PART 1

EAST HAMPSHIRE DISTRICT COUNCIL

PLANNING COMMITTEEREPORT OF THE EXECUTIVE HEAD PLANNING AND ECONOMY

Applications to be determined by theCouncil as the Local Planning Authority

PS.460/201529 October 2015

SECTION 1 – SCHEDULE OF APPLICATION RECOMMENDATIONS

Item No.: 01The information, recommendations and advice contained in this report are correct as at the date of preparation, which is more than one week in advance of the Committee meeting. Because of the time constraints some reports may have been prepared in advance of the final date given for consultee responses or neighbour comments. Any changes or necessary updates to the report will be made orally at the Committee meeting.

PROPOSAL Installation of a solar farm and associated infrastructure, including photovoltaic panels, mounting frames, inverters, transformers, substations, communications building, fence and pole mounted security cameras, for the life of the solar farm (as additional information received 10/02/2015 and 16/09/2015 and amended plans received 29/05/2015, 01/07/2015 and 06/10/2015)

LOCATION: Land to the North of Cakers Lane, East Worldham, Alton

REFERENCE : 55465/001 PARISH: Worldham

APPLICANT: SPV 68 Ltd

CONSULTATION EXPIRY: 01 July 2015

APPLICATION EXPIRY : 21 April 2015

COUNCILLOR(S): Cllr D Ashcroft

SUMMARY RECOMMENDATION: PERMISSION

This application was deferred at the meeting on 8 October 2015.

This application is included on the agenda at the discretion of the Development Management Manager

Site and Development

The SiteThe site is to the east of Alton and to the west of East Worldham, outside the settlement boundary of both, and within a rural setting bordering the A31. The application site (as revised) extends to 7.6ha and is part of an arable field (agricultural grade 3a and 3b). A route of pylons runs through the landscape over this site. Vehicular access is taken from Cakers Lane (B3004) to the south. There is woodland planting further to the north and hedgerows and sporadic trees run along the majority of the boundaries of the site. The field, whilst undulating, generally rises to the north and east. A small watercourse runs through the site from east to west and discharges into the Caker Stream. Worldham Footpath (No. 26) and Binsted Footpath (No. 70), further to the north of the site, form part of the Hangers Way which is a long distance footpath that links Alton to the South Downs National Park. The land lies within flood zone 1 (low probability of flooding).

The South Downs National Park lies just over half a mile to the south and east of the site. There is a golf course to the south beyond Cakers Lane and the nearest residential property lies 50 metres to the east of the site's boundary. Residential properties are also located to the west, beyond the A31, on Wilsom Road and on Windmill Hill.

The DevelopmentThe original submitted scheme sought full planning permission for a solar farm incorporating the following elements:

Coverage of 22.2ha of land by a 11MW solar farm (maximum capacity) for 30 years, capable of generating electricity to power 3306 households

The panels will be made of non-reflective dark blue glass and fixed to aluminium or steel mounting frames in a four in landscape configuration. The panels will be orientated to the south and set at 25 - 30 degree angle and fixed in place (will not move to track the sun). Each panel would be 1.5m wide by 0.9m tall with a total height above ground no taller than 2.5m

The mounting frames would be pile driven into the ground to a depth of 1.5m with no concrete foundations being required. The base of the frames are a thin 'Z' or 'H' shape and have little impact on the ground surface. At the end of their operational life, they are simply pulled out of the ground

Inverters: The panels generate Direct Current (DC) electricity which have to be converted into Alternating Current (AC) before being fed into the local electricity grid network. Inverters are used for this and they are housed in a cabin like structure 2.9m tall by 4.4m long by 1.5m wide and painted dark green

Transformers: These transform electrical energy from one circuit to another. These are houses in a cabin like structure painted dark green 2.8m tall by 6m long by 2.5m wide

Switchgear substations: These are the on-site point of connection where the electricity flows into the grid network. Two are required; one to shut the grid off from the solar farm and the other to shut the solar farm off from the grid. A motion sensor security light is affixed to the substation and is only illuminated when repair crew approach

Perimeter fence: 2 metre tall post and wire fence is installed around the solar farm

Security cameras: CCTV erected on poles that are 2.4m tall and directed into the site and employ infrared technology so no lighting is required

Communications building: Required to monitor the site remotely to identify any faults. The building is 2.5m tall by 3.7m deep by 3m wide

Amendments to submitted proposalsThe proposal has been amended on two separate occasions following discussions between officers and the applicant. The changes have resulted in a significant reduction in site coverage (by half) together with enhanced planting proposed on the northern boundary. In summary, the significant change to the scheme has been the removal of the top half of the field from the proposal.

A comparison table below illustrates the key differences for closer comparison.

Originally submitted scheme Revised scheme

Coverage by PV panels 14 hectares 7.6 hectares

Output 11 MW 3.62MW

Transformers 4 3

Inverters 6 3

Relevant Planning History

55465 - Request for a screening opinion for a proposed solar farm - Not EIA development (16/04/2014).While the development was of a type and size identified in Schedule 2 of the 2011 Environmental Impact Assessment Regulations, having considered the scheme against Schedule 3 (selection criteria) it was deemed that the scheme was unlikely to have significant environment effects for the purposes of those regulations.

Development Plan Policies and Proposals

East Hampshire District Local Plan: Joint Core Strategy (2014)

CP1 - Presumption in favour of sustainable development CP2 - Spatial StrategyCP6 - Rural economy and enterpriseCP19 - Development in the countrysideCP20 - LandscapeCP21 - BiodiversityCP25 - Flood RiskCP27 - PollutionCP29 - DesignCP31 - Transport

East Hampshire District Local Plan: Second Review (2006)

E2 - Renewable EnergyT4 - Protection of Public Footpaths

Planning Policy Constraints and Guidance

National Planning Policy Framework (NPPF)

Paragraphs 14, 15, 97 & 98

Village Design Statement - Worldham Village Design Statement - non statutory planning guidance that has been the subject of public consultation and therefore is a material planning consideration.

Consultations and Town/Parish Council comments

Environment Agency - No objection, subject to a condition.

Natural England - No objection.

