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Planning Policy Wales
Technical Advice Note
5: NATURE CONSERVATION AND PLANNING
September 2009
This document is one of a series of Technical Advice Notes (TANs) which supplement Planning Policy Wales (2002) (as updated by Ministerial Interim Planning Policy Statements).
Further copies can be obtained free of charge from:
The Publications CentreNational Assembly for WalesCathays ParkCardiffCF10 3NQTel: 029 2082 3683E-mail: Assembly-publications@wales.gsi.gov.uk
Cover satellite image compiled from Landsat data(colour enhanced visible/near visible infrared) andsupplied by Infoterraglobal.com.
ISBN 978 0 7504 5430 8
© Crown copyright September 2009
CMK-22-04-045(401)
E5210910
i
CONTENTS
Page
1. INTRODUCTION 1
1.1 IntroductiontotheTAN1.2 PurposeandStructureoftheTAN1.3 Cancellations1.4 Scopeofnatureconservation1.5 Theimportanceofnatureconservation1.6 ThevitalroleofthePlanningsysteminnatureconservation
2. KEYPRINCIPLESOFPOSITIVEPLANNINGFORNATURECONSERVATION 4
3. NATURECONSERVATIONANDLOCALDEVELOPMENTPLANS 6
3.1 Introduction3.2 RelevantStatutoryRequirements3.3 Adviceinrespectofthepreparationandreviewoflocaldevelopmentplans3.4 SupplementaryPlanningGuidance3.5 SustainabilityAppraisal,StrategicEnvironmentalAssessmentandHabitats
RegulationsAppraisal3.6 Monitoring
4. NATURECONSERVATIONINDEVELOPMENTCONTROL-PROCEDURES 12
4.1 Introduction4.2 Pre-applicationdiscussions4.3 Preparingplanningapplications4.4 Requiringfurtherinformation4.5 EnvironmentalImpactAssessment4.6 Theuseofconditionsonplanningpermissions4.7 Theuseofplanningobligations
5. DEVELOPMENTAFFECTINGDESIGNATEDSITESANDHABITATS 20
5.1 Introductiontodesignatedsites5.2 Furtherconsiderationsandpolicyinrespectofinternationaland nationallydesignatedsites5.3 Developmentaffectinginternationallydesignatedsites5.4 Developmentaffectingnationallydesignatedsites5.5 LocalSites
6. DEVELOPMENTAFFECTINGPROTECTEDANDPRIORITY 37 HABITATSANDSPECIES
6.1 Introduction6.2 Protectedspeciesasamaterialplanningconsideration6.3 ProtectionofEuropeanprotectedspecies6.4 Protectionofbirds,badgers,otheranimalsandplants6.5 HabitatsandspeciesofprincipalimportanceforbiodiversityinWales
ANNEXES
1 Statutoryframeworkfornatureconservationrelevanttoplanning 43
2 StatutoryNatureconservationdesignations 47
3 Developmentproposalslikelytoaffectaninternationallydesignated natureconservationsite 51
4 Thereviewofoutstandingplanningpermissionsanddeemedplanning permissionslikelytoaffectaninternationallydesignatednature conservationsite 65
5 Restrictionsofpermitteddevelopmentthatmayaffectaninternationally designatednatureconservationsite 69
6 TheappraisalofdevelopmentplansinWalesundertheprovisions oftheHabitatsRegulations 75
7. Keylegislativeprovisionsfortheprotectionofspecies 101
8 Listsofspeciesprotectedbylaw 105
9 Listofspeciesandhabitatsofprincipalimportancefortheconservation ofbiologicaldiversityinWales 118
10 CountrysideCouncilforWales 119
11 Otherusefulcontacts 121
12 Linkto:'TheBirdsDirective','TheHabitatsDirective'and 'TheRamsarConvention' 123
13 Glossary 124
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1. INTRODUCTION
1.1 IntroductiontotheTAN
1.1.1 Planning Policy Wales(PPW)(2002)setsoutthelanduseplanningpoliciesoftheWelshAssemblyGovernment(theAssemblyGovernment).ItissupplementedbyaseriesofTechnicalAdviceNotes(TANs).ProceduraladviceisgiveninNationalAssemblyforWales/WelshOfficecirculars.PPW,MinisterialInterimPlanningPolicyStatements(MIPPS),theTANsandcircularstogethercomprisenationalplanningpolicytowhichlocalplanningauthoritiesinWalesmusthaveregardinthepreparationofdevelopmentplans.TheymaybematerialtodecisionsonindividualplanningapplicationsandwillbetakenintoaccountbytheAssemblyGovernmentandPlanningInspectorsinthedeterminationofcalled-inplanningapplicationsandappeals.Detailedadviceonthepreparationofunitarydevelopmentplans(UDPs)iscontainedinUnitary Development Plans Wales, 2001.DetailedadviceonthepreparationofLocalDevelopmentPlans(LDPs)underthePlanningandCompulsoryPurchaseAct2004isgiveninLocal Development Plans Wales, 2005.
1.2 PurposeandStructureoftheTAN
1.2.1 ThisTechnicalAdviceNoteprovidesadviceabouthowthelanduseplanningsystemshouldcontributetoprotectingandenhancingbiodiversityandgeologicalconservation.ThisguidancenoteshouldbereadinconjunctionwithPlanning Policy Wales (2002),inparticularwithChapter5Conserving and Improving the Natural Heritage and CoastwhichsetsouttheAssemblyGovernment’sobjectivesforthenaturalheritageandthelanduseplanningpolicieswhichsupportthese.
1.2.2 ThisTANbringstogetheradviceonsourcesoflegislationrelevanttovariousnatureconservationtopicswhichmaybeencounteredbylocalplanningauthorities.Chapter2setsoutthekeyprinciplesofplanningfornatureconservation.Chapter3providesadviceaboutthepreparationandreviewofdevelopmentplans,includingtherelevantstatutoryrequirements.Chapter4addressesnatureconservationindevelopmentcontrolprocedures.Chapter5dealswiththeconservationofinternationallyandnationallydesignatedsitesandhabitatsandalsocoverslocalsites.Chapter6dealswiththeconservationofprotectedandpriorityspecies.TheAnnexesformpartofthisTANandprovidemoredetailedinformationandguidanceonarangeofissues.
1.2.3 DocumentslistedinthefootnotesprovideadditionalinformationwhichmaybereadinconjunctionwiththisTAN.
1.3 Cancellations
1.3.1 TAN5,Nature Conservation and Planning (1996) andCircular23/2001, Guidance for local planning authorities on European protected species and licensing proceduresareherebycancelled.
1
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1.4 Scopeofnatureconservation
1.4.1 Natureconservationasreferredtoinstatute1meanstheconservationofflora,fauna,geologicalandphysiographical(alsocalledgeomorphological)features.Natureconservation,asreferredtothroughoutthisTAN,includestheconservationofbiodiversityandgeodiversityincludingthenaturalsystemsandprocessesthatcontinuetochangethelandform,riversandcoastsofWales.
