Our ref: Your ref: Joyce Melrose Energy Consents and Deployment Unit Scottish Government Atlantic Quay 150 Broomielaw Glasgow G2 8LU PCS/122853 32185/D040/036 If telephoning ask for: Fraser Blackwood By email only to: EconsentsAdmin@scotland.gsi.gov.uk 23 November 2012 Dear Ms Melrose The Electricity Act 1989 Construction and operation of a wind farm Cloich Forest, between Penicuik and Peebles, Scottish Borders Thank you for your consultation letter of 10 October 2012. The following comments are based on the Environmental Statement (ES) dated October 2012 which has been submitted in support of the application. Based on the information provided, we object to this proposal due to a lack of information on the re-use of excavated peat and a lack of information on the potential impact on private water supplies. We will withdraw this objection if the issues detailed in sections 1 and 2 below are adequately addressed. We would also ask that the planning conditions in sections 3 and 4 below are attached to any approved consent. If these are not applied, please consider this element of our representation as an objection. Please note the advice provided below. A summary of our objections and requested conditions is detailed under Appendix 1. Advice for the planning authority 1. Disturbance and re-use of excavated peat 1.1 Section 4.4.44 of the ES outlines that some peat deposits are located on site, generally in northern areas. It is stated that “based upon a desk study, the wind farm layout, design and construction methodology has been refined with the aim of minimising effects on peat”. As we understand, no detailed peat depth studies have been carried out and an average peat depth of 0.5 metres across the site has been assumed. As a result, the ES anticipates that excavated peat volumes will be minimal and no peat will require disposal either within the site or exported off site. 1.2 As set out within our Regulatory Position Statement – Developments on Peat, there are important waste management implications regarding measures for dealing with surplus peat. We consider disposal of significant depth of peat as being landfilled waste and such works may not be capable of consent under our regulatory regimes. In addition, landscaping with surplus peat may not be of ecological benefit and consequently a waste management exemption may not apply. 1.3 While we welcome the mitigation measures outlined in the Draft Peat Management Strategy, given the lack of any detailed peat depth studies, we are unable to confirm that the proposed mitigation proposals are capable of authorisation under our regulatory regimes. We therefore object to the proposed works due to a lack of information on the reuse of excavated peat. 1.4 We would consider withdrawing our objection if further detailed peat depth survey information is submitted and it can be demonstrated that the volumes disturbed can be adequately re-used on site in line with our Regulatory Position Statement. 1.5 We would also highlight that there appears to be a discrepancy between the peat mapped on Figure 11.3 (which shows peat deposits at the access tracks at turbines 4 and 6 and at the edge of the site access track) and paragraph 4.4.44 of the ES which states that Turbines 1, 4 and 15 are located in areas which are underlain by peat. We would therefore welcome clarification in this regard. 1.6 Further information for the applicant with regard to peat management is detailed under section 11. 2. Impact on groundwater 2.1 In SEPA’s previous scoping advice, we recommended that details of groundwater abstraction sources both within and outwith the site boundary, within a radius of i)100 m from roads, tracks and trenches and ii) 250 m from borrow pits and foundations) should be provided in the Environmental Statement. We also advised that if groundwater abstractions were identified within the 100m and 250 m radii from development infrastructure, then the applicant should ensure that the route or location of engineering operations avoid this buffer area. Alternatively, further information and investigations would have to be provided to show that impacts on abstractions are acceptable. 2.2 Table 11.7 of the ES identifies private water supplies (PWS) within 3 km of the site and paragraph 11.4.51 confirms that all wind farm infrastructure is located outside the 250 m buffer for PWS as indicated on Figure 11.1. However, we have some concerns regarding the level of information which has been submitted. 2.3 It is not clear as to whether Table 11.7 lists only groundwater dependant PWS, or whether this includes surface water abstractions. We would therefore request that the type of source of abstraction is provided (well, borehole, spring or surface water). We would also request that Table 11.7 is expanded to include the PWS source coordinates and type of extraction for properties at: 2.4 The Observatory at Earlyburn (NT2286 49560), close to the proposed access track. Shiplaw Farm and House (NT2355 4952), close to the proposed access track. Upper Stewarton (NT2171 4605) Nether of Stewarton (NT2190 4553) With reference to Figure 11.1, there appears to be one PWS mapped (approx. NT 2031 4627) which has not been discussed in the ES. This PWS appears to be situated within 250m of Turbine 14 and 100m from associated access tracks. It could be that this is the PWS mentioned as ‘no longer in use’ for Courhope Outdoor Study Centre in Table 11.7 for which coordinates are not provided, however we would require confirmation of this. If this is not the case, further information will be required on the use of this supply. 