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commonslibrary.parliament.uk

Research Briefing

8 November 2023

Felicia Rankl

Planning for solar farms

Summary

Background: Targets and statistics

Planning policy for solar farms in England

Planning policy for solar farms in the devolved administrations

Impact of solar farms on farming and biodiversity

Barriers to the expansion of solar power

Planning for solar farms

Commons Library Research Briefing, 8 November 2023

Number 7434

Image Credits

https://www.pexels.com/photo/solar

-panels-on-a-green-field-4148472/

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should not rely upon it as legal or professional advice, or as a substitute for

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misstatements contained herein. You should consult a suitably

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professional if you require specific advice or information. Read our briefing

‘Legal help: where

to go and how to pay’ for further information about

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Planning for solar farms

Commons Library Research Briefing, 8 November 2023

Contents

Summary 4

1 Background: Targets and statistics 6

1.1 Government targets for solar power 6

1.2 Trends in solar power capacity in the UK 8

1.3 Location of solar farms in the UK 10

1.4 Public support for solar farms in the UK 12

2 Planning policy for solar farms in England 13

2.1 Small-scale solar farms (up to 50 MW) 14

2.2 Large-scale solar farms (over 50 MW) 16

2.3 Planning application statistics 19

2.4 Environmental and habitats impacts 21

3 Planning policy for solar farms in the devolved administrations 23

3.1 Wales 23

3.2 Scotland 25

3.3 Northern Ireland 27

4 Impact of solar farms on farming and biodiversity 29

4.1 Use of agricultural land for solar farms 29

4.2 How much farmland is used for solar power? 30

4.3 Use of land for both agricultural production and solar power 33

4.4 Impact of solar farms on biodiversity 34

4.5 Committee reports and government response 36

5 Barriers to the expansion of solar power 38

5.1 Grid capacity and connections 38

5.2 Government response 40

/41

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ResearchBriefingPlanningforsolarfarms8November2023ByFeliciaRanklSummary1Background:Targetsandstatistics2PlanningpolicyforsolarfarmsinEngland3Planningpolicyforsolarfarmsinthedevolvedadministrations4Impactofsolarfarmsonfarmingandbiodiversity5Barrierstotheexpansionofsolarpowercommonslibrary.parliament.ukNumber7434PlanningforsolarfarmsImageCreditshttps://www.pexels.com/photo/solar-panels-on-a-green-field-4148472/DisclaimerTheCommonsLibrarydoesnotintendtheinformationinourresearchpublicationsandbriefingstoaddressthespecificcircumstancesofanyparticularindividual.WehavepublishedittosupporttheworkofMPs.Youshouldnotrelyuponitaslegalorprofessionaladvice,orasasubstituteforit.Wedonotacceptanyliabilitywhatsoeverforanyerrors,omissionsormisstatementscontainedherein.Youshouldconsultasuitablyqualifiedprofessionalifyourequirespecificadviceorinformation.Readourbriefing‘Legalhelp:wheretogoandhowtopay’forfurtherinformationaboutsourcesoflegaladviceandhelp.ThisinformationisprovidedsubjecttotheconditionsoftheOpenParliamentLicence.SourcesandsubscriptionsforMPsandstaffWetrytousesourcesinourresearchthateveryonecanaccess,butsometimesonlyinformationthatexistsbehindapaywallorviaasubscriptionisavailable.WeprovideaccesstomanyonlinesubscriptionstoMPsandparliamentarystaff,pleasecontacthoclibraryonline@parliament.ukorvisitcommonslibrary.parliament.uk/resourcesformoreinformation.FeedbackEveryeffortismadetoensurethattheinformationcontainedinthesepubliclyavailablebriefingsiscorrectatthetimeofpublication.Readersshouldbeawarehoweverthatbriefingsarenotnecessarilyupdatedtoreflectsubsequentchanges.Ifyouhaveanycommentsonourbriefingspleaseemailpapers@parliament.uk.Pleasenotethatauthorsarenotalwaysabletoengageindiscussionswithmembersofthepublicwhoexpressopinionsaboutthecontentofourresearch,althoughwewillcarefullyconsiderandcorrectanyfactualerrors.Youcanreadourfeedbackandcomplaintspolicyandoureditorialpolicyatcommonslibrary.parliament.uk.IfyouhavegeneralquestionsabouttheworkoftheHouseofCommonsemailhcenquiries@parliament.uk.2CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsContentsSummary41Background:Targetsandstatistics61.1Governmenttargetsforsolarpower61.2TrendsinsolarpowercapacityintheUK81.3LocationofsolarfarmsintheUK101.4PublicsupportforsolarfarmsintheUK122PlanningpolicyforsolarfarmsinEngland132.1Small-scalesolarfarms(upto50MW)142.2Large-scalesolarfarms(over50MW)162.3Planningapplicationstatistics192.4Environmentalandhabitatsimpacts213Planningpolicyforsolarfarmsinthedevolvedadministrations233.1Wales233.2Scotland253.3NorthernIreland274Impactofsolarfarmsonfarmingandbiodiversity294.1Useofagriculturallandforsolarfarms294.2Howmuchfarmlandisusedforsolarpower?304.3Useoflandforbothagriculturalproductionandsolarpower334.4Impactofsolarfarmsonbiodiversity344.5Committeereportsandgovernmentresponse365Barrierstotheexpansionofsolarpower385.1Gridcapacityandconnections385.2Governmentresponse403CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsSummaryThegovernmentsetalegallybindingtargettoreducetheUK’sgreenhousegasemissionsby100%by2050,comparedwith1990levels.Thisisknownasthe‘netzerotarget’.Tomeetthistarget,thegovernmenthassettheaimof“afullydecarbonised,reliableandlow-costpowersystemby2035”.Thegovernmentsaidafullydecarbonisedpowersystemwouldbe“composedpredominantlyofwindandsolar”.Thegovernmentintendstoachieveafivefoldincreaseinsolarpowerby2035(fromacapacityof15GWto70GW).PlanningconsentforsolarfarmsSolarfarmsusuallyrequireplanningpermission.Thesizeofasolarfarmwilldeterminewhichbodydecidestheapplication.Forexample,inEngland:•Solarfarmswithageneratingcapacitybelow50megawatts(MW)needplanningpermissionfromthelocalplanningauthority(LPA).•Solarfarmswithageneratingcapacityabove50MWneeddevelopmentconsentfromtheSecretaryofStateforEnergySecurityandNetZero,becausetheyarenationallysignificantinfrastructureprojects’(NSIPs).Planningisadevolvedmatter.Inthedevolvedadministrations,thesizeofasolarfarmwillalsodeterminewhethertheLPAorthegovernmentdecideanapplication.However,thresholdsdifferacrosstheUK.Policiesforsmall-scalesolarfarms(below50MW)LPAsinEnglandwilldecideapplicationsforsmaller-scalesolarfarmsinlinewiththeirlocalplanandthenationalplanningpolicies.GovernmentguidanceadvisesLPAstoapproverenewableenergydevelopmentswhose“impactsare(orcanbemade)acceptable”.Governmentguidancestatesthatthere“arenohardandfastrulesabouthowsuitableareasforrenewableenergy[developments]shouldbeidentified”.ItadvisesLPAstoconsidertheirpotentialimpactsonthelocalenvironmentandtheviewsoflocalcommunitieswhenidentifyingsuitablesites.However,governmentguidancegenerallyguidesdevelopmentawayfromthe“bestandmostversatile”agriculturallandandstatesthatmanyrenewableenergydevelopmentsarenot“appropriate”developmentforgreenbeltland.4CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsPoliciesforlarge-scalesolarfarms(above50MW)TheSecretaryofStateforEnergySecurityandNetZerowilldecideapplicationsforlarge-scalesolarfarmsinlinewithNationalPolicyStatements.Thegovernmentconsultedonupdatestoenergy-relatedNationalPolicyStatementsin2021andonfurtherrevisionsin2023.TheupdatedNationalPolicyStatementwouldseta“presumptioninfavourofgrantingconsenttoapplicationsforenergyNSIPs”.Itwouldalsoadvisethatsolarfarmsshouldbesitedonpreviouslydevelopedandnon-agriculturalland.However,itwouldnotprohibitsitingsolarfarmsonagriculturalland.LanduseforsolarfarmsSolarfarmsarenotevenlydistributedacrosstheUK.43%ofground-mountedinstallations(thathaveacapacityofatleastonemegawatt)thatarealreadyoperationalorareawaiting/underconstructionarelocatedintheSouthEastandSouthWestofEngland.Itisnotpossibletocalculatehowmuchlandisusedforsolarfarmsandhowmuchofdifferenttypesoflandareused.Someorganisations,suchasthecountrysidecharityCPRE,haveexpressedconcernthat“valuablefarmland”isoften“thelocationofchoiceforsolardevelopments”.CPREhassaiditis“essential”topreserveagriculturallandforfoodproduction.Renewableenergygroups,suchasSolarEnergyUK,havearguedthat“solarfarmsposenothreattotheUK’sfoodsecurity”(PDF).Theyalsopointtothemulti-functionaluseofland,forexample,grazingsheeponsolarfarms,tohighlightthatsolarpowerandfarmingarenotnecessarilymutuallyexclusive.BarrierstothedeploymentofsolarpowerAsofJune2023,thecumulativeinstalledcapacityofsolarsystemsintheUKwas15gigawatt(GW).Thegovernmentintendstoachieveanalmostfivefoldincreaseinsolarpowerby2035(atotalgeneratingcapacityof70GW).TheEnvironmentalAuditCommittee,aCommonsSelectCommittee,saidmeetingthistargetwouldbe“challenginggivenexistingbarriersandcurrentratesofdeployment”(PDF).Thegovernment’sadvisoryClimateChangeCommitteealsosaidcurrentdeploymentrateswere“significantlyofftrack”.Twoofthemainbarrierstotheexpansionofsolarpowertheyidentifiedweregridcapacityanddelaysinsecuringgridconnections.TheEnvironmentalAuditCommitteesaid“upgradingtheelectricitygridisacrucialprerequisitetotheachievementofnetzero”(PDF).5CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms1Background:TargetsandstatisticsSolarfarms(alsoknownassolarparksorpowerstations)areinstallationsofmultiplesolarphotovoltaic(PV)panels.Theygenerateelectricityatalargescaletofeedintothegridandtosupplypowertodomesticandcommercialconsumers.Theydifferfromsmall-scaleinstallations,whichareusedbyhouseholds,businessesorcommunitiestogenerateelectricitydirectlyfortheirconsumption.1Mostsolarfarmsconsistofground-mountedpanelswhicharesitedonlandratherthanrooftops.Unlikerooftoppanels,ground-mountedpanelscanbeplacedawayfromshadeandmovedsotheyareattherightangletoharvestsunlightthroughoutthedayandthroughouttheseasons.21Howdosolarpanelsgenerateenergy?Solarpanelsaremadeupofphotovoltaic(PV)cellsthatcanconvertenergyfromthesunintopower.Eachcellismadeupoftwoslicesofsemi-conductingmaterial(usuallysilicone).Whenexposedtosunlight,thesecellsproduceanelectricchargethatisthenconvertedtoelectricity.Solarthermalisalsoanotherwaytogenerateenergyusingsunlight.Itusesenergyfromthesuntoheatwater(orotherfluids).Solarthermalsystemsareusuallyinstalledatsmallerscalestoprovidehotwaterand/orspaceheatingfordomesticuse.Atalargerscale,theycanalsobeusedinpowerstations.31.1GovernmenttargetsforsolarpowerIntheClimateChangeAct2008,theUKGovernmentsetalegallybindingtargettoreduceitsgreenhousegasemissionsby80%by2050,comparedwith1990levels.4In2019,theUKGovernmentraisedthe80%targettoa100%targetby2050.Thisisreferredtoasthenetzerotarget.51NationalGrid,Howdoessolarpowerwork?Solarenergyexplained,lastupdatedMay20232RenewableEnergyHub,GroundMountedSolarPanelSystems,April2023;RenewableEnergyHub,EverythingYouNeedtoKnowAboutSolarFarmRequirements,April20233NationalGridESO,Howiselectricitygeneratedusingsolar?,undated[accessed23August2023];NationalGrid,Howdoessolarpowerwork?Solarenergyexplained,lastupdatedMay20234ClimateChangeCommittee(CCC),Alegaldutytoact,undated[accessed23August2023]5ClimateChangeAct2008;ClimateChangeAct2008(2050TargetAmendment)Order20196CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsForfurtherinformationabouttheUKGovernment’stargets,seetheLordsLibrarybriefingClimatechangetargets:theroadtonetzero?.Thedevolvedadministrationshavealsosetlegallybindingtargetstoreducetheirgreenhousegasemissionstonetzerocomparedwith1990levels:WalesandNorthernIrelandfor2050,6andScotlandfor2045.7A‘fullydecarbonised’powersystemby2035Oneofthemainwaysinwhichthegovernmentproposestomeetitsnetzerotargetisbyreducingitsrelianceonfossilfuelsandincreasingtheuseofrenewableandlow-carbonenergysources,suchaswindandsolarpower.8InitsEnergyWhitePaper(December2020)andNetZeroStrategy(October2021),thegovernmenthassettheaimof“afullydecarbonised,reliableandlow-costpowersystemby2035”.Itsaidthat“alow-cost,net-zeroconsistentelectricitysystemismostlikelytobecomposedpredominantlyofwindandsolar”,althoughitnotedthatthese“intermittentrenewables”wouldneedtocomplementedwithtechnologiesthatcangeneratepowerflexibly,suchasnuclearandgaswithcarboncaptureandstorage.9Tomeetitssixthcarbonbudget(a78%reductioninemissionscomparedto1990levelsby2035),thegovernment’sadvisoryClimateChangeCommittee(CCC)projectedthatsolarpowerwouldneedtoprovide60terawatthours(TWh)ofenergyby2035.Itestimatedthatanadditional3gigawatt(GW)ofsolarpowerwouldneedtobeinstalledperyeartoreachthatlevel.1070gigawatt(GW)ofsolarpowerby2035Oneofthegovernment’saimsisto“rampup”thedeploymentofrooftopandground-mountedsolarsystemstoachieveafivefoldincreaseinsolarpowerby2035(from14GWin2022to70GW).11Thegovernmentsaiditwouldseek:•thewidespreaddeploymentofrooftopsolaroncommercialandindustrialproperties.•thelarge-scaledeploymentofground-mountedsolaronbrownfield,industrial,andlow-andmedium-gradeagriculturalland.126WelshGovernment,Climatechangetargetsandcarbonbudgets,lastupdatedNovember2022;ClimateChangeAct(NorthernIreland)20227ClimateChange(Scotland)Act2009,asamendedbytheClimateChange(EmissionsReductionTargets)(Scotland)Act2019;ScottishGovernment,Reducinggreenhousegasemissions,undated8DESNZandBEIS,NetZeroStrategy:BuildBackGreener,lastupdatedApril2022.Itbuildsonthegovernment’sten-pointplanforagreenindustrialrevolution(November2020).9DESNZandBEIS,Energywhitepaper:Poweringournetzerofuture,December2020;DESNZandBEIS,NetZeroStrategy:BuildBackGreener,lastupdatedApril202210CCC,SixthCarbonBudget:theUK’sPathtoNetZero,December2020,p.13511DESNZandBEIS,Britishenergysecuritystrategy,lastupdatedApril2022;DESNZ,PoweringupBritain,lastupdatedApril202312DESNZ,PoweringupBritain:EnergySecurityPlan(PDF),lastupdatedApril2023,p.367CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsInlinewithrecommendationsmadebyChrisSkidmoreMPintheindependentreviewofnetzero(January2023),thegovernmentalsosaiditwouldsetupagovernment–industrysolartaskforcein2023toachieve70GWofsolarpowerby2035.Italsosaiditwouldpublisharoadmapin2024,settingoutstep-by-stepplansforfurtheringthedeploymentofsolarpower.13Thegovernmenthassaidthatan“effectiveplanningsystem”wasneededtomaximisethedeploymentofrenewableenergyandsolarpower.Toachieveitsambitionofafivefoldincreaseinsolarpowerby2035,thegovernmentsaiditwas“committedtoensuringfaster,fairerandmoreeffectiveplanningregimes”.14Forfurtherinformationaboutthecurrentplanningsystemandproposedreforms,seesection2ofthisbriefing.2What’sthedifferencebetweenwattsandwatt-hours?Awatt(W)anditsmultiples(suchasmegawatt,MW,andgigawatt,GW)isaunitofpower.Itmeasurestheamountofenergygeneratedorconsumedperunitoftime.Wattscanbeusedtomeasureinstalledcapacityofasolarsystem,thatis,themaximumamountofpoweritcangenerateataparticulartimeunderidealconditions(indirectsunlightandattherightangle,amongotherfactors).Thehigherthewattageofasolarsystem,themorepoweritcangenerateunderthesameconditions.Awatt-hour(Wh)isaunitofenergy.Itmeasuresthetotalamountofenergythatisgeneratedwithinacertainperiod,usuallyanhour.151.2TrendsinsolarpowercapacityintheUKAsshowninthechartbelow,thecumulativeinstalledcapacityofsolarpowerintheUKhasgrownsubstantiallysince2010.InMay2023,around1.3millionsolarsystemswithacumulativecapacityof15.1GWhadbeeninstalledintheUK(upfrom30megawatts(MW)or0.03GW,inJanuary2010).16Thisincludessolarsystemsofanysize,bothsmall-scalesolarsystemsthatareinstalledbyhouseholdsfortheirdirectconsumptionandlarge-scalesolarfarms.Italsoincludesbothrooftopandground-mountedsolarinstallations.13DESNZandBEIS,IndependentReviewofNetZero(SkidmoreReview),January2023;DESNZ,IndependentReviewofNetZero:Governmentresponse,March2023,recommendation2614DESNZ,PoweringUpBritain,lastupdatedApril202315EnergySavingsTrust,Yourguidetosolarpanels(PDF),July2023;TheEcoExperts,SolarPanelOutput:HowMuchElectricityDoTheyProduce?,lastupdatedFebruary202316DESNZ,Solarphotovoltaicsdeployment,lastupdatedJuly2023[accessed23August2023]8CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsCumulativeinstalledcapacityofsolarpower(inGW)intheUKCumulativeinstalledcapacitybyinstallationsofdifferentsizes14>25MW12105MWto52MW8650kWto5MW42<50kW02012201420162018202020222010Source:DESNZ,Solarphotovoltaicsdeployment,lastupdatedJuly2023[accessed23August2023]Asshowninthechartabove,thegrowthincumulativeinstalledcapacityofsolarpowerintheUKhasbeenmuchslowersince2017comparedwithpreviousyears.Therisepriorto2017wasmainlydrivenbysubsidiesprovidedthroughtheFeed-in-TariffschemeandtheRenewableObligationscheme.17Followingareductioninsubsidies,thegrowthsloweddown:•Between2013and2017,around513,000newsolarsystemswithacumulativeinstalledcapacityof11GWofpowerwereinstalled.•Bycomparison,between2018and2022,around323,000newsolarsystemswithacumulativeinstalledcapacityof1.8GWwereinstalled.18TheLibrarybriefing,ContractsforDifferenceScheme,providesinformationonthecurrentfundingschemesforrenewableenergydevelopments.ElectricitygenerationfromsolarpowerIn2022,electricitygenerationfromsolarphotovoltaicsamountedto13.2TWh.Thiswasaround10%ofrenewableelectricity,and4%oftotalelectricity,generatedintheUK.19ForfurtherinformationabouttheUK’senergysupplymix,seetheLibrarybriefing,Introductiontothedomesticenergymarket.17Ofgem,Feed-inTariffs(FIT),undated[accessed23October2023];Ofgem,RenewablesObligation(RO),undated[accessed23October2023]18DESNZ,Solarphotovoltaicsdeployment,lastupdatedJuly2023[accessed23August2023]19DESNZ,EnergyTrends:UKrenewables,Renewableelectricitycapacityandgeneration(ET6.1-quarterly)(Excel),lastupdatedSeptember2023[accessed13September2023]9CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms1.3LocationofsolarfarmsintheUKMostlarge-scalesolarsystems(thathaveacapacityofatleast1MW)intheUKareground-mounted(95%;1,129systems).Only5%(60systemswithacapacityofatleast1MW)areinstalledonrooftops.20Thesefiguresdonotincludesmall-scalesolarsystems(thathaveacapacityupto1MW)thatareinstalledbyhouseholdsorbusinesses,usuallyfortheirdirectconsumption.Thedistributionofground-mountedsolarfarmsintheUKwithacapacityofatleast1MWisshowninthemapbelow.Source:DepartmentforEnergySecurityandNetZero(DESNZ),RenewableEnergyPlanningDatabase:quarterlyextract,RenewableEnergyPlanningDatabase(REPD):July2023,lastupdatedAugust2023Note:Overlappingcirclesappeardarkerandindicatemultiplesolarfarmsinthesamelocation.2083%(419)ofthelarge-scalesolarinstallationsthatareunder/awaitingconstructionareground-mounted,and17%(86)havebeeninstalledonrooftops.10CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsOftheground-mountedsolarfarmsthatareeitheroperationalorhavebeengrantedplanningpermissionandareunder/awaitingconstruction,21%arelocatedintheSouthWestofEnglandand15%intheSouthEastofEngland.ThisisfollowedbytheEastofEngland,wherearound13%ofthesesolarfarmsaresited,andtheEastMidlands,also13%.219%arelocatedinWales.TherearefewersolarfarmsinthenorthernregionsofEnglandandinScotlandandNorthernIreland,whereweatherpatternsarelesssuitedtosolarpower.22ThedistributionofsolarfarmsandinstalledcapacityineachregionoftheUKisshowninthetablebelow.43%ofsolarfarmsareintheSouthWestandSouthEastIncludesoperationalsolarfarmsandthoseunder/awaitingconstructionRegionNumberPercentTotalcapacity(inMW)SouthWest44028.4%4,129SouthEast22914.8%3,138Eastern20213.1%3,452EastMidlands19312.5%2,572Wales1409.0%1,232WestMidlands1056.8%1,670Scotland624.0%835NorthWest583.7%1,436YorkshireandHumber573.7%352NorthEast342.2%656NorthernIreland231.5%276London20.1%53Total1,54719,832Source:DESNZ,RenewableEnergyPlanningDatabase:quarterlyextract,accessed31August2023Itisnotpossibletosayhowmuchlandisusedforsolarfarms,becausethegovernment’srenewableenergyplanningdatabasedoesnotrecordthetotalareaofeachsolarfarm.ThegovernmentestimatesthatatypicalsolarfarmrequiresbetweentwoandfouracresoflandforeachMWofoutput.Italsoestimatesthata50MWsolarfarmconsistingofaround100,000to150,000panelswillcoverbetween125and200acres.23Theamountoflandcoveredbyasolarfarmcanvarysignificantlydependingonthesiteandtheassociatedinfrastructure(forexample,whetheritisco-21Therenewableenergyplanningdatabasedoesnotcoverrenewableenergyprojectsthatdidnotrequireplanningpermissionbecauseofpermitteddevelopmentrights.Until2021,databaseonlyincludedprojectswithacapacityover1MW;since2021,italsocoversprojectswithacapacityover150kW.Thefollowinganalysisfocusesonsolarsystemswithageneratingcapacityabove1MW.22YaleCentreforBusinessandtheEnvironment,Agrivoltaics:ProducingSolarEnergyWhileProtectingFarmland,October202123BEIS,DraftNationalPolicyStatementforRenewableEnergyInfrastructure(EN-3)(PDF),September2021,paragraph2.47.211CommonsLibraryResearchBriefing,8November2023Planningforsolarfarmslocatedwithabatteryenergystoragesystem),however.Theamountofspacetakenupbypanelsisalsoexpectedtodecreaseovertime,astheefficiencyofsolarPVtechnologyincreases.1.4PublicsupportforsolarfarmsintheUKThemajorityofrespondents(88%)surveyedbytheDepartmentforEnergySecurityandNetZero(DESNZ)inspring2023expressedgeneralsupportfortheuseofsolarpowerintheUK.However,onlyaroundhalf(54%)ofthosesurveyedsaidtheywouldsupportadevelopmentintheirlocalarea.24TheresultsofthesurveyinthedifferentpartsoftheUKareshowninthechartbelow.SupportforonshoresolarfarmsintheUK,May2023GeneralsupportforsolarfarmsSupportforsolarfarminlocalarea89%82%89%84%53%56%57%47%EnglandWalesScotlandNorthernIrelandSource:DESNZ,DESNZPublicAttitudesTracker:Spring2023,DESNZPublicAttitudesTracker:Spring2023–Crosstabulations(Excel),June2023[accessed13September2023]Therefore,broadtrendsinpublicattitudestowardssolarpowerdonotalwaysreflectcommunity-levelsupportforindividualprojects.InevidencesubmittedtotheEnvironmentalAuditCommittee,developershighlightedthatalackofpublicacceptancecansometimesposeabarriertodevelopments.25Thegovernmentalsonotesthatlocaloppositiontoproposedsolarfarmscanleadtodelaysinplanningdecisionsandlegalchallenges.Thiscanincreasethecostofprojectsand,insomecases,resultinprojectsbeingabandoned.26Campaigngroupsformedinoppositiontosolarfarmsintheirlocalareacitetheuseof“inappropriatesites”,suchasagriculturallandorlandscapesofhighenvironmentalorheritagevalue,asthereasonfortheiropposition.2724DESNZ,DESNZPublicAttitudesTracker:Spring2023,June2023[accessed13September2023]25EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0057[Lightsourcebp]26EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0063[BEIS,nowDESNZ]27EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0015[MallardPassActionGroup];EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0051[SayNotoSunnicaActionGroup]12CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms2PlanningpolicyforsolarfarmsinEnglandInstallingsolarfarmsusuallyrequiresplanningconsent.Dependingontheirsize,solarfarmswilleitherrequireconsentfromthelocalplanningauthority(LPA)orfromtheSecretaryofStateforEnergySecurityandNetZero.