Alton Society - Changed their position from objection to neutral and now comments: the reduction in site area has met many of the concerns expressed previously solar farm will now be largely out of site from houses on Wilsom Road and crest of

Windmill Hill support the introduction of solar farms provided they are sited in a way that does not

involve the loss of good quality land and not compromise the landscapes of value

Hampshire County Council Archaeologist - No objection, but requested a condition concerning the north west corner of the site which has now been removed from the proposal.

Hampshire County Council Ecologist - No objection, subject to a condition

Hampshire County Council Highways - No objection but raised the following concerns: access to the site will be taken from the existing field access off Cakers Lane. Further

information is required to help clarify how the proposed access will tie into the highway network, such as visibility splays

the Alton Transport Study will consider infrastructure requirements. The study has outlined junction improvements to the A31 within the vicinity of the site and one of the options would be to utilise part of the application site for the southbound slip road. However, the options are long term aspirations and at a conceptual stage. The applicant should though have an awareness of these proposals

Updated comments - following the submission of additional highway information (speed surveys), the County Highway Authority is satisfied that the use of the existing access can safely accommodate the development. Hampshire County Council Countryside Planning - Objects for the following reasons: this section of the Hangers Way currently offers an attractive and open view over farmland

and an opportunity for enjoyment of the countryside. This view would be substantially affected by the proposed solar array and much reduced by the new planting that is proposed for screening the development

contrary to policies CP19 and CP20 of the Joint Core Strategy should permission be granted then a mitigating improvement should be made to the local

rights of way network by providing a footpath along the western boundary of the site.

EHDC Environmental Health Pollution Team - No objection

EHDC Environmental Health Contamination Team - No objection

EHDC Arboricultural Officer - No objection, subject to a condition

EHDC Drainage consultant - Following receipt of additional information, no objection, subject to conditions

EHDC Landscape Officer - Objects for the following reasons: the further reduced solar farm involves the removal of solar panels from the north east

corner of the proposed development and the revision to the planting plan shows the additional tree planting moved down to the new northern boundary along the line of the existing sparse hedgerow. However, there would still be a negative impact on landscape character and visual amenity experienced by walkers on the Hangers Way and Windmill Hill and drivers on the A31 due to the elevated viewpoints

if permission is granted the following conditions should be imposed; 2 metre high hedging along Cakers Lane boundary to fill in all the gaps in the current hedge; staggered hedge arrangement at site entrance to screen the proposed buildings and panels; native tree and hedge planting across the site; 2 metre hedging on the north eastern boundary; if possible gap planting on the bank between the Hangers Way and the field where the existing woodland has become overgrown and no longer forms an effective screen

CPRE Hampshire - Objects for the following reasons: no justified need for countryside location and no evidence of a systematic search of

alternative sites poorer quality agricultural land should be used in preference to higher quality land the potential landscape and visual impacts are not acceptable and will not enhance local

distinctiveness, sense of place and tranquillity should permission be granted, however, conditions should be imposed controlling the

external colour of the buildings, lighting on the site, all works be removed from the site when decommissioned

National Farmers' Union - Supports the scheme: relatively low grade agricultural land the applicant has farmed this part of Hampshire since 1930s encompassing 610 hectares.

This application represents a fraction of the entire farmed area and the proposal has been made in the best long term interests of the of the entire farm enterprise

farm diversification scheme to be supported NFU has experience of farm work on the land and it is considered to be of relatively

marginal value for arable production providing a 35yr break in arable production is likely to benefit the long term productivity of

those soils sheep grazing on the site will enable a continued agricultural output from the site

alongside the energy crop

South Downs National Park Authority - Initially raised an objection until their concerns relating to landscape character particularly on the upper field could be addressed. Their chief concern related to the impact the development would have on The Hangers Way, a regional recreational route which runs along the northern boundary on the other side of a hedgerow. This is considered to be an important public right of way as it connects residents of Alton to the South Downs National Park to the east and the SDNPA considered that a number of gaps in the hedgerow/woodland would make the development visible along this route at various points. They acknowledged that the landscape is interrupted by visually prominent pylon lines or low voltage power lines, however this immediate area is relatively tranquil as you move away from the A or B roads, with views of open rolling countryside. They also raised a concern over any cumulative impact from the recently constructed solar farm at land south of Gaston Lane, Farringdon.

Following the receipt of amended plans reducing the scheme and removing the 'top' field from the scheme, the SDNPA has removed their objection. Their revised comments are summarised as:

the exclusion of the northern field is an improvement and has reduced the associated visual harm from the regional route The Hangers Way.

the additional proposed hedgerow planting along the northern boundary will also soften and assist in screening the development from the public right of way once established. The north-western corner of the field where the footpath intersects the field is the most open aspect of the route, and views will still be possible even after the planting of the new hedgerow

views from the Hangers Way will be of the rear of the solar frames, and the suggestion of powder coating these with a dark colour would help to blend them into the background, rather than a silver galvanised appearance

there has been further improvements to the landscaping scheme, with additional and supplementary hedgerow planting along the boundaries of the development, although the use of silver birch is not considered suitable.

the wildflower grass/field margins could be extended on the eastern boundary to enhance the biodiversity opportunities of the site. This is considered relatively small

the submission does not examine the cumulative impact of the existing solar farm near Farringdon which is disappointing

there will be localised landscape impacts from Cakers Lane (and the Golf Course), particularly near the access and the proposed associated buildings will be visible. This could be relocated and positioned to make better use of existing vegetation.

whilst they continue to have some concerns (some of which can be addressed via condition if the applicant agrees to address these in principle) on balance they raise no objection

Alton Town Council - Initially raised no objection to the originally submitted scheme, but following the reduction in site area, now objects to scheme for the following reasons: inappropriate intrusion of development in the local area resulting in the development of a

green field site contrary to policies CP19 & CP20 of the Joint Core Strategy

Worldham Parish Council - Objects to the proposal for the following reasons: conflict with national planning policy and guidance, and EHDC Local Plan, such as NPPF,