1.4.2 “Biodiversity”isthetermappliedtothevarietyoflifeonearthandisshortforbiologicaldiversity.Itdescribestherichnessandvarietyofalllivingthings,fromthesmallestmicroscopicorganismtothelargesttree.“Geodiversity”isthevarietyofgeologicalenvironments,phenomenaandactiveprocessesthatmakelandscapes,rocks,minerals,fossils,soilsandothersuperficialdepositsthatprovidetheframeworkforlifeonearth.Geodiversityisimportantbecauseitunderpinsbiodiversitywithsoilsbeingthelinkbetweenthem.
1.4.3 “Conservation”inthecontextofthisTAN,involvespreservation,protection,wiseuse,sustainablemanagementandrestorationofthenaturalheritage.‘Conservingbiodiversity’isalsodefinedinstatuteasincluding,inrelationtoalivingorganismortypeofhabitat,therestorationorenhancementofapopulationorhabitat2.TheAssemblyGovernmentlookstotheplanningsystemtoimproveaswellasprotecttheenvironmentandtoenhanceaswellasconservethecountrysideandundevelopedcoast,includingstatutorilydesignatedareas(PPWparagraph2.3.2).Consequently,thisTANalsoaddresseswaysinwhichtheplanningsystemcanhelptoenhanceaswellasconservenaturalfeatures,naturalprocesses,wildlifeandthehabitatsonwhichitdepends.
1.4.4 Section40(1))ofNaturalEnvironmentandRuralCommunitiesAct2006(NERC)placesadutyoneverypublicauthority,inexercisingitsfunctions,to“have regard, so far as is consistent with the proper exercise of those functions, to the purpose of conserving biodiversity".ThisTANsetsoutthemannerinwhichplanningauthoritiesshouldcomplywiththisduty.
1.5 Theimportanceofnatureconservation
1.5.1 Biodiversityisimportantinitsownrightandessentialtomaintainthelifesupportsystemsthatallowlife,includinghumanlife,toexistontheplanet.Wildlifeanditshabitatsareoffundamentalimportancetoourfuturewell-beingandprosperitybecausearichanddiverseenvironmentsupportsalong-termsustainableeconomyandcontributestoahealthierandhappiersociety.Biodiversityisanimportantindicatorofsustainabledevelopment.Biodiversityandgeodiversityaddtothequalityoflifeandlocaldistinctiveness.ThegeologyofWales,includingitslandforms,mineralsandfossils,isdiverse,visuallyimpressiveandofgreatscientificimportance.
1Section39NaturalEnvironmentandRuralCommunitiesAct2006.2Section40(3)NaturalEnvironmentandRuralCommunitiesAct2006.
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1.5.2 Theenjoymentofwildlifeandgeologyprovidesopportunitiesforlifelonglearning,recreationandtourism.Environmentswherearichdiversityofwildlifeandnaturalfeaturesisappreciated,fosteredandenhancedhelptoretainjobs,attractinwardinvestmentanddiversifytheeconomy.Theconservationofournaturalresourcesisanecessity,notmerelyachoice.TheAssemblyGovernment’sobjectivesfortheconservationandimprovementofthenaturalheritagearesetoutinPPWatparagraph5.1.2.
1.6 ThevitalroleofthePlanningsysteminnatureconservation
1.6.1 Biodiversityconservationandenhancementisanintegralpartofplanningforsustainabledevelopment.Theplanningsystemhasanimportantparttoplayinnatureconservation(PPWparagraph5.2.7).Theuseanddevelopmentoflandcanposethreatstotheconservationofnaturalfeaturesandwildlife.Pastchangeshavecontributedtothelossofintegrityofhabitatnetworksthroughland-take,fragmentation,severance,disturbance,hydrologicalchangesandotheradverseimpacts.Butdevelopmentcanalsopresentsignificantopportunitiestoenhancewildlifehabitatsandtheenjoymentandunderstandingofthenaturalheritage.Whilsttheplanningsystemneedstobewatchfulofthecumulativeeffectsofaseriesofsmall,perhapsoccasional,apparentlyinsignificantlossesfromthenaturalworld,whichcancombinetoseriouslydepletethenaturalheritage,includingessentialhydrologicalandecologicalsystems;smallscaleopportunitiesforhabitatcreationandenhancementcanbesignificantandcanbuildintomajorcontributionsovertime.3,4ThisTANdemonstrateshowlocalplanningauthorities,developersandkeystakeholdersinconservationcanworktogethertodelivermoresustainabledevelopmentthatdoesnotresultinlossesfromthenaturalheritagebutinsteadtakeseveryopportunitytoenhanceit.
3RoyalTownPlanningInstitute,1999,Planning for Biodiversity,Foreword.4Planning to halt the loss of biodiversity: Biodiversity conservation standards for planning in the UK(PAS2010),
BritishStandardsInstitutionandAssociationofLocalGovernmentEcologists,2006.
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2. KEYPRINCIPLESOFPOSITIVEPLANNINGFORNATURECONSERVATION
2.1 ThetownandcountryplanningsysteminWalesshould:
• worktoachievenatureconservationobjectivesthroughapartnershipbetweenlocalplanningauthorities,CCW,theEnvironmentAgencyWales,voluntaryorganisations,developers,landownersandotherkeystakeholders(PPW5.1.5and5.2.5);
• integratenatureconservationintoallplanningdecisionslookingfordevelopmenttodeliversocial,economicandenvironmentalobjectivestogetherovertime5(PPW5.1.3and5.1.4);
• ensurethattheUK’sinternationalandnationalobligationsforsite,speciesandhabitatprotectionarefullymetinallplanningdecisions(PPW5.3.8-10);
• lookfordevelopmenttoprovideanetbenefitforbiodiversityconservationwithnosignificantlossofhabitatsorpopulationsofspecies,locallyornationally(PPW5.1);
• helptoensurethatdevelopmentdoesnotdamage,orrestrictaccessto,orthestudyof,geologicalsitesandfeaturesorimpedetheevolutionofnaturalprocessesandsystemsespeciallyonriversandthecoast(PPW1.4.14,2.2.1,2.3.2and5.6.3);
• forgeandstrengthenlinksbetweenthetownandcountryplanningsystemandbiodiversityactionplanningparticularlythroughpoliciesinlocaldevelopmentplansandthepreparationofsupplementaryplanningguidancethataddsvaluetoLocalBiodiversityActionPlans(LBAPs)byhighlightingthewaysinwhichtheplanningsystemcanhelptodelivertheobjectivesofLBAPsinpracticalways(PPW5.4.2);
• plantoaccommodateandreducetheeffectsofclimatechangebyencouragingdevelopmentthatwillreducedamagingemissionsandenergyconsumptionandthathelphabitatsandspeciestorespondtoclimatechange(PPW2.2.1and2.3.2)6.