2.5 Insufficient information has been submitted for SEPA to fully assess the potential impact on groundwater and as such we object to the proposed works until such time that the additional details requested in sections 2.3 and 2.4 above are submitted to our satisfaction. 3. Environmental management and pollution prevention 3.1 We welcome the general mitigation principles and pollution prevention measures which have been set out within the ES. We are also pleased to note the commitment to establishing a series of management plans to control environmental impact through the construction process (paragraph 2.8.1). In line with this, we would request that a condition is attached to any approved consent requiring the submission of a full, site specific Construction Environmental Management Plan (CEMP). To assist, the following wording is suggested: At least two months prior to the commencement of any works, a site specific construction environmental management plan (EMP) must be submitted for the written approval of the planning authority (in consultation with SEPA) and all work shall be carried out in accordance with the approved plan. 3.2 Adopting this approach will provide a useful link between the principles of development which need to be outlined in the early stages of the project and the method statements which are usually produced following the award of contracts. We note the proposed management plans outlined in paragraph 4.1.2 and support this approach. Further advice on what issues we would expect to see covered under the CEMP is detailed under section 12 below. 3.3 As discussed in section 5 of this response, we would also expect any proposals for felling to waste to be addressed through the CEMP. 4. Decommissioning and site restoration 4.1 We note from section 4.6 of the ES that on expiration of any approved consent either an application will be submitted to continue operating the windfarm, or wind turbines will be removed and land re-instated. We would request that a planning condition is attached to any approved consent seeking a Decommissioning and Restoration Plan. The plan should be submitted at least two years prior to the end of the design life of the development and based on best practice guidelines which are applicable at the time of submission. 5. Forestry removal and forestry waste 5.1 We note from section 4.2.18 of the ES that as a result of the total areas of trees that require to be felled for the wind farm and access tracks, it is initially predicted that 172.1 hectares of forestry would have to be cleared. Limited information has been provided with regard to any proposals to fell to waste. 5.2 We would be likely to have significant concerns regarding any proposals to fell to waste, particularly where the waste generated by the process will be managed by techniques such as chipping, mulching or spreading. This is because where material is classed as waste then appropriate waste management options require consideration and, where appropriate, adoption. If there are likely to be significant amounts of surplus forestry material without a clear use, the proposals may not be capable of consent under our regulatory regime and hence it is essential that these issues are addressed at an early stage. 5.3 We note from section 4.1.2 that a Site Waste Management Plan (SWMP) will be submitted as part of the CEMP and we would strongly recommend that any proposals to deal with waste forestry residue are considered as part of this document. 5.4 Given the extensive forestry works being carried out, we would welcome some form of monitoring of the watercourse downstream of the felling to ensure that silting does not become occur. We would also welcome a meeting with the contractor to discuss these matters in more detail, prior to any felling taking place. Any waste management issues associated with forestry felling should also be discussed with our local Operations Team as detailed in section 16 below. 6. Disruption to wetlands including peatlands 6.1 We note the extended Phase 1 Habitat Survey (Technical Appendix 9.1) and the full National Vegetation Classification (NVC) Survey (Technical Appendix 9.5) which have been carried out as part of the environmental assessment. We welcome the inclusion of Figures 9.4a to 9.4d which demonstrate NVC communities in relation to proposed site infrastructure. 6.2 As discussed in our scoping response, types of wetland designated as Groundwater Dependant Terrestrial Ecosystems (GWDTEs) are specifically protected under the Water Framework Directive. It is noted that areas of M6, M23, M25 and MG9 will be lost as a result of construction, however overall we are satisfied that access tracks and associated infrastructure have been designed where possible to minimise disturbance of GWDTEs. 6.3 We would however advise that where the GWDTEs have been identified down gradient of tracks, permeable material should be used to ensure the hydrological pathway. Those tracks cutting through wetlands should be permeable in nature to allow movement between the areas. 