Underground, overground: overhead lines in protected landscapes
A. Introduction
The quality linking all of our English protected landscapes is their sense of outstanding
natural beauty; a place where many can find uncluttered space away from the pressures
and intrusions of the modern world. Nevertheless the pylons and wires necessary for
modern electricity distribution can form an unwelcome detraction from this beauty. This
potential conflict has at least one solution: the removal of these lines to be replaced with
underground cables, which can make an immediate and permanent improvement to their
landscapes.
With funding from EDF Energy Networks to support the initiative, the Undergrounding
Overhead Lines Group for the EDF Energy Networks South East and East of England
distribution region has enhanced these landscapes through change on the ground.
Furthermore its guidance and exchange of ideas has created a precedent for others to
follow.
Three examples, completed by August 2007, are presented here as our entry, but this
foundation of good practice allowed the further schemes and funding that followed.
Section B: Details of the scheme
History of scheme
The Undergrounding of Overhead Lines Steering Group was established in 2005 with
responsibility to restore some of the finest landscapes in the region by promoting and
facilitating the burying of overhead electricity lines and the removal of their associated
support poles.
The pioneering group was formed subsequent to a new allowance introduced by the
industry regulator (Ofgem) in its Distribution Price Control Review (DPCR4), which set
electricity spending levels for 2005-10. An allowance was set for each Distribution Network
Operator (DNO) to spend in the five year period.
The approach taken in the South East and East of England by EDF Energy Networks has
emerged as an industry leader on undergrounding overhead power lines.
Partners
The group exemplifies successful collaborative working. Supported by an independent
Natural England chair and the EDF Energy Networks Project Officer, it comprises of
representatives from every protected landscape in the EDF Energy Networks southern and
eastern regions: Suffolk Coast and Heaths AONB; Dedham Vale AONB and Stour Valley
Project; Norfolk Coast Partnership; Broads Authority; the South Downs Joint Committee;
Kent Downs AONB; Surrey Hills AONB; High Weald AONB and the Chilterns Conservation
Board.
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How it worked
Nominations for potential schemes were received from a number of landowners, protected
landscape staff and parish councils and, most importantly, the general public. This method
empowered local people to become involved with landscape restoration and to promote
the value of the work to their local landscapes.
Each proposed site was visited and using a set of criteria established by the group1, the
benefits for landscape, heritage, biodiversity and the cultural impact of a scheme were
assessed against the complexity of the proposal, value for money and evidence of public
support for the project. At this stage the technical input from the dedicated EDF Energy
Networks officer provided a steer on the proposal’s viability, but additional steer was also
sought from the partnership or committee meetings of individual protected landscapes.
Draft schemes were then presented to the steering group to vote on whether the scheme
should proceed further. Following this, full consents were sought from partner agencies
and local landowners involved, allowing the scheme to be brought back to the group in a
final format for a decision on giving the project the ‘green light’.
Press releases working in partnership between the protected landscape, EDF Energy
Networks and Natural England were made for each scheme and the newsletters of the
protected landscapes ran further stories upon successful completion.
What it has achieved
Since the establishment of the group in 2005 our approach to this project has proved
extremely successful. During the first year of the scheme our constitution and policies were
agreed and schemes started to take shape. By August 2007 three schemes had been fully
undergrounded :
Buckenham Pump, Broads Authority
Burnham Thorpe, Norfolk Coast AONB
Quarry Hangers, Merstham, Surrey Hills AONB
This initial experience facilitated during the 2005-10 project period completion of a further
21 schemes, translating to removal of 54.2km of overhead lines and 695 poles, and resulting
in immense visual improvements to some of the best-loved landscapes across the region.
All across the distribution area the scheme has remedied the damage caused by the clutter
of overhead power lines and restored the natural beauty and the wonderful sense of
wildness back to these special places.
Details of three schemes
The photographs highlight the benefit of the project work undertaken, which are detailed
below.
Burnham Thorpe, Norfolk Coast AONB
Burnham Thorpe is a small West Norfolk village, a Conservation Area on the River Burn. It is
an important site of cultural significance, mentioned in the Domesday Book of 1086 and
1
Further details of how these criteria work are contained in the appendices.
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famous for being the birthplace of Vice Admiral Horatio Nelson, in whose honour Norfolk is
known as ‘Nelson’s County’.
The site of Nelson’s birthplace, celebrated in typical Norfolk low-key style with a simple
roadside plaque, is located amongst a group of attractive vernacular buildings edging a
narrow country lane and overlooking the River Burn valley. Local public rights of way, well
used by locals and visitors, provide an opportunity for people to take a walk along the
riverside.
