supporting information, which includes a Design & Access Statement and Flood Risk Assessment/Drainage Strategy it should be noted that whilst there is no objection to the proposals there are various other processes the developer will need to go through even if Planning Consent is given:

For the works on the A689/A595/A596 between M6 Jnct:44 and the U2075 Hayton turn, as detailed within the Schedules on Ps13/14 of the D&A Statement (appended for easer of reference) obtain Authority from Connect Roads, Barrras Lane Dalston (01228 713050 - contact Phil Bent, to whom this is copied) prior to the Abnormal Load Notification; Note: It is for the haulier to contact the various other Highways (Roads in Scotland) Authorities and make arrangements for the identified measures to be carried out in areas outwith the Local Planning Authority's control as part of the Abnormal Loads Notification process; and

For the works on the U2075 and C2022 contact the North Allerdale Area Streetworks Inspector - Stephen Oglanby at the Lillyhall depot, Joseph Nobel Rd Lillyhall CA14 4JH t.01946 506550. the access off the C2022 will require a HA1980 S.184 permit and NRSWA Sec.171 Permits for all locations where excavations are required within/adjacent to the Highway corridor for temporary works. It appears there is no need for any cable installations within Highway, but if these are required and are not carried out by the REC as a Statutory undertaker, NRSWA Sec:50 permits.

For work within Ordinary Watercourses obtain consent from the Flood Risk & Surface Water Management Team, Area Officer, Andrew Harrison (email contact LFRM Consent as copied to).

The submitted details area considered satisfactory but these Conditions should be applied to any Consent you may issue.

A Construction Method Statement must be submitted to the Local Planning Authority and approved prior to works commencing on site. This shall include details of all Site Investigation Works, on site construction works, mitigations and post construction reinstatement within an overall timetabled programme; and shall include details of:

details of the creation of the site access to be used for Site Investigations including a programme of Archaeological works, followed by the construction of the site compound, access tracks and turbine hardstandings, to enable foundation construction and cranage of superstructures;

measures relating to ground water controls, prevention of pollution to watercourses, arrangements for 'on site' fuel storages and spillage mitigation measures, on site sewage facilities;

arrangements for site illumination hours/days of working and any noise mitigation measures;

routes of cable trenches, methods of working/laying of cables and reinstatement;

soil storage and handling, proposals for dealing with surplus material; post construction restoration and reinstatement of temporary works; method to be undertaken to prevent spillages/depositing of materials, spoil and

dust and for maintain the roads in the vicinity of the site access clean.

A Construction Traffic Management Plan shall be submitted to the Local Planning Authority, for approval in conjunction with the Highways Authority prior to the Site Access being formed and any siteworks commencing, it shall include:

a pre-commencement condition survey for the unclassified roads and public right of way network that are within or to be used to access the site;

proposed accommodation works and programme for any closures and where appropriate for the removal of temporary works and reinstatement of boundary hedges/fences on completion;

details of any pre-delivery strengthening and/or repair commitments during the works;

process for a post- construction survey of the unclassified roads and PROWs and restitution works on completion of the construction programme.

T Richard Hayward I.Eng MICHT AMICE,Development Manager Highways, Transport & FleetEnvironment & Community Services DirectorateCumbria County Council

Appendix 3: Member Comments

Duncan Fairbairn: County Councillor for Thursby; Vice Chairman of the Solway Coast AONB:

Following my site visits at Allonby and Westnewton today, I wish to offer my observations accordingly.

Firstly, I do need to declare a non pecuniary interest in being the Vice Chairman of the Solway AONB. I am also of course a near neighbour County cllr as well.

At Allonby, I was struck by the open aspect of the views from the site towards the Lake District National Park fells. There were existing wind turbines in the middle centre distance, somewhere near to those envisaged in the planning application, as well as the tips of a clump to the south east; Others slightly south west mid ground, as well as the Bothel clump in the distance. There is a standing policy relating to the views into and out of a National Park and an AONB, as both are as important as each other. Here we have land in between these two dedicated landscapes, and I do feel that even now the views are being compromised, let alone if some more get permission. There was a distinct feeling of too much accumulation of wind turbines taking place here.

At the Westnewton site, this accumulation feeling was quite overbearing, given that yet another wind turbine, not on the photo montage, was visible. The existing ones were right across the skyline for the whole village, the latter which is set in a narrow river valley, slightly to the north of the proposed site.

To have a further wind turbine development set so close to these inhabitants, which must have been on or about the set back arrangement of 800 metres, which Allerdale Planning recently brought in to the planning arrangements. This must be the village residents worst nightmare.

I would be against these wind turbines for the reasons set out above, and detailed below:-

1 For the principle of the view in and out of a National Park and an AONB must be left undisturbed.

2 Compounding affect.3 Inside or close to the 800 m set back agreement for wind turbines from

residential homes in Allerdale.4 Insufficient information as to the Make, Type, and feathering

arrangements which dictate the wind speed noise at various locations. The latter should be required, so that a 24 hr / 7 day a week operating model could be checked against an independent computer programme model for accuracy.