2.2 Localdevelopmentplanpoliciesandproposalsshouldbebaseduponup-to-dateinformation,whichshouldbekeptunderreview,aboutthebiodiversityandgeologicalresourcesoftheplanarea(PPWparagraphs3.1.4and3.1.5).Inlocaldevelopmentplanreviews,localplanningauthoritiesshouldassessthepotentialtoconserveandenhancethoseresources(PPWparagraph5.4.1).
5HMGovernment,2005,Securing the future: delivering UK sustainable development strategyCommand6467.6GuidanceonplanningandclimatechangeisavailableinThe Planning Response to Climate Change - Advice on Better
Practice,ODPM,WelshAssemblyGovernment,ScottishExecutive,2004.
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2.3 Developmentpoliciesand,whereappropriate,supplementaryplanningguidance,shouldpromoteopportunitiesfortheincorporationofwildlifeandgeologicalfeatureswithinthedesignofdevelopmentandgreeninfrastructure(PPW2.9.4).
2.4 Whenconsideringpoliciesandproposalsinlocaldevelopmentplansandwhendecidingplanningapplicationsthatmayaffectnatureconservation,localplanningauthoritiesshould:
• payparticularattentiontotheprinciplesofsustainabledevelopment,includingrespectforenvironmentallimits,applyingtheprecautionaryprinciple,usingscientificknowledgetoaiddecisionmakingandtakingaccountofthefullrangeofcostsandbenefitsinalongtermperspective(PPW2.2.1);
• contributetotheprotectionandimprovementoftheenvironment,soastoimprovethequalityoflifeandprotectlocalandglobalecosystems,seekingtoavoidirreversibleharmfuleffectsonthenaturalenvironment(PPW2.3.2);
• promotetheconservationandenhancementofstatutorilydesignatedareasandundevelopedcoast(PPW2.3.2);
• ensurethatappropriateweightisattachedtodesignatedsitesofinternational,nationalandlocalimportance(PPW5.3.2);
• protectwildlifeandnaturalfeaturesinthewiderenvironment,withappropriateweightattachedtopriorityhabitatsandspeciesinBiodiversityActionPlans(PPW5.2);
• ensurethatallmaterialconsiderationsaretakenintoaccountanddecisionsareinformedbyadequateinformationaboutthepotentialeffectsofdevelopmentonnatureconservation(PPWparagraphs5.5.1and5.5.2);
• ensurethattherangeandpopulationofprotectedspeciesissustained(PPW5.2.3,5.5.11and5.5.12);
• adoptastep-wiseapproachtoavoidharmtonatureconservation,minimiseunavoidableharmbymitigationmeasures,offsetresidualharmbycompensationmeasuresandlookfornewopportunitiestoenhancenatureconservation;wheretheremaybesignificantharmfuleffectslocalplanningauthoritieswillneedtobesatisfiedthatanyreasonablealternativesitesthatwouldresultinlessornoharmhavebeenfullyconsidered(PPW5.2.2,5.2.7and5.5.2).
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3. NATURECONSERVATIONANDLOCALDEVELOPMENTPLANS
3.1 Introduction
3.1.1 Paragraphs5.4.5and5.4.6ofPPWindicatetheexpectationsoftheAssemblyGovernmentinrespectofthecontentofUnitaryDevelopmentPlans.Consistentwiththatapproach,whenlocalplanningauthoritiesarepreparingandreviewinglocaldevelopmentplanstheyshouldadoptthekeyprinciplessetoutinChapter2aboveandconsidertheadvicesetoutinthisChapter.Theyshouldalsoensurethattheplanmeetsthestatutoryrequirementsassetoutbelow.
3.2 RelevantStatutoryRequirements
3.2.1 Section61ofthePlanningandCompulsoryPurchaseAct2004requireslocalplanningauthoritiestokeepunderreviewmatterswhichmaybeexpectedtoaffectthedevelopmentoftheirareaortheplanningofitsdevelopment:thesemattersincludetheprincipalphysicalandenvironmentalcharacteristicsoftheauthority’sareaandanyconsiderationswhichmaybeexpectedtoaffectthosematters.Localplanningauthoritiesshouldtakestepstoensuretheyhaveanadequatebaselineofdatatoinformthepreparation,appraisalandexaminationofthelocaldevelopmentplan.Thiswillincludeanunderstandingofthewildlifeandnaturalfeaturesoftheirarea,howtheymaybeconservedandenhancedandhowdevelopmentmayaffectthem,beneficiallyoradversely.LocalRecordCentres(LRCs)areaneffectivesourceofsuchinformationastheirmainfunctionistocollate,manageanddisseminatebiodiversityinformationandtheymayalsoholdothertypesofenvironmentaldata7(seeAnnex11forotherusefulsourcesofinformation).
3.2.2 Regulation3(4)oftheHabitatsRegulationsrequiresallcompetentauthorities(includingLPAs),intheexerciseoftheirfunctions,tohaveregardtotherequirementsoftheHabitatsDirective,sofarastheymaybeaffectedbytheexerciseofthosefunctions.LocalplanningauthoritiesshouldthereforefamiliarisethemselveswiththerequirementsoftheHabitatsDirectiveandfactorthemintotheirdecision-making.Forexample,Article10oftheHabitatsDirective8requiresMemberStatestoendeavour,intheirland-useplanninganddevelopmentpolicies,toencouragethemanagementoffeaturesofthelandscapethatareofmajorimportanceforwildfloraandfauna.Thesefeaturesarethosethat,becauseoftheirlinearandcontinuousstructureortheirfunctionasstepping-stones,areessentialformigration,dispersalandgeneticexchange.ExamplesgivenintheDirectiveareriverswiththeirbanks,traditionalfieldboundarysystems(suchashedgerows),pondsandsmallwoods.Statutorysitesandnon-statutorysites,togetherwithfeatureswhichprovidewildlifecorridors,linksorsteppingstonesfromonehabitattoanother,allcontributetothenetworknecessarytoensurethemaintenanceofthecurrentrangeanddiversityofourflora,fauna,geologicalandlandformfeaturesandthesurvivalof
7FormoredetailsaboutestablishingandmaintaininganevidencebaseandaboutthebenefitsofLRCsseeSection2ofPlanning for Biodiversity and Geological Conservation - A Good Practice Guide,ODPM,Defra,EnglishNature,2006.
8CouncilDirective92/43/EECof21May1992ontheconservationofnaturalhabitatsandofwildfaunaandflora.
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importantspecies.Sensitivelandscapingandplanting,thecreation,maintenanceandmanagementoflandscapefeaturesimportanttowildlife,andtheskilledadaptionofderelictareascanprovideextendedhabitats.Inordertocomplywiththeirdutyunderregulation3(4),localplanningauthoritiesshouldconsiderwhetherthereisscopetomakeprovisionforsuchmatterswhenexercisingtheirfunctions.
3.2.3 Section40oftheNaturalEnvironmentandRuralCommunitiesAct2006requiresallpublicauthorities(includingLPAs),inexercisingtheirfunctionstohaveregard,sofarasisconsistentwiththeproperexerciseofthosefunctions,tothepurposeofconservingbiodiversity.
