Part F: Landscape sensitivity criteria

17. Landscape sensitivity

17.1 Introduction

Landscape sensitivity is a measure of the ability of a landscape to accommodate change arising from specified development types or land management. It combines judgements of the susceptibility of the landscape to change and the values attached to the landscape.

Landscape sensitivity studies are intended to inform strategic planning for renewable energy, and to provide information that can assist in the evaluation of specific development proposals.

They are a tool to help guide development to the best locations, but are not a substitute for detailed Landscape and Visual Impact Assessment (LVIA) or Landscape and Visual Appraisals (LVA) undertaken for specific development proposals.

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

There is not at present a Devon-wide Landscape Sensitivity Assessment for renewable energy, although some districts have existing district-level Landscape Sensitivity Assessments for wind and/or solar developments:

Exmoor National Park
Torridge District
Mid Devon
Teignbridge Analysis of Wind Turbine Areas

Producing a Landscape Sensitivity Assessment is beyond the scope of this guidance, but Sections 18 and 19 contain criteria which could be used when undertaking such assessments in the future.

As sensitivity studies are undertaken on a district-by-district basis, this guidance promotes a consistent approach across Devon, both for strategic guidance and development management. This will also minimise inconsistencies in approach when developments take place across or close to local authority boundaries.

Although heritage assets and their settings are considered in these criteria as an aspect of landscape sensitivity, it will also be necessary for applicants to consider heritage assets in a distinct but complementary assessment using appropriate heritage methodologies.

18. Landscape sensitivity criteria for wind energy development in Devon

The following criteria are intended to be used as a basis for future Landscape Sensitivity Assessments for wind energy, either by individual planning authorities, or county-wide.

Sensitivity will vary depending on the size of wind turbines being considered, and it will therefore be necessary to undertake parallel assessments for different sizes of turbines.

These criteria should also help to inform LVIA and LVA being prepared by developers and should also be used by planning officers when reviewing applications.

Scale

Landscape scale relates to landform and to land use pattern. It is, therefore, necessary to consider the scale of the landscape based on the degree of topographical relief, openness or enclosure, and the presence of smaller-scale features.

Likely to be of lower sensitivity

Larger-scale landscapes such as broad plains and extensive gently undulating uplands.
Open landscapes.

Likely to be of higher sensitivity

Smaller scale landscapes such as narrow valleys or coasts with strong enclosure by landform.
More diversely patterned landscapes, including more settled landscapes, where scale is reduced.

Landform and skylines

Consideration of the degree of complexity of landform, including identification of any distinctive topographical features, the prominence of landform, and the degree to which it contributes to backdrop, skyline or setting.

Potential effects of onsite and offsite works (for example, access tracks and cabling) should be considered.

Likely to be of lower sensitivity

Simpler and more gently graded landform.
Visually-contained basins.
Upland plateaux (away from edges which may form skylines and important backdrops to surrounding landscapes).
Obviously modified landforms, for example quarry sites.
Landforms which do not form a distinctive backdrop or skyline to surrounding landscapes.
Skylines which do not contain important landmark features.

Likely to be of higher sensitivity

Complex, rugged or steep landform.
Dramatic landform features (which may be large in scale) such as scarp edges, pronounced hills which form landmark features or deeply incised valleys.
Elevated coastal skylines and coastal headlands (consider views from land and sea).
Landforms creating distinctive backdrops to surrounding landscapes.
Prominent or distinctive undeveloped skylines.
Skylines containing important landmark features.

Landcover

Consideration of the degree of complexity, diversity and history of landcover, including field enclosure pattern, woodland, watercourses and distinctive landcover features.

The presence or absence of features such as hedges, walls and buildings which give a human scale to the landscape should also be considered, along with the presence or absence of sensitive Historic Landscape Types (HLTs).

Potential effects of onsite and offsite works should be considered (for example, road widening for access which may necessitate removal of roadside trees, hedges or hedgebanks).