•Solarfarmswithageneratingcapacitybelow50megawatts(MW)needplanningpermissionfromtheLPA.•Solarfarmswithageneratingcapacityabove50megawatts(MW)areconsidered‘nationallysignificantinfrastructureprojects’(NSIPs)andrequiredevelopmentconsentfromtheSecretaryofState.28Thesizeofa50MWsolarfarmwillvarydependingontheproposedsiteandtheassociatedinfrastructure.Thegovernmentestimatesthatatypical50MWsolarfarmwillincludearound100,000to150,000panelsandcoverbetween125and200acres.However,assolartechnologybecomesmoreefficient,thesizeofasolarfarmcapableofgenerating50MWmightdecrease.293PermitteddevelopmentrightsforsolarPVsystemsInstallingsolarpanelsonarooforinagardenfor‘microgeneration’purposesdoesnotusuallyrequireplanningpermissionfromtheLPA,providedthatthepanelsarenotofunusualdesign.These‘permitteddevelopmentrights’coversolarpanelsupto50kWondomesticroofsandupto1MWoncommercialroofs.Theserightsarerestrictedforlistedbuildingsorindesignatedareas.30BetweenFebruaryandApril2023,thegovernmentconsultedonexpandingpermitteddevelopmentrightsforcommercialrooftopsolarinstallations.Itproposedremovingthecurrentthresholdof1MW.Italsoproposedmakingsolarcanopiesoncarparkspermitteddevelopment.31Thegovernmentsaidthatitwouldupdaterelevantregulationsbytheendof2023.3228Section15ofthePlanningAct200829DESNZ,DraftNPSEN-3-Renewableenergyinfrastructure(PDF),March2023,para3.10.830Section82oftheEnergyAct2004;Part14ofSchedule2oftheGeneralPermittedDevelopment(England)Order201531DLUHC,Permitteddevelopmentrights:supportingtemporaryrecreationalcampsites,renewableenergyandfilm-makingconsultation,February202332DESNZ,PoweringupBritain:EnergySecurityPlan(PDF),lastupdatedApril2023,section613CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms2.1Small-scalesolarfarms(upto50MW)LPAsareresponsiblefordeterminingplanningapplicationsforsolarfarmswithageneratingcapacityunder50MW.Theywilldecideapplicationsinlinewiththeirlocalplanunless‘materialconsiderations’indicateotherwise.33Oneimportantmaterialconsiderationisthegovernment’sNationalPlanningPolicyFramework(NPPF).ItalsoprovidesaframeworkthatcanguideLPAsindrawinguptheirlocalplans.TheNPPFstatesthattheplanningsystemshouldpromoterenewableenergyandassociatedinfrastructure.34Whendecidingplanningapplications,theNPPFadvisesLPAstogiveplanningpermissiontorenewableenergyprojectswhoseimpactsare(orcanbemade)acceptable.ItstatesthatLPAsshould“notrequireapplicantstodemonstratetheoverallneedforrenewableandlowcarbonenergy”.35Planningconsiderations:SitingandimpactTheNPPFadvisesLPAstoidentify“suitableareas”forrenewableenergyprojects.36Supplementaryplanningguidanceonrenewableandlow-carbonenergystatesthat“therearenohardandfastrules”onhowLPAsshouldidentifysuitableareas,however,itstatesthattheyshouldtakeintoaccountthepotentialimpactsofsolarfarmsonthelocalenvironment.37Supplementaryplanningguidanceonrenewableandlow-carbonenergysetsoutwhatLPAsshouldconsiderwhenassessingplanningapplicationsforsolarfarmsanddrawinguptheirlocalplans:•the(cumulative)impactofsolarpanelsonlocalamenityandlocallandscapes.•theimpactofsolarfarmsmayhaveonprotectedareas,suchasAreasofOutstandingNaturalBeauty.•thattheneedforrenewableenergydoesnotautomaticallyoverrideenvironmentalprotections.•thesiting,size,colouranddesignofsolarsystems.•thevisualimpactofsolarfarms,inparticulartheirimpactonthelocallandscapeintermsof“glintandglare”andonneighbouringuses.3833Section70(2)oftheTownandCountryPlanningAct1990;Section38(6)ofthePlanningandCompulsoryPurchaseAct200434MHCLG,NationalPlanningPolicyFramework(NPPF),lastupdatedJuly2021,para15235MHCLG,NationalPlanningPolicyFramework(NPPF),,para15836MHCLG,NationalPlanningPolicyFramework(NPPF),lastupdatedJuly2021,para15537DLUHCandMHCLG,Renewableandlowcarbonenergy,June2015,para538DLUHCandMHCLG,Renewableandlowcarbonenergy,June2015,para714CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsTheguidancestatesthat,althoughlarge-scalesolarfarmscanhave“anegativeimpact”onrurallandscapes,theirvisualimpactcanusuallybe“properlyaddressedwithinthelandscape”,forexample,“witheffectivescreeningandappropriatelandtopography”.39SitingofsolarfarmsonagriculturallandThegovernmentadvisesthat,forthe“effectiveuseofland”,large-scalesolarfarmsshouldbelocatedonpreviouslydeveloped(brownfield)landandnon-agriculturallandthatisnotof“highenvironmentalvalue”.40TheNPPFguidesalldevelopment,includingrenewableenergydevelopmentssuchassolarfarms,awayfromthe“bestandmostversatile”(BMV)agriculturalland.41Theterm“bestandmostversatile”(BMV)landisbasedonNaturalEngland’sagriculturallandclassificationscheme.Theschemegradesagriculturalland:BMVlandisexcellenttogoodqualitylandingrades1,2,and3a.42Whereanapplicantcandemonstratethattheuseofagriculturallandisnecessary,however,theNPPFandsupplementaryplanningguidanceonrenewableandlow-carbonenergyadviseLPAstousepoorer-qualityoverhigher-qualityland.LPAsshouldalsoconsiderwhetheraproposalallowsforcontinuedagriculturaluseorencouragesbiodiversityimprovements.43HowmuchweightanLPAwillgivetotheneedtoprotectagriculturallandcomparedwiththeneedforrenewableenergywilldependontheparticularcircumstancesofeachindividualcase.ItisuptotheLPA(orthegovernment’sPlanningInspectorate,onappeal)todetermine.Iftheyhavetakenaccountofallrelevantmaterialconsiderations,themthecourtswillgenerallynotruleontherelativeimportanceofmaterialconsiderations.44ProposedupdatestopoliciesforsitingonagriculturallandThegovernmenthasproposedupdatingtheNPPFtorequireLPAstoconsider“therelativevalueofagriculturallandforfoodproduction”whendeterminingplanningapplicationsfor“significantdevelopment”onagriculturalland.45ThegovernmentconsultedontheseproposalsbetweenDecember2022andMarch2023.46Atthetimeofpublicationofthisbriefing(7November2023),thegovernmenthasnotyetrespondedtotheconsultation.39DLUHCandMHCLG,Renewableandlowcarbonenergy,June2015,para740DLUHCandMHCLG,Renewableandlowcarbonenergy,June2015,para1341MHCLG,NationalPlanningPolicyFramework(NPPF),lastupdatedJuly2021,para174b42NaturalEngland,Guidetoassessingdevelopmentproposalsonagriculturalland,lastupdatedFebruary202143MHCLG,NationalPlanningPolicyFramework(NPPF),lastupdatedJuly2021,footnote58;DLUHCandMHCLG,Renewableandlowcarbonenergy,June2015,para1344DLUHCandMHCLG,Determiningaplanningapplication,lastupdatedJune2021,para945DLUHC,Levelling-upandRegenerationBill:Reformstonationalplanningpolicy,December2022,chapter7,para11;DLUHC,NPPF:Drafttextforconsultation(PDF),December2022,footnote6746DLUHC,Levelling-upandRegenerationBill:Reformstonationalplanningpolicy,December202215CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms4ConsultationofNaturalEnglandSchedule4oftheDevelopmentManagementProcedureOrder2015requireslocalplanningauthoritiestoconsultNaturalEngland,thegovernment’sadvisoronthenaturalenvironment,onplanningapplicationsthatwillresultinthelossofover20hectaresof‘bestandmostversatile’agriculturallandifthedevelopmentofthatlandisnotinaccordancewiththeirlocalplan.47NaturalEngland'sGuidetoassessingdevelopmentproposalsonagriculturallandsetsouttheconsiderationsthatlocalplanningauthoritiesmusttakeintoaccountwhentheyassessapplicationsfordevelopmentforagriculturalland.2.2SitingofsolarfarmsongreenbeltlandItistheresponsibilityofLPAstodefineandmaintaingreenbeltlandintheirareas.TheNPPFmakesclearthatrenewableenergyprojects,includingsolarfarms,arenot“appropriate”developmentforgreenbeltlandexceptin“veryspecialcircumstances”:WhenlocatedintheGreenBelt,elementsofmanyrenewableenergyprojectswillcompriseinappropriatedevelopment.Insuchcasesdeveloperswillneedtodemonstrateveryspecialcircumstancesifprojectsaretoproceed.Suchveryspecialcircumstancesmayincludethewiderenvironmentalbenefitsassociatedwithincreasedproductionofenergyfromrenewablesources.48ThegovernmentsaidthatitwasuptoLPAstoassesswhether“veryspecialcircumstances”existedbasedonthemeritsofeachcase.ItsaidthatLPAsshould“giverelevantcircumstancestheirdueweight”.49TheLibrarybriefingonthegreenbeltprovidesfurtherinformationongreenbeltplanningpolicyandproposalsforreform.Large-scalesolarfarms(over50MW)UnderthePlanningAct2008,asamendedbytheLocalismAct2011,majorenergyprojectsareconsidered‘nationallysignificantinfrastructureprojects’(NSIPs).Theyrequire‘developmentconsent’fromtheSecretaryofStateforEnergySecurityandNetZero.Solarfarmswithageneratingcapacityover50MWareconsideredNSIPs.5047Schedule4oftheDevelopmentManagementProcedure(England)Order201548MHCLG,NationalPlanningPolicyFramework(NPPF),lastupdatedJuly2021,para15149PQ140431[Batteries:PlanningPermission]15March202250Section15ofthePlanningAct2008;Section31ofthePlanningAct200816CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsApplicationsforNSIPsaremadetotheNationalInfrastructureDirectorateatthePlanningInspectorate,whichwillcarryoutanexaminationoftheproject.ThePlanningInspectoratewillissuearecommendationtotheSecretaryofStatetohelpinformtheirdecision.51Thefinaldecisionwhethertogrant,orrefuse,developmentconsenttoanNSIPrestswiththeSecretaryofState.Ifdevelopmentconsentisgiven,thereisnoneedtoobtainotherconsents,suchasplanningpermission.52TheLibrarybriefing,PlanningforNationallySignificantInfrastructureProjects,setsouttheprocessforobtainingdevelopmentconsent.ThePlanningInspectoratealsoprovidesguidanceontheapplicationprocess.NationalPolicyStatementstodecideNSIPsTheSecretaryofStatemustdecideproposedNSIPsinlinewithpoliciessetoutinNationalPolicyStatements.Thesearestatutorydocumentsthataresubjecttopublicconsultationandparliamentaryscrutiny.53TheoverarchingNationalPolicyStatementEN-1forenergy(PDF)andtheNationalPolicyStatementEN-3forrenewableenergyinfrastructure(PDF),bothdesignatedinJuly2011,currentlyguidedecision-makingonrenewableenergyprojects.54TheoverarchingNationalPolicyStatementEN-1setsouttheprinciplesthatthePlanningInspectorandSecretaryofStateshouldfollow:•TheUKneedsto“weanitselfoff”itsrelianceonfossilfuelstomeetthetargetssetoutintheClimateChangeAct2008,and“improvethesecurity,availabilityandaffordabilityofenergy”.55•Thelarge-scaledeploymentofrenewablesisimportanttoreducecarbonemissionsandtackleclimatechange.Therefore,energyprojectsshouldaimto“speedupthetransitiontoalowcarboneconomy”.56•Thereisan“urgentneed”fornewlowcarbonenergyinfrastructure.TheUKshould“dramatically”increaseitsrenewablegenerationcapacity.57TheNationalPolicyStatementEN-3forrenewableenergyinfrastructurewhichiscurrentlyinforcedoesnotsettechnology-specificpoliciesforsolarpower.5851Part6ofthePlanningAct2008;NationalInfrastructurePlanning,PlanningInspectoraterole,undated[accessed23June2023]52Section114ofthePlanningAct2008;Section33ofthePlanningAct200853Section5ofthePlanningAct2008;Section104ofthePlanningAct200854DepartmentofEnergyandClimateChange(DECC),NationalPolicyStatements(NPSs)forenergyinfrastructure,July201155DECC,OverarchingNPSforenergy(EN-1)(PDF),July2011,paras2.2.5-2.2.656DECC,OverarchingNPSforenergy(EN-1)(PDF),July2011,para1.7.257DECC,OverarchingNPSforenergy(EN-1)(PDF),July2011,paras3.3.15and3.3.1058DECC,NPSforrenewableenergyinfrastructure(EN-3)(PDF),July201117CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsIfrelevantpoliciesforaparticulartechnologyarenotsetoutinaNationalPolicyStatement,theSecretaryofStatecanstillmakedecisionsonNSIPsundersection105ofthePlanningAct2008.TheSecretaryofStatewilldecidewhethertograntdevelopmentconsentinlinewithmatterstheyconsider“bothimportantandrelevant”tothedecision;theselikelyincludetheNPPFandthelocalplanforthearea.59ProposedupdatestotheNationalPolicyStatementsInitsEnergyWhitePaper(November2020),thegovernmentcommittedtoupdatingenergyNationalPolicyStatementstomakesuretheycouldsupportatransitiontonetzero.BeforeaNationalPolicyStatementcanbedesignatedbythegovernment,itmustundergopublicconsultationandparliamentaryscrutiny.60ThegovernmentconsultedonitsproposedupdatestotheenergyNationalPolicyStatementsin2021andonfurtherrevisionsin2023.61ItsettheaimofdesignatingtheupdatedNationalPolicyStatementsbytheendof2023.62UntiltherevisedNationalPolicyStatementsareofficiallydesignatedbythegovernment,thecurrentonesremaininforce.However,“anyemergingdraftNPSs[NationalPolicyStatements][…]arepotentiallycapableofbeingimportantandrelevantconsiderationsinthedecision-makingprocess”.63ApresumptioninfavourofgrantingconsentTherevisedNationalPolicyStatementEN-1notesthegovernment’sambitiontoincrease“thedeploymentoflowcarbonenergyinfrastructureconsistentwithdeliveringourcarbonbudgetsandthe2050netzerotarget”.64Itnotesthat“asecure,reliable,affordable,netzeroconsistentsystemin2050islikelytobecomposedpredominantlyofwindandsolar”.65TherevisedNationalPolicyStatementEN-1instructstheSecretaryofStatetogive“substantialweight”totheneedfornewenergyinfrastructure.66Itstatesthatthereis“apresumptioninfavourofgrantingconsenttoapplicationsforenergyNSIPs”unlessotherpolicies“clearlyindicatethatconsentshouldberefused”.67Forexample,consentmayberefusedif:59Section105ofthePlanningAct200860Section7ofthePlanningAct200861DESNZandBEIS,Planningfornewenergyinfrastructure:reviewofenergyNationalPolicyStatements,lastupdatedMarch2023;DESNZ,Planningfornewenergyinfrastructure:revisionstoNationalPolicyStatements,May202362DESNZ,PoweringUpBritain,lastupdatedApril202363DESNZ,PlanningforNewEnergyInfrastructure:ReviseddraftNPSs(PDF),March2023,p864DESNZ,EN-1OverarchingNationalPolicyStatementforEnergy(PDF),March2023,para3.3.1365DESNZ,EN-1OverarchingNationalPolicyStatementforEnergy(PDF),March2023,para3.3.2066DESNZ,EN-1OverarchingNationalPolicyStatementforEnergy(PDF),March2023,paras3.2.5-3.2.667DESNZ,EN-1OverarchingNationalPolicyStatementforEnergy(PDF),March2023,para4.1.318CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms•Innationallydesignatedareas(forexample,NationalParksorAreasofOutstandingNaturalBeauty),NSIPsshouldonlybegrantedconsentin“exceptionalcircumstances”.68•Onthegreenbelt,thepresumptionagainstinappropriatedevelopmentappliesandNSIPsshouldgenerallyberefusedconsentexceptin“veryspecialcircumstances”.69SitingofsolarfarmsonagriculturallandTherevisedNationalPolicyStatementEN-3statesthat,althoughlandtypeshouldnotbethepredominatingfactorindeterminingsitelocation,solarfarmsshouldbelocatedonpreviouslydevelopedandnon-agriculturalland“wherepossible”.Itnotes,however,thattheuseofbrownfieldlandisnotalwayspossibleand,sometimes,theuseofagriculturallandisnecessary.70Inthatcase,liketheNPPF,therevisedNationalPolicyStatementEN-3statesthatpoorer-qualityoverhigher-qualityagriculturallandshouldbeusedanddevelopmentshouldnottakeplaceonBMVland“wherepossible”.Itnotes,however,thatsolarfarmsonagriculturalland,includingonBMVland,arenotprohibited.712.3PlanningapplicationstatisticsApplicationsforsmall-scalesolarfarms(upto50MW)Thechartbelowshowsthatthenumberofapplicationsforsolarfarmswithacapacityover1MWsubmittedtoLPAsincreasedeveryyearbetween2010and2015.Itthendroppedsubstantiallyin2016and2017,followingareductioninsubsidies.72Since2017,thenumberofapplicationsforsolarfarmswithacapacityover1MWhasincreasedagain(althoughithasnotreached2015levels).68DESNZ,EN-1OverarchingNationalPolicyStatementforEnergy(PDF),March2023,para5.10.3169DESNZ,EN-1OverarchingNationalPolicyStatementforEnergy(PDF),March2023,para5.11.2070DESNZ,NPSEN-3-Renewableenergyinfrastructure(PDF),March2023,paras3.10.14-3.10.1671DESNZ,EN-1OverarchingNationalPolicyStatementforEnergy(PDF),March2023,para5.11.1272Until2021,therenewableenergyplanningdatabaseonlyincludedprojectswithacapacityover1MW;since2021,italsocoversprojectswithacapacityover150kW.Toallowforacomparisonovertime,thefollowinganalysisfocusesonsolarsystemswithageneratingcapacityabove1MW.19CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsPlanningapplicationsforsolarfarmssubmittedtoLPAs450Ground-mountedRooftoppanels30015002010201120122013201420152016201720182019202020212022Source:DESNZ,RenewableEnergyPlanningDatabase:quarterlyextract,RenewableEnergyPlanningDatabase(REPD):July2023,lastupdatedAugust2023[accessed13September2023]However,thecapacityofsmall-scalesolarfarmsthathavebeensubmittedforplanningpermissiontoLPAshasincreasedsubstantiallyovertime,fromanaverageof4MWin2010to27MWin2022.73Aroundtwothirds(66%)oftheplanningapplicationsforsolarfarmswithacapacityover1MWthatweresubmittedtoLPAsinEnglandbetween2010and2022weregrantedplanningpermission.11%wererefusedpermission,and14%wereeitherabandonedorwithdrawnbydevelopers.74Applicationsforlarge-scalesolarfarms(over50MW)Themajorityofapplicationsforsolarfarmsfellbelowthe50MWthresholdandwerethereforesubmittedto,andusuallydecidedby,LPAs.Until2018,noapplicationsforsolarfarmswithacapacityabovethe50MWthresholdweresubmittedtotheSecretaryofStatefordevelopmentconsents.75Since2018,nineNSIPapplicationsforsolarfarmshavebeensubmitted;theseareshowninthechartbelow.Threeofthemhavealreadybeendecidedandweregranteddevelopmentconsent.73DESNZ,RenewableEnergyPlanningDatabase:quarterlyextract,RenewableEnergyPlanningDatabase(REPD):July2023,lastupdatedAugust2023[accessed13September2023]74Asabove.Outofallplanningapplicationsthatweresubmitted,includingthosewereadecisionhasnotyetbeenmade.Excludingthese,73%weregivenplanningpermission,and12%wererefused.75DESNZ,RenewableEnergyPlanningDatabase:quarterlyextract,RenewableEnergyPlanningDatabase(REPD):July2023,lastupdatedAugust2023[accessed13September2023]20CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsApplicationsforNSIPssubmittedfordevelopmentconsentSitenameCountyCapacity(inMW)SubmittedDecisionDevelopmentstatusCleveHillKent37320182020UnderconstructionLittleCrowLincolnshire15020202022PermissiongrantedSunnicaCambridgeshire5002021-LongfieldEssex50020222023AwaitingdecisionMallardPassLincolnshire3502022-PermissiongrantedHeckingtonFenLincolnshire5002023-GateBurtonLincolnshire5312023-AwaitingdecisionCottamLincolnshire6002023-AwaitingdecisionWestBurtonLincolnshire4802023-AwaitingdecisionAwaitingdecisionAwaitingdecisionSource:DESNZ,RenewableEnergyPlanningDatabase:quarterlyextract,RenewableEnergyPlanningDatabase(REPD):July2023,lastupdatedAugust2023[accessed13September2023]2.4EnvironmentalandhabitatsimpactsEnvironmentalimpactassessmentTobegrantedplanningconsent,certaindevelopmentshavetoundergoanenvironmentalimpactassessmentprocess.Itintendstoensurethattheenvironmentalimpactsofaproposeddevelopmentareassessedandcanbeconsideredbydecision-makers(theLPAortheSecretaryofState).76Whichprojectsrequireanenvironmentalimpactassessmentissetoutintheregulations:solarfarmsmightrequireanassessmentdependingontheirsize,locationandpotentialimpact.77Proposalsforreform:EnvironmentaloutcomereportsTheLevellingUpandRegenerationAct2023givesthegovernmentthepowertoreplaceenvironmentalimpactassessmentswith‘environmentaloutcomereports’.Whentheseenvironmentaloutcomesreportswillberequired,whattheywillcoverandhowtheywillbeconsideredinplanningapplicationswillbesetoutinregulations(tobedrawnupbythegovernment).78Insettingenvironmentoutcomesanddrawingupregulations,thegovernmentwouldberequiredtoensurethattheoveralllevelofenvironmentalprotectionprovidedbyexistinglawsisnotreduced.7976DLUHCandMHCLG,EnvironmentalImpactAssessment,lastupdatedMay2020;NationalInfrastructurePlanning,AdviceNoteSeven:EnvironmentalImpactAssessment,undated77TownandCountryPlanning(EnvironmentalImpactAssessment)Regulations2017;InfrastructurePlanning(EnvironmentalImpactAssessment)Regulations201778Part6oftheLevellingUpandRegenerationAct202379Part6oftheLevellingUpandRegenerationAct202321CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsTheLibrarybriefingontheLevellingUpandRegenerationBillprovidesfurtherinformationontheprovisionsonenvironmentaloutcomereportsintheBill(seesection6).ThegovernmentconsultedonitsproposalsforenvironmentaloutcomereportsbetweenMarchandJune2023.HabitatsregulationassessmentWheresolarfarmsmighthaveasignificanteffectonhabitatsand/orspeciesprotectedbytheConservationofHabitatsandSpeciesRegulations2017,theLPAmustundertakeahabitatsregulationsassessment.Areasthatareprotectedunderthe2017Regulationsare:•specialareasofconservation,whichprotectcertainhabitatsandspecies(otherthanbirds).