3.2.4 Section11oftheCountrysideAct1968requiresallpublicbodies(includingLPAs),intheexerciseoftheirfunctionsrelatingtoland,tohaveregardtothedesirabilityofconservingthenaturalbeautyandamenityofthecountryside.Section49(4)ofthatActprovidesthatreferencesintheActtotheconservationofnaturalbeautyaretobeconstruedasincludingreferencetotheconservationofitsflora,faunaandgeologicalandphysiographicalfeatures.
3.2.5 Section28GoftheWildlifeandCountrysideAct1981placesadutyonpublicauthorities(includingLPAs),inexercisingtheirfunctionssofarasthisislikelytoaffecttheflora,faunaorgeologicalorphysiographicalfeaturesbyreasonofwhichaSSSIisofspecialinterest,totakereasonablesteps,consistentwiththeproperexerciseoftheirfunctions,tofurthertheconservationandenhancementofthosefeatures.
3.2.6 Localdevelopmentplansshouldincludepoliciesinrespectoftheconservationofthenaturalbeautyandamenityoftheland;suchpoliciesshouldencouragethemanagementoffeaturesofthelandscapewhichareofmajorimportanceforwildfloraandfauna.Suitableplanningconditionsandobligationsmayservetopromotesuchmanagement.
3.2.7 OtherrelevantlegislationisreferredtoinAnnex1.
3.3 Adviceinrespectofthepreparationandreviewoflocaldevelopmentplans
3.3.1 Indevelopingtheoverallstrategyofaplan,localplanningauthoritiesshouldseekto:
• Developanambitiousbutachievablevisionoftheenvironmentoftheplanarea,includinghealthy,functioningecosystems,awealthofnativewildlifeandnaturalfeaturesandthehabitatsandnaturalprocessesonwhichtheywilldepend;
• IncorporateinternationalandWelshAssemblyGovernmentnatureconservationobjectivesintolocaldevelopmentplanobjectives;
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• IntegratetheCommunityStrategy(andinNationalParks,NationalParkManagementPlans)andLBAPobjectivesrelatedtotheuseanddevelopmentofland;
• Ensurethattheenvironmentalinformationbaseisuptodateandislinkedtoindicatorsforchangeinwildlife,habitatsandgeologicalfeatures;
• Considertheuseofevolvingtechniquessuchasenvironmentalcapacitystudiestoassesstheamountofdevelopmentthatcanbesupportedinanareawithoutcausinglong-termenvironmentalharm;
• Selectmonitoringindicatorsthatareintegratedwithwiderbiodiversitymonitoringinthearea;and
• EnsuredevelopmentplanshaveregardtootherplansandstrategiessuchasShoreline,Estuary,IntegratedCoastalZoneandRiverBasinManagementPlans.
3.3.2 Whererelevant,localdevelopmentplansshouldincludepoliciesthat:
• Setoutgeneralcriteriaagainstwhichalldevelopmentproposalswillbetestedfortheircompatibilitywithnatureconservationobjectivesand/orsustainabledevelopmentprinciples;
• Drawattentiontothelegalproceduresthatwouldapplytodevelopmentslikelytohaveasignificanteffectonaninternationallydesignatedsiteandrefertothesitesshownontheproposalsmap;
• Safeguardnationallyandlocallydesignatedsiteswhilstmakingcleartherelativeweighttobeattachedtothedifferentdesignations;
• Protectancientwoodlands,veterantreesandothertreesofnatureconservationvalue;
• Encouragetheconservationandmanagementoffeaturesofthelandscapeofmajorimportanceforwildfloraandfauna;
• Givelocalexpressiontotheprotectionand,wherepossible,enhancementofspeciesandtheirhabitats,especiallythosewithlegalprotectionandthoseofprincipalimportanceforbiodiversityconservationinWales9;
• Applytheprecautionaryprinciplewhereappropriate;
• CreatestronglinkstonationalandlocalBiodiversityActionPlansandincludeprovisionforhelpingtomeettheirtargetsbyhabitatcreationandmanagement;
9Section42oftheNaturalEnvironmentandRuralCommunitiesAct2006requirestheWelshMinisterstopublishalistofthelivingorganismsandhabtiatswhich,intheiropinion,areofprincipalimportanceforthepurposeofconservingbiodiversityinWales.Thislistcanbefoundat:http://www.biodiversitywales.org.uk/english/default.aspx.
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• Providefortheconservation,enhancement,sustainablemanagementand,whereappropriate,therestorationofnetworksofnaturalhabitatsincludingwildlifecorridorsandothergreenspace,andnetworksandchainsofopenspace;
• Addressthelocalimplicationsofclimatechange,includingpotentialeffectsofhabitatchange,therisksofcoastalfloodinganderosionandriverbasinfloodmanagementissues10;
• Anticipate,planandmanagetheeffectsofnaturalprocesses,withminimumintervention;
• Providefortheconservation,enhancement,sustainablemanagementand,whereappropriate,therestorationoflocallydistinctivenaturalhabitats11;
• Protectlocallydesignatedsitesofdemonstrablysubstantivenatureconservationvalue;
• Makeproposalsfornecessarynewdevelopmentinwaysandatlocationsthatareconsistentwiththenatureconservationobjectivesandpoliciesintheplanitselfandwithnationalplanningpolicies.
3.4 SupplementaryPlanningGuidance
3.4.1 SupplementaryPlanningGuidance(SPG)helpstodeliverbetterconservationforbiodiversityandgeology.Thereisconsiderablescopeforsupplementinglocaldevelopmentplanpolicieswithguidancethatisfocusedonlocalissues,designandgoodpracticeindevelopmentandwhichlinkthelocaldevelopmentplantotheLocalBiodiversityActionPlan(LBAP).AnumberoflocalplanningauthoritieshavealreadyusedexistingprovisionsforSPGtoraisetheprofileofbiodiversityissuesinplanning,providemoredetailedguidanceandtostrengthenlinksbetweentheLBAPandthelocaldevelopmentplantohelptodeliverLBAPtargetsandobjectives12.
3.4.2 LocalplanningauthoritiesmayadoptSPGtoprovidemoredetailed,locallyrelevantguidancefor:
• waysinwhichtheplanningsystemcandeliverLBAPobjectivesandthetargetsofHabitatandSpeciesActionPlans;
• thedesign13,layout,programmingandconstructionofdevelopmentthatfurtherstheconservationandenhancementofbiodiversityandgeodiversity;
10GuidanceonplanningandclimatechangeisavailableinThe Planning Response to Climate Change - Advice on Better Practice,ODPM,WelshAssemblyGovernment,ScottishExecutive,2004.Thisincludesanumberofusefulinformationsources,suchastheUKClimateImpactsProgramme(UKCIP).
11Forexamplesofdeveloping'opportunitymaps'toshowwherepriorityhabitatscouldberestoredorre-createdsee2.18-2.19ofPlanning for Biodiversity and Geological Conservation - A Guide to Good Practice,ODPM,Defra,EnglishNature,2006.