The Joint Character Area for North West Norfolk captures the intimate pastoral character of
the river valley, which is centred on the narrow, winding River Burn, with its adjacent
floodplain water meadows, mature ancient trees and riverside scrub.
A dominating network of overhead lines, accompanied by poles, steel brackets and bulky
transformers, had cut across arable land, through the shallow valley of the River Burn
arriving in front of the attractive building frontage, Nelson's birthplace and ‘The Parsonage’
(a Grade II listed building).
Therefore in 2007, the draft Character Statement for the Conservation Area identified 'the
clutter of poorly designed street furniture and overhead wires' as a significant visual
detractor from the special quality of the area. Visible from the public rights of way and
from the surrounding narrow lanes, they also significantly detracted from the river and
water meadow character of the river valley.
The local community, the parish council, the local planning authority, the landowner, the
tenant farmer, the Norfolk Coast Partnership (of the Norfolk Coast AONB) and EDF Energy
Networks (with active support from British Telecom) worked together to agree an
improvement plan.
As a result, 800metres of overhead lines, their poles, pole-mounted transformers and
switches, plus overhead services to four buildings were replaced with 850 metres of
underground cable. At an estimated cost of £40,829, the whole ‘wirescape’, including
telecommunications wires and poles, was realigned to minimise the past damage, and
enhance the quality of the landscape for the local community and visitors. “I am a Norfolk
man and glory in being so”, said Lord Nelson and by restoring the landscape of his birth this
project has helped to increase the local pride in it.
Buckenham Marshes, the Broads Authority
Buckenham Marshes was the first ever scheme completed by the project,and seen as a
great step forward in restoring the wildness and beauty of the area and the setting of
Buckenham Mill.
With the line crossing an internationally important biodiversity site, designated for
significant bird populations, previous concerns had lead the RSPB’s site management plan to
propose their undergrounding.
Tim Strudwick, site manager for the RSPB’s Mid Yare nature reserves had welcomed the
move: “We expect this change to benefit breeding waders like lapwings and redshanks as
the lines and posts are used as perches by crows that take eggs. It will also greatly improve
the look of the marshes and reduce the risk of swans and geese hitting the wires.”
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The scheme, completed between August and October 2006, replaced 860metres of
11,000volt overhead power lines with 2.3km of underground cable.
Quarry Hangers, Merstham, Surrey Hills AONB
Quarry Hangers is set in classic chalk downland scenery within the Surrey Hills AONB. The
site itself is a Site of Special Scientific Interest (SSSI), important for its orchids and butterflies
and well-loved by local people for quiet recreation.
Robin Gater, on behalf of Bletchingley Parish Council, said the parish were “very keen to
support this project that enhances the landscape of our parish, which is a pleasure to the
indigenous population and visitors alike.”
Alec Baxter Brown and volunteers from the Downlands Countryside Management Project
offered his wholehearted support for the proposal to have the power lines placed below
ground. He said the project would “benefit this most valuable site by considerably
enhancing the experience of visitors and by making this site safer for leisure activities”.
Work between July and August 2007 removed 400metres of line and poles at a cost of
£17,000.
Birling Gap
Birling Gap is evidence of how the good practice in early schemes influenced design of the
even more ambitious later ones.
Birling Gap is located west of Beachy Head, which rises 162 metres above the sea and is the
highest chalk sea cliff in Britain. The “gap”, a former river valley that created a dip in the
chalk cliffs where the Downs meet the sea, historically formed an easier transport route
from the sea. This cliff shoreline, known as the Seven Sisters, is part of the Sussex Heritage
Coast and is within the new South Downs National Park.
Birling Gap is a high profile destination for tourists, because of easy access from Eastbourne
and being located on a bus route actively promoted to tourists. In addition it is located on
the South Downs Way and an easy-access trail past Beachy Head to Eastbourne.
The works removed 2.6km of 11,000 volt overhead power lines and replaced them with
3.2km of underground cable. Work commenced in October 2008 and was completed in
March 2009.
C. Evidence against criteria
1. Sustainability
Overall these individual schemes have positively changed the landscape in these areas, as
shown by the three examples. Against the entry criteria additional detail is given below.
a. is part of a sustainable development policy
The actions illustrated within the three schemes are part of the DPCR4 investment to
positively improve the visual amenity and character of protected landscapes. This allowed
EDF Energy Networks to underground the lower voltage power lines network within these
outstanding landscapes.