6.4 The control room is to be sited on an area of M23 and we would request that consideration is given to moving this facility up-gradient of the wetland in order to avoid direct impacts on this area. 6.5 As discussed in further detail under section 7 below, we have concerns regarding the location of borrow pit 2 on an identified area of GWDTE (M23). We would therefore not be able to support a borrow pit in this location. Borrow pit 1 is located on the edge of areas of M23 M6 and MG9. We would expect any borrow pit in this location to be sited and designed so as to avoid any impacts on existing GWDTEs. 7. Borrow pits 7.1 Figure 4.1 identifies two potential borrow pit search areas. As we understand, the exact location of borrow pits cannot be ascertained until further intrusive investigations have been undertaken. As such, a detailed plan for each borrow pit will be developed separately and agreed with SEPA and SNH. We would welcome further information in this regard, as the project develops. 7.2 It should be noted that we would be unable to support a borrow pit in location 2, given its close proximity to a nearby watercourse and the fact it is located on an identified Groundwater Dependant Terrestrial Ecosystem (GWDTE) (see figure 9.4c). Borrow pits should ideally be located well away from watercourses as experience has shown that significant silt problems can occur with traffic movements in and out and particularly if groundwater is encountered and pumping is required. Sufficient space is needed to provide silt settlement ponds should this occur. 7.3 SEPA consider a buffer zone of at least 50 metres should be provided between watercourses and borrow pits. 8. Watercourse engineering works 8.1 We note from paragraph 7.5.29 that eight principle watercourse crossings will be required to facilitate the proposed access track. These works will require authorisation from us under the Water Environment (Controlled Activities)(Scotland) Regulations 2011 (CAR). The level of authorisation (simple licence or registration) should be discussed in more detail with our local Operations Team prior to construction works commencing. Contact details are provided under section 16 below. 8.2 Where a watercourse crossing cannot be avoided, bridging solutions or bottomless or arched culverts which do not affect the bed and banks of the watercourse should be used. Further guidance on the design and implementation of crossings can be found in our Construction of River Crossings Good Practice Guide. Other best practice guidance is also available within the water engineering section of our website. 9. Water Framework Directive requirements 9.1 Section 4.7 of SEPA’s Land Use Planning System – Guidance Note 4 outlines procedures for the provision of an indication of the ‘consentability’ of a Section 36 windfarm proposal under Water Framework Directive requirements. In line with this, on the basis of the information available and without prejudice to any future applications for authorisation under CAR, we would expect the proposal to fall into a ‘Category 1 – Capable of being authorised’. 10. Carbon balance 10.1 Please see Appendix 2 for a detailed validation of the submitted Carbon Balance Assessment. Please note we are reliant on the accuracy and completeness of any information supplied by the applicant in undertaking our review and can take no responsibility for incorrect data or interpretation made by authors. Detailed advice for the applicant 11. Peat management 11.1 Please note that we have objected to this development until detailed peat management proposals are submitted in support of the application. Quantities of excavated peat against subsequent quantities that will be capable for appropriate re-use should be specified. Any peat which can not be appropriately re-used or managed on site must be identified and quantified and a methodology should be submitted regarding how this surplus will be managed. Disposal of surplus peat is classed as waste disposal and will require to be authorised under either the Waste Management Licensing (Scotland) Regulations 2011 or the Pollution Prevention and Control (Scotland) Regulations 2000. 11.2 Please note, the placement of surplus peat to borrow pits or bunds is not encouraged as experience has shown that peat used as cover can suffer from significant drying and oxidation. In addition, peat deposited at depth can lose structure and create a hazard when the stability of the material deteriorates. 12. Environmental management 12.1 Please note that we have requested that a planning condition is attached to any consent requiring a detailed Construction Environmental Management Plan (CEMP) to be submitted at least two months prior to the proposed commencement of development. 12.2 The CEMP should incorporate detailed pollution prevention and mitigation measures for all construction elements potentially capable of giving rise to pollution during all phases of construction, reinstatement after construction and final site decommissioning. Full details of any proposed micro-siting to avoid areas of GWDTEs should be included and discussed with SEPA throughout the development of the plan and prior to submission. 