12SomegoodpracticeexamplesofSPGareprovidedin4.44-4.49ofPlanning for Biodiversity and Geological Conservation - A Guide to Good Practice,ODPM,Defra,EnglishNature,2006.
13TheGuidetoGoodPracticealsoprovidesexamplesofhownewdevelopmentcanofferopportunitiestoenhancenatureconservation(at5.32-5.45)FurtherguidanceandcasestudiesareprovidedinBiodiversity by Design: a guide for sustainable communities,TCPA,2004.
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• achievingmoresustainablesolutionstodevelopmentproblemsandopportunitiesthatrespectnaturalprocessesandecologicalsystems;
• householderstoaddressbiodiversityissuesinplanningapplications;
• developerstoavoidadverseeffectsonnatureconservation,minimiseunavoidableeffectsbymitigationmeasuresandcompensateforresidualeffectsonnatureconservation,andprovidingnewbenefitsforconservation,usingexamplesofdifferenttypesofdevelopmentanddifferentconservationscenariosandinitiatives;
• thecreationofnewwildlifehabitatsandtheenhancementofnatureconservationinterests;
• ensuringdevelopmentsmakeappropriateprovisionforthemanagementoflandfornatureconservationandtheenjoymentofareasofwildlifeandgeologicalinterest.
3.5 SustainabilityAppraisal,StrategicEnvironmentalAssessmentandHabitatsRegulationsAppraisal
3.5.1 Adviceonsustainabilityappraisalandthestrategicenvironmentalassessmentofdevelopmentplansisprovidedin:
• Sustainability Appraisal of Unitary Development Plans in Wales - A Good Practice Guide,WelshAssemblyGovernment,2002;
• Strategic Environmental Assessment of Unitary Development Plans - Interim Good Practice Guide,WelshAssemblyGovernment,2004(amendmenttoSEAelementsofSustainability Appraisal of UDPs in Wales,2002);
• A Practical Guide to the Strategic Environmental Assessment Directive,ODPM,2005;
• Local Development Plan Manual,WelshAssemblyGovernment,2006.
3.5.2 TheConservation(NaturalHabitats,&c)Regulations199414(“theHabitatsRegulations”)havebeenamended15togiveeffecttoajudgmentoftheEuropeanCourtofJustice16thattherequirementsofArticle6(3)and(4)oftheHabitatsDirectiveapplyinrelationtolanduseplans:anewPartIVAhasbeenaddedtotheRegulationsunderthetitle“Appropriate Assessments for Land Use Plans in England and Wales”.Beforealocaldevelopmentplanmaybeadoptedbyaplanningauthorityundersection67ofthePlanningandCompulsoryPurchaseAct2004,andbeforeaunitarydevelopmentplanmaybeadoptedbyalocalplanningauthorityundersection15(1)oftheTownandCountry
14S.I.1994/2716.15BytheConservation(NaturalHabitats&c)(Amendment)(EnglandandWales)Regulations2007(SI2007/1843).16CaseC-6/04,Commission of the European Communities v United Kingdom of Great Britain and Northern Ireland,
20thOctober2005.
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PlanningAct199017,theplanningauthoritymustdeterminewhethertheplanislikelytohavesignificanteffectsonaEuropeansiteinGreatBritainoronaEuropeanoffshoremarinesite.
3.5.3 IftheplanmighthaveasignificanteffectonanyEuropeansite,inoroutsideWales,oronaEuropeanoffshoremarinesite,theplanningauthoritymustundertakean‘appropriateassessment’oftheplantoascertainwhetheritwouldadverselyaffecttheintegrityofthesite.Ifsuchaneffectcannotberuledout,theplanningauthorityshouldamendtheplantoavoidsucheffectsoccurring;itisonlyinthemostexceptionalcircumstancesthatalocalplanningauthoritymayadoptaplanwhichislikelytohavesuchaneffect.
Annex6providesfurtherguidanceontheappraisalofplansundertheHabitatsRegulations.TherequirementsoftheRegulationsapplyirrespectiveofwhenworkontheplanwasstarted.SupplementaryPlanningGuidanceshouldalsobesubjecttoappraisalofitseffectsonthesesitesinthesameway.
3.6 Monitoring
3.6.1 ThemonitoringoflocaldevelopmentplansshouldincludeindicatorsandtargetsthatenabletheeffectivenessoftheplansandanySPGtobeassessed.Thiswillgenerallymeanthattheindicatorswillneedtoconcentrateontheinfluenceoftheplaninplanningdecisions,andthedecisionsthemselves,ratherthangeneralindicatorsofchangesinbiodiversityandgeodiversitythatcouldbetheresultofawiderangeofeffectsandinteractions,manyofwhichmayhaveno,orverylittle,relevancetodevelopmentorplanningissues.Ananalysisisrequiredthatwillinformthereviewofthelocaldevelopmentplanastowhethertheplan’spoliciesandproposalsareworkingtoachievetheplan’snatureconservationobjectivesandwhetheranytargetsexpressedintheplanorSPGarebeingmetormissed.
3.6.2 TheremaywellbeconvergencebetweenthebiodiversityobjectivesofthelocaldevelopmentplanandthoseoftheSustainabilityAppraisal,inwhichcasesharedtargetsandindicatorscanbedeveloped.Inturntheseshouldalignwellwiththoseoftheotherplanswhichinformthelocaldevelopmentplan,suchasthecommunitystrategy.
17Unitarydevelopmentplansmayonlybeadoptedtotheextentpermittedbysection122(3)ofthePlanningandCompulsoryPurchaseAct2004andarticle4ofthePlanningandCompulsoryPurchaseAct2004(CommencementNo.3andConsequential,TransitionalandSavingsProvisions)(Wales)Order2005.(S.I.2005//1229(W.87)).
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4. NATURECONSERVATIONINDEVELOPMENTCONTROL-PROCEDURES
4.1 Introduction
4.1.1 ThedevelopmentcontrolprocessisacriticalstageindeliveringtheprotectionandenhancementofnatureconservationrequiredbyPPW.Thefollowingcanhelptoachievetheseobjectives:
• adoptingthefive-pointapproachtodecision-making-information,avoidance,mitigation,compensationandnewbenefits;
• ensuringthatplanningapplicationsaresubmittedwithadequateinformation,usingearlynegotiation,checklists,requiringecologicalsurveysandappropriateconsultation18;
• securingnecessarymeasurestoprotect,enhance,mitigateandcompensatethroughplanningconditionsandobligations;
• carryingouteffectiveplanningenforcement;
• identifyingwaystobuildnatureconservationintothedesignofnewdevelopment.