JCS policies on Natural and Built Environment; Spatial Strategy; Development in the Countryside; Landscape

disagree with statements in the applicant's design and access statement relating to visibility and impact on character

major impact on landscape and visual amenity, biggest threat to it in living memory highly visible from Wilsom Rd, Windmill Hill Lane and Ashdhell, on Alton side of A31 solar panels can never be integrated into this landscape without completely changing its

character would conflict with one of the NPPF's core principles of taking account of the different

roles and character of different areas...recognising the intrinsic character and beauty of the countryside

would extend the Alton urban area beyond the natural boundary of the A31 would reduce the open space between Alton and East Worldham

contrary to village design statement contrary to ministerial statements about ensuring such development is sensitively placed

and not in the wrong places harm to the area identified in EHDC's landscape assessment harm to the Hangers Way link from Alton to SDNP development on a greenfield site land been in arable production for many years loss of grade 3 agricultural land no demonstration of alternative, and non-greenfield sites, have been put forward by

applicant site is unsuitable for a solar farm, regardless of the mitigation measures proposedrecommends that a committee site visit takes place before any decision is reached

Representations

73 representations of objection have been received raising the following concerns:

a) Harmful visual impact to the landscape/eyesore/out of character with surrounding area; b) Harmful impact for those using Hangers Way;c) Dissuade visitors to the area;d) Loss of good agricultural land which should be used for growing crops;e) Additional planting on the boundaries will have limited effect in screening the

development, certainly in winter, and take time to establish;f) Harmful visual impact from residential properties on Windmill Hill, Windmill Lane, Wilsom

Road and Curtis Road; g) Potential risk of traffic accidents on the adjacent A31 due to visual distraction, particularly

if there is glare from the panels; h) The ancillary structures and buildings will be detrimental to the countryside;i) Introducing additional screening/planting would not be characteristic of the open land;j) Other sites, such as brownfield land, should be considered first;k) Site is too large;l) Solar farms are not a long term solution to our future energy needs but a short term

response to a government financial incentive;m) Need for renewable/low carbon energy does not override environmental protections;n) Impact on the gateway to the South Downs National Park; o) 25 years is hardly temporary;p) Loss of green belt (officer comment: the land is not green belt);q) Concern about drainage and water run-off;r) Would destroy habitats;s) Council should allocate more sites and not blight the entry into Alton;t) Rising land;u) Solar panels should be confined to roof top installations;v) The proposed buildings are grouped close to the B3004 making them highly visible;w) Traffic during construction and on-going maintenance;x) Predicted benefits do not justify desecrating the landscape;z) Cannot be considered green, as it will burn more carbon than it will ever save;

za) The gap between Alton and East Worldham would be encroached upon; zb) Good practice is for solar farms to be sited on level ground and not intrude into the

landscape;zc) The A31 provides a good barrier to development creep;zd) Will set a precedent for more development towards East Worldham;ze) May prevent the future construction of A31 slip roads/slip roads would compromise the

siting of the solar farm;zf) Potential health hazard of large numbers of solar panels close to population is not yet

proven;zg) Concern over the safety of the access;zh) Application has been timed to beat the deadline for the removal of the Gov subsidy for

solar installations;zi) Deer use this location; and zj) Alton is an historic market town which is already having its heart ripped out by 700 or so

new homes.

25 representations of support have been received raising the following points:

a) This will power 3306 household with clean, locally produced energy, reducing the carbon footprint of the district;

b) Panels have been removed from parts of the site and new native hedgerow would be planted to improve natural screening and provide new wildlife habitats;

c) It would collaborate with local farming business at Wilsom Farm with sheep grazing on the grasslands within the solar farm giving the land dual usage;

d) Ecological enhancements are proposed - bat boxes, barn owl box, mammal gates in the fencing;

e) We all need electricity but cannot rely on the burning of fossil fuels for our energy, we will pollute the planet and remain vulnerable to the volatile price fluctuations of global fossil fuel markets;

f) This will produce clean energy for future generations;g) This is a good example of sustainable development, promoted in the NPPF;h) Environmental impact of solar farms is much lower than any other form of power

generation;i) A solar farm makes even more sense than every house having panels;j) Much of the land is low lying and well screened;k) Site adjoins Alton and therefore would be preferred, rather than a more rural site located

away from urbanisation or road network;l) The edge of East Worldham village is 1.1 miles from the site entrance and very few

residents would be able to see glimpses of it, especially with additional screening;m) Hangers Way is little used and does not overlook a traditionally managed landscape due

to the A31 and industrial park to the west and the B3004 and golf course to the south. There are numerous pylons and overhead cables in the area;

n) Impact on traffic would be minimal;o) Little noise and disturbance would be produced;p) Scheme is easily reversible and would return to agriculture in 25 years;

q) Objectors have opposed the loss of food producing land to another use, but the recent crop in this field was maize for biomass use;

r) Government advice is to increase renewable energy;s) Fail to see how support can be given by objectors to a potential A31 slip road on this land

which would cause more danger and disruption, damage to local area and be a greater irreversible eyesore;

t) The time has come to maximise the generation of renewable energy such as solar power, which is clean and quiet and allows biodiversity; and

u) Views from Windmill Hill would not be spoilt due to existing trees and hedging obscuring the easterly view;

Following the receipt of the current revised scheme, reducing the application site by half(approx), a further consultation period took place and 9 representations of objection werereceived reiterating earlier concerns and making the following additional points:

a) Still in wrong location;b) The land is grade 3 agricultural land which is by far the most commonest grade used for

increasingly valuable and essential food production in the UK; and c) If planning committee requires a site visit can this be arranged for November when the

leaves have come off the trees to show how visible it would be for 6 months of the year from any point in south Alton.

d) The field survey used to inform the applicant's LVIA was carried out in May when trees would be in leaf. The LVIA is therefore is flawed and deficient. It does not follow the Guidelines for Landscape and Visual Impact which says that winter and summer views are recommended when undertaking an LVIA. The Planning Committee is being asked to make a recommendation based on incomplete information.