12.3 Full details of what should be included in the CEMP can be found on the pollution prevention section of our website. 13. Forest design plan 13.1 We note that various changes are required to the current Forest Design Plan (approved in November 2005) and as such a Draft Forest Design Plan is included in Technical Appendix 4.1 of the ES. 13.2 The revised Plan should accord with the Forest and Water Guidelines and follow best practice. We would advise that the ‘Working Checklist’ located within the guidelines is of particular importance when planning and carrying out operations on site. 13.3 Specific care should be taken when working in areas close to watercourses, which includes ditches, to ensure that pollution does not occur. As highlighted within the Forests and Water Guidelines, surface water drains should not discharge directly into the water environment and, where applicable, you should seek to address existing drains of this type to avoid siltation problems during and after forestry operations. 13.4 Further useful guidance is also included within Restoring and Managing Riparian Woodlands from Scottish Native Woods. In relation to watercourse and lochan management, the applicant should also refer to our two publications Ponds, pools and lochans and Watercourses in the community which are available on our website. 14. Surface water management 14.1 We understand that a Drainage management Plan will be established as part of the CEMP. The Plan should reference SEPA's General Binding Rule's (GBRs) for surface water discharge as detailed in the CAR Practical Guide and all works should comply with these. The applicant should note in particular GBR 21: surface water run off and GBR 22: Roads and tracks. This applies to the forest felling and the wind farm construction works. 14.2 The applicant should also note the final River Basin Management Plans for the Scotland and the Solway Tweed river basin districts are now available on our website at www.sepa.org.uk/water/river_basin_planning.aspx. The GIS interactive map enables a search on individual water bodies within a development area. Associated water body data sheets give information about an individual waterbody’s current ecological status, any pressures upon it, measures being taken to resolve any issues and targets for any improvement needed. 14.3 It should be noted that the Cowieslinn Burn, the Flemington Burn and the Meldon/Harehope Burn are all currently at good ecological status. The proposed mitigation measures discussed throughout the ES are therefore essential to ensure that the ecological status of these waterbodies is not compromised. 15. Water abstraction 15.1 The applicant acknowledges the need for dewatering operations to be in line with SEPA regulations. Any dewatering during excavations should be in compliance with GBR 2 and GBR 15 of the CAR Practical Guide. It is stated that a CAR authorisation will be required for abstractions over 50m3/day, however the applicant should note that groundwater in quantities greater that 10m3/day may require a CAR permit depending on the scope and duration of the works. 15.2 We would recommend the applicant discuss proposals for dewatering with our Operations Team as the project develops as further details will be required regarding how any dewatering will be managed, the amount of groundwater proposed to be abstracted and the anticipated timescales. Regulatory advice for the applicant 16. Regulatory requirements 16.1 Details of regulatory requirements and good practice advice for the applicant can be found on our website at www.sepa.org.uk/planning.aspx. If you are unable to find the advice you need for a specific regulatory matter, please contact a member of the operations team in your local SEPA office at: Galashiels Office, Burnbrae, Mossilee Road, Galashiels, Borders, TD1 1NF. Tel - 01896 754797. If you have any queries relating to this letter, please contact me by telephone on 0131-273-7332 or e-mail at planning.se@sepa.org.uk. Yours sincerely Fraser Blackwood Senior Planning Officer Planning Service Copy to: Graham Burt-Smith; AMEC Environmental & Infrastructure UK Limited; graham.burt-smith@amec.com Disclaimer This advice is given without prejudice to any decision made on elements of the proposal regulated by us, as such a decision may take into account factors not considered at the planning stage. We prefer all the technical information required for any SEPA consents to be submitted at the same time as the planning application. However, we consider it to be at the applicant's commercial risk if any significant changes required during the regulatory stage necessitate a further planning application and/or neighbour notification or advertising. We have relied on the accuracy and completeness of the information supplied to us in providing the above advice and can take no responsibility for incorrect data or interpretation, or omissions, in such information. If we have not referred to a particular issue in our response, it should not be assumed that there is no impact associated with that issue. If you did not specifically request advice on flood risk, then advice will not have been provided on this issue. Further information on our consultation arrangements generally can be found in How and when to consult SEPA, and on flood risk specifically in the SEPAPlanning Authority Protocol. Appendix 1- Summary of objections and conditions 1. Re-use and disposal of excavated peat We object to the proposed development on the grounds of a lack of information on the reuse and disposal of excavated peat. We would consider withdrawing our objection if additional information is submitted which demonstrates that the proposal is in accordance with our Regulatory Position Statement – Developments on Peat and thus capable of consent under our regulatory regimes. 