4.2 Pre-applicationdiscussions
4.2.1 PPWrecommendspre-applicationdiscussions(paragraph5.5.1)andconsultations(paragraph5.5.4)betweendevelopers,localplanningauthoritiesandthestatutoryagencies.Itisessentialthatallpotentiallyimportantnatureconservationissues(includingeffectsoninternational,nationalandlocalsites,Europeanandotherprotectedspecies,organismsandhabitatslistedundersection42oftheNaturalEnvironmentandRuralCommunitiesAct,UKBAPhabitatsandspecies,andcoastalandinlandwatersandotherwetlands)areidentifiedandfullyaddressedattheearlieststagesofpreparingaplanningapplication.AclearaudittrailneedstobeprovidedforanydecisionswhichmightimpactonspeciesandhabitatsontheNERCActsection42list.Informationshouldbesoughtfromappropriateexpertsandtakenintoaccount.19TheLocalRecordsCentre(LRC)canbeengagedtoprovideservicestoassistwiththisprocess,includingcheckingofproposedapplicationsagainsttable4.1below.Ignoringorinadequatelyaddressingthepotentialofadevelopmenttoaffectimportantwildlifehabitatsorspeciescouldleadtodelayintheprocessingoftheapplicationorrefusalofpermission.Insomecasesitcoulddelayorevenpreventimplementationofaplanningpermission,forexample,whereaprotectedspeciesisfoundonadevelopmentsiteafterworkhasstarted.
18Forexamplesofchecklistsandadviceforapplicantsoncarryingoutecologicalandothersurveys,seeSection5ofPlanning for Biodiversity and Geological Conservation - A Guide to Good Practice,ODPM,Defra,EnglishNature,2006.
19TheproceduretobefollowedisoutlinedintheWalesBiodiversityPartnershipguidancewhichcanbefoundat:http://www.biodiversitywales.org.uk/legislation_guidance-20.aspx.
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4.2.2 TheneedforearlydiscussionstoidentifypotentiallyimportantnatureconservationissuesisnotconfinedtoplanningapplicationsinruralWales.ItcanapplyalsotoapplicationsforListedBuildingconsent,TreePreservationOrderconsent,ConservationAreaconsent,andapplicationsforapprovalunderconditionsimposedonpermitteddevelopment20.Itcanalsoapplytoproposeddevelopmentsinurbanareas,especiallywhereimportantgreenspace,wildlifehabitatsandprotectedspeciesmaybeaffected.
4.2.3 Inadditiontopre-applicationdiscussionswiththelocalplanningauthority,developersshouldhaveregardtootherconsulteeswhoshouldbecontactedatanearlystage.Table4.1belowsummarisesadviceastowhichorganisationshouldbecontacted.
Table 4.1 Pre-application discussions
NatureConservationinterestspotentiallyaffectedbyaproposeddevelopment
Whoshouldbecontactedbeforetheapplicationisprepared?
Aninternationallydesignatedsiteorproposedsite(EuropeanandEuropeanoffshoremarinesites,proposedEuropeanandEuropeanoffshoremarinesites,andRamsarsites)21
CountrysideCouncilforWales(CCW)andtheLocalPlanningAuthority(LPA)
ASiteofSpecialScientificInterest(SSSI) CCWandtheLPA
AEuropeanProtectedSpecies CCWandtheLPA
OtherProtectedSpecies CCWandtheLPA
ANationalNatureReserve CCWandtheLPA
ALocalNatureReserve TheLPA
ASiteofImportanceforNatureConservation(SINC)
TheWildlifeTrust,LocalRecordsCentre(LRC)andtheLPA
ARegionallyImportantGeologicalSite(RIGS)
TheLocalRIGSgroup,LRCandtheLPA
AlivingorganismorhabitatlistedasbeingofprincipalimportanceinWales(section42NERClist)orBAPpriorityhabitatorspecies.
TheWildlifeTrustand/orLRC,theLPA,CCWand(forwater-relatedhabitatsandspecies)EnvironmentAgencyWales.
Whereeffectsonnatureconservationareuncertain
TheLRCand/orLPAecologistoraconsultantecologist
Coastalwaters,lakes,rivers,streamsorotherwetlands
LPAandEnvironmentAgencyWales
20Article3andSchedule2,TownandCountryPlanning(GeneralPermittedDevelopment)Order1995(S.I.1995/418).21Seesection5.1belowforthefulldescriptionofinternationallydesignatedsitesincludingEuropeanOffshore
MarineSites.
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4.3 PreparingPlanningApplications
4.3.1 PPWexplainstheimportanceofnatureconservationintheconsiderationofplanningproposals(paragraphs5.5.1-5.5.4).
4.3.2 Tofacilitatetheefficientandtimelyprocessingofplanningapplicationsdevelopersshouldensurethatapplicationsarecarefullypreparedwithallrelevantinformationincludedandallmaterialconsiderationsaddressedinthelayout,designandrelatedaccess,drainageandinfrastructure.Landscapingproposalsshouldbeincludedtogetherwithanymeasuresdesignedtoavoid,mitigateorcompensateforpotentialadverseeffectsonnatureconservation.Anyproposalsforenhancementofnatureconservationinterestsshouldalsobeincluded.Thesemattersshouldnotnormallybeleftforlatersubmissionunderconditionsimposedonanypermissiongiven,becausetheywillbematerialtothedeterminationofwhetherplanningpermissionshouldbegranted.
4.3.3 Whereproposalsforaddressingnatureconservationinterestsareuncertainorrequiremonitoringtoidentifypotentialeffects,theapplicationshouldincludeproposalsastohowtheseissueswillbeimplemented.Forexample,theheadsoftermsofaproposedplanningobligationshouldbesubmittedwiththeapplication.
4.3.4 Theinformationsubmittedwiththeplanningapplicationshouldbeproportionaltothelikelihoodofeffectsonnatureconservationinterestsandtotheirpotentialsignificance.WhereaproposalisnotEIAdevelopment(seebelow)applicantsmayfinditusefultoprepareandsubmitoneormoreofthefollowingasappropriate:
a) HabitatSurvey:showingthetypesofhabitatonthesite,theirdistribution,interrelationships,significanceandananalysisofpotentialchangescausedbytheproposeddevelopment;
b) Geological/Geomorphological/Hydrological/HydrogeologicalReport:addressingrelevantissuesonthesiteorfeaturesdirectlyorindirectlyaffectedbytheproposeddevelopmentincludingsurvey,analysis,avoidance,mitigation,compensationmeasuresandanyproposalsforenhancement;
c) SoilsReport:demonstratinghowandwhenthesoilsthatmaybeaffectedbythedevelopmentproposalswillbemoved,stored,usedandconserved;
d) ProtectedSpeciesReport:includingsurveymethod,timing,results,anylimitationsinthesurvey,analysisofpotentialharmtothespeciesandanyavoidanceormitigationmeasuresproposed22;
e) AnEcologicalAppraisal:amorecomprehensiveappraisalofnatureconservationissuesincludingbutnotlimitedtosurvey,analysis,avoidance,mitigation,compensationmeasuresandproposalsforenhancement;
22TheConstructionIndustryResearchandInformationAssociation(CIRIA)haspublishedWorking with Wildlife(2004)whichprovidesinformationandgoodpracticeadviceforthedevelopmentindustryindealingwithprotectedspecies.
