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Part B: Solar PV energy

4. Introduction to Solar PV development

This section contains information and guidance on solar PV development. It aims to achieve development which is well-integrated into the landscape and minimises visual impact, whilst conserving and enhancing valued landscape features and characteristics.

It also identifies circumstances where solar PV development would be at odds with the intrinsic undeveloped character of the landscape and/or the special qualities of Protected Landscapes.

4.1 Types of solar PV development

The scale of solar arrays or installations can vary significantly depending on the purpose, from single panel installations powering an individual device, to arrays of panels covering many hectares of land to power large energy users or the national grid.

Solar power systems are sets of photovoltaic (PV) panels, inverters, and supporting components that convert sunlight into electricity. These systems can be installed on rooftops, ground mounts, or other suitable surfaces to harness solar energy.

Large commercial projects tend to be connected to the National Grid although for some smaller schemes, the output might be used for off-grid connections to supplement the energy use of nearby developments such as a hospital or factories for example.

For field-scale schemes, approximately 25 acres (10ha) of land is required for every 5 megawatts (MW) of installation while 6 to 8 acres (2.4 to 3.2ha) will be needed for a 1MW installation. Space isn’t just needed for the panels themselves but for essential equipment like inverters and any storage batteries too. There must also be enough space between the rows of panels to allow for maintenance access.

A graphic showing the different sizes of solar PV schemes

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In greenfield sites, the ground between the panels is usually mown, or grazed by sheep. However, a range of alternative agri-solar schemes are currently being trialled, particularly in Europe, where crops such as vines or tomatoes are grown between/under solar panels. There are also UK examples of heather being established between panels where this is a locally-growing habitat.

The materials used in solar PV panels have a limited working life, and at the end of this will need to be either replaced, or removed and the site restored as set out in the Landscape and Ecology Management Plan or Decommissioning Plan.

4.2 Components of a solar PV scheme

The components of a solar PV scheme with labels pointing out each component

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The typical components of a large community or commercial solar PV development are:

  • creation or improvement of site access for construction, operation and decommissioning purposes
  • solar panel arrays comprising solar panels mounted on braced steel framework with the panels, inclined at an angle of approximately 20 degrees towards the south, elevated between approximately 0.8 m (at the leading edge) and 3.0 m (at the back edge) above existing ground level. Some are lower than this. The gap between arrays will be approximately 3 m
  • inverter or transformer station(s) (typically 6m long x 2.5m wide x 3m high)
  • enclosed substation compound (typically 6 m long x 3 m wide x 3m high)
  • a control cabin containing a weather station and communication equipment (typically 5m long, 3m wide and 3.5m high)
  • surfaced maintenance access tracks
  • 2m high galvanised wire mesh security fencing or 2 m high deer fencing surrounding the site/components. The choice of fencing will depend on factors including the proximity of the site to housing, roads or public rights of way
  • CCTV surveillance cameras mounted poles or posts, generally located at significant field corners and/or at intervals around the security fencing

In addition to the above infrastructure, solar PV developments are increasingly incorporating Battery Energy Storage Systems (BESS) to use energy more flexibly and maximise the usable output from intermittent low carbon generation. This reduces the need for additional generation and costly network upgrades.

These systems are usually housed in steel boxes approximately 12 m long x 2.5 m wide x 3 m high, with a similar appearance to shipping containers. They are therefore often the largest structures on the site. See Part C for more information on BESS.

4.3 Potential landscape and visual issues

The design of solar PV development is a complex, many-faceted challenge. The following are some of the principal landscape issues that the designs will need to address, and demonstrate an appropriate response to, when making an application:

Solar PV panels tend to reflect the colour of their surroundings, including the sky, and this can make them stand out from their landscape context. Their appearance has variously been likened to straw bales wrapped in black plastic, areas of standing water (for example, reservoirs or lakes) or runways, when viewed from certain angles and from distance.

Solar PV panels, ancillary buildings and associated structures, together with security requirements (such as fencing and CCTV) have an industrial appearance which, if not well sited, can appear out of place particularly in very rural landscapes.

Whilst of limited height, Solar PV arrays, often occupying large areas of land, tend to have a regular geometric appearance which may contrast markedly with surrounding land cover patterns.

Solar PV developments may mask or dilute field patterns, particularly where the maximum height of supporting racks is higher than hedgerows or other field boundaries or where racks are arranged right up to the boundary. The regular edges of solar PV developments may be particularly conspicuous in more irregular landscapes (especially where they do not follow contours or where field boundaries are irregular in form).