2. Impact on groundwater Insufficient information has been submitted for SEPA to fully assess the potential impact on groundwater and as such we object to the proposed works until such time that the additional details requested in sections 2.3 and 2.4 above are submitted to our satisfaction. 3. Pollution prevention and environmental management We would request that a condition is attached to any approved consent requiring the submission of a full, site specific Construction Environmental Management Plan (CEMP). To assist, the following wording is suggested: 4. At least two months prior to the commencement of any works, a site specific construction environmental management plan (EMP) must be submitted for the written approval of the planning authority (in consultation with SEPA) and all work shall be carried out in accordance with the approved plan. Decommissioning and site restoration We would request that a planning condition is attached to any approved consent seeking a Decommissioning and Restoration Plan. The plan should be submitted at least two years prior to the end of the design life of the development and based on best practice guidelines which are applicable at the time of submission. Appendix 2 - Detailed Carbon Assessment SECTION 1: SUMMARY OF RESPONSE Issue Yes / No If no, is any deficiency significant enough to affect substantially the carbon payback period? Is there sufficient confidence in the carbon payback figure for it to be used by Scottish Ministers as a material consideration in their decision making? No Yes Comments Further requirements to enable positive validation (where applicable) Some of the data entered into the calculator do not seem credible. The data needs to be justified and where necessary corrected in order to enable SEPA to validate the carbon assessment Please provide the data and justification particularly for peat depths in borrow pits, hardstanding, turbine bases and access tracks. In addition average air temperature is missing and the extent of drainage entered seems very low and needs to be justified. SECTION 2: DETAILED RESPONSE Issue Yes / No If no, is any deficiency significant enough to affect substantially the carbon payback period? Are all relevant data input as required in the tool? No Yes Comments Further requirements to enable positive validation (where applicable) The number of turbines is fixed at 18 yet in the core date sheet a figure of 15 is entered for the minimum value. This needs to be amended. The mean air temperature for the site has not been entered. This affects the carbon loss calculated from peat and needs to be included. Forestry data- in the core input data, no information has been entered for improvement of felled plantation land (under restoration of habitat section). The ES states that the keyholes will be re-planted with a mix of scrub and grassland which includes scrub woodland. Please amend the figure entered in the spreadsheet for minimum turbine numbers. Please enter the average site temperature on the spreadsheet Please enter data under improvement of felled plantation land in the core input sheet. Please complete the forestry input datasheet with data entry for each of the turbine areas for more detailed forestry information to be submitted. The forestry input datasheet has only been partially entered with not all data entered for each of the turbine areas (but simple method has been selected rather than detailed) Do the data correspond with the information provided in the Environmental Statement? No Yes Restoration of peat removed from borrow pits What volume of peat will be used in borrow pits and how will restoration be achieved? No information has been provided regarding the land area footprint of the two borrow pits on site. The ES states that these will have an operational area of 0.6ha and a temporary landtake of 2.56ha. It appears that the 150 m, 230 m and 100 m lengths referred to in the ES include only peat soils. There will also be some excavation of peaty material in track sections that run across peaty soils (<0.5 m peat depth). This is not currently accounted for. Section 5.4.25 of the ES states that due to lack of peat on site, borrow pit restoration may not be possible. However, section 5.4.35, in reference to the draft PMS and reuse of peat, then states that peat will be used for borrow pit restoration. Area of forestry plantation to be felled (ha) in core input sheet states 57.3 ha but it is not clear from the ES where this figure has come from. Total infrastructural footprint (including keyholing has been stated at 50.5ha) so clarification is required. It is not clear where some of data in the forestry input data sheet has