•specialareasofprotection,whichareprotectedareasforbirds.Intotal,thereare656specialareasofconservationand286specialareasofprotectionintheUK.80Forfurtherinformationaboutthelocationoftheseareas,seeamapproducedbytheDepartmentforEnvironment,FoodandRuralAffairs(Defra).Whereaproposedprojectmighthaveasignificanteffectonaprotectedareaandahabitatsregulationsassessmentisrequired,theLPAmustassessthelikelyeffectsoftheproposedprojectontheareaandidentifywaystoavoidorminimisetheseeffects.Forfurtherinformationabouttheprocess,seegovernmentguidanceonHabitatsregulationsassessments:protectingaEuropeansite.80JointNatureConservationCommittee(JNCC),SpecialAreasofConservation,April2023;JNCC,SpecialProtectionAreas,April202322CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms3PlanningpolicyforsolarfarmsinthedevolvedadministrationsPlanningisadevolvedmatter.Decision-makingarrangementsforplanningpermissionforsolarfarmsdifferacrosstheUK,assetoutbelow.3.1WalesInWales,solarfarmswilleitherrequireplanningpermissionfromthelocalplanningauthority(LPA),planningpermissionfromWelshministers,ordevelopmentconsentfromtheUKSecretaryofStateforEnergySecurityandNetZero,dependingontheirsize:•Solarfarmswithageneratingcapacitybelow10MWrequireplanningpermissionfromtheLPA.Solarsystemsbelow50kWarecoveredbypermitteddevelopmentrightsanddonotneedplanningpermission.•UnderthePlanning(Wales)Act2015,solarfarmsbetween10MWand350MWareclassedas‘developmentsofnationalsignificance’(DNSs).TheyneedplanningpermissionfromWelshministers.81•Solarfarmswithageneratingcapacityabove350MWareconsidered‘nationallysignificantinfrastructureprojects’(NSIPs)andrequiredevelopmentconsentfromtheUKSecretaryofStateforEnergySecurityandNetZerounderSection15ofthePlanningAct2008.82ForfurtherinformationabouttheexaminationandconsentingprocessthatDNSsundergo,seebriefingsbytheSeneddResearchServiceondevelopmentsofnationalsignificance(September2022)andconsentingenergygenerationinfrastructure(June2023).ApplicationsforDNSsaredecidedbyWelshministersusingthesamepoliciesthatLPAsuseonotherplanningapplications.Bothdecideapplicationsforrenewableenergyprojects,suchassolarfarms,inlinewith:•FutureWales:theNationalPlan2040,whichistheWelshGovernment’snationaldevelopmentframeworkforWales.81Section19ofthePlanning(Wales)Act2015,whichaddedsection62DtotheTownandCountryPlanningAct1990;Section39oftheWalesAct201782Section15ofthePlanningAct200823CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms•PlanningPolicyWales,whichsetsouttheWelshGovernment’snationalplanningpolicy.•Relevantpoliciesinthelocaldevelopmentplanforthearea.PlanningpolicyforsolarfarmsPolicies17and18ofFutureWales:theNationalPlan2040setouttheWelshGovernment’spoliciesforrenewableenergydevelopments.FutureWalesandPlanningPolicyWalessetouthowLPAsandWelshministersshoulddetermineapplicationsforsolarfarms:•WelshministersshouldgenerallygrantplanningpermissiontoDNSssubjecttocertaincriteria.Forexample,projectsshouldnothave“anunacceptableadverseimpact”ontheenvironmentandlandscape.83•LPAsshouldmaximise“theirarea’sfullpotentialforrenewableenergygeneration”.Theyshouldconsideraproposedproject’scontributiontorenewableenergytargetsandtocuttingcarbonemissions.84Policy17advisesLPAsandWelshministerstogive“significantweight”totheWelshGovernment’stargetofgenerating70%ofitsconsumedenergyfromrenewablesourcesby2030whendeterminingplanningapplications.85SitingonagriculturallandinWalesPlanningPolicyWalesguidesdevelopmentawayfromthe‘bestandmostversatile’(BMV)agriculturalland.ItstatesthatLPAsandWelshministersshouldgive“considerableweight”toitsprotection.86IftheyfindthatBMVlandneedstobedeveloped,theyshoulddirectdevelopmenttolower-qualityoverhigher-qualityland.87InMarch2022,theWelshGovernmentsentalettertochiefplanningofficers,highlightingthatthesepoliciesalsoapplytosolarfarms.Itstatedthat“itwillbenecessarytorefusepermission”tosolarfarmsonBMVagriculturalland“unlessothersignificantmaterialconsiderationsindicateotherwise”.88Proposedreformstodecision-makingprocessTheWelshGovernmenthassaidthatcurrentapprovalprocessforDNSscanbe“onerous”.BetweenAprilandJuly2018,itconsultedonwhethertocreateabespokeconsentingprocessformajorinfrastructureprojects,similartothe83WelshGovernment,FutureWales:TheNationalPlan2040,February2021,policy18,84WelshGovernment,PlanningpolicyWales,lastupdatedFebruary2021,para5.9.1985WelshGovernment,FutureWales:TheNationalPlan2040,February2021,policy17,page9586WelshGovernment,PlanningpolicyWales,lastupdatedFebruary2021,paras3.58and3.5987WelshGovernment,PlanningpolicyWales,lastupdatedFebruary2021,paras3.58-3.6088WelshGovernment,DearChiefPlanningOfficer(CPO)letters:BestandmostversatileagriculturallandandsolarPVarrays,March202224CommonsLibraryResearchBriefing,8November20233.2PlanningforsolarfarmsdevelopmentconsentprocessforNSIPsinEngland.89Itproposeda‘one-stop-shop’process,whereallrelevantconsentscanbeobtainedasonepackage.90InJune2023,theWelshGovernmentintroducedtheInfrastructure(Wales)Bill.TheBillwouldreplacetheDNSregimewitha“unifiedsystem”formajorinfrastructureprojects.91Solarfarmswithageneratingcapacitybetween50MWand350MWwouldbeclassedas‘significantinfrastructureprojects’(SIPs)andrequire‘infrastructureconsent’fromWelshministers.TheapplicationandapprovalprocessforSIPsinWaleswouldbesimilartotheNSIPregimeinEngland(whichalsoappliestosolarfarmswithacapacityover50MW).ApplicationswouldbemadetoWelshministers,whowouldappointapersonorpanel,likelytobePlanningandEnvironmentDecisionsWales,tocarryoutanexamination.Thefinaldecisionwould,inmostcases,restwithWelshministers.WelshministerswoulddecideapplicationsinlinewithFutureWales:theNationalPlan2040andanyrelevant‘infrastructurepolicystatement’(yettobedrawnup).Forfurtherinformation,seebriefingsbySeneddResearchServicelinkedonitsresourcepageontheInfrastructure(Wales)BillandinformationprovidedbytheSenedd’sClimateChange,EnvironmentandInfrastructureCommittee.ScotlandInScotland,unlikeinWales,theUKGovernmentisnotinvolvedindecision-makingonplanningapplicationsforsolarfarmsregardlessoftheirsize.•Solarfarmswithageneratingcapacityabove50MWrequireenergyconsentfromScottishministersundersection36oftheElectricityAct1989.92Theyarealsoclassedas‘nationaldevelopments’(asdefinedintheScottishGovernment’sNationalPlanningFramework4(NPF4)).93•Allotherapplicationsforsolarfarmsaremadeto,anddecidedby,therelevantplanningauthority.94InScotland,thereisadistinctionbetween‘local’and‘major’developments:89WelshGovernment,Changestotheapprovalofinfrastructuredevelopment,lastupdatedJuly201890WrittenStatement[IntroductionoftheInfrastructure(Wales)Bill]12June202391WelshParliament/SeneddCymru,Infrastructure(Wales)Bill,June2023;WelshGovernment,Infrastructure(Wales)Bill2023,June202392Section36oftheElectricityAct1989;ScottishGovernment,EnergyandClimateChangeDirectorate,Energyinfrastructure:Energyconsents,undated[accessed23June2023]93ScottishGovernment,NationalPlanningFramework4,February2023,AnnexB94TownandCountryPlanning(Scotland)Act199725CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms–Solarfarmswithageneratingcapacityabove20MWareconsideredmajordevelopments.TheyaredecidedbytherelevantLPAbutrequireapre-applicationconsultationwiththelocalcommunity.–Solarfarmswithacapacityupto20MWare‘local’developments.95Thedesignationofsolarfarms(andotherrenewableenergyprojects)withageneratingcapacityover50MWas‘nationaldevelopments’meansthat“theprincipleofthe[ir]developmentdoesnotneedtobeagreed”,inotherwords,thatthereisapresumptioninfavourofgrantingconsent.However,nationaldevelopmentstatusdoesnotmeanthatplanningpermissionforaprojectisautomaticallygranted.Allrelevantconsentsarestillrequired.96PlanningpolicyforsolarfarmsIndecidingapplicationsforsolarfarms,planningauthoritiesareguidedbytheScottishGovernment’sNationalPlanningFramework4(NPF4).TheNPF4instructsplanningauthoritiesto“encourage,promoteandfacilitateallformsofrenewableenergydevelopment”tosupportthetransitiontonetzero.Whendecidingplanningapplications,planningauthoritiesshouldplace“significantweight”oncontributionofaproposaltorenewableenergyandemissionstargets.97TheNPF4alsosetsoutwhichotherfactorsplanningauthoritiesshouldconsiderwhendecidingplanningapplicationsforrenewableenergyprojects.Theseinclude,forexample,theimpactofadevelopmentondesignatedareas(suchasNationalScenicAreasorNatureReserves),thenaturalenvironment,biodiversityandbirds,andlocalcommunitiesandresidentialamenity.98SitingonagriculturallandinScotlandTheNPF4issupportedbyPlanningAdviceNotes.Anoteonsolararrays(May2013)setsoutindetailwhichfactorsplanningauthoritiesshouldconsiderwhenassessingapplicationsforsolarfarmsonroofsandopensites.99LikeplanningguidanceintherestoftheUK,theNPF4guidesdevelopmentawayfromprimeagriculturalland.TheNPF4states,however,thatplanningauthoritiesinScotlandmaysupportdevelopmentonprimeagriculturallandifitis“forthegenerationofenergyfromarenewablesource”andiftheirlayoutanddesignminimisetheamountofprimeagriculturallandused.10095Regulation2oftheTownandCountryPlanning(HierarchyofDevelopment)(Scotland)Regulations200996Section36oftheElectricityAct1989;ScottishGovernment,EnergyandClimateChangeDirectorate,Energyinfrastructure:Energyconsents,undated[accessed23June2023]97ScottishGovernment,NationalPlanningFramework4,February2023,policy1198ScottishGovernment,NationalPlanningFramework4,February2023,policy1199ScottishGovernment,Largephotovoltaicarrays:planningadvice,May2013100ScottishGovernment,NationalPlanningFramework4,February2023,policy5b26CommonsLibraryResearchBriefing,8November20233.3PlanningforsolarfarmsNorthernIrelandInNorthernIreland,asinScotland,thereisahierarchyofdevelopmentsdependingontheirsize:‘regionallysignificant’,‘major’and‘local’.•Solarfarmswithageneratingcapacityabove30MWmaybeconsidered‘regionallysignificant’developments.101WhetherasolarfarmofthatsizeisregionallysignificantisdecidedbytheDepartmentforInfrastructure:–Applicantsarerequiredtoconsultthedepartment.Ifaprojectis“significanttothewholeorasubstantialpartofNorthernIreland”,theapplicationisdeterminedbythedepartment.102•Allotherapplicationsforsolarfarmswithageneratingcapacitybelow30MWaremadeto,andwouldusuallybedeterminedby,theLPA.