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Each protected landscape has its own statutory management plan and associated action
plan. The funding from DPCR4 allowed the actions identified within individual plans to be
implemented. For example, the 2004 Norfolk Coast AONB plan, to produce guidance for the
location and design of utilities, was transformed into practical action.
b. demonstrates environmental, economic, cultural sustainability;
This scheme implementation was governed via the formal constitution of the
undergrounding partnership, whose members oversaw the scheme application process and
assessment criteria, giving both local action and wider thinking in governance.
The initial assessment criteria of the scheme and the subsequent careful peer review by the
steering group ensured that the schemes not only provided maximum benefit to
landscapes, but also that wider benefits for heritage, wildlife and local people were gained a www “win-win-win “outcome, as shown in the three examples.
High quality environments are inextricably linked to economic benefits. For instance, a
study by East of England Tourism (2008) estimated 14 million trips and a spend of £730
million per year due to protected landscapes in the East of England.
In addition the Association of National Park Authorities (2010) stated that for electricity
customers in English National Parks undergrounding benefited customers, both in terms of
landscape character, but also security of supply in these rural areas.
c. remedies any past damage
The existing damage was assessed both on the basis of landscape character and visual
impact. For many schemes the separation is significant as the impact on character is often
more fundamental than visual for the natural beauty of an area.
Resources were targeted where impact was severe i.e. dominant or highly significant.
The before and after shots illustrate this point for the three schemes.
The statistics of the wider DPCR4 for power lines undergrounded are set out below.
DPCR4 TOTALS
EPN DPCR4
SPN DPCR4
Totals
Totals
33kV OHL removed (km)
1.580
0
11kV OHL removed (km)
16.187
32.857
LV OHL removed (km)
0.650
2.955
33kV towers/poles removed
20
0
11kV poles removed
202
389
LV poles removed
20
64
Pole mounted transformers removed
20
54
Pole mounted switchgear removed/relocated
11
17
Overhead services removed
20
22
33kV underground cable installed (km)
1.630
0
11kV underground cable installed (km)
19.539
37.886
LV underground cable installed (km)
0.755
4.755
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Ground mounted substations installed
20
52
Underground services installed
20
21
d. enhances the existing landscape
These popular schemes gained positive press coverage, with the completion of each scheme
being reported in newspapers, on television and on the radio, helping to raise people’s
awareness of protected landscapes locally and nationally.
Although our results may look impressive on paper, the real success can be judged from the
feedback received from the many members of the public able to once again appreciate
these special landscapes without the clutter and distraction of overhead lines.
In response to the work Tim Harrold, Campaign to Protect Rural England (Surrey), stated:
“CPRE Surrey wholeheartedly supports the work being done under the EDF Energy Networks
initiative. Congratulations to all concerned on the excellent work that has been done in the
past, and hopefully will continue into the future.”
David Kennington, National Trust property manager for the Surrey Hills, said: “We welcome
the initiative and wish it every success. We are enthusiastic supporters of the concept of
removing unsightly pylons from the landscape.”
2. Being an exemplar
The group’s constitution states that it will keep others informed of work by sharing good
practice with other providers and protected landscapes so that other areas are encouraged
to set up similar projects. For example at the end of DPCR4 a project review was conducted
to allow others access to lessons learnt (EDF Energy Networks 2010).
The work and good practice in the EDF Energy Networks area has influenced the
involvement of other regional power distributors. With Western Power Distribution’s
commitment in its’ business plan to participate in Ofgem’s DCPR5, funding for works has
been secured, with coordination from the South West Protected Landscapes Forum.
In a “wirescape” BT Openreach wires are often mixed with electricity wires. For the fullest
landscape benefits both need to place their own cables underground to leave a wire free
landscape, which has often been achievable, using the scheme’s positive influence. For
example within the Burnham Overy scheme, we worked closely with BT to underground
their lines at the same time.
Most significantly during the review at the end of DPCR4, Ofgem stated: “Customers valued
highly undergrounding for visual amenity reasons.... and the scheme has been positively
received by stakeholders and DNOs alike.” The support of the regulator allowed the
successful continuation of the initiative into DPCR5, which will operate from 2010-2015,
with a total budget of £12.2m (eastern area £5.6m; southern area £6.6m).
We were delighted when Ofgem announced that the allowance would be continued for a
further 5 year. Twenty-one schemes have already received the ‘green-light’ for this period
with many more waiting to be presented. Out on the hills, valleys and coastlines of south
east England work has again started to remove more overhead lines from our landscape.