come from in relation to the ES as this information is not clearly laid out within the ES (Forest Design Plan) itself. In the ES, only the radius of keyhole is stated as 87m. NB: In ES keyhole size of 2.4 ha is stated which does seem to correspond with rounded figure of 2ha in spreadsheet. Even if peat depth at the borrow pit is only 0.5m depth, it is important that this is restored. In section 5.4.12 of the ES, there is a statement that 3 lengths of access track of 150 m, 230 m and 100 m run across peat soils. However, only 5.3 m expected length of excavated road is given the carbon calculator. The default value for average rate of carbon sequestration in timber used (3.6 tC ha-1 a-1) which is for Sitka Spruce at YC 16. The ES and detailed forestry data sheet seems to indicate other species (eg) Scot pine also Please provide data on the area of borrow pit restored and water table depth in borrow pit after restoration. Values of lengths for access track entered in the carbon calculator need to be amended so that there is no discrepancy with the report, and should be amended to reflect tracks running across peaty soils as well as peat. It may be acceptable to reduce expected peat depth to account for the more shallow depth of organic material excavated from peaty soils impacted by access tracks. Areas of peaty soils impacted by construction should be included in the carbon calculator. It may be acceptable to reduce the value entered for expected peat depth associated with construction activities to account for this. Please check hectares on forestry plantation felled in core input sheet with clarification of where this data has come from and in reference to the ES. It is not clear if the values for depths of peat extracted in the borrow pits and turbine foundations and hardstanding sections include peaty soils (peat depth <0.5 m) as well as peat. felled within turbine areas. If SEPA is to check forestry input data, more detailed information on forestry felled within the turbines areas needs to be submitted within a revised forest design plan with maps of species, age when felled, width of forest around felled area. Further information of YC and species felled for windfarm will help to assess use of default value for SS and if it should be adjusted (see comments below on credible data) Is there sufficient evidence that peat/soil depth measurements have been probed to full depth? No Yes Please provide the summarised peat depth data taken for this site and how the average values entered into the spreadsheet were derived This report was not available to check Do the data (including peat depth) correspond with the information in the Halcrow peat slide assessment? Are the data credible? The range of peat depth values entered for the hardstandings, turbine bases, access tracks and borrow pits seem very low and highly variable No No The extent of drainage entered for hardstandings and access roads etc. seems very low at 5 metres Whilst the expected value for water table depth (0.1 m) is reasonable, the maximum value of 0.5 m and minimum value of 0.1 m are not accurate for a typical undisturbed blanket peat soil. Please justify the values entered for extent of drainage In the absence of accurate measurements, using a maximum value of 0.3 m and minimum value of 0.05 m would be more appropriate. The overall payback period generated Its not possible to answer this without the information on peat depth sampling and a justification for drainage extent. In relation to forestry, some data missing from data input sheets and is not included within the ES. The default value for average rate of carbon sequestration in timber used (3.6 tC ha-1 a-1) which is for Sitka Spruce at YC 16. The ES and detailed forestry data sheet seems to indicate other species (eg) Scot pine also felled within turbine areas so default value will not be a relevant estimate- where values available for SP as well as SS for the correct YC, these values should be used in weighted average or further detailed forestry data submitted. The YC of the SS felled in the turbine areas is not clearly shown in the ES and only an indication of YC for the whole forest between 6-24 is provided. Cannell & Milne (1995) in Forestry Vol 68 actually provide figures for Sitka Spruce at a range of YCs from 24 to 8. SS (24) = 4.4 SS (20) = 4.1 SS (16) = 3.6 SS (12) = 3.0 Ss (8) = 2.4 SP (10) = 2.7 SECTION 3: GOOD PRACTICE has a very small contribution from peat/soil carbon losses which compared to many other sites it seems too low. Suggest default value assessed further looking closely at YC of trees felled or more detailed forestry datasheets completed with further documentation submitted for SEPA to verify information. Issue Is there potential to reduce the carbon payback through improved adherence to the SEPA/SNH Good practice during wind farm construction guidance and/or SEPA’s Regulatory Position Statement for Development on Peat? Validator: Geeta Puri No – proposal adheres to good practice Yes – improved adherence would improve the carbon payback Where applicable specify areas of good practice that could be introduced to improve the carbon payback of the proposal No, in general, it seems that the proposal adheres to good practice. Date of validation: 23 October 2012