–Solarfarmswithageneratingcapacitybetween5MWand30MWare‘major’developments.103TheyareusuallydeterminedbytheLPA,butthedepartmentmayuseits‘call-inpowers’soitcandecidethem.104–Solarfarmswithacapacitybelow5MWare‘local’developments.PlanningpolicyforsolarfarmsIndeterminingplanningapplications,theDepartmentforInfrastructureandLPAsareguidedbythedepartment’sStrategicPlanningPolicyStatement(SPPS)andtheRegionalDevelopmentStrategyforNorthernIreland2035.105TheSPPSstatesthatplanningsystemshouldaimto“tofacilitatethesitingofrenewableenergygeneratingfacilitiesinappropriatelocations[…]inordertoachieveNorthernIreland’srenewableenergytargets”.106ItadvisesLPAs(andthedepartment)thattheyshouldgiveplanningpermissiontorenewableenergyprojectsthatwillnotresultinan“unacceptableadverseimpact”onvisualamenity,landscapecharacter,andnatureconservation.107101ScheduleofthePlanning(DevelopmentManagement)Regulations(NorthernIreland)2015;DepartmentforInfrastructure(DfI),DevelopmentManagementPracticeNotes:PracticeNote01:Hierarchyofdevelopments(PDF),December2018102Section26ofthePlanningAct(NorthernIreland)2011;DfI,DevelopmentManagementPracticeNotes:PracticeNote01:Hierarchyofdevelopments(PDF),December2018103ScheduleofthePlanning(DevelopmentManagement)Regulations(NorthernIreland)2015,104DfI,StrategicPlanningPolicyStatement,lastupdatedMay2023,para5.45105DfI,RegionalDevelopmentStrategy2035,March2012;DfI,StrategicPlanningPolicyStatement,lastupdatedMay2023106DfI,StrategicPlanningPolicyStatement,lastupdatedMay2023,para6.218107DfI,StrategicPlanningPolicyStatement,lastupdatedMay2023,paras6.214-6.23427CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsSitingonagriculturallandinNorthernIrelandTheSPPSstatesthatoneimportantmaterialconsiderationwhendeterminingplanningapplicationsiswhetheraproposedprojectwillcausethepermanentlossofBMVagriculturalland.108ProposedreformstoplanningpolicyBetweenAprilandJune2023,theDepartmentforInfrastructureconsultedonrevisionstothepoliciesonrenewableandlowcarbonenergyintheSPPS.ThechangesintendtoalignplanningpolicieswiththeNorthernIrelandExecutive’sEnergyStrategyandtheClimateChange(NorthernIreland)Act2022.TheActsetatargetofgenerating80%ofelectricityconsumedinNorthernIrelandfromrenewablesourcesby2030.109TheupdatedSPPSwouldadviseLPAsthat,whendrawinguptheirlocalplansanddecidingplanningapplications,theyshouldtake“fullaccount”ofthetarget.Theyshould“positivelyfacilitate”renewableenergydevelopmentsin“appropriatelocations”.InareasthatLPAshaveidentifiedas“appropriate”intheirlocalplans,atherewouldbeapresumptioninfavourofgrantingplanningpermissionforrenewableenergydevelopments.110ExistingprotectionsforBMVagriculturallandwouldcontinuetoapplyundertheupdatedSPPS.111TheupdatedSPPSwouldstatethatLPAsshouldpromotetheuseofpreviouslydevelopedlandforsolarfarmsinthecountryside.108DfI,StrategicPlanningPolicyStatement,lastupdatedMay2023,para6.321109DfI,ReviewofRegionalStrategicPlanningPolicyonRenewableandLowCarbonEnergy-PublicConsultation,lastupdatedJune2023110DfI,RevisedRegionalStrategicPlanningPolicy:Consultationdraft(PDF),April2023,paras1.6-1.9111DfI,RevisedRegionalStrategicPlanningPolicy:Consultationdraft(PDF),April2023,para1.1728CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms4Impactofsolarfarmsonfarmingandbiodiversity4.1UseofagriculturallandforsolarfarmsConservationgroupsSomeorganisationshaveexpressedconcernsaboutthesitingofsolarfarmsonagriculturallandanditsimplicationsforfoodsecurity.Theyhavecalledonthegovernmenttorestricttheuseofagriculturallandandredirectsolardevelopmenttopreviouslydeveloped(brownfield)landandrooftops.Forexample,CPRE(formerlytheCouncilfortheProtectionofRuralEngland)expressedconcernthat“valuablefarmland”isoften“thelocationofchoiceforsolardevelopments”.112Itarguedthat“itisessentialtopreserveourmostproductiveagriculturalland”forfarmingpurposesandfoodproduction.113Campaigngroupsformedinoppositiontosolarfarmsintheirlocalareaalsocitetheuseofagriculturallandandtheimpactofsolarpanelsontherurallandscapeasoneofthereasonsfortheiropposition.114TheSolarCampaignAlliance,anumbrellaorganisationofthesecampaigngroups,arguedthatdevelopersoftenchoose“inappropriatesites”forsolarfarms.115Theseorganisationshavequestionedwhetheragriculturallandneedstobeusedtomeetthegovernment’srenewableenergytargets.116CPREhasarguedthatthereissufficientspaceforsolarpanelsonrooftops,brownfieldlandandcarparkstomeettheUK’stargetforsolarpower.117RenewableenergygroupsRenewableenergygroups,suchasSolarEnergyUK,havearguedthat“solarfarmsposenothreattotheUK’sfoodsecurity”.Evenunderthegovernment’sproposedfivefolddeploymentinsolarpowerby2035,SolarEnergyUKsaidthatsolarfarmswouldhave“minimalifanyimpact”onfoodsecurity.118112CPRE,CPREstatementonsolarenergy,February2022113CPRE,Buildingonourfoodsecurity,July2022114EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0015[MallardPassActionGroup];EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0051[[SayNotoSunnicaActionGroup]115EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0033[SolarCampaignAlliance]116CPRE,Shoutfromtherooftops:deliveringacommonsensesolarrevolution,23May2023117CPRE,Unleashrooftopsolartotackleenergycrisis,weurgeChancellor,November2022118EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0001[SolarEnergyUK]29CommonsLibraryResearchBriefing,8November20234.2PlanningforsolarfarmsSolarEnergyUKsaidthat,byhelpingtotackleclimatechange,solarfarmscouldhelpaddress“thebiggestchallengetofoodsecurity”intheUK.119WildlifeandCountrysideLink,anenvironmentandwildlifeprotectiongroup,alsosaidthatitconsideredsolarfarmstohave“aninsignificantimpactonagriculturalland”comparedwithothertypesofdevelopment.Itsaidthatsolarfarmsdidnot“remotelyposeenoughofathreattofoodsecurityastheotherissuesidentified”(suchasbuildingdevelopment).120Renewableenergygroupshighlightthat,inlinewithnationalplanningpolicy,developersusuallyselectbrownfieldlandorlower-qualityland.121Theyhavenoted,however,thatmostgrade4andgrade5landisinremotelocationsthatareunsuitableforsolarfarmsand“thereareverylimitedopportunities”tobuildsolarfarmsonbrownfieldlandatthescalerequired.122SolarEnergyUKandtheSolarPowerPortalhavealsohighlightedthatLPAscanattachconditionstoplanningpermissiontorequirelandtobereturnedtoagriculturaluseonceasolarfarmisdecommissioned.Theyhavearguedthatsolarfarmscouldhavebenefitsforarableland,givingthesoil“abreakfromintensivecultivation”andallowingittorecover.123AgriculturalsectorTheNationalFarmers’Union(NFU)hascalledfor“abalancetoensurewecancontinuetoproducequality,sustainablefood[…]whilealsodeliveringournetzeroambition”.124Itsaidthat“ideally”solarfarmsshouldbelocatedonlower-qualityland,avoidingtheuseofBMVland.125However,itnotedthat“insomepartsoftheUK”,suchasinLincolnshire,usinglower-qualityland“maynotalwaysbepractical”becausemostofthelandisgoodquality.126Howmuchfarmlandisusedforsolarpower?Itisnotpossibletocalculatehowmuchagriculturalland,includinghowmuchBMVland,inEnglandiscurrentlyusedforsolarfarmsbecause:119SolarEnergyUK,SolarFarms&FoodSecurity:TheFacts,September2022120Environment,Food&RuralAffairs(EFRA)Committee,Writtenevidence:Foodsecurity(PDF),HC6222021-22,FS0046[Wildlife&CountrysideLink]121SolarPowerPortal,Balancingenergysecuritywithfoodsecurityonsolarfarms,July2022122EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0010[EnsoEnergyLtd];EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0039[JBMSolar]123SolarEnergyUK,NaturalCapitalBestPracticeGuidance,May2022;SolarEnergyUK,SolarFarms&FoodSecurity:TheFacts,September2022124EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0064[NationalFarmersUnion,NFU]125Petitionlaunchedtostopsolarfarmsonproductivefarmland,FarmersWeekly,27January2022[accessed31July2023];NFU,Solarphotovoltaicelectricityinagriculture,December2021126NFU,Solarphotovoltaicelectricityinagriculture,December202130CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms•Thegovernment’srenewableenergyplanningdatabasehasdataonthecapacity(inMW)andlocationofsolarsystemsthataregivenplanningpermission.However,thetotalareaofsolarsystemsisnotrecorded.–Itisnotpossibletocalculatetheexactareaasolarfarmcoversbasedonitscapacity,becausethiswilldifferdependingonthespacingbetweenpanels,theefficiencyofthetechnologyused,andwhetherthesolarfarmisco-locatedwithbatterystorage.•Theagriculturallandclassification(ALC)datasetpublishedbyNaturalEnglanddoesnotdistinguishbetweengrade3a(goodqualityBMVland)andgrade3b(moderatequalitylandthatisnotBMVland).Itisthereforenotpossibletomapthelocationofgrade3aand3blandinEngland.127–NaturalEnglandlastupdateditsALCmapsinthe1980sand,therefore,theyarenotalwaysaccurate.128–Manyfieldsoftencontainamixofdifferentgrades.129WhereasolarfarmmayaffectBMVland,site-specificsurveysmayberequiredtodeterminewhetherthelandis3aor3bgradeland.130CPREhascriticisedthelackofavailabledatatoassesstheimpactofsolarfarmsonagriculturallandandlackofmonitoringoftheuseofBMVland.131EstimatingtheamountoflandusedforsolarfarmsSeveralorganisationshaveattemptedtoestimatehowmuchland,includinghowmuchBMVland,iscurrentlyusedforsolarfarmsandhowmuchlandisrequiredtomeetthegovernment’stargetforsolarpower(70GWby2035).InitsreportonBuildingonourfoodsecurity(July2022),CPREestimatedthat14,000hectaresofBMVlandinEnglandhavebeendevelopedsince2010(0.6%oftotalBMVland).Ofthese,1,400hectaresareusedforrenewableenergyprojects,suchassolarfarms.132Tomeetthegovernment’stargetof70GWofsolarpowerby2035,CPREestimatedthatbetween0.9%and1.4%ofallthelandinEngland(180,000hectaresor1,800squarekilometres)133wouldberequired.Inthisanalysis,127EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0017[OriginPowerServices]128EAC,Oralevidence:Onshoresolarenergy(PDF),HC856,11January2023,Q66-Q67[DrArmstrong]129EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0035[SSEEnergySolutions]130EAC,Oralevidence:Onshoresolarenergy(PDF),HC856,11January2023,Q68[PaulMiner,CPRE]131CPRE,Buildingonourfoodsecurity,July2022132CPRE,Buildingonourfoodsecurity,July2022.CPREreliedondataproducedbyNaturalEnglandin1966whichcategorisesBMVlandintograde1,2and3(butdoesnotprovidesubdivisionsofgrade3).ItalsouseddataproducedbyNaturalEnglandsince1988whichdistinguishesbetweengrade3aor3bland.However,thatdatasetonlyprovidesdataforaround3%ofallgrade3land.133Thereare100hectaresin1squarekilometre.1hectareisequaltoaround2.5acres.31CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsCPREdidnotsetouthowmuchagriculturalland(orhowmuchBMVland)comparedtoothertypesoflandwouldberequired.134SolarEnergyUKestimatedthat,assuminganaverageofsixacres(around2.4hectares)areneededperMWofsolarpower,existingsolarfarmswhichhaveatotalcapacityof10GWcurrentlycoveraround230squarekilometresintheUK.Thisamountsto0.1%oftheUK’stotallandarea.SolarEnergyUKalsoestimatedthat,tomeetthegovernment’stargetof70GWofsolarpowerby2035,further464squarekilometreswouldberequiredfornewsolarfarms.Forthisanalysis,itassumedthatground-mountedsolarfarmswillaccountforaroundtwothirdsoftherequiredincrease(or38GW)andnewsolarfarmswouldneedthreeacres(around1.2hectares)perMW.135Intotal,SolarEnergyUKestimatedthataround700squarekilometresoflandintheUK(0.3%oftheUK’stotallandarea)wouldhostsolarfarmsin2035.CarbonBrief,anewswebsitefocusingonclimatechangeandenergypolicies,estimatedthatifthese700squarekilometreswereusedtogrowwheat,“thiswouldaccountforjust4%oftheUK’sannualwheatyield”.Itconcludedthattheimpactofsolarfarmsonfoodproductionwouldbesmall.136EvidenceprovidedbytheUniversityofSheffield,OpenClimateFix(acomputerresearchlabfocusedonreducingemissions)andExawatt(arenewableresourcesconsultancy)totheEnvironmentalAuditCommitteenotedthatlandincertainareasisbettersuitedforsolarpanels:Toachieve70GW(approximately5timesthecurrentcapacity)weassumethatbetween5and7timesthecurrentareaoccupiedbysolarPVwillberequired.CurrentlandusebyPVis24,400ha[hectares]or0.1%ofthetotallandintheUK.Scalingupbetween5and7timesleadstobetween125,000haand175,000habeingneeded(or0.5to0.7%ofthetotalland).