Construction of solar PV arrays can result in impacts on, or the loss of, landscape features such mature trees and hedges (sometimes to reduce shading of the panels).

Solar PV arrays may be particularly visible in long views when located on a hillside or when looked down on from high ground.

The presence of PV panels and associated infrastructure may mask underlying semi-natural habitats or archaeology.

Noise from inverters and cooling technology (if required) may reduce tranquillity;

Access tracks may be highly visible, particularly in open or undeveloped landscapes that currently may not contain such infrastructure.

Solar PV developments may affect designated heritage assets and their settings, for example through changing the setting of Listed Buildings, or appearing as intrusive elements in designed views. They may also affect non-designated heritage assets such as areas of historic field patterns which form the edges to historic settlements.

Grid connections might involve the removal of landscape features and/or might detract from the rural character of the landscape.

Protected Landscapes (National Parks and National Landscapes) are likely to be particularly sensitive. Extreme care therefore needs to be taken to ensure the siting of solar arrays does not affect the special qualities of Protected Landscapes. The views in and out of protected landscapes, and their settings, also need to be considered.

Glint and glare can occur when sunlight reflects off PV panels. A specialist assessment may be required of potential glint and glare effects on road users, train drivers and pilots. The need for such an assessment should be discussed at the pre-app or scoping stage.

PV panels may reflect moonlight, making them visible on moonlit nights and detracting from the rural character at night time.

4.4 Cumulative landscape and visual impacts

The proximity to the grid is a key factor affecting the economic viability of solar PV arrays.

The need for sites to be located close to a suitable grid connection means that proposals are likely to cluster around these grid connection points.

This makes it especially important that the landscape and visual effects of solar PV array proposals are considered not only in isolation but also in terms of the potential cumulative effects with similar proposals and other forms of development.

If unchecked, there is a risk that the cumulative impacts of schemes leads to them becoming a significant or defining characteristic of the landscape.

Cumulative visual impacts concern the degree to which proposed renewable energy development will become a feature in particular views (or sequences of views), and the impact this has upon the people experiencing those views.

Cumulative visual impacts may arise where two or more of the same type of renewable energy development will be visible from the same point, or will be visible shortly after each other along the same journey.

Hence, it should not be assumed that, just because no other sites will be visible from the proposed development site, the proposal will not create any cumulative impacts.

Sequential views should be considered from roads, public rights of way, and recreational routes (such as the Tarka Trail, for example).

The cumulative landscape impacts, and the cumulative visual impacts, of solar PV developments should be considered with each application. It is necessary to consider cumulative impacts with schemes which are already built, those which have been consented, and those in the planning system.

5. Landscape sensitivity to solar PV development in Devon

Landscape sensitivity is a measure of the ability of a landscape to accommodate change arising from specified development types or land management without undue negative effects on the landscape and visual baseline and their value.

It combines judgements of the susceptibility of the landscape to change and the values attached to the landscape.

More information can be found in An Approach to Landscape Sensitivity Assessment – to inform spatial planning and land management (Natural England, 2019).

Landscape sensitivity is closely related to landscape character. Devon’s Landscape Character Assessments provide the evidence base which articulates what the key characteristics, valued attributes and special qualities are for all landscapes in the county.

Further information about landscape character can be found in section 15.3 (Part E).

There are existing Landscape Sensitivity Assessments for field-scale solar PV development covering Exmoor National Park, Torridge and Mid Devon District and Teignbridge District.

Recommended criteria to use when undertaking future Landscape Sensitivity Assessments for wind energy in Devon are provided in part F of this guidance.

6. Guidance on siting and designing PV development in Devon

This section starts with general considerations when identifying potential locations for solar PV development, before addressing more detailed design considerations.

For most schemes, the availability of a grid connection, and suitable solar conditions, will also be a key consideration when identifying potential sites.

It should be noted that as this guidance relates primarily to landscape, there will be other matters, such as impacts on heritage assets, ecology and access that need to be taken into account in site selection, design and decision-making.

Schemes are generally more likely to be granted planning permission if they are supported by the local community.

Early engagement with the local community around scheme benefits, location and design is may help to achieve this. There may also be opportunities for communities to instigate schemes for local benefit.

6.1 Protected Landscapes (National Parks and AONBs/National Landscapes)

It is sometimes possible to accommodate small-scale solar PV developments in nationally-protected landscapes (National Parks and National Landscapes) and their settings.

For example, Creacombe solar PV development is in the South Devon National Landscape, and there is a small solar PV development at Dunkeswell Airfield in the Blackdown Hills National Landscape.