Determining Issues

1. Site selection2. Principle of development3. The loss of agricultural land4. Impact on visual amenity and landscape character5. Impact on the setting of the South Downs National Park6. Impact on adjacent development 7. Impact on the local road network, access, and highway/public safety8. Impact on biodiversity9. Drainage and flood risk

Planning Considerations

1. Site selection

The applicant’s site selection requirements and process is set out in their Planning, Design and Access Statement. In essence, the process started with a detailed desktop assessment, based on a wider array technical and environmental (planning) considerations.

The latter serves to exclude the most sensitive sites Further constraints and suitability of a candidate site are then reviewed on site. Sites must also provide good access to grid connection, and economically viable daylight yields. Other solar farm applications have also noted that the selection process is dependent on landowners commit to a long term lease of the land (for an extended 25 year or greater period).

Consequently, the developer advises that a significant proportion of sites do not make it through this selection process to the planning application stage. This site was originally much larger in size at the conceptual stages but was reduced to omit land which may have had an unacceptable visual impact.

2. Principle of development

In terms of national planning policies, the National Planning Policy Framework, at paragraphs 14, 15, 97 and 98, is particularly relevant. Paragraphs 14 and 15 establish the presumption in favour of sustainable development as a central tenet of planning policy and that up-to-date policies should be based on this and allow development that is sustainable to be approved without delay. Paragraph 97 states that “local planning authorities should recognise the responsibility on all communities to contribute to energy generation from renewable or low carbon sources…” including by having “a positive strategy to promote energy from renewable and low carbon sources”. At paragraph 98, LPAs are advised they should not require applicants to demonstrate the overall need for renewable or low carbon energy but should instead give weight to the contribution which even small-scale renewables projects provide towards targets for cutting greenhouse gas emissions. The paragraph continues that if impacts that such development would cause either are, or can be made acceptable, then permission should be granted unless other material considerations indicate otherwise.

The National Planning Practice Guidance (NPPG), updated in March this year, provides advice on the consideration of proposals for solar farms. It states that the deployment of large-scale solar farms can have a negative impact on the rural environment, particularly in undulating landscapes. However, the visual impact of a well-planned and well-screened solar farm can be properly addressed within the landscape if planned sensitively.

The NPPG outlines the following particular factors that a local planning authority will need to consider. These include:

Encouraging the effective use of land by focusing large scale solar farms on previously developed and non agricultural land, provided that it is not of high environmental value;

Where a proposal involves greenfield land, whether (i) the proposed use of any agricultural land has been shown to be necessary and poorer quality land has been used in preference to higher quality land; and (ii) the proposal allows for continued agricultural use where applicable and/or encourages biodiversity improvements around arrays.

That solar farms are normally temporary structures and planning conditions can be used to ensure that the installations are removed when no longer in use and the land is restored to its previous use;

The proposal’s visual impact, the effect on landscape of glint and glare and on neighbouring uses and aircraft safety;

The extent to which there may be additional impacts if solar arrays follow the daily movement of the sun;

The need for, and impact of, security measures such as lights and fencing; Great care should be taken to ensure heritage assets are conserved in a manner

appropriate to their significance, including the impact of proposals on views important to their setting. As the significance of a heritage asset derives not only from its physical presence, but also from its setting, careful consideration should be given to the impact of large scale solar farms on such assets. Depending on their scale, design and prominence, a large scale solar farm within the setting of a heritage asset may cause substantial harm to the significance of the asset;

The potential to mitigate landscape and visual impacts through, for example, screening with native hedges;

The energy generating potential, which can vary for a number of reasons including, latitude and aspect.

The approach to assessing cumulative landscape and visual impact of large scale solar farms is likely to be the same as assessing the impact of wind turbines. However, in the case of ground-mounted solar panels it should be noted that with effective screening and appropriate land topography the area of a zone of visual influence could be zero.

The above considerations will be assessed within the appropriate sections in this report.

Saved Policy E2 of the Local Plan 2006 (Second Review) is specific to development comprising renewable energy and states that permission will be granted for development for the generation of electricity from renewable resources provided that it would not:

a) harm the special landscape quality of the area of outstanding natural beauty (AONB) or views into or out of it;

b) attractive landscape areas outside the AONB should not be harmed;c) there should be no inconvenience to users of the public highway;d) prejudice the objectives of a strategic or local gap;e) there should be no adverse impact on neighbours from visual dominance, noise, reflected

light; f) there should be no unacceptable electromagnetic disturbance.

There is now no longer AONB in East Hampshire, but a large area was subsumed within the South Downs National Park. Where applicable these criteria will be assessed in the report that follows.

Policy CP19 of the Joint Core Strategy sets out a policy of restraint for development in the countryside in order to protect the countryside for its own sake. The only development allowed in the countryside is that with a genuine and proven need for a countryside location, such as that necessary for farming, forestry or other rural enterprise. Saved Policy E2 does not preclude countryside locations for renewable energy development. It advocates for the development of renewable energy development that is located and designed to minimise adverse impacts on landscape, wildlife, heritage assets and amenity. It is recognised that as with most forms of development the preference would be for renewable energy projects to be located on previously developed land, however, there is not an explicit policy requirement to do so. In the more particular case of solar farms, as opposed to wind farms or bio-mass, the land-take required is also comparatively large to host a scheme like this and so it is more likely that greenfield sites will be selected.

In principle terms alone, the application site is a suitable location for a solar farm development, subject to a range of other material considerations also covered in this report. There is a clear emphasis in all levels of planning policy, and particularly within the most up-to-date policies in the National Planning Policy Framework to support renewable energy developments. One of the Framework’s core principles is, however, that development should account for the roles and character of different areas and the intrinsic character and beauty of the countryside. This will need to be assessed in the report.

3. The loss of agricultural land

The Agricultural Land Classification provides a method for assessing the quality of farmland to enable informed choices to be made about its future use within the planning system. The system classifies land into five grades; Grade 1 - Excellent; Grade 2 - Very Good, Grade 3 - Good to Moderate; Grade 4 - Poor and Grade 5 being Very Poor.

Grade 3 is subdivided into sub-grades 3a and 3b. The best and most versatile land is defined as Grades 1, 2 and 3a and is the land which is most flexible, productive and efficient in response to inputs and which can best deliver food and non food crops for future generations.