[…]Ground-mountedsolarparkswillnotbeevenlydistributedacrosstheUK,sowhile0.5to0.7%ofthetotalUKlandareamaybeconsideredsmall,thislandusechangewillbeconcentratedinsomearease.g.southEngland.137UniversityofSheffield,OpenClimateFixandExawattalsoestimatedtowhatextentagriculturelandofdifferingqualitiesoverlappedwiththeeasewithwhichsolardevelopmentscouldgainaccesstogridconnections.Thefoundthatoverhalfofgrade1and2agriculturalland(excellentandverygoodqualitylandthatisconsideredBMVland)weresuitableforsolarfarms134CPRE,Shoutfromtherooftops:deliveringacommonsensesolarrevolution,23May2023135SolarEnergyUK,SolarFarms&FoodSecurity:TheFacts,September2022;EAC,Additionalwrittenevidence:Onshoresolarenergy(PDF),OSE0075[SolarEnergyUK]136CarbonBrief,Factcheck:Issolarpowera‘threat’toUKfarmland?,25August2022.CarbonBriefbasedtheseestimatesonfarmingstatisticspublishedbyDefrain2020(PDF),whichshowthatonehectareoflandproducesaroundeighttonnesofwheatbasedonafive-yearaverage(2015to2020)andestimatesofUKwheatproduction,publishedbyDefrain2021.137EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0040[Exawatt,OpenClimateFix,UniversityofSheffield]32CommonsLibraryResearchBriefing,8November20234.3Planningforsolarfarmsbasedontheeaseofgainingagridconnection.Usingthesamemetric,44%ofgrade3land(moderateandgoodqualityland)andathirdofgrade4land(poorqualitylandthatisnotBMVland)wouldbesuitableforsolarfarms.138UseoflandforbothagriculturalproductionandsolarpowerQuestionsaboutcompetinglandusearenotuniquetotheUKandhavealsoariseninothercountries.Researchershaveexploredwhetheritispossibletouselandbothtogeneratesolarpowerandforagriculturalpurposes.Themulti-functionaluseoflandforsolarpowerandagriculturalproductioniscalled“agrivoltaics”.Examplesofmulti-functionallandusesinclude:•Somelower-growingcropsthatareusuallyharvestedbyhand,suchasberries,lettuceortomatoes,couldbeplantedunderneathsolarpanels.•Certainanimals,suchassheep,couldgrazebetweenorunderneathraisedsolarpanels.139Atwo-yeartrialinGermanyfoundthatcropsgrownunderneathsolarpanelswere“qualitativelygoodandmarketable”.140Onaverage,however,theyresultedinaloweryieldthancropsgrownonaplotwithoutsolarpanels.141Notallcropsaresuitedtobeinggrownintheshadeofsolarpanels,however.Whilesomecropssuchaslettucecanadapttoreducedlightconditions,theshadeofsolarpanelscoulddecreaseyieldofothercropssuchaswheat.142Toaccommodatecropsandallowfarmingequipmenttopassthrough,solarpanelsmayalsoneedtobespacedfurtherapartormoveable.Asaresult,cropyieldsandpowerproductionmaybereducedonlandusedforboththanlandusedsolelyforeither.However,theoverallproductivityofthelandmightstillbeimprovedbyusingitforbothpowerproductionandfarming.143Mostresearchcarriedouttodatehasusedmodellingtechniquesratherthanexperimentsandfocusedonsmaller-sitesandlower-growing,shade-tolerant138EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0040[Exawatt,OpenClimateFix,UniversityofSheffield]139ClaudeGrisonandothers,Photovoltaism,AgricultureandEcology:FromAgrivoltaismtoEcovoltaism,2022140FraunhoferISE,Agrophotovoltaics:HarvestingtheSunforPowerandProduce,December2017141AxelWeselekandothers,Agrivoltaicsystemimpactsonmicroclimateandyieldofdifferentcropswithinanorganiccroprotation,AgronomyforSustainableDevelopment,2021,Vol41(59)142AxelWeselekandothers,Agrophotovoltaicsystems:applications,challenges,andopportunities.Areview,AgronomyforSustainableDevelopment,2019,Vol39143AnthropoceneMagazine,Doublingupcropswithsolarfarmscouldincreaseland-useefficiencybyasmuchas60%,December201733CommonsLibraryResearchBriefing,8November20234.4Planningforsolarfarmscrops.144Researchershavecalledforfurtherstudiesonagrivoltaics,includingtodetermineitspotentialroleintheUKcontext.145StakeholderviewsRenewableenergygroups,suchastheSolarPowerPortalandSolarEnergyUK,havepointedtoagrivoltaicstohighlightthatpowerproductionandfarmingarenotnecessarilymutuallyexclusive.SolarEnergyUKalsonotedthatusingsomeoftheirlandtogeneratesolarpowercouldprovidefarmerswith“areliablesourceofadditionalincome”.146TheNFUhasalsoexpressedsupportformulti-purposelanduses,forexamplegrazingsheeponsolarfarms,toaddresscompetinglandpressures.147Othergroups,however,havearguedthatagrivoltaicsisnotaviablesolution.Forexample,CPREHertfordshiresaidgrazingsheepunderneathsolarpanelswasonlya“tokengesture”thatcouldnotcompensateforthe“lostpotentialoftheland”.148TheNationalAssociationofLocalCouncils,whichrepresentstheinterestsofparishandtowncouncils,arguedthatthe“chemicalsusedtocleanthesolarpanels”wouldrenderthelandunderneaththemunusable.149ImpactofsolarfarmsonbiodiversitySomeorganisationshavealsoraisedconcernsabouttheimpactofsolarfarmsonbiodiversity.Forexample,CPREHertfordshirearguedthatsolarfarms“canimpactdetrimentallyonbiodiversityandwildlife”astheymayprevent“themovementofanimals”andrestrict“wildlifecorridors”.150SolarEnergyUKhassaid,however,thatwelldesignedandmaintainedsolarfarmscouldofferopportunitiestoimprovebiodiversity.ItsNaturalCapitalBestPracticeGuidanceencouragesdeveloperstocreatewildflowermeadowsandgrasslandsontheirsolarfarmstoincreasetheabundanceandvarietyofplantsandboostthepopulationsofpollinatinginsectsandbirds.151144AlMamunetalAreviewofresearchonagrivoltaicsystems,RenewableandSustainableEnergyReviews,2022,Vol161145EAC,Writtenevidence:Environmentalchangeandfoodsecurity(PDF),ECFS0054[GranthamResearchInstituteonClimateChangeandtheEnvironment]146SolarEnergyUK,Solarfarmsandfoodsecurity:TheFacts,September2022;SolarPowerPortal,Balancingenergysecuritywithfoodsecurityonsolarfarms,26July2022147LordsLanduseinEnglandCommittee,Writtenevidence:LanduseinEngland(PDF),LUE0049[NFU];NFU,Solarphotovoltaicelectricityinagriculture,December2021148CPREHertfordshire,Theproblemwithsolarfarms(PDF),October2021149LordsLanduseinEnglandCommittee,Writtenevidence:LanduseinEngland(PDF),LUE0081[NationalAssociationofLocalCouncils]150CPREHertfordshire,Solarenergyinstallationsinthecountryside(PDF),September2021151SolarEnergyUK,NaturalCapitalBestPracticeGuidance,May202234CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsSolarEnergyUKhasalsosaidthathabitatimprovementsonsolarfarmscouldalsohavepotentialbenefitsfornearbyagriculturalland.152ManagementofsolarfarmstoencouragebiodiversityResearchershavealsoexploredwhetherplantingwildflowersorhedgerowsoradoptingotherlandmanagementpracticesonsolarfarmscouldbenefitbiodiversityinanarea.Reviewsofthesestudiessuggestthatthesemeasureshave“considerablepotential”toenhancethebiodiversityofpollinators(suchasbeesandbutterflies)inanarea.Theyalsosuggestthattheshadingthatsolarpanelsprovidecouldbenefitvegetationandpromoteinsectdiversity.153Forexample,astudycarriedoutbytwoecologicalconsultinggroupswhichcomparedchangesinbiodiversityonelevensolarfarmsinsouthernEnglandtoanearby“controlplot”foundthatgreaterdiversityofplantsandbirdsandagreaterabundanceofbutterfliesandbumblebeesonthesolarfarms.154Thesolarfarmsandthecontrolplotsinthestudyweremanageddifferently,however.Thesolarfarmshadbeenseededwithwildflowermixes,plantsthatintendtoattractpollinators(suchasbumblebees)oragrazingmixessuitableforgrazingforsheep.Thecontrolplotswereusedtogrowcropsorgrassforlivestock.Theresearchersstatedthat“thepurposeofthecontrolplotwastogiveanindicationofwildlifelevelsbeforethesolarfarmwasconstructed”.155Ingeneral,researchershavenotedthepracticeofrestoringhabitatsonsolarfarmsis“stillrelativelynew”and,therefore,thereisnotyet“strongevidenceofthelong-termimpactsonpollinators”andothermeasuresofbiodiversity.156152SolarEnergyUK,SolarHabitat:ALookintoecologicaltrendsonsolarfarmsintheUK,June2023153HollieBlaydesandothers,Opportunitiestoenhancepollinatorbiodiversityinsolarparks,RenewableandSustainableEnergyReviews,2021,Vol145;LeroyWalstonandothers,Opportunitiesforagrivoltaicsystemstoachievesynergisticfood-energy-environmentalneedsandaddresssustainabilitygoals,FrontiersinSustainableFoodSystems,2022,Vol6154Theterm“diversity”isusedtodescribethenumberofdifferentspeciespresentatasite.Theterm“abundance”isusedtodescribethenumberofindividualspresentatasite.155ClarksonandWoodsandWychwoodBiodiversity,Theeffectsofsolarfarmsonlocalbiodiversity:Acomparativestudy(PDF),April2016156HollieBlaydesandothers,Opportunitiestoenhancepollinatorbiodiversityinsolarparks,RenewableandSustainableEnergyReviews,2021,Vol145;LeroyWalstonandothers,Opportunitiesforagrivoltaicsystemstoachievesynergisticfood-energy-environmentalneedsandaddresssustainabilitygoals,FrontiersinSustainableFoodSystems,2022,Vol635CommonsLibraryResearchBriefing,8November20234.5PlanningforsolarfarmsCommitteereportsandgovernmentresponseExpandingthedefinitionofBMVlandTheuseofagriculturallandforsolarfarmswasraisedintheConservativePartyleadershipcampaigninthesummerof2022.157InOctober2022,theGuardianreportedthatRanilJayawardena,theSecretaryofStatefortheEnvironment,FoodandRuralAffairsunderPrimeMinisterLizTruss,wasconsideringexpandingthedefinitionofBMVlandtoalsoincludegrade3b“moderatequality”agriculturalland.158Inits2023reportAcceleratingthetransitionfromfossilfuelsandsecuringenergysupplies(PDF),theEnvironmentalAuditCommitteequestionedwhetherthegovernmentwouldbeabletoachieveitstargetof70GWofsolarpowerby2035ifitlimitedthelandavailableforsolarinstallations.Itstated:WerecognisethattheGovernmentmustbalancetheneedsofenergysecuritywithbiodiversityprotectionandfoodproduction.Nevertheless,movestolimitthelandavailableforsolarinstallationswillmakeithardertoachievetheGovernment’sstatedambitionintheBritishEnergySecurityStrategytoincreasesolarcapacityto70GWby2035.159InMarch2023,thegovernmentunderRishiSunakconfirmedthatitwouldnot“bemakingchangestocategoriesofagriculturallandinwaysthatmightconstrainsolardeployment”.ItsaidthatenergysecurityandclimatechangegoalscouldbeachievedwhilealsomaintainingfoodsecurityfortheUK:Solarandfarmingcanbecomplementary,supportingeachotherfinancially,environmentallyandthroughshareduseofland.[…]meetingenergysecurityandclimatechangegoalsisurgentandofcriticalimportancetothecountry,andthatthesegoalscanbeachievedtogetherwithmaintainingfoodsecurityfortheUK.