However, schemes need to be scaled, sited and designed with great care to ensure that they do not adversely affect the area’s distinctive key landscape characteristics and special landscape qualities.

These may include distinctive landform or landcover features and/or perceptual qualities such as a strong sense of remoteness or wildness.

Areas designated as National Parks and AONBs/National Landscapes are legally protected. Under national planning policy, the scale and extent of development within designated areas should be limited, and development within their setting should be sensitivity located and designed to avoid or minimise adverse impacts on the protected landscapes.

Major development should only be permitted within protected landscapes in exceptional circumstances. See Part E for more detail, and on protected landscapes within Devon.

Relevant authorities have a duty ‘to seek to further the statutory purposes of National Parks and National Landscapes through Section 245 of the Levelling Up and Regeneration Act 2023’. This may include proposals within their setting which may affect views in and out of them.

There is a need to consult with relevant National Park Authority or National Landscape regarding proposals which may be outside their boundaries but within their settings.

If a scheme’s LVIA demonstrates that the proposals will conserve and enhance natural beauty then they can be accommodated even in protected landscapes.

6.2 Rooftop, urban and brownfield sites

Often, accommodating solar PV panels on the roofs of buildings has fewer impacts on landscape character than ground-mounted schemes. This is because the perceived extent of development within the view is not increased.

Similarly, ground-mounted schemes are more likely to blend in in urban or peri-urban areas, because there is already a precedent for built form in these locations.

‘Rooftops first’ is a good general rule for accommodating solar PV panels. They may be retrofitted or integrated into large or small buildings, in urban or rural contexts, provided that the roof construction, use of the building, and orientation is suitable.

While PV panes on rooftops benefit from some ‘permitted development rights’, planning permission is required in certain circumstances including if the building is Listed (or within a listed building’s curtilage), a Scheduled Monument, or in some situations within a Conservation Area or World Heritage Site.

Applicants should refer to the General Permitted Development Order or consult their local planning authority.

Please note that if the building is Listed or a Scheduled Monument, then additional consents will be required (such as Listed Building and Scheduled Monument Consent).

Particular care is needed when retrofitting historic buildings, and whilst some proposals will be acceptable, others may not.

Further information on what is likely to require consent, and to be found acceptable, can be found in Adapting Historic Buildings for Energy and Carbon Efficiency.

Design guidance for retrofitting solar PV on historic buildings can be found here.

Reclaimed or man-made landscapes (such as former quarry sites) may also be suitable for solar PV developments.

An example of rooftop solar PV at Shillingford Organics (Exeter Community Energy).
An example of rooftop solar PV at Westhayes Farm, Hemyock.

The images above are rural examples of rooftop solar PV at a) Shillingford Organics (Exeter Community Energy) and b) Westhayes Farm, Hemyock. Example a) contains two arrays – the right hand one (on the lower, more gently sloping roof with the whole roof covered) is much less noticeable than the left hand one, which forms a strip on a steeply sloping roof. Example b) has a simple block of panels which blend in with the surrounding barn roof.

A community building with rooftop solar PV at South Brent Recreation Ground (South Brent Community Energy).
A community building with rooftop solar PV at Leatside Surgery Totnes (Totnes Renewable Energy Society)
A community building with rooftop solar PV at Lescaze Offices (Listed Building Grade II) (Totnes Renewable Energy Society).

The images above are community buildings with rooftop solar PV a) South Brent Recreation Ground (South Brent Community Energy; b) Leatside Surgery Totnes (Totnes Renewable Energy Society; c) Lescaze Offices (Listed Building Grade II) (Totnes Renewable Energy Society). Example a) uses a full-width strip of panels which fits with the form of the building. Example b) uses full-roof arrays integrated into the design of the building and which help to accentuate its unconventional roofscape in a positive way. Example c) has the panels hidden behind the building parapet so they cannot be seen from ground level.

A large building with rooftop solar PV arrays on Sowton Industrial Estate, Exeter.
A large building with rooftop solar PV arrays at Great Moor House (Exeter Community Energy).

Large buildings with rooftop solar PV arrays on Sowton Industrial Estate, Exeter a) Great Moor House (Exeter Community Energy) and b) Devon Technology Centre. Example a) is difficult to see, even in winter, due to surrounding trees and limited visibility of the building. Example b) has panels which accentuate the curved architectural form of the roof in a positive way.

Rural brownfield sites such as disused airfields with existing hardstanding can form potential sites for solar PV developments, especially when they are sited on a plateau (and therefore not viewed from above) and/or where there are opportunities to enhance the landscape character through restoration of lost features such as hedges and woodland.