The application site comprises one third of the land as Grade 3a and two thirds as Grade 3b.

The National Planning Policy Framework (para 112) expects local planning authorities to take into account the economic and other benefits of the best and most versatile agricultural land. Where significant development of agricultural land is demonstrated to be necessary, local planning authorities should seek to use areas of poorer quality land in preference to that of a higher quality.

In addition, the National Planning Policy Guidance (NPPG) states that where a proposal involves greenfield land, it needs to be considered whether (i) the proposed use of any agricultural land has been shown to be necessary and poorer quality land has been used in preference to higher quality land; and (ii) the proposal allows for continued agricultural use where applicable and/or encourages biodiversity improvements around arrays.

It is clear that approximately one third of the land falls within Grade 3a and, therefore, within the bracket of 'best and most versatile agricultural land'. Whilst the NPPF does not define what 'significant development' represents in relation to its reference in paragraph 112, it is clear that installing solar panels on part of a field that extends to 7.6ha would not be an insignificant development. However, as mentioned earlier in this report, the land-take required for a solar farm is comparatively large and so is more likely that greenfield sites will be selected. The scheme's reduction in size over the course of the application has meant that the amount of Grade 3a land to be used has halved. However, it remains the case that the proposal would have an impact on 'best and most versatile agricultural land'.

In their statutory capacity as advisers to local planning authorities about land quality issues, Natural England has assessed this scheme and comments that the development is unlikely to lead to significant and irreversible long term loss of 'best and most versatile agricultural land'. Their reasoning for this conclusion is because the solar panels would be secured to the ground with limited soil disturbance and could be removed in the future with no permanent loss of agricultural land quality likely to occur. They note that some elements of the scheme, notably the sub-station buildings, would have more of an impact, this would be limited to small areas.

In relation to the second consideration of the NPPG, it is the intention of the applicant that the land below the panels shall be laid to pasture for grazing animals (sheep). In any case, the use of the land will not represent a permanent use of the land.

The National Farmers Union, whilst not a statutory consultee, states that providing a break in arable production is likely to benefit the long term productivity of those soils.

In summary, whilst the amount of Grade 3a land to be used has been reduced by half from the original submission, there will still be an impact on 'best and versatile agricultural land'. However, that impact would be a temporary measure and reversible. Sheep grazing would continue an agricultural output of the land alongside the new 'energy crop'

Finally, the NPPF advises that if the impacts from such a development either are, or can be made acceptable, then permission should be granted. For the reasons given above, and also in recognition of the NPPG's view that solar farms are normally temporary structures and planning conditions can be used to ensure that the installations are removed when no longer in use and the land is restored to its previous use, the imposition of a planning condition to return the land to its former use would make the development acceptable in terms of the concern over the loss of a relatively small extent of land designated as 'best and most versatile agricultural land'.

4. Impact on visual amenity and landscape character

It is in this respect that the proposal has the potential to cause significant effects. First and foremost, it is important to recognise that this site is not a designated landscape. The effect of development upon visual amenity and the perception about landscape character depends in part upon subjective interpretations. Appraisals should, therefore, be based on objective material / assessment. Accordingly, a Landscape and Visual Impact Assessment (LVIA) has been submitted by the applicant, which officers have reviewed.

LVIA methodologyThe full document is very detailed and its key findings are summarised. The applicant's LVIA is based on widely accepted best practice methodology (Landscape Institute / Institute of Environmental Management framework 2013), although it is important to note that the field survey work that informed the LVIA was carried out in May and not, therefore, during the winter months when deciduous trees would be without their leaves. The local area comprises a mixture of both deciduous and evergreen species. The LVIA evaluates the impact of the submitted scheme for arrays of panels 2 to 3 metres in height spaced approximately 8 metres apart. As noted the scheme has now been revised and the likely impacts reduced.

Landscape characterThe LVIA identifies relevant character areas and landscape types to this site and its surroundings. Natural England’s (national scale) character assessment includes the site area within Character Area 120 'Wealden Greensand': This establishes the site within a very broad area of character. At a regional and local scale the East Hampshire District Landscape Character Assessment (2006) categorises the site within 'Worldham Greensand Terrace' character area.

The site is defined by arable fields which are traversed by pylons and low voltage power lines. Mature hedgerows and trees bound the site. The A31 and Alton are located to the west, Cakers Lane and Worldham Golf Club to the south and farmland to the north and east. These characteristics are broadly consistent with the character assessment given for 'Worldham Greensand'. The applicant's LVIA considers that the landscape is of medium sensitivity.

The Landscape Officer has considered the revisions to the scheme and the planting plan. She notes that the further reduced solar farm involves the removal of solar panels from the north-east corner of the development and the revision to the planting plan shows the additional tree planting moved down to the new northern boundary, along the line of the existing sparse hedgerow. However, she concludes that there would still be a negative impact on landscape character and visual amenity experienced by walkers on the Hangers Way and Windmill Hill and drivers on the A31 due to the elevated viewpoints.

It is acknowledged that there would be some impact on vehicles travelling on the A31, mainly southbound from one vantage point where the existing landscaped boundary is not as robust as other parts of the A31. However, the view from a vehicle would be fleeting and not significant.

The impact from those at Windmill Hill, which includes the rear gardens and first floor windows of properties along Curtis Road, would be affected. However, with the scheme now reduced to the 'lower field' only, this impact would be minimised. It is worth pointing out that these views are mainly private, not public views, and so the weight to be attributed against the scheme arising from a private right to a view is reduced.

Public and private views of the site are also possible from Wilsom Road and the properties that front this main road into Alton. However, whilst these views are much more apparent in the winter months when some of the boundary trees are not in leaf, the scheme as revised, reduces the impact from this direction. In addition, the Council's Landscape Officer has not raised concerns from this viewpoint.

The impact on the Hangers Way, a recreational route into the South Downs National Park, will be assessed in the next section.

Mitigation measures to enable the development to be absorbed into the local landscape have been put forward by the applicant. These include new hedgerows, tree planting, strengthening of existing hedgerows on the southern boundary with Cakers Lane, at the site entrance, on the northern and eastern boundaries, on the north-eastern boundary with Hangers Way.