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f) NatureConservationEnhancementProposals:showinghowthedevelopmentwillconservenaturalheritagefeaturesonthesiteandprovidenetbenefitsfornatureconservationinterests;
g) AMonitoringPlanorProgramme:describinginsufficientdetailtheproposalsformonitoringtochecktheeffectsoftheproposeddevelopmentonnatureconservation(andotherinterests).Dependingonthecircumstancesmonitoringmaybenecessaryto:
i) validatethepredictedeffects;
ii) identifydeparturesfrompredictedeffectsandassessandreportontheirsignificanceandanymeasuresneededtoremedyunforeseeneffects,ortoreducemitigationorcompensationmeasuresthatareshowntobeunnecessary;
iii) actasan“earlywarning”signalthatsignificantadverseeffectsmayoccuriffurthermeasuresarenottaken(e.g.tosuspendwaterpumpingoractivitiescausingdisturbance);
iv) measureeffectsagainstpre-determinedthresholdsaboveorbelowwhichmeasurestoreducetheeffectsofdevelopmentmaybescaleddownorshouldbeincreased,asappropriate.
h) ANatureConservationManagementPlan:describinghowthesitewillbemanagedtoconserveandenhancenatureconservationonandoff-siteincludingwhowillmanagedifferentpartsorelements,howmanagementwillbefunded,reviewedandadaptedovertime.
4.3.5 SomeofthisinformationmayalsoberequiredatalaterstagetosupportlicenceapplicationstotheAssemblyGovernmentwhereEuropeanprotectedspeciesareaffected(seesection6.3below).
4.4 Requiringfurtherinformation
4.4.1 Thelocalplanningauthoritycandirecttheapplicanttosupplyanyfurtherinformationreasonablynecessarytodetermineanyplanningapplication23.WherealocalplanningauthorityisconsideringwhetheraplanningapplicationislikelytohaveasignificanteffectonaEuropeansite24orEuropeanoffshoremarinesite25,soastomakeitnecessarytocarryoutanappropriateassessmentundertheHabitatsRegulations,theplanningauthoritymayrequiretheapplicanttoprovidesuchinformationasitreasonablyneedstodeterminethatquestion;andwhereaplanningauthoritydeterminesthatanappropriateassessmentisnecessary,itmayrequiretheapplicanttoprovidesuch
23Article4,TownandCountryPlanning(Applications)Regulations1988(S.I.1988/1812).24Definedinregulation10oftheConservation(NaturalHabitats,&c)Regulations1994(S.I.1994/2716).25Definedinregulation15oftheOffshoreMarineNatureConservation(NaturalHabitats,&c.)Regulations2007
(S.I.2007/1842).
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informationasitreasonablyneedsforthepurposesofthatassessment26.Thecollection,analysisandreportingofthisinformationmaysometimesmeanadelayindecidingtheapplication,especiallyifthereareseasonalconstraintsonsurveys.
4.4.2 Thepotentialdelayshouldnotbeseenasajustificationforgrantingpermissionwithouttakingtheinformationintoaccount.Apartfromtheharmthatcouldresult,thedecisionmaybeopentolegalchallengeifallmaterialconsiderationsarenotproperlyaddressedinthedecision.Wheretheinformationisnecessarytoadequatelyassessthepotentialharmtonatureconservation,butitisnotprovided(becausetheapplicantcannotorwillnotprovideit),planningpermissionwillneedtoberefusedifsignificantadverseeffectsonthenatureconservationinterestsarepossibleandthebenefitsofthedevelopmentdonotclearlyoutweightheharmthatcouldresult(PPWparagraph5.5.3).
4.5 EnvironmentalImpactAssessment(EIA)
4.5.1 EIAisaprocessintendedtoidentifyandassessthelikelysignificantenvironmentaleffectsofaproposeddevelopment,inordertoinformdecision-making.ItshouldidentifyatanearlystagethenatureconservationinterestslikelytobeaffectedbyanEIAdevelopment.Itshouldensurethattheimpactsofprojectslikelytohaveasignificanteffectontheenvironmentarethoroughlyinvestigated,understoodandconsideredbeforedecidingwhetherornottograntconsent.Theprocessguidesthedesignandimplementationofthoseprojectsthatareultimatelyconsented,andhelpsensurethatthecapacityofWales’environmenttoaccommodatechangeisnotexceeded.DetailedguidanceonEIAisprovidedinWelshOfficeCircular11/99Environmental Impact Assessment.27
4.5.2 EIAisundertakenbylocalplanningauthoritiesprimarilythroughtheprovisionsoftheTown and Country Planning (Environmental Impact Assessment)(England and Wales) Regulations1999(asamended).PPW(paragraphs4.3.1-4.3.8and5.5.9)explainstheapplicationandimportanceoftheEIAprocess.Inallcasesitisessentialto:
a) carefullyscreenallSchedule2developmentsforlikelysignificanteffectsonnatureconservation;
b) ensurethatallpotentiallysignificantnatureconservationinterestsandeffectsonthemareconsideredattheoutsetandparticularlyatthescopingstage;
c) encouragepotentialapplicantstoapplyforascopingopinionfromthelocalplanningauthorityandengageasearlyaspossiblewithCCW,theEnvironmentAgencyWales,non-governmentalorganisationspromotingenvironmentalprotectionandotherstakeholderslikelytobeaffectedby,orhaveaninterestin,theproposeddevelopment,toestablishwhatandhownatureconservationinterestsarelikelytobesignificantlyaffected;
26Regulation48(2),TheConservation(NaturalHabitats&c)Regulations1994(S.I.1994/2716).27SeealsoEuropeanCommission,1996,Environmental Impact Assessment: Guidance on ScreeningandEuropean
Commission,1996,Environmental Impact Assessment: Guidance on Scoping.
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d) agreethroughthescopingprocess,orotherwise,theeffectstobeassessed,theinformationrequired,includingthewayinwhichbaselineinformationwillbegathered,theassessmentmethodology,thetimingandcoverageofsurveysandthecriteriaforpredictingandevaluatingthesignificanceoftheeffects;
e) agreethescopeforavoiding,mitigatingorcompensatingforadverseeffectsonnatureconservation,andensuretheseareclearlystatedintheenvironmentalstatement;
f) ensurethatdevelopmentproposalsinoutlineplanningapplicationsaresufficientlyprescribed,andthatenvironmentalimpactstatementsfullyaddressalllikelysignificantenvironmentaleffects,inordertoavoidtheproceduresapplyingagainattheapprovalofreservedmattersstage28;
g) ensuretheEIAprocessisusedtofulladvantagetoidentifyopportunitiesfortheenhancementofnatureconservationinterest,forexample,throughthedesign,location,scaleormanagementofmeasuresmitigatingotherenvironmentaleffectssuchasnoiseattenuationbunds,screenplantingorprovisionofbufferzones.