Old quarries may also offer opportunities to accommodate solar PV development with minimal landscape or visual impact.

6.3 Transport of components

It is important to consider the practicalities of transporting components to the site. Some components (such as battery storage units) come as fixed-size units and cannot be dismantled for transport.

The site therefore needs to be accessible by large vehicles transporting these components without damage to historic lanes or hedgebanks, or the removal of roadside trees.

6.4 Landscape considerations

Once the general location of the scheme has been identified, it is necessary to undertake careful detailed design in order to minimise and mitigate its effects on the landscape and views as much as possible.

Alternative site layouts should be investigated to compare the effects of different designs and to find the optimum layout and design of a solar PV development.

It is also important to contact the local Planning Authority as early as possible for pre-application discussions, so their advice can be taken on board from the earliest stages. This will save time and money in the long run.

The following diagram shows the landscape-related issues which should be considered when designing a solar PV development. Guidance on each topic is provided in the following sections.

Landscape considerations when designing a solar PV development.

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6.5 Getting the scale right

Landscape scale is made up of two factors: scale of landform and pattern of land use. Scale of landform relates to the perceived height and horizontal extent of the topography. It is also influenced by the degree of openness or containment created by the topography. For example, a flat plateau will be of a larger scale than a steep-sided valley.

Pattern of land use relates to the containment provided by fields, hedges, woodland etc. Low-growing vegetation such as moorland or cereal crops can reinforce the sense of openness. Individual elements within the landscape (for example trees or buildings) can form reference points against which other features are perceived and understood.

Devon contains a wide range of landscape scales due to its diverse topography and land uses.

In Devon, the largest scale landscapes are generally found in open moorland and lowland plain landscape types.

The smallest scale landscapes are generally found in narrow valleys and areas of sloping land and intricate field patterns.

Landscape Character Assessments will provide information on the scales of landscapes in the area where the scheme is being considered.

Solar PV developments can be implemented at a range of sizes, and it is important to create a scheme which fits with the scale of the surrounding landscape.

Consider the scale of the landscape (if in doubt, consult the relevant Landscape Character Assessment and/or a qualified landscape architect).

Generally-speaking, larger-scale landscapes will be able to accommodate larger solar PV developments within their existing field pattern than smaller-scale landscapes.

If the size of the development is too large for the landscape in which it is situated, it will be overbearing and will be more likely to result in significant adverse effects on landscape character and on views.

A simple black and white sketch of a large scale lowland Devon landscape with a simple landform and large regular fields.
A large scale lowland Devon landscape with a simple landform and large regular fields
A simple black and white sketch of a small scale Devon landscape with intricate field patterns on sloping valley sides.
A small scale Devon landscape with intricate field patterns on sloping valley sides

6.6 Relating to landform

In general terms, solar PV developments usually fit best into relatively flat landforms, such as plateaux, lowlands and broad valleys. Steep slopes and ridge landforms are least able to successfully accommodate solar PV developments due to their visual prominence.

A sketch showing the preferred type of solar PV development on a flat landform.
How a PV array appears an a) sloping and b) flat landform. On flat landforms, the panels at the front of the array hide those behind, but on sloping landforms all the panels are visible.

Valley floors (outside floodplains) and shallow slopes on lower valley sides can often accommodate solar PV developments more comfortably than higher or steeper slopes.

A sketch showing that solar panels on lower valley sides appear much less incongruous than those on upper slopes.
Solar panels on a) upper slopes and b) lower valley sides. Those on the lower valley sides appear much less incongruous then those on the upper slopes.

Plateau-top sites can work well for solar PV development (provided that they are not looked-down on from higher land) but it is necessary to set panels back from the edge of the plateau so they don’t appear on the skyline when viewed from below.

Where possible, design the arrays so that they follow contours rather than running up or down the slope. Avoid siting panels that are remote from the rest of the group.

A sketch showing that solar panels that run across the slope of a landscape fit better with the 'grain' of the landscape.
Panels running a) up-down the slope and b) across the slope. The panels running across the slope fit better with the ‘grain’ of the landscape. This sketch also illustrates how different the fronts and sides of the panels (which contain the frames) appear. Hedge or tree planting along the side edges can help to mitigate these effects.

Case study: Land East of Bowden’s Farm, Shillingford

This PV development near Shillingford is located on the lower valley side, and sits very comfortably within the landscape.

Its assimilation into the landscape is helped by the retention of existing trees, hedges and woodlands, and respect of the existing field pattern.

The landscape already contains pylons, and some settlement. The site covers 13.34ha and produces up to 5.5Mw of power.