It is acknowledged that the position of the huts and buildings would be prominent from the site entrance (Cakers Lane) and whilst this is the lowest part of the site and the buildings are not especially tall, a condition requiring hedge screening would make this element of the proposal acceptable.

While there are key identified effects on visual amenity, the influence on wider landscape character from this development would be more limited. The quality of the landscape is already noticeably degraded by the presence of pylons and power lines across the site. Consequently, officers consider that the degree of effect / influence of the scheme on this site would not have significant adverse effects on the wider landscape. The site is not itself within a designated landscape and the effect on landscape character is not considered to warrant refusal of the scheme.

Officers also consider that subject to satisfactory landscaping, the majority of the identified impacts can be mitigated so that the impact to visual amenity and landscape quality can be made acceptable. The long-term management of any secured mitigation scheme would also need to be secured. This accords with the requirements of the NPPF and NPPG (set out earlier in the report.

5. Impact on the setting of the South Downs National Park/Hangers Way Public Right of Way

The site does not lie within the South Downs National Park (SDNP), whose boundary lies approximately 0.6 miles to both the south and east. However, The Hangers Way, which is a regional recreational route, runs along the top of the 'upper field', mainly behind an established hedgerow. The South Downs National Park Authority considers this to be an important public right of way as it connects Alton to the SDNP.

The first purpose of the National Park designation is the conservation and enhancement of the park’s natural beauty, wildlife and cultural heritage. The SDNPA has an interest in planning proposals outside of the national park that may have an impact on the setting (particularly on views towards and from the National Park) and raised an objection to the application so that a number of their concerns could be addressed.

Following the revisions to the scheme, the SDNPA removed their objection and commented that the exclusion of the northern field is an improvement and has reduced the associated visual harm from The Hangers Way. The additional proposed hedgerow planting along the northern boundary will also soften and assist in screening the development from the public right of way, once established.

The SDNPA has made further recommendations to improve the scheme further, which have been incorporated where possible and others controlled by condition. One disappointment noted by the SDNPA is the absence of a cumulative impact assessment on the solar farm near Farringdon (Gaston Lane). This is noted, however, the combined impact of the proposal with the Gaston Lane solar farm would not have a significant cumulative impact on the local landscape due to the intervening rolling topography, boundary features and the 3 mile distance between the two sites.

Hampshire County Council's Rights of Way Team has raised an objection to the scheme based on their belief that this section of The Hangers Way offers an attractive and open view over farmland and an opportunity for enjoyment of the countryside close to Alton. They consider that this view would be much reduced by the new planting that is proposed for screening the development.

These comments are noted and understood. However, the only open part of this section of The Hangers Way is a short section where the right of way emerges from behind the hedgerow in the north-west corner of the northern field before crossing the A31 into Alton. The vast majority of the right of way is, therefore, currently screened by existing hedgerow which limits views from the recreational route towards the south. Therefore, the new planting proposed would not significantly alter the current views experienced by walkers along this section of The Hangers Way. They have suggested that as mitigation, a footpath could be provided along the western boundary of the site linking Cakers Lane footpath with The Hangers Way, thereby providing a safer crossing point of the A31. Again this point is noted, however, officers consider that the limited impact the development would have on The Hangers Way would not justify solving an existing, albeit awkward, local crossing point of the A31.

6. Impact on adjacent development

The site lies some distance from the nearest residential dwellings, which are 100 metres to the west (Wilsom Rd) and over 50 metres to the nearest detached dwelling to the east along Cakers Lane.

In terms of emissions, this type of development is considered to be benign. The PV panels are static development and provide/generate electricity from a clean and renewable process. Concerns have been raised about the potential for emissions in the form of noise and electro-magnetic interference / frequency from the proposed ancillary equipment i.e. inverters/transformers.

In terms of noise emissions, the equipment during operation should not generate any significant audible sound apart from the inverter equipment. The inverter cabinets are fitted with cooling fans which generate a small amount of noise during the day whilst the solar farm is operating. However, the cabinets trap the majority of noise produced and solar farms only operate during the day.

In terms of electro-magnetic interference, there is no evidence to believe there would be any significant output of electromagnetic emissions from this development. Typically wind-farm cause interference issues for broadcast frequencies and telecommunications owing to line of sight issues. Such would not occur with a solar farm featuring equipment that sits below three metres in height.

The Council's Environmental Health Service has reviewed the information submitted and raise no concerns.

In terms of glint or glare for users of the A31, the applicant has stated that there is no risk of reflected sunlight for vehicles (or aeroplanes). The glass used to make the panels is not like window glass; it is a non-reflective blue glass designed to absorb as much daylight as possible to convert to electricity. It has a low level of reflectivity when compared to water, snow or window glass.

7. Impact on the local road network, access, and highway/public safety

The majority of traffic would be generated during the construction and, later, the decommissioning phases. A total of 300 HGVs are required to deliver the construction equipment and infrastructure to site and 330 HGVs expected during the decommissioning phase. Deliveries will be scheduled to arrive between 8am and 6pm Monday to Friday and 8am to 1pm on Saturday. The total construction period is typically 10-12 weeks. The site would generate very little operational traffic but be restricted to maintenance visits including:

2-3 grass cuts a year if sheep grazing does not keep grass sufficiently short 2-4 visits per year to wash panels – this will involve bringing in a water cube on the back of

a flatbed 4x4 On average 12 visits per year to undertake maintenance activities – this will be in a transit

van or 4x4 type vehicle 4 visits per year to read the electricity meter – this will be in a transit van or 4x4 type

vehicle

The County Highway Authority (CHA),whilst not lodging a formal objection did raise two concerns; the impact on the existing access in terms of sufficient visibility splays and, the impact the development may have on its own plans to provide an access onto the A31 at this point. However, this second point is an advisory note to make the applicant aware of what may happen in the future, but the first point is more immediate and required additional information from the applicant on whether the existing access is adequate.

The applicant subsequently submitted speed surveys and a report relating to the visibility splay when exiting onto Cakers Lane. This information has now addressed the concerns raised by the CHA over the existing access.