Potential effects include loss of features and diminishment of the integrity of the pattern if removed, or a detractive effect if wind turbines were located near distinctive landcover features.

Likely to be of lower sensitivity

Uniform groundcover.
Few human-scale features (trees, walls or traditional buildings).
Large, regular field pattern.
Landcover with strong human influences (for example, built-up areas, farmland).
An easily-accessible landscape containing existing wide roads and tracks to convey components.
Land covered by modern HLTs (for example, industrial landscapes, conifer plantations, airfields and modern enclosures).

Likely to be of higher sensitivity

Variety of landcover.
Numerous human-scale features (trees, walls or traditional buildings).
Irregular or small scale appearance with an intricate landcover pattern (for example, small-scale irregular patchwork of fields)
Landcover perceived as natural (for example, woodland, moorland)
A landscape without existing wide roads or tracks, or with narrow lanes bounded by trees or hedgebanks
Land covered by HLTs with potential for preserved archaeological evidence (for example, rough ground with earlier remains; prehistoric fields; watermeadows)
HLTs with medieval origin (for example, strip fields)
Intact historic landscapes (for example, Barton fields surrounding historic farmsteads).

Built environment, infrastructure and cultural heritage

Consideration of the pattern, density and character of settlement and other built features, including prominent cultural heritage features, their relation to topography or other natural features and their setting. This includes consideration of archaeological sites including non-visible designated heritage assets.

Assessment should consider how development may impinge on these features and where there may be scope to attain some visual separation to minimise effects. The presence of baseline built infrastructure including operational wind turbines, transmission lines and other major communications should also be considered.

Likely to be of lower sensitivity

Landscapes without visible cultural heritage sites.
Landscapes containing existing large scale buildings such as industry and warehousing.
Landscapes where development is modern in character.
Landscapes with existing wind turbines and/or other infrastructure (although sensitivity will depend on the degree of development already present and whether cumulative effects could occur).

Likely to be of higher sensitivity

Cultural heritage sites seen in the context of the proposed development, or where development would be detrimental to designed views.
Landscapes containing small-scale buildings.
Historic settlements and their settings.
Landscapes devoid of existing infrastructure.

Landscape context

Consideration of the role of adjacent LCTs in contributing to wider scenic quality. The degree of intervisibility and effects of development on key characteristics should be assessed.

Likely to be of lower sensitivity

LCTs which are large in extent.
LCTs which have a similarly large scale and simple landcover pattern to neighbouring LCTs.

Likely to be of higher sensitivity

LCTs which are small in extent.
Strongly-contrasting LCTs where scenic quality is increased by their juxtaposition, for example, a narrow and richly patterned valley backdropped by smooth open uplands).

Perceptual qualities

Consideration of the degree of modification by human intervention already present, and how development could affect perceptions of tranquillity, naturalness and remoteness and the sense of space and openness.

It also encompasses cultural associations (such as art or literature) and the sense of ‘timelessness’ associated with a large number of distinctive archaeological or historic features (or both), and a scarcity of modern built features.

When considering wind turbines over 150m high (and therefore requiring aviation warning lighting) it is also necessary to consider dark skies.

Likely to be of lower sensitivity

A landscape with much human activity and development such as industrial areas or a port.
Landscapes which have been heavily modified, for example, through quarrying or landfill.
Landscapes which already contain sources of light pollution.

Likely to be of higher sensitivity

Landscapes which are perceived to be remote, tranquil and/or strongly natural with few or no signs of current human activity or development.
Landscapes with a strong sense of timelessness in terms of their historical interest and lack of obvious modern development.
Landscapes with dark skies which contribute to the sense of remoteness and naturalness.

Landscape values and scenic qualities

Consideration of the presence of protected landscapes of high scenic value (National Parks and National Landscapes) and their settings, as well as other valued landscapes (World Heritage Sites, Heritage Coasts, Coastal Protection Areas/Areas of Undeveloped Coast, Conservation Areas and Registered Parks and Gardens) and their settings.