The PV scheme on land east of Bowden’s Farm Shillingford, viewed from the north-east.
PV Scheme Land east of Bowden’s Farm Shillingford, viewed from the north-east. The panels are set low within the valley, and do not disrupt the existing field pattern. There are already pylons and village settlement within the view.
The PV scheme on land east of Bowden’s Farm Shillingford, viewed from the south. The panels are largely obscured by trees.
PV Scheme Land east of Bowden’s Farm Shillingford, viewed from the south. In this view (from a lane) the panels are largely obscured by trees, even in winter. The more visible upper slopes of the valley remain undeveloped.

6.7 Respecting valued landscape features

Employ a qualified landscape architect and/or consult the relevant Landscape Character Assessment and Local Plan (and Neighbourhood Plan, if applicable), to understand which landscape features in the local area are highly valued and therefore should be protected.

Some of these valued features will be designated for their landscape, nature conservation or cultural heritage value.

Other valued features may not be designated but are still important, such as, for example, distinctive skylines, historic field patterns, hedges and hedgebanks, key views, and landscapes with a strong sense of wildness or remoteness.

However, all could be adversely affected by poorly-sited or designed solar PV development.

Think about the position of panels and also of cabling – it is unlikely that panels or trenches will be permitted in areas with existing or potential archaeological features, or in locations with valued habitats which would be affected by panels or trenches.

Locate and design the scheme to protect cultural heritage features, heritage assets and (in the case of – for example – Scheduled Monuments, Listed Buildings, Registered Historic Parks and Gardens and Conservation Areas) their settings. A setting is the surroundings in which a designated site is experienced. It may include views to or from the designated site. Landscape character therefore often contributes to the settings of heritage assets.

Consult the Devon Historic Environment Team at an early stage to identify the need for archaeological work and potential mitigation measures through site design. The result of archaeological investigations may require re-siting of PV panels or cabling to avoid impacts on significant heritage assets with archaeological interest. This may affect the layout of PV panels within the site.

Renewable energy schemes may have direct physical impacts on valuable habitats and soils. Areas of carbon-rich peat moorland, peat soils or bog, and irreplaceable habitats such as ancient woodland are not considered to be suitable for renewable energy development.

Protect areas valued for their remoteness, wildness and perceived lack of human influence, such as upland moorland, and areas of undeveloped coast.

Some historic field patterns have intrinsic historic landscape character significance or potential for preserved archaeological evidence, and are therefore unlikely to be suitable sites for solar PV development. Use the Devon Historic Landscape Characterisation (ADD LINK) to identify the types of fields within the site. Areas shown as rough ground with earlier remains; prehistoric fields; watermeadows; strip fields and medieval enclosures should generally be avoided. Some more recent but discrete enclosed landscapes may also be sensitive, such as Barton fields, particularly when associated with a Listed historic farmstead.

Locate and design the scheme to avoid damage to designated natural heritage sites such as Special Areas of Conservation, Special Protection Areas, Sites of Special Scientific Interest, County Wildlife Sites, Regionally Important Geological Sites and Ancient Woodland.

Seek opportunities to enhance cultural landscape features, for example through landscape design or Biodiversity Net Gain measures which enhance assets such as parkland, woodland or meadows, or which take archaeological sites out of cultivation.

6.8 Trees, hedges and habitats

Hedges and woodland help to screen solar PV development and assimilate it into the landscape, and also provide opportunities to enhance habitats beyond basic mitigation.

For example, solar PV schemes could incorporate new woodland, orchard, grassland or wetland creation. Guidance on biodiversity enhancements through solar PV schemes include:

Natural Capital Best Practice Guidance – Increasing Biodiversity at All Stages of a Solar Farm’s Lifecycle Solar Energy UK.

Biodiversity Guidance for Solar Developments BRE (2014) Eds. GE Parker and L Greene.

Solar development can achieve the statutory requirement for 10% Biodiversity Net Gain (BNG) on their projects by incorporating biodiversity considerations into their planning and design. This can include:

  • avoiding sensitive habitats: Designing projects to avoid sensitive habitats and species, and scheduling construction to avoid sensitive periods
  • minimising impact: Building mitigation measures into the design and operations of the project
  • restoring habitats: Restoring intensive arable land or improve grassland to permanent grassland

Solar farms have been shown to increase the biodiversity of land compared to surrounding undeveloped land when managed sustainably, for example, re-seeding with species-rich wildflower mixes and/or agricultural grass mixes, benefitting wildlife as well as providing ecosystem services for people and agriculture (such as increase in pollinating insects on solar farms promotes the health of surrounding crops).