8. Impact on biodiversity

The presence of protected species is a material planning consideration that needs to be addressed prior to any permission being granted. The NPPF states that the planning system should contribute to and enhance the natural and local environment by minimising impacts on biodiversity and providing net gains in biodiversity where possible.

The application was accompanied by an Ecological Assessment which provides a sound assessment of the site’s ecological value. The County Ecologist has assessed the information provided and considers that in terms of habitats the site is minimally constrained and there appears to be scope to avoid impacts to any structured boundary habitat. Furthermore, the site offers little potential for supporting protected species and the County Ecologist has no overriding concerns in respect to the impact to habitats or protected species.

The applicant also provided a Landscape and Biodiversity Management Plan which sets out the management prescriptions for existing habitats as well as measures designed to enhance the site ecologically. The County Ecologist considers the measures within the document are sound and will result in enhanced and routinely maintained boundary features such as hedgerows and wildflower margins which will result in a net gain overall. The provision of bat boxes, a barn owl nest box and badger gates will also enhance this site. No objection has been raised but a condition has been recommended by the County Ecologist requiring that the development is implemented in accordance with the mitigation and enhancement measures detailed in the submitted ecological assessment and biodiversity management plan.

It is considered that such a condition is reasonable, relevant and is required to make the scheme acceptable.

9. Drainage and flood risk

Lines of solar panels can lead to an increase in surface run-off primarily because run-off falls from the panels in localised areas which can lead to small but distinct channels. In addition, post development it is likely that the rate of run-off will increase dramatically during a major rainfall event. Under these circumstances, the run-off will almost certainly exceed the soils natural infiltration rate, resulting in overland flows and potential off site flooding. This can be exacerbated by the lack of grass cover, which will take a considerable time to establish, particularly under the panel arrays.

In this context, the Council's Drainage consultant has assessed the development and initially raised an objection based on insufficient information demonstrating that the surface water run-off could be controlled on-site. Following prolonged discussions between the Council's Drainage consultant and the applicant's equivalent, a revised drainage strategy was submitted by the applicant detailing the measures to cater for run-off. The geology of the site comprises chalk bedrock overlain by clay and the ground conditions are relatively impermeable. Consequently, the surface water drainage solution is to locally attenuate and discharge at a controlled rate to the nearby unnamed stream that runs across the site and discharges into the Caker Stream to the west.

Subject to a condition being imposed requiring exact details, the Council's Drainage consultant believes that the development is now acceptable in drainage terms and raises no objection.

Response to Parish/Town Council Comments

The comments raised by Alton Town Council and East Worldham Parish Council (summarised earlier) raise material issues relevant to the determination of this solar farm proposal. The comments form a central part of this report and have been taken into account in reaching the officer's recommendation.

Conclusion

The key issue of significance remains the effect of the development upon landscape character and visual amenity, including the setting of The Hangers Way public right of way. The submitted LVIA adequately identified the locations/viewpoints which would be most effected and demonstrates the degree of those effects. Short term effects are largely inevitable. The reduction in the extent of site coverage by almost half has significantly reduced the impact on both issues. In addition, the proposed landscaping is comprehensive and would serve to robustly increase the effectiveness and capacity of boundaries to provide necessary screening.

In addition to the strong policy support and significant weight to which the environmental benefits of renewable energy benefits should be given, it is considered it relevant to place some weight on the temporary nature of the proposal, albeit for a period of 30 years.

Noting some of the concerns raised by third parties, the proposal would not weigh in favour of other forms of development on the site following the grant of this application or the decommissioning of the solar farm, owing to its temporary status, and would not represent a change of use of the land.

There are not considered to be any reasonably likely effects from pollution or nuisance that would have implications for the amenities of adjacent development or the living conditions of occupiers. Health concerns are not recognised for this type of development in national planning policies and are addressed by other legislature. It is considered that other matters, including surface water drainage and ecological effects are able to be addressed by relevant conditions.

Having carefully considered the views of consultees and third parties it is hereby recommended that this application is approved for the reasons and subject to the conditions set out below.

RECOMMENDATION

PERMISSION subject to the following conditions:

1 The development hereby permitted shall be begun before the expiration of three years from the date of this planning permission.Reason - To comply with Section 91 of the Town and Country Planning Act 1990

2 Prior to the use commencing on site, a detailed scheme of decommission shall be submitted to and approved in writing by the Local Planning Authority. The scheme shall include the removal of the solar farm and all associated equipment, cabinets and fencing together with the restoration of the site to agricultural use only. The scheme shall identify the time to be taken in such decommission, removal and restoration from the expiry of the planning permission or from the cessation of operation of the solar farm. Only the approved details shall then be implemented. Reason - To retain control over the long term operation and use of the land as the site lies predominantly in rural surroundings where development of an industrial/commercial character is not normally permitted.

3 The solar farm operator shall serve notice of the event in writing to the local planning authority within seven days of the day on which the solar farm is first connected to the distribution grid or other consumer of electricity.Reason - To accord with the terms of the planning permission and to allow the Council to record the commencement of its use.

4 This permission expires 30 years from the day on which the solar farm is first connected to the distribution grid or other consumer of electricity. At the end of that period the approved scheme of decommission, removal and restoration shall be implemented as approved.Reason - To retain control over the use of the land which lies in a rural setting amongst an agricultural land use.

5 At such time as the solar farm, having been connected to the distribution grid, has not produced electricity to the distribution grid during a continuous six month period, the approved scheme of decommission, removal and restoration shall be implemented as approved.Reason - In the interests of the visual amenity of the area and to prevent the retention of a development in the countryside that is no longer providing significant benefits in sustainability terms which would not be justified having regard to the goals in the National Planning Policy Framework.