[…]Thegovernmentwillthereforenotbemakingchangestocategoriesofagriculturallandinwaysthatmightconstrainsolardeployment.160157RishiSunak:Wewon’tloseourbestfarmlandtosolarpanels,TheTelegraph,18August2022[accessed17July2023];'Ourfieldsshouldn'tbefullofsolarpanels':Trussvowstocrackdownonrenewablesdevelopment,BusinessGreen,2August2022[accessed17July2023]158MinistershopetobansolarprojectsfrommostEnglishfarms,TheGuardian,10October2022[accessed17July2023]159EAC,Acceleratingthetransitionfromfossilfuelsandsecuringenergysupplies(PDF),HC109,FourthReportofSession2022-23,January2023,para100160DESNZ,PoweringUpBritain:EnergySecurityPlan,lastupdatedApril202336CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsCallsforalanduseframeworkInitsreportonMakingthemostoutofEngland’sland(PDF,December2022),theLordsLandUseCommitteecalledonthegovernmenttodevelopalanduseframeworktoidentifywhatlandshouldbeusedforwhichpurposes.161Thecommitteenotedthat,althoughtheNationalPlanningPolicyFrameworkdiscouragesthedevelopmentofBMVland,“toomanyexceptionsarebeingmade”.Itrecommendedthatthegovernmentshouldputinplace“stricterregulations[…]topreventthedevelopmentofsolarfarmsonBMVland”andadopt“aconsistentpolicy”topromotetheinstallationofsolarpanelsontherooftopsofbuildings.162Initsresponsetothecommittee,thegovernmentnoteditstargetofafivefoldincreaseinsolardeploymentby2035wouldrequire“sustainedgrowthinbothrooftopandground-mountedcapacity”.Thegovernmentintendstopublishalanduseframeworkin2023.However,initsresponsetothecommittee,itsaidtheframeworkwouldnot“determine[…]whereindividualactivitiesorusesshouldorshouldnotbeoccurring”163TheindependentreviewofnetzeroledbyChrisSkidmoreMP(January2023)alsocalledonthegovernmenttopublishalandusestrategy.Itarguedthat:[…]solarfarmsinthecountrysideshouldnotbeplannedpiecemealbutinaco-ordinatedfashionaspartofaLandUseStrategy.164Thereviewalsocalledonthegovernmenttoremoverestrictionsonthesitingofrenewableprojects“whereapplicable”,arguingthattheserestrictionsputan“unnecessaryburden”ontheplanningsystem.Instead,itrecommendedthatthegovernmentshouldpublishnewguidancetoallowfor“case-by-casedecisions”onrenewableenergyprojects.165Initsresponsetothereview,thegovernmentrestateditscommitmenttopublishingalanduseframeworkin2023.Assetoutabove,however,thegovernmentdoesnotintendtousetheframeworktoprescribewhatlandshouldbeusedforwhichpurposes.Itpointedtoexistingplanningguidance(theNPPFandsupplementaryplanningpracticeguidance),statingthatitwouldnotpublishfurtherguidancetosupportcase-by-casedecisions.166161LordsLandUseCommittee,MakingthemostoutofEngland’sland,HLPaper105,ReportofSession2022–23,December2022,para156162LordsLandUseCommittee,MakingthemostoutofEngland’sland,HLPaper105,ReportofSession2022–23,December2022,para132163GovernmentresponsetotheLandUseCommitteereport‘MakingthemostoutofEngland’sland’(PDF),April2023,para20;DepartmentforEnvironment,Food&RuralAffairs(Defra),Governmentfoodstrategy,June2022,ExecutiveSummary,para17164DESNZandBEIS,Independentreviewofnetzero(Skidmorereview),January2023,para268165DESNZandBEIS,Independentreviewofnetzero(Skidmorereview),January2023,para248166DESNZ,IndependentReviewofNetZero:governmentresponse,March2023,para28andpara48;Defra,Governmentfoodstrategy,June2022,ExecutiveSummary,para1737CommonsLibraryResearchBriefing,8November2023Planningforsolarfarms5BarrierstotheexpansionofsolarpowerInalettertotheSecretaryofStateforEnergySecurityandNetZero(PDF)inMay2023,theEnvironmentalAuditSelectCommitteenotedthatsolarpowercouldmakea“significantcontribution”tothedecarbonisationofthepowersectorandtoenergysecurity.167Thecommitteeexpressedconcern,however,whetherthegovernmentwouldbeabletomeetitsambitionof70GWofsolarpowerby2035“givenexistingbarriersandcurrentratesofdeployment”.Itstatedthat“ratesofdeploymentofrooftopsolarneedtodoubletoreachthe70GWtarget”by2035.168Inits2023progressreporttoParliament,thegovernment’sadvisoryClimateChangeCommitteealsonotedthatthedeploymentofsolarpowerwas“significantlyofftracktomeettheGovernment’starget”.Tomeetthetargetof70GWby2035,itsaidthegovernmentwouldneedtosupportthedeliveryof“averageannualdeploymentrateof3.4GW”.1695.1GridcapacityandconnectionsOneofthemajorbarrierstotheexpansionofsolarpowerhighlightedbytheEnvironmentalAuditCommitteewasdifficultiesinsecuringgridconnections.5TheelectricitygridinGreatBritainTheelectricitygridconnectselectricitygeneratorsandconsumers.Itisformedoftwonetworks:•Thehigher-voltagetransmissionnetwork,whichconnectslargerpowerstationstosubstations.ItisoperatedbyNationalGridElectricitySystemOperator(ESO)inGreatBritain.•Thelower-voltagedistributionnetwork,whichconnectssubstationstoconsumersandalsointegratessmallerpowergenerators.Itisoperatedbylicenseddistributionnetworkoperators(DNOs).170167EAC,LetterfromtheEACChairtotheSecretaryofStateforESNZ(PDF),4May2023168EAC,LetterfromtheEACChairtotheSecretaryofStateforESNZ(PDF),4May2023169ClimateChangeCommittee,2023ProgressReporttoParliament,June2023170NationalGrid,What’sthedifferencebetweenelectricitytransmissionanddistribution?,undated[accessed31August2023]38CommonsLibraryResearchBriefing,8November2023PlanningforsolarfarmsDNOsandNationalGridESOareprivatecompaniesthatownand/oroperateamonopolyinfrastructure.TheyareregulatedbyOfgem,thegovernment’sregulatorofthegasandelectricityindustry.TheLibrarybriefing,Electricitygrids,providesfurtherinformationontheelectricityinGreatBritain.TheEnergyAct2023establishesanindependentbody,theFutureSystemOperator(FSO),tooverseetheentireenergysystemandtransfersmuchoftheresponsibilitiesofNationalGridESOroletotheFSO.171TheLibrarybriefing,EnergyBill2022-23,parts4-6:Electricityandgasmarkets,providesfurtherinformationontherelevantprovisionsintheBill.Tosupplypowertoconsumers,anyenergygeneratorneedstobeconnectedtoeitherthetransmissionorthedistributionnetwork.ThisrequiresapprovalfromtheDNOs,NationalGridorboth.172RenewableenergycompanieshighlighteddifficultiesconnectingtoboththetransmissionanddistributionnetworkandthatDNOsandNationalGridwereunabletoprovidetheconnectionsrequired.173Forexample,SolarEnergyUK,whichrepresentssolarenergycompanies,saidthatasurveyofitsmembersin2022foundthatgridconnectionissuesdelayedatleast40projects.174EnergyUK,theenergyindustry'stradeassociation,said“waittimesforgridconnectionscanbemore[than]sixyears,insomecasesupto10years,”.175Renewableenergygroupshavethereforesaidthatalackofgridcapacityanddelaystogridconnectionshadbecomea“significantsourceofuncertainty”fordevelopersandadded“majorcostsanddelays”totheirprojects.176Renewableenergycompanieshavecalledforthegovernmenttoreviewthewaythegridisplannedanddeveloped,statingthatthecurrentsystemwas“notfitforpurpose”.177TheEnvironmentalAuditCommitteenotedthreemainissuesthathademergedinitsinquiryintoonshoresolarenergy:•Alackofphysicalinfrastructure,suchascables,transformersandsub-stations,todistributeelectricity.•Thequeuingsystem.Tobeconnectedtothegrid,generatorsneedtomakeanapplicationtoNationalGridortheDNO.Developerscanmakeapplicationsforprojectsthathavenotyetsecuredplanningpermission,whichmay“clog”thequeuewithprojectsthatwillnotbecompleted.171DESNZandBEIS,EnergySecurityBillfactsheet:FutureSystemOperator,lastupdatedJune2023;Part5oftheEnergyAct2023172Ofgem,Aguidetoelectricitydistributionconnectionspolicy,April2014173Forexample:EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0046[RWE];EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0035[SSEEnergySolutions]174EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0001[SolarEnergyUK]175DESNZandBEIS,Independentreviewofnetzero(Skidmorereview),January2023,para249176DESNZandBEIS,Independentreviewofnetzero(Skidmorereview),January2023,para249177EAC,Writtenevidence:Onshoresolarenergy(PDF),OSE0017[OriginPowerServicesLtd]39CommonsLibraryResearchBriefing,8November20235.2Planningforsolarfarms•Alackofavailabledataonsolarinstallations,whichcanmakeitdifficulttoplanforandinvestingridinfrastructureintherightlocation.178Initsreportonacceleratingthetransitionfromfossilfuelsandsecuringenergysupplies(PDF,January2023),thecommitteesaid“upgradingtheelectricitygridisacrucialprerequisitetotheachievementofnetzero”.179InitslettertotheSecretaryofState(PDF,May2023),itrecommendedthatthegovernmentshouldworkwithNationalGridESOandDNOstofind“short-termsolutionstounblockthepipelineofdelays”andalsodeliver“longtermfixestoimprovegridconnections”.180GovernmentresponseInitsPoweringUpBritainpolicypaper,thegovernmentacknowledgedthat,inpartsofthecountry,“connectiontimelineshavebecomeaverysignificantissue”whichaffectedtherapiddeploymentofrenewables.Itsaidthatitwas“essentialthatwepreventnetworksfrombecomingablockertoprogress”.181Initsresponsetothecommittee,thegovernmentsaidworkstreamsledbytheNationalGridESOandtheEnergyNetworksAssociation,anindustrybodywhichrepresentslicensedtransmissionanddistributionnetworkoperators,wereworkingonshorter-termreformstospeedupconnectionstothegrid.182InitsresponsetothecommitteeanditsPoweringUpBritainpolicypaper,thegovernmentalsopointedtootherlonger-termactionsitwastakingtoreduceconnectiontimelines:•Publishinganactionplanin2023respondingtotherecommendationstobemadebytheElectricityNetworksCommissionerNickWinser.183•Establishinganew,publiclyownedFutureSystemOperator(FSO)intheEnergyBill.184ThegovernmentsaiditwouldconsultontheFSO’sroles.•ConsultingonitsstrategyandpolicystatementforenergypolicyinGreatBritain,includinghowtoexpandnetworkcapacityaheadofneed.185178EAC,LetterfromtheEACChairtotheSecretaryofStateforESNZ(PDF),4May2023179EAC,Acceleratingthetransitionfromfossilfuelsandsecuringenergysupplies(PDF),HC109,FourthReportofSession2022-23,January2023,para108180EAC,LetterfromtheEACChairtotheSecretaryofStateforESNZ(PDF),4May2023181DESNZ,PoweringUpBritain:EnergySecurityPlan,lastupdatedApril2023182DESNZ,LetterfromtheSecretaryofState,DESNZ,totheEAC(PDF),17May2023183DESNZ,Acceleratingelectricitytransmissionnetworkdeployment:ElectricityNetworksCommissioner’srecommendations,August2023184BEISandDESNZ,EnergySecurityBillfactsheet:FutureSystemOperator,lastupdatedJune2023185DESNZ,StrategyandPolicyStatementforenergypolicyinGreatBritain,May202340CommonsLibraryResearchBriefing,8November2023TheHouseofCommonsLibraryisaresearchandinformationservicebasedintheUKParliament.Ourimpartialanalysis,statisticalresearchandresourceshelpMPsandtheirstaffscrutiniselegislation,developpolicy,andsupportconstituents.Ourpublishedmaterialisavailabletoeveryoneoncommonslibrary.parliament.uk.Getourlatestresearchdeliveredstraighttoyourinbox.Subscribeatcommonslibrary.parliament.uk/subscribeorscanthecodebelow:commonslibrary.parliament.uk@commonslibrary

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