Biodiversity enhancements should be selected to fit the physical attributes of the site and complement existing habitats and species of value on and surrounding the site.

Most landscapes in Devon have hedge and woodland cover; the exceptions are generally open moorland and coast.

Other land cover within Devon includes culm grassland, heath. meadow and marsh, which are generally protected through designation.

Native trees and important landmark trees should not be felled to accommodate PV development.

Trees (in woodland, copses, alongside roads, in hedges and in fields) are hugely important to Devon’s landscape character, and to its biodiversity. This is also true of the network of hedges and hedgebanks which create Devon’s distinctive ‘patchwork’ of fields. The solar PV development (including panels, tracks and cabling) should therefore be designed to retain existing trees, hedges and hedgebanks.

Existing hedges or hedgebanks should be managed to improve their structure, provide screening and increase biodiversity value. Management regimes may need to vary according to species composition. Hedges are living and dynamic things which need to be managed as part of a natural cycle. More information about management of Devon hedges and hedgebanks can be found here.

New hedgebanks, hedges and woodland can be created around the peripheries of solar PV developments to help screen them from surrounding roads, footpaths and properties.

There may also be opportunities to plant new native-species hedges to break up large expanses of panels, so that the scale of the scheme fits more closely with the surrounding landscape. These have the added advantage of forming wildlife corridors across the site.

Field margins around the perimeters of panels have potential to become habitats in their own right. They can be used to grow wildflowers and tussock grasses to encourage pollinators, and also form habitat for ground-nesting birds, bats, and other species. Beehives can be situated around solar PV developments, although in some cases it may be more appropriate to support wild bee populations. Note that it can be difficult to establish wildflower meadows on land which has been previously fertilised, as the soil conditions may be unsuitable. Refer to the Local Nature Restoration Strategy to identify suitable habitat enhancements for a particular site.

It may be possible to use sheep to graze around panels to keep weeds down, but it is not always successful as sheep do not always chose to graze between the panels. Chickens may be a potential alternative. Weed-suppression matting should be avoided because of its unnatural appearance and potential impacts on water infiltration. The spacing between panels needs to be sufficient for management and maintenance requirements. Agri-solar schemes (still experimental in the UK) combine solar panels with growing crops such as tomatoes or vines.

Rationalise access points to minimise site access from public highways and the infilling of roadside gateways which are not required for site access.

A Landscape Enhancement Management Plan should be prepared as part of the planning application, showing how landscape and biodiversity features are being retained and enhanced through the scheme. Refer to the Devon Local Nature Recovery Strategy when preparing a Landscape Enhancement and Management Plan.

A black and white sketch illustrating that a PV array is better in a landscape with mature hedges.
PV Array in a) an open landscape with low hedges, and b) in a landscape with mature hedges which help to filter views of the panels.
A black and white sketch showing that a PV array works better in a landscape with historic field pattern.
PV array in a) large amalgamated fields and b) with historic field pattern restored to break up the expanse of panels

Case Study: Creacombe solar farm

Creacombe solar PV development is owned by Yealm Community Energy, and generates up to 4.4Mw of power.

It is located on grade 3b agricultural land on the Gnaton Estate, within the South Devon National Landscape. It is on a flat plateau site, with very limited intervisibility with the surrounding landscape.

New Devon hedgebanks have been constructed to screen views of the site from roads and a nearby property.

The development lies within the South Devon B-Line, one of the pathways in the south of England designed to help conserve native insect pollinators.

Wildflower planting has taken place around the margins of the site and between the panels, and there are also beehives within the site.

New peripheral tree and shrub planting also helps to screen the control building and soften the site entrance.

Fencing is as unobtrusive as possible, and the CCTV cameras are on low wooden poles.

Creacombe PV scheme in summer with wildflowers (bee habitat) growing around the panels.
Creacombe PV scheme in summer with wildflowers (bee habitat) growing around the panels (Credit Guy Parker)
A new hedge bank with beehives next to it.
New Devon hedge bank at Creacombe solar PV scheme to screen the panels, with beehives adjacent

The intention at Creacombe is to graze sheep around the panels, as happens at this solar PV site north of the B3165 and east of Wareham Road, near Axminster:

Solar panels in a field with sheep grazing.
Grazing sheep between and around solar panels, PV scheme near Axminster

6.9 Considering views, viewpoints and protected landscapes and their settings

Visit all parts of the potential site, and look around you. Is it possible to see any roads, footpaths, houses, known viewpoints (marked on Ordnance Survey Maps) or land within National Parks or National Landscapes?

If any are visible from the site, then it is likely that the site will be visible from them. Particular care will therefore need to be takenin the design of the scheme to ensure that its visual impact from these places is minimised. This may require re-siting of the panels, and/or mitigation in the form of new native tree/hedge/woodland planting.

It is particularly difficult to mitigate when a site is looked down on in views from above, so if a site is located below an important viewpoint it may be necessary to consider an alternative site.

Where a footpath passes close to or within the site, it is necessary to carefully consider the relative heights of people on the footpath, existing or new hedges, and the panels. Setting back the panels at a greater distance from the hedge will also reduce their visibility from the footpath.

Consider the orientation of panels in relation to viewpoints, roads and footpaths. Often, the front faces of PV panels are less conspicuous than the sides or backs which contain the frames. Screening with existing or newly-planted vegetation can also help to reduce these visual effects. In some cases it may be possible to allow existing hedges to grow out to screen views of panels from footpaths or other viewpoints. However, this should only be done where it fits with local landscape character, restores traditional management practices, does not result in deterioration of the hedge, and does not produce unreasonable shading of panels.

If a scheme is within or in the setting of a National Park or National Landscape, be mindful that there is a legal duty on relevant authorities to ‘seek to further the purposes’ of the protected landscape. Development within their setting should be sensitively located and designed to avoid or minimise impacts on the designated area and be consistent with the protected landscape purposes. See Part E for more detail on this, and on protected landscapes within Devon. Additional measures to help fulfil the aims and objectives of the protected landscape’s Management Plan may also be required. This may include, for example, woodland planting or habitat creation.

A field with sheep grazing and solar panels visible in the distance.
New woodland planting in association with solar PV development just outside the East Devon National Landscape.
A field with a new hedge planted to screen security fencing and solar panels in the next field.
New hedge planted to screen security fencing and solar panels from adjacent footpath, Newlands Farm, Axminster.

6.10 Accommodating auxiliary structures, access and cabling

Renewable energy schemes and their auxiliary development may have direct physical impacts on valuable habitats and soils. Areas of carbon-rich peat moorland, peat soils or bog and irreplaceable habitats such as ancient woodland are not considered to be suitable for renewable energy development, including auxiliary structures, access and cabling.

Locate auxiliary structures in the lower part of the site, and at a field edge so they are less obvious.

Use trees or hedges (or existing buildings if suitable) to screen auxiliary structures, including security fencing. There is likely to be an offset of 4m required between fence and hedge.

Deer fencing (with timber uprights and wire infill) is least intrusive, followed by dark-coloured steel security fencing. Timber palisade or close-boarded fencing appears very visually prominent and should not be used.

Use recessive colours such as dark greys and browns (greens – surprisingly – are less good) rather than light colours for storage units, battery units and fencing. There may also be opportunities for innovative solutions involving ‘wrapping’ buildings in vines or using cladding.

If it is necessary to construct new access tracks, use existing gateways where possible and aim to avoid removal of trees and hedges. If damage is unavoidable, features should be reinstated like-for-like once the construction stage is completed.

Consider vegetated or temporary roadway matting as an alternative to new surfaced tracks, rather than using hardcore or other solid surfacing. Where stone tracks are provided for construction purposes, consider removing or reducing width or extent for operational phase.

Grid connection cabling should ideally be under existing roads. If trenching for cables is required, it should use existing gateways and minimise damage to trees and hedges. If damage is unavoidable, features should be reinstated like-for-like on completion of the scheme.

Consult the Devon Historic Environment Team at an early stage to identify the need for archaeological work and potential mitigation measures through design of auxiliary elements such as site compounds, access tracks, fencing and cable runs.

An auxiliary building for a PV development behind a gate and with new trees planted to screen it.
Auxiliary building in recessive colour, with new tree planting to screen it in views from the adjacent lane (Creacombe).

6.11 Getting the detail right

Allow the existing field patterns to dictate the layout of the panels. Avoid straight edges to blocks of panels in fields which are irregular in shape.

The lower the height of the panels, the less visible they are likely to be from adjacent roads and footpaths, and from the surrounding landscape. When designing ascheme, aim to keep panels below the height of surrounding hedges or hedgebanks.

Row spacing should be sufficient to provide access for maintenance, and should be appropriate for any secondary land use (for example, sheep grazing, wildflower planting) taking into account the shading effects of the panels.

On greenfield sites, use pile-driven or screw-anchored bases to panels rather than concrete foundations (assuming there are no archaeological constraints).

Where possible, use panels with dark coloured surrounds and frames rather than light-coloured or shiny ones, as they are less visible. This is particularly important when panels may be seen from the back or side.

Avoid urban-style materials such as black-top tarmac and concrete kerbs on tracks and hardstanding.

Light pollution should be avoided. If lighting is required, use passive infra-red (PIR) lighting where possible, and ensure that any visible lighting is designed and installed in a manner which minimises glare or light-spill into the surrounding landscape. This is particularly important in areas which currently have dark night skies.

If CCTV is required, poles should not be higher than surrounding fencing, and should be mounted on timber poles, or metal poles painted a recessive colour.

As mentioned above, fencing and other auxiliary structures should be painted dark recessive colours such as dark grey or brown, or utilize natural timber.

Where appropriate, for example, where schemes are close to populated areas or public rights of way, consider signage to help educate the public about the scheme.

Solar panels in a field with a low fence around it and timber CCTV poles.
Unobtrusive fencing and timber CCTV poles to minimise urbanising influences in the countryside (Creacombe).

6.12 Minimising cumulative impacts

Cumulative impacts may occur where more than one solar PV development is visible in a view, or where a series of developments occur along a road, footpath or railway line.

They can result from schemes clustering around grid connection points, or suitable access roads.

In extreme cases cumulative impacts can cause a landscape to become dominated by PV panels to the extent that its character is changed from a farmed landscape to a solar PV landscape.

A number of measures can be taken to reduce the severity of cumulative impacts, as follows:

  • Scheme designs should consider how the scheme fits with other existing, consented and proposed schemes (including within neighbouring planning authorities) to minimise cumulative effects.
  • Use panels of similar size and design for all schemes which will be seen in the same view, and when extending a scheme.
  • Maintain a diversity of landcover types in any given area.
  • Individual solar PV developments should generally appear separate unless specifically designed to create the appearance of a single combined development.
  • Ensure that the scale of development is in scale with the landscape in which it lies.
  • If two or more solar PV developments are clearly visible in the same view and appear in the same Landscape Character Type they should appear of similar scale (unless the first development is considered too large for its landscape context) and their design should relate to the underlying landscape in the same way.
  • Consider sequential views from roads and footpaths, so views are not dominated by a continued presence of PV developments along the route.
  • Consider views from settlements and protected landscapes, and avoid ‘surrounding’ them with solar PV developments.
  • When considering PV developments, decision-makers should ensure that some key open views devoid of PV developments are maintained, so that PV developments do not dominate the overall experience of Devon’s landscape.

6.13 Summary checklist

Landscape considerations

Solar PV schemes are more likely to have an acceptable or less harmful impact on the landscape if they:

  • are located outside nationally important landscapes and their settings (although small-scale schemes may be acceptable depending on local circumstances, location and scheme design)
  • are not located within valued landscapes, or within landcover perceived to be natural such as moorland
  • are not detrimental to the intrinsic character or beauty of the countryside
  • are located on rooftops, carpark canopies or previously-developed land or in the vicinity of existing large modern industrial buildings
  • are proportional to the scale of the surrounding landform and field patterns
  • respect existing topography, and avoid cut and fill
  • are sited on flat land or shallow slopes rather than steep slopes
  • do not harm existing vegetation (including mature hedges or trees), protected habitats, and avoid peat soils
  • are not detrimental to a sense of remoteness, wildness or tranquillity
  • do not damage historic lanes/tracks, hedges, hedgebanks or other historic or archaeological features (potential impacts within the site and through access and cabling should be considered through archaeological investigation)

Visual considerations

Solar PV schemes are more likely to have an acceptable or less harmful impact on the landscape if they are:

  • seen in the context of other built development
  • screened in key views by existing vegetation, or by vegetation/hedgebanks or woodland designed into the scheme
  • sited to avoid visibility on skylines
  • not detrimental to key views of landmarks or views from popular viewpoints

Design considerations

Solar PV schemes are more likely to have an acceptable or less harmful impact on the landscape if they:

  • incorporate enhancements to biodiversity and habitat connectivity
  • have ancillary buildings and structures painted a recessive colour (preferably olive green, brown or dark grey)
  • have fencing, gates, CCTV poles, surfacing etc. which use natural materials as much as possible and are as unobtrusive as possible
  • do not introduce urbanising features such as black top tarmac or concrete kerbs into rural locations

Cumulative impacts

Solar PV schemes are more likely to have an acceptable or less harmful impact on the landscape if they do not have unacceptable cumulative impacts with other existing, consented or planned renewable energy schemes.

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