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3. Public participation and community engagement
From the 53 local authorities in the East of England there are 23 members in the active
partnership of the protected landscapes. Within the South East this figure is 37. Each one
of the nine individual protected landscape partnerships has a representative at steering
group meetings, who had consulted via the partnership forum, both with 57 local
authorities plus local stakeholders such as RSPB, National Trust, etc.
In addition, to identify the schemes, local consultations took place with parishes and
landowners to seek their ideas and views. Bletchingley Parish Council was one example of a
local enthusiastic supporter.
In the Broads Authority area the initial survey and prioritisation was completed by the
Broads Society, a group founded in 1956 to promote the future well-being of the Broads
area.
4. Awareness-raising
As well as the publicity for individual schemes, the newsletters of the protected landscapes
raised the concept of undergrounding. For instance the Norfolk Coast Guardian newsletter
has a print run of around 60,000 per annum. Suffolk Coast and Heaths has a readership of
80,000 per annum from visitors, community and partner organisations.
The group has not focused solely on undergrounding power lines. We promote the
introduction of a similar allowance for undergrounding telephone lines, which also may
intrude in the landscape.
More broadly in a national context the practical application of our scheme and others have
raised the profile of undergrounding as an alternative in new schemes. A vigorous debate
led by CPRE has ensued as to alternatives available at higher voltages ensure that the visual
impact of future overhead lines are challenged where relevant.
D. Summary
The undergrounding initiative lead from the grass roots via this partnership of partnerships
has allowed local ideas to be coupled with effective regional decision-making and delivery
across South East and the East of England. This collaborative work across the public, private
and voluntary sectors is typical of the partnership approach at their core of protected
landscapes.
Whilst protected landscapes are about natural beauty, this natural beauty springs from the
perceptions of people, whose enjoyment and well-being can be overwhelmingly
demonstrated to be positively affected by the quality of this natural green space.
Therefore, the ultimate benefit of the scheme has been the enhancement of these beautiful
natural landscapes that we love and cherish for our enjoyment together and for the future.
We hope that our project has increased awareness within local government, communities
and the private sector of the public and community value of protected landscapes.
Finally whilst focusing on networks of lines, it is networks of individuals that have made the
project possible. In particular without the enthusiastic support of staff from EDF none of
the work would have been possible.
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Bibliography
ANPA ( 2010 ) Electricity Distribution Price Control Review Policy Paper Ref: 159/08 &
159a/08 A joint response by the English National Park Authorities Association and the Welsh
Association of National Park Authorities. Available online at
http://www.enpaa.org.uk/ofgem_dpcr5_consultation_response_by_enpaa_and_wanpa.pdf
Barrell, S. ( 2010 ) Undergrounding of Overhead Lines in AONB’S : Review of DPCR4. Report
by Shaun Barrell Protected Areas Officer to steering group.
Cowell, R ( 2003 )The Scope for Undergrounding Overhead Electricity Lines. Report by the
UK Centre for Economic and Environmental Development for Friends of the Lake District.
March 2003. Available online at
www.ukceed.org/files/downloads/undergroundingwires.pdf
OFGEM (2010) “Distribution Price Control Review 5 (DPCR5)” Available online at :
http://www.ofgem.gov.uk/Networks/ElecDist/PriceCntrls/DPCR5/Pages/DPCR5.aspx
Planning ( 2010) “Campaigners back buried power lines” Available online at
http://www.planningresource.co.uk/news/ByDiscipline/Environment/1011807/Campaigner
s-back-buried-power-lines/. Planning Magasine 25/6/10 p2.
SWPLF( 20101 ) "Undergrounding with Western Power" South West Protected Landscapes
Forum. Available online at www.southwestlandscapes.org.uk/RegionalPartners.asp.
Undergrounding Steering Group (2007) Constitution
East of England Tourism (2008) “Economic Impact of Tourism East of England Protected:
Landscapes and the Brecks” Report produced for East of England protected landscapes.
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Appendix : Local authority involvement within Protected landscapes
in East of England
Table 1 : Relationship between authorities working within the AONBs ( some within their
wider project area ) and the protected landscapes :
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.
19.
20.
21.
22.
