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Background to this study

In January 2023, South Oxfordshire and Vale of White Horse District Councils commissioned LUC to prepare a Landscape Sensitivity Assessment covering the two districts (together referred to herein as the ‘study area’).

This Landscape Sensitivity Assessment for wind energy and solar photovoltaic (PV) schemes provides judgements on the landscape sensitivity of different parts of South Oxfordshire and Vale of White Horse to these forms of development. The findings of this study will allow the Councils to identify broad areas for renewable energy development and establish a local policy framework for such development, in line with the National Planning Policy Framework (paragraph 160).

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Policy context

European Landscape Convention

The European Landscape Convention (ELC) came into force in the UK in March 2007. It established the need to recognise landscape in law; and develop landscape policies dedicated to the protection, management, and planning of landscapes; and to establish procedures for the participation of the general public and other stakeholders in the creation and implementation of landscape policies. The ELC remains relevant despite the UK’s departure from the EU.

The ELC definition of ‘landscape’ recognises that all landscapes matter, be they ordinary, degraded, or outstanding:

“Landscape means an area, as perceived by people, whose character is the result of the action and interaction of natural and/or human factors.”

Signing up to the ELC means that the UK is committed to protect, manage, and plan our landscapes for the future. The Convention also advocates work to raise landscape awareness, involvement and enjoyment amongst local and visiting communities. Landscape character is defined by the ELC as “a distinct, recognisable and consistent pattern of elements in the landscape that makes one landscape different from another, rather than better or worse”. Again, this reinforces the underlying message that ‘all landscapes matter’.

National Planning Policy Framework (NPPF)

The UK Government published the latest version of the National Planning Policy Framework (NPPF) in December 2023, which sets out the environmental, social and economic planning policies for England. Central to NPPF policies is a presumption in favour of sustainable development; that development should be planned for positively and individual proposals should be approved wherever possible.

One of the overarching objectives that underpins the NPPF is set out in Paragraph 8: “an environmental objective – to contribute to protecting and enhancing our natural, built and historic environment”.

Paragraph 180 states that “planning policies and decisions should contribute to and enhance the natural and local environment by protecting and enhancing valued landscapes” and “recognising the intrinsic character and beauty of the countryside”.

The NPPF also makes explicit reference to the need for defined strategic policies that make sufficient provision for climate change mitigation and adaptation, landscape and green infrastructure (paragraph 20).

Paragraph 160 states that “to help increase the use and supply of renewable and low carbon energy and heat, plans should:

1. provide a positive strategy for energy from these sources, that maximises the potential for suitable development, while ensuring that adverse impacts are addressed satisfactorily (including cumulative landscape and visual impacts);

2. consider identifying suitable areas for renewable and low carbon energy sources, and supporting infrastructure, where this would help secure their development…”

Footnote 58 clarifies that:

Except for applications for the repowering and life-extension of existing wind turbines, a planning application for wind energy development involving one or more turbines should not be considered acceptable unless it is in an area identified as suitable for wind energy development in the development plan or a supplementary planning document

 

National Planning Policy Guidance (NPPG)

Further guidance is provided in the Renewable and low carbon energy NPPG on how local planning authorities can identify suitable areas for renewable and low carbon energy.

Paragraph 005 states that:

“…when considering impacts, assessments can use tools to identify where impacts are likely to be acceptable. For example, landscape character areas could form the basis for considering which technologies at which scale may be appropriate in different types of location…”

This study uses the framework of Landscape Character Areas and Landscape Character Types for the landscape sensitivity assessment as set out in the 2024 Landscape Character Assessment for South Oxfordshire and Vale of White Horse.

 

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Local Policy

North Wessex Downs National Landscape

The North Wessex Downs National Landscape is located in the southern part of Vale of White Horse and the south-western extent of the study area. Special qualities of the National Landscape include remote high chalk plains, plunging scarps and open downlands filled with flowers, scattered farmsteads and settlements in a landscape seemingly unchanged for centuries and a rich mix of ancient semi-natural woodlands, wood pasture with veteran trees, and plantations.

The existing Management Plan was published in 2019 and covers the period to 2024. Relevant objectives include:

• Policy LA06: Ensure that all development in or affecting the setting of the AONB conserves and enhances the character, qualities and heritage of the North Wessex Downs landscape.
• Policy NR13: Support reductions in emissions of greenhouse gases, such as carbon dioxide, nitrous oxide and methane, from all possible sources. Support mitigation measures including better on-farm management of fertiliser and animal waste, biomass heating from local fuel stocks and small-scale renewable energy generation appropriate within the protected landscape.

 

Chilterns National Landscape

The Chilterns National Landscape extends into the southern part of South Oxfordshire (i.e. the south-eastern part of the study area). Special qualities of the National Landscape include a steep chalk escarpment, flower-rich downland, broadleaved woodlands (especially beech), commons, tranquil valleys, a network of ancient routes and a rich historic environment of hill forts and chalk figures.

The current AONB Management Plan covers the period between 2019 and 2024. Relevant objectives/policies include:

• Policy DP1: Ensure planning decisions take full account of the importance of conserving and enhancing the natural beauty of the AONB and the great weight given to its protection in the NPPF.
• The Chilterns Conservation board should be consulted on proposals for all renewable energy developments.

The Chilterns Conservation Board have also published a Position Statement on Renewable Energy (2014). The position statement sets out the Conservation Board consider wind turbines taller than 25 meters and solar PV arrays over 10 MW to ‘not generally be appropriate within the Chilterns AONB or in locations beyond the AONB boundary where such development would affect its setting and character, as they would have significant potential to adversely affect the natural beauty of the AONB and to compromise the purpose of the AONB contrary to national planning policy.’

Coverage of statutory landscape designations within and surrounding South Oxfordshire and Vale of White Horse