Careful consideration of wind turbine proposals will be needed against National Park or AONB/National Landscape purposes; Local Plan and national planning policies, and consideration of the potential effect of wind turbines on special qualities, settings and views in and out of the designated areas.

The presence of indicators of recreational interests such as promoted viewpoints and recreational or tourist routes is also considered. Designations or values for landform or landcover features or cultural heritage designations (for example, Sites of Special Scientific Interest or Scheduled Monuments) are also taken into account.

Judgements are made on their contribution to landscape value taking into account the nature, importance, extent and number of designations and recognised interests.

Valued landscapes which abut the area of study should additionally be considered due to the potential effects of larger wind turbines on their setting and character.

Scenic and special qualities also relate to landscapes which are not designated.

Likely to be of lower sensitivity

Landscapes of low scenic quality (e.g. an industrial area or despoiled land).
Landscapes which do not contribute to the settings of National Parks or National Landscapes.
A lack of landscape designations.

Likely to be of higher sensitivity

Landscapes of high scenic quality (likely – but not always – recognised through designation as National Park or National Landscape) where the special qualities will be affected by wind development.
Landscapes which contribute to the settings of National Parks and National Landscapes.
Landscapes containing other landscape designations where the presence of wind turbines could be detrimental.

Visual aspects

Consideration of the extent of relative visibility of the landscape (including considerations of whether it is well-settled or easily accessible (or both) which may result in greater numbers of people experiencing views of the development) and the presence of key views and viewpoints.

Also considered are the degree of openness/enclosure; screening by vegetation or topography; the significance of skylines, key vistas and landmark features, and night-time views.

Likely to be of lower sensitivity

Landscapes where views are intermittent due to screening by topography or vegetation.
Sparsely-settled landscapes.
Inaccessible landscapes with few roads, PROW or Access Land where little recreation takes place.
Locations which do not form prominent skylines in key views and/or contain no key views or landmark features.
Presence of existing lighting.

Likely to be of higher sensitivity

Landscapes containing elevated, extensive or sustained views.
Densely settled landscapes.
Accessible landscapes which are popular for recreation (including where rural lanes are used for recreation).
Locations which contain distinctive skylines, key views and/or landmark features.
Landscapes with little night-time lighting where wind turbine lighting may thus be more intrusive.

Cumulative effects

Consideration of the effects of new wind turbine development when seen in the context of existing renewable energy development. Excessive, poorly-related or designed development can overwhelm the landscape and become a dominant feature. It is necessary to consider sequential impacts, as well as impacts from static locations.

Likely to be of lower sensitivity

Landscapes which contain a small amount of existing renewable energy development.
Routes (particularly tourist routes and long distance trails) from which there are currently a small number of renewable energy developments visible.
Viewpoints from which there are currently a small number of energy developments visible.
Landscapes where existing renewable energy developments are of consistent scale and design.

Likely to be of higher sensitivity

Landscapes containing extensive areas of renewable energy development to the point that additional wind energy development will cause it to become a dominant element in the landscape, or where settlements will become encircled.
Routes (particularly tourist routes and long distance trails) from which there are existing sequential views of renewable energy development).
Viewpoints from which there are currently extensive areas of renewable energy development visible, where additional wind energy development will cause it to become a dominant element in the view.
Landscapes which contain existing renewable energy developments of different sizes and designs.

19. Landscape Sensitivity Criteria for Solar PV and BESS Development in Devon

The following criteria are intended to be used as a basis for future landscape sensitivity assessments for solar PV energy or battery energy storage systems (BESS), either by individual planning authorities, or county-wide.

Sensitivity will vary depending on the size of developments being considered, with larger projects generally fitting better into larger-scale landscapes. These criteria should also help to inform LVIA and LVA being prepared by developers, and should also be used by planning officers when reviewing applications.

It is important to note that there may be some tension between different criteria, for example, landscapes containing relatively large field patterns may be able to accommodate developments with less disruption or masking of field pattern (making them less sensitive), but the lack of trees and hedges is likely to result in fewer opportunities for screening (making them more sensitive).