4.6 Theuseofconditionsonplanningpermissions
4.6.1 AssemblyGovernmentpolicyontheuseofplanningconditionsissetoutinparagraphs4.6.1-4.6.4and5.5.3ofPPW29.Conditionsmaycontributesignificantlytobiodiversityconservation.Theuseofconditionscan:
• avoidadverseimpactsorremovethelikelihoodofadverseimpactsoccurring;
• reduceadverseimpactsthatmayoccur;
• compensateforlossesorimpactsthatcouldnotbeavoidedormitigated;
• enhanceaspectsofthenaturalheritageanditsenjoyment.
4.6.2 Amongstotherways,conditionscanachievetheseobjectivesby:
• Restrictingorotherwiseregulatingthedevelopmentpermitted,forexamplebyrestrictingspecificoperationstoparticularseasons;
• Requiringworkstobecarriedoutwhicharenecessaryforthedevelopmenttoproceed;
• Requiringschemesorfurtherdetailstobesubmittedforapproval,perhapsinconsultationwithCCW;
• Requiringtheprotectionandplantingoftrees;
28SeejudgmentsoftheECJinR(Delina Wells)vSecretaryofStateCaseC-201/02,Commission v UKCaseC-508/03andBarkerCaseC-290/03andtheHouseofLordsinR v Bromley LBCexparteBaker[2006]UKHL52.
29SeealsoWelshOfficeCircular35/95The Use of Conditions in Planning Permissions.
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• Requiringtherestorationandaftercareoflandfollowingmineralsextractionorwastedisposal;
• Limitingthedurationofallorpartofthedevelopment;
• Requiringappropriatemanagementandmaintenance;
• Requiringpropertreatmentofinvasiveandexoticspeciesontheapplicationsite.
4.6.3 Allconditionsshouldbenecessary,relevanttoplanning,relevanttothedevelopmentpermitted,enforceable,preciseandreasonable.
4.6.4 Theuseofconditionscandeliveranumberofpositivebenefitstobiodiversitybeyondthoseofsimplyavoidingadverseeffects.Itispossibleforconditionstorequirecertaintypesofpositiveactions,forexample:
• Thesubmissionandagreementofalandscapeschemesothatgreaterattentioncanbegiventoissuessuchasspeciescomposition;
• Themaintenanceoflandscapeplantingforafive-yearperiod,orlonger,wheretheneedforthiscanbejustified;
• Habitatenhancement;
• Therestorationandaftercareofasitewhereapositiveapproachtorestorationandafter-userequiredbyconditionscanproducesignificantbiodiversitybenefitsintermsofhabitatcreationandenhancement.
4.7 Theuseofplanningobligations
4.7.1 Planningobligationscanalsobeaneffectivewayofavoidingpotentialadverseeffectsonnatureconservationenablingapermissiontobegranted30.Ifthereisachoicebetweenimposingconditionsandenteringintoaplanningobligation,theimpositionofaconditionispreferable(PPWparagraphs4.7.1-4.7.5and5.5.3).Inmanycircumstances,fornatureconservationmatters,obligationsprovideamoreflexible,butequallyreliableandenforceable,meansofcontrollingdevelopmentthanconditions.Theyareparticularlyusefulfordeliveringthemeasuresinaproposeddevelopmenttoavoid,mitigateorcompensateforpotentialharmtonatureconservationandtoensureproposednaturalheritagebenefitsaredeliveredinatimelyandappropriateway,wherethesehavebeenmaterialconsiderationsintheplanningdecision.
4.7.2 Obligationsmaybeappropriateforproviding:
• forthemanagementoflandandconservationofnaturalheritagefeaturesassociatedwithdevelopmentincludinganycompensatoryareas;
30SeealsoWelshOfficeCircular13/97Planning Obligations.
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• monitoringsystemsandthemeansofreporting,reviewingandadjusting,monitoringandmitigationandcompensationmeasures(seeparagraph4.6.1above);
• newhabitatsorenhancingexistinghabitats,onoroff-site;
• informationandinterpretation,forexample,aboutthegeologicalinterestofasiteorfeature;
• improvedaccessforalltositesorfeaturesofnatureconservationinterest;
• newnaturereservesorthefundingofnaturereservemanagementorprovision;
• wardenorrangerservicestohelpmanagerecreationalorotherpressuresonlandonoroff-site;
• measurestoavoidharmtoprotectedspeciesinbuildingsorelsewhere;
• otherappropriatefinancialcontributionstonatureconservation.
4.7.3 Thisisnotanexhaustivelistbutillustratesthescopeofuseofplanningobligations.LocalplanningauthoritiesanddevelopersareencouragedtouseobligationsinapositiveandinnovativewayinaccordancewiththeAssemblyGovernment’spoliciessetoutinsection4.7ofPPW.
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5. DEVELOPMENTAFFECTINGDESIGNATEDSITESANDHABITATS
5.1 Introductiontodesignatedsites
5.1.1 ManysiteswhichareimportantfornatureconservationhavebeendesignatedundertheinternationalconventionsandnationallegislationoutlinedinthisChapter.Alongwithlocalsites,thesecompriseahierarchyofdesignationswhicharesetoutbelow.Localplanningauthoritieswillrequireup-to-datespatialinformationonthelocationandextentofthesesites.
International sites
SiteDesignationInternationalDirectives/
ObligationsDesignatingAuthority
SpecialProtectionAreas(SPAs)includingSPAsthatareEuropeanOffshoreMarineSites
ClassifiedunderArticle4oftheECDirectiveontheConservationofWildBirds(79/409/EEC)(theBirdsDirective)andRegulation12oftheOffshoreMarineConservation(NaturalHabitats&c)Regulations2007
ClassifiedbytheWelshMinistersinthelightofrecommendationsmadebyCCWthroughtheJointNatureConservationCommittee(JNCC);beyondtheterritorialseaadjacenttoWales,SPAsareclassifiedbytheUKGovernmentontheadviceofJNCC
SpecialAreasofConservation(SACs)includingcandidateSpecialAreasofConservation(cSACs)andSACsandcSACsthatareEuropeanOffshoreMarineSites
DesignatedunderArticle4oftheECDirectiveontheConservationofNaturalHabitatsandofWildFauna&Flora(92/43/EEC)(theHabitatsDirective)viaRegulations7and8oftheConservation(NaturalHabitats&c)Regulations1994andRegulations7to11oftheOffshoreMarineConservation(NaturalHabitats&c)Regulations2007
DesignatedbytheWelshMinistersinthelightofrecommendationsmadebyCCWthroughtheJNCC;beyondtheterritorialseaadjacenttoWales,SACsaredesignatedbytheUKGovernmentontheadviceofJNCC
RamsarSites Designatedunderarticle2oftheConventiononWetlandsofInternationalImportanceespeciallyasWaterfowlHabitat(RamsarConvention,1971)
DesignatedbytheUKGovernmentinthelightofrecommendationsmadebyCCWthroughtheJNCC
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5.1.2 TheUKisboundbythetermsoftheECBirdsandHabitatsDirectives31