Babergh District Council
Braintree DC
Broadland District Council
The Broads Authority
Central Bedfordshire Council
Colchester BC
Dacorum Borough Council
Essex County Council
Great Yarmouth Borough Council
Hertfordshire County Council
Ipswich Borough Council
Kings Lynn and West Norfolk Borough Council
Luton Borough Council
Norfolk County Council
North Hertfordshire District Council
North Norfolk District Council
Norwich City Council
St Edmundsbury BC
South Norfolk District Council
Suffolk Coastal District Council
Suffolk County Council
Tendring District Council
23. Three Rivers District Council
24. Waveney Borough Council
Table 2 : Relationship between District/ Unitary authorities and protected landscapes in Southeast
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
ADUR
ARUN
ASHFORD
AYLESBURY VALE
BASINGSTOKE AND DEANE
BRIGHTON AND HOVE
CANTERBURY
CHERWELL
CHICHESTER
CHILTERN
CRAWLEY
DOVER
EAST HAMPSHIRE
EASTBOURNE
GRAVESHAM
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16.
17.
18.
19.
20.
21.
22.
23.
24.
25.
26.
27.
28.
29.
30.
31.
32.
33.
34.
35.
36.
37.
38.
39.
40.
41.
42.
43.
44.
GUILDFORD
HASTINGS
HAVANT
HORSHAM
ISLE OF WIGHT
LEWES
MAIDSTONE
MEDWAY
MID SUSSEX
MOLE VALLEY
NEW FOREST
REIGATE AND BANSTEAD
ROTHER
SEVENOAKS
SHEPWAY
SOUTH OXFORDSHIRE
SWALE
TANDRIDGE
TEST VALLEY
TONBRIDGE AND MALLING
TUNBRIDGE WELLS
VALE OF WHITE HORSE
WAVERLEY
WEALDEN
WEST BERKSHIRE
WEST OXFORDSHIRE
WINCHESTER
WORTHING
WYCOMBE
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Appendix 2 : Schemes original criteria
Proposer
Although proposals can originate from parish councils, community groups or private
individuals all schemes to be submitted must be “proposed” by the relevant National Park
or AONB team.
Line Identification
Lines to be considered should fall wholly within the National Park or AONB boundary. The
section of line needs to be continuous and identifiable between landscape and / or network
features.
This round of funding only applies to high and low voltage lines mounted on wooden poles.
Metal gantries cannot be considered, due to the high costs involved.
THE LINES AND THEIR IMPACT ON THE AREA
Background
Landscape Institute / Institute of Environmental Management and Assessment Guidance
states that “…landscape impacts and visual impacts are separate, but related. Landscape
impacts are changes in the fabric, character and quality of the landscape. Visual impacts
relate solely to changes in available views of the landscape, and the effects of those changes
on people. Landscape and visual impacts do not necessarily coincide.”
The protected area 'scores' the aspects of any proposed scheme relating to the headings
below.
Impact of line on landscape character
The proposer is asked to make a judgement on the line's impact on the visual and sensory
perception of the landscape character and justify it with a description and photographic
evidence.
If Landscape Character Assessment data is available, this can be used to describe the line's
impact on Landscape Description Units/Landscape Parcels.
Factors to consider can include:
• Extent of impact - widespread or local?
• How is the line contained - landform or landcover?
• The impact on the historic character
• The effect on the sense of enclosure and / or wildness
• The impact of other discordant features in the area
The definitions below are a guide to ranking the impact on landscape character.
Dominant Has an obvious impact on a dominant landscape component over an extensive
area.
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Highly Significant Has an obvious impact on landscape components and character over
an extensive area.
Significant Has an obvious impact on landscape components and character.
The definition of 'extensive' will not be fixed and should be judged in relation to the scale of
the landscape as a whole.
Impact of line on Visual Amenity
The proposer needs to make a judgement on the magnitude of the impact on visual
amenity, justify it and provide evidence (photos and description). The definitions below are
a guide to ranking the impact.
Dominant Dominant visual impact for many viewers with either
i) a proprietary interest and prolonged viewing opportunities (e.g. residents/businesses), or
ii) a substantial interest in their environment e.g. users of recreational facilities (RoW,
recreation sites, attractions, waterways etc.).
Highly Significant Dominant visual impact for many viewers with a momentary interest
e.g. motorists/rail passengers or an obvious visual impact for many viewers with a
proprietary or substantial interest (see above).
Significant Obvious visual impact for many viewers, with a passing visual interest or some
viewers with a proprietary or substantial interest.
Impact of potential undergrounding on other features within the landscape
The proposer is asked to predict possible benefit to biodiversity and/or historic features if
lines are placed underground. Guidance is given on the features that can be considered. The
proposer needs to back up claims with photographs, maps and referenced evidence that
should include correspondence with relevant organisations and experts.
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