Planning for renewable energy in Wales: Phil Ward and Trevor Price look at some of the problems...

IF THE GOAL of sustainable development, as outlined by the Brundtland Commission in 1987, (1) is to be realised, then those of us that are rich, in terms of meeting our basic needs, must prune our profligate and unsustainable lifestyles, so as to achieve a fairer balance for all. A key part

Although most of the UK's indigenous renewable energy industries are still fledgling in nature, there is increasing national and international pressure to see more renewable energy developments. For example, in its White Paper Our Energy Future--Creating a Low Carbon Economy the UK Government set out its 50-year strategy of increasing the development and subsequent use of renewable energy while simultaneously encouraging increased levels of energy efficiency. (2)

One key practical measure highlighted in the White Paper was the reform of the UK planning system to reduce existing barriers to renewable energy generation. This echoes the Planning Green Paper's assertion that 'the planning process is too often perceived to be a set of roles aimed at preventing development rather than making sure good development goes ahead'. (3) Furthermore, 'there seems to be a haze of confusion in most planning authorities concerning the national, as well as the global, importance of environmental sustainability and how local communities should play their part in achieving these mandatory national targets'. (4)

But the planning system in the UK is charging--not least with respect to renewable energy development. The Office of the Deputy Prime Minister has recently issued a consultation draft of a new Planning Policy Statement (PPS) 22: Renewable Energy. And in Wales the revision of Technical Advice Note (TAN) 8: Renewable Energy (5) offers a timely opportunity to unlock the potential of Welsh renewable energy sources and so deliver multiple benefits to local communities.

The concept of sustainable development calls not only for the sustainable use of natural resources, but also for public participation in decision-making processes--especially those of local government. In the UK, the establishment of devolved government bodies in Scotland, Wales, and Northern Ireland offers, now more than ever, the opportunity to develop a more transparent system of local governance, one that encourages increased public participation in the machinery of government--including the renewable energy development decision-making process.

TAN8 sets out the process through which local authorities should go in order to reach decisions on proposals for renewable energy developments. (5) The latest version, published in 1996, before responsibility for planning administration was devolved to the National Assembly for Wales, is currently under review by a Welsh-based panel of experts, who are 'best placed to take account of particular regional circumstances'. (6)

Making the right decision

To understand better the views of those who use the Welsh planning system, a survey of 100 stakeholders was undertaken during spring 2003. These were people who were either currently, or have recently been, involved in the Welsh renewable planning system, as decision-makers, developers, environmental community groups, or statutory consultees.

The survey consisted of a questionnaire, with some follow-up interviews. It found that there was general support for the current system, with, contrary to popular belief, over half of the respondents indicating that they found the Welsh planning system helpful in progressing renewable energy projects, while 35 per cent found it either a hindrance or not at all helpful.

By far the greatest barrier to renewable energy developments gaining planning permission noted by respondents was the lack of clear planning guidance from central government about what sort of developments should be allowed. Other barriers included the excessive time and costs involved in progressing planning applications--especially those requiring the extra work involved in preparing an environmental impact assessment. Sadly, it also seemed apparent that local authority planning officers sometimes seemed unaware of some of the important issues surrounding renewable energy technologies--the latest technological developments, for example. Other hindrances were the perceived lack of:

* localised renewable energy development targets, meaning that local authorities had no tangible targets to work with;

* clarity in the planning application process, which gave rise to mistrust and uncertainty;

* clear planning guidance targeted at (especially less financially robust) renewable energy developers;

* accessible and easily understandable publicly available information regarding the planning application process and the proposed development;

* widespread third-party involvement;

* ability to make applications in an incremental streamlined or 'fast track' way, which was noted to be especially important for small-scale projects; and

* a thorough consultation process that enabled a fair and inclusive airing of all opinions, rather than just those of a vocal minority.

Among suggested improvements to the system were, perhaps unsurprisingly, measures to reduce delay and bureaucracy in the decision-making process. Elongated time lags of months (and even years in some cases) can lead to feelings of despondency and resignation among participants. Other suggested ideas for refinement included determining application decisions more locally; making the process more transparent, especially to local residents; and ensuring that local decisions were made in line with national government targets.

If such national targets for renewable energy are to be met, localised NIMBY attitudes must be overcome. One way of achieving this may be to give local authority planning officers sufficient information and knowledge to develop a strong and unbiased case for or against proposed energy developments. Currently, planning officers feel increasingly unable to counteract the ever more complex arguments put forward by well informed and well trained opposition groups. Localised renewable energy targets would also help bolster the planning officer's case, in that advertised tangible targets would have to be met by all local authorities and so would become an important factor in all planning decision-making.

The majority of respondents thought that there was sufficient information available to enable people to be involved in local planning issues. However, just over 25 per cent indicated that improved awareness and education about the planning process would encourage more people to participate. One respondent went as far as stating that 'the present planning system pays lip service to real consultation'. To encourage wider community participation in the planning process, it was suggested that not just more, but more useful information should be provided by local authorities, and that facilitation for participation should be provided from the outset.

There was a mixed response to questions about third-party rights in the planning process. Some respondents (about 20 percent) felt that the level of third-party rights within the current system is sufficient. And 16 per cent of respondents suggested that only local communities should have rights in, and also gain benefits from, proposals that would potentially affect them. Other respondents suggested that third parties should have the right of appeal against approvals, especially those which are against existing development plans. However, it was also noted that local authority members are democratically elected to make decisions on behalf of their communities and that any extra third-party rights of consultation would create unacceptable delays in the decision-making process.

A better step forward

Planning decisions tend towards the conservative rather than the innovative, and they are sometimes driven by the misguided rather than the informed. (4) But for real sustainability, enabling better involvement in the decision-making process is crucial. In practice this means:

* the National Assembly for Wales setting localised and mandatory renewable energy targets for each local authority;

* improved provision of accessible information on how people can engage in the planning system and that is understandable to lay people;

* provision of training on planning issues, especially targeted at coucillors; and

* better facilitation and public relations activities provided by the (neutral) local authority at the outset of proposed projects.

Notes

(1) Our Common Future. World Commission on Environment and Development (Brundtland Commission). Oxford University Press, Oxford, 1987

(2) Our Energy Future--Creating a Low carbon Economy. Cm 5761. Department of Trade and Industry. The Stationery Office, London, 2003. Available at http://www.dtigov.uk/energy/ whitepaper/

(3) Planning: Delivering a Fundamental Change, Planning Green Paper, Department for Transport, Local Government and the Regions, London, 2001. Section 2. Available at http://www.planning.odpm.gov.uk/consult/ greenpap/02.htm

(4) T.J. Price: "Is renewable energy planning blowing in the wind?'. Local Government Studies, 2003, 29 (4), (in production)

(5) Technical Advice Note (TAN) 8: Renewable Energy. Welsh Office. The Stationery Office, Cardiff, 1996

(6) G.W. Thomas: An Environmental Assessment of Visual and Cumulative Impacts Arising from Wind Farm Developments: a Welsh Planning Policy Perspective. University of Wales Aberystwyth, 1996

Phil Ward and Dr Trevor Price are with the School of Technology at the University of Glamorgan in Pontypridd.