6 With the exception of the motion triggered security light on the DNO substation, at no time shall any external lighting be installed or operated on the site, unless otherwise approved in writing by the Local Planning Authority.Reason - To protect the character and visual amenities of the area, including the setting of the South Downs National Park, and the amenities of adjacent residential occupiers from light pollution

7 Solar panels and frames and inverters, transformers, communications and DNO structures on the site shall be constructed and installed as shown on the approved drawings. No development shall take place until samples of the colours and finishes to the front and rear surfaces of the solar panels, and to the frames and structures set out above, have been submitted to and approved in writing by the local planning authority, and the solar panels, frames and inverter units shall be coloured and finished as approved. The approved colours and finishes shall be retained for the life of the development unless otherwise authorised in writing by the local planning authority.Reason - In the interests of visual amenity and landscape character and to mitigate the effect of the development upon them.

8 The development permitted by this planning permission shall be carried out in accordance with the approved Flood Risk Assessment (FRA) Wilsom Farm Solar Development, reference: 5001-UA007056-NER-05 dated 20 April 2015 and the following mitigation measures detailed within the FRA:

Limiting the surface water run-off generated by the 1 in 100 year plus 30% allowance for climate change critical storm so that it will not exceed the run-off from the undeveloped site and not increase the risk of flooding off-site.

Provision of surface water attenuation on site Further infiltration testing

The mitigation measures shall be fully implemented prior to occupation and subsequently in accordance with the timing / phasing arrangements embodied within the scheme, or within any other period as may subsequently be agreed, in writing, by the local planning authority.Reason - To prevent flooding by ensuring the satisfactory storage of/ disposal of surface water from the site.

9 Development shall proceed in accordance with the ecological mitigation and enhancement measures detailed within the Ecological Assessment (Hyder Consulting, April 2015) and Landscape and Biodiversity Management Plan (Hyder Consulting, April 2015) unless agreed in writing with the LPA, and with all mitigation and enhancement features permanently retained.Reason - To conserve and enhance biodiversity in accordance with the Wildlife & Countryside Act 1981, the NERC Act 2006, NPPF and with Policy CP21 of the East Hampshire District Local Plan: Joint Core Strategy.

10 Prior to the commencement of work, an Arboricultural Method Statement (AMS) and Tree Protection Plan (TPP) shall be submitted to, and approved in writing by the Local Planning Authority. The development shall be carried out in strict accordance with the agreed AMS and TPP.Reason - This is required to ensure the trees along the stream and around the boundaries are adequately protected during the construction phase of the development.

11 No development shall start on site until final details of the surface water drainage have been submitted to and approved in writing by the Planning Authority. Such details should include provision for all surface water drainage from parking areas and areas of hardstanding. The development works shall be carried out in accordance with the approved details before any part of the development is occupied and shall be retained thereafter.Reason - To ensure adequate provision for drainage to prevent surface water run-off off-site.

12 All hard and soft landscape works shall be carried out in strict accordance with the approved planting plan (drawing no. FIG 1 dated 25/09/15) and in accordance with the recommendations of the appropriate British Standards or other recognised codes of good practice. These works shall be carried out prior to the occupation of any part of the development unless otherwise first agreed in writing by the Planning Authority. Any trees or plants which, within a period of 5 years after planting, are removed, die or become seriously damaged or defective, shall be replaced as soon as is reasonably practicable with others of species, size and number as originally approved unless otherwise first agreed in writing by the Planning Authority.Reason - To ensure the provision and establishment of a reasonable standard of landscape in accordance with the approved designs.

13 No development shall take place on site until a landscape management plan, including a maintenance schedule indicating proposals for the long-term management of landscape areas and planting of the boundaries, (as approved under condition 12) has been submitted to and approved in writing by the Planning Authority. The landscape/open space shall thereafter be managed in accordance with the approved details.Reason - To ensure that due regard is paid to the continuing enhancement and maintenance of amenity afforded by landscape features of communal, public, nature conservation, or historical significance.

14 Prior to the commencement of any development on-site, final details of the position of the inverters, transformers, control/communications room and switchgear substations at the site entrance, together with a planting plan to help screen their presence, shall be submitted to and approved in writing by the Local Planning Authority. Only the approved details shall then be implemented with the agreed planting plan details implemented prior to occupation of the development. Reason - To ensure a satisfactory appearance from the public realm (Cakers Lane) and minimise the visual impact of these structures beyond the site.

15 The development hereby permitted shall be carried out in accordance with the following approved plans and particulars:

Application form Planning Design and Access StatementLandscape and Visual AssessmentFlood Risk Assessment dated 20 April 2015Access Study, (including Axiom's speed survey dated 20/08/2015)Revised Drainage Strategy dated 22 July 2015Statement of Community Involvement

Construction Decommissioning and traffic Management Method StatementAgricultural Land Classification AssessmentCultural Heritage Desk-Based AssessmentLandscape and Biodiversity Management PlanEcological AssessmentGeophysical SurveyExternal Finishes for Maes Bach Solar FarmWSF-02 - Location plan (amended 06/10/2015)WSF-01-Rev 6 - Layout planCCTV-01 - CCTV Pole detailsCSR-01 - substation details CB-01 - Communications Building DetailsDeer fence detailsSite-Aux-Transformer-Plans and Elevations - Sheet 1TD-01 - Transformer details TYP-P-E-4L - Panels elevation 4 landscape ID-01 - Inverter DetailsDNO-01 - DNO building details SB-01 - Storage Building detailsFig 1 - Planting planStatement of Community Involvement dated Jan 2015Construction, Decommissioning and Traffic Management Method Statement dated January 2015Ground Investigation Report dated July 2014

Reason - To ensure provision of a satisfactory development

Informative Notes to Applicant:

1 In accordance with paragraphs 186 and 187 of the NPPF East Hampshire District Council (EHDC) takes a positive and proactive approach and works with applicants/agents on development proposals in a manner focused on solutions by:

offering a pre-application advice service,

updating applications/agents of any issues that may arise in the processing of their application and where possible suggesting solutions, and,

by adhering to the requirements of the Planning Charter.

In this instance the applicant; was provided with pre-application advice, the applicant was updated of any issues after the initial site visit, the application was amended on two occasions to make the

scheme acceptable.

CASE OFFICER: Nick Upton 01730 234232———————————————————————————————————————

SECTION 1 Item 01 Land to the North of Cakers Lane, East Worldham, Alton

Proposed layout plan