It is therefore necessary to consider potential sites in their entirety and to weigh up all the various factors on a site-by-site basis when considering their suitability.

Landform

How development (including ancillary works such as access tracks and energy storage infrastructure) relates to or impacts on landform should also be considered.

Likely to be of lower sensitivity

Simpler and more gently graded landform such as undulating lowlands.
Upland plateaux (away from edges which may form skylines and important backdrops to surrounding landscapes).
Obviously modified landforms, for example quarry sites.
Landforms which do not form a distinctive backdrop or skyline to surrounding landscapes.
Skylines which do not contain important landmark features.

Likely to be of higher sensitivity

Complex, rugged or steep landform which could be masked by the development type.
Dramatic landform features (which may be large in scale) such as scarp edges, pronounced hills which form landmark features or deeply incised valleys.
Elevated coastal skylines and coastal headlands (consider views from land and sea).
Landforms, such as prominent scarps and slopes, which create distinctive backdrops to surrounding landscapes.
Prominent or distinctive undeveloped skylines.
Skylines containing important landmark features.

Landcover

Consideration of the degree of complexity, diversity and history of landcover, including field enclosure pattern, woodland, watercourses and distinctive landcover features such as parkland and waterbodies. The presence or absence of sensitive Historic Landscape Types (HLTs) should also be considered.

Solar PV development may affect the integrity of the landcover pattern through loss of features such as trees or hedges, and/or may mask or dilute these patterns. It may also detract from the scenic quality of distinctive land cover features.

Potential effects of onsite and offsite works should be considered (for example, new or modified access tracks which may necessitate removal of trees, hedges or hedgebanks).

Likely to be of lower sensitivity

Uniform groundcover.
Landcover which contains extensive hard surfacing and/or large scale built elements (for example urban areas; brownfield sites; extensive horticulture).
Larger scale or regular field pattern (or both).
Land covered by modern HLTs (for example, industrial landscapes, conifer plantations, airfields and modern enclosures).

Likely to be of higher sensitivity

Variety of landcover.
Landcover perceived as natural (for example, woodland, moorland, wetlands).
Irregular or small scale appearance with an intricate landcover pattern (for example, small-scale irregular patchwork of fields).
Land covered by HLTs with potential for preserved archaeological evidence (for example, rough ground with earlier remains; prehistoric fields; watermeadows).
HLTs with medieval origin (for example, strip fields).
Intact historic landscapes (for example, Barton fields surrounding historic farmsteads).

Built environment, infrastructure and cultural heritage

Assessment should consider how development may impinge on these features and where there may be scope to attain some visual separation to minimise effects.

The presence of baseline built infrastructure including operational PV developments, transmission lines and other major communications should also be considered.

Likely to be of lower sensitivity

Landscapes without visible cultural heritage sites.
Landscapes containing existing large scale modern buildings such as industry and warehousing.
Landscapes with existing wind PV development and/or other infrastructure (although sensitivity will depend on the degree of development already present and whether cumulative effects could occur).

Likely to be of higher sensitivity

Cultural heritage sites seen in the context of the proposed development, or where development would be detrimental to designed views.
Historic settlements and their settings.
Landscapes devoid of existing PV developments or infrastructure.

Landscape context

Consideration of the role of adjacent LCTs in contributing to wider scenic quality. The degree of intervisibility and effects of development on key characteristics should be assessed.

Likely to be of lower sensitivity

LCTs which are large in extent.
LCTs which have a similarly large scale and simple landcover pattern to neighbouring LCTs.

Likely to be of higher sensitivity

LCTs which are small in extent.
Strongly-contrasting LCTs where scenic quality is increased by their juxtaposition (for example a narrow and richly patterned valley backdropped by smooth open uplands).

Perceptual qualities

Consideration of the degree of modification by human intervention already present, and how development could affect perceptions of tranquillity, naturalness, remoteness and rurality.

Likely to be of lower sensitivity

A landscape with much human activity and development such as industrial areas or a port.
Landscapes which have been heavily modified, for example, through quarrying or landfill.
Landscapes with an urban or otherwise developed character.

Likely to be of higher sensitivity

Landscapes which are perceived to be remote, tranquil and/or natural with few or no signs of current human activity or development.
Landscapes with a strong sense of timelessness in terms of their historical interest and lack of obvious modern development.
Landscapes which feel strongly rural.

Landscape values and scenic qualities

Consideration of the presence of protected landscapes of high scenic value (National Parks and National Landscapes) and their settings, as well as other valued landscapes (World Heritage Sites, Heritage Coasts, Coastal Protection Areas or Areas of Undeveloped Coast, Conservation Areas and Registered Parks and Gardens) and their settings.

Careful consideration of solar PV proposals will be needed against National Park or AONB/National Landscape purposes; Local Plan and national planning policies, and consideration of the potential effect of solar PV panel proposals on special qualities, settings and views in and out of the designated areas.

Judgements are made on their contribution to landscape value taking into account the nature, importance, extent and number of designations and recognised interests.

Valued landscapes which abut the area of study should additionally be considered due to the potential effects of solar PV development on their setting and character.

Scenic and special qualities also relate to landscapes which are not designated.

Likely to be of lower sensitivity

Landscapes of low scenic quality (for example, an industrial area or despoiled land).
Landscapes which do not contribute to the settings of National Parks or National Landscapes.
A lack of landscape designations.

Likely to be of higher sensitivity

Landscapes of high scenic quality (likely – but not always – recognised through designation as National Park or National Landscape) where the special qualities will be affected by solar PV development.
Landscapes which contribute to the settings of National Parks and National Landscapes.
Landscapes containing other landscape designations where the presence of solar PV could be detrimental.

Visual aspects

Consideration of the extent of relative visibility of the landscape (including considerations of whether it is well-settled and/or easily accessible which may result in greater numbers of people experiencing views of the development) and the presence of key views and viewpoints.

Also considered are the degree of openness or enclosure; screening by vegetation or topography; the significance of skylines, key vistas and landmark features

Likely to be of lower sensitivity

More visually contained basins and valleys.
Landscapes with high hedges, field boundary trees and/or woodland which may provide screening.
Landscapes where views are intermittent due to screening by topography or vegetation.
Sparsely-settled landscapes.
Inaccessible landscapes with few roads, PROW or Access Land where little recreation takes place.
Locations which do not form prominent skylines in key views and/or contain no key views or landmark features.

Likely to be of higher sensitivity

Landscapes subject to elevated, extensive or sustained views.
More open landscapes such as moorland, wetlands and coasts where landform and vegetation provides little screening.
Densely settled landscapes.
Accessible landscapes which are popular for recreation (including where rural lanes are used for recreation).
Locations which contain distinctive skylines, key views and/or landmark features.

Cumulative effects

Consideration of the effects of new solar PV development when seen in the context of existing renewable energy development.

Excessive, poorly-related or designed development can overwhelm the landscape and become a dominant feature.

It is necessary to consider sequential impacts, as well as impacts from static locations.

Likely to be of lower sensitivity

Landscapes which contain a small amount of existing renewable energy development.
Routes (particularly tourist routes and long distance trails) from which there are currently a small number of renewable energy developments visible.
Viewpoints from which there are currently a small number of energy developments visible.
Landscapes where existing renewable energy developments are of consistent scale and design.

Likely to be of higher sensitivity

Landscapes containing extensive areas of renewable energy development to the point that additional solar PV development will cause it to become a dominant element in the landscape, or where settlements will become encircled.
Routes (particularly tourist routes and long distance trails) from which there are existing sequential views of renewable energy development).
Viewpoints from which there are currently extensive areas of renewable energy development visible, where additional solar PV development will cause it to become a dominant element in the view.
Landscapes which contain existing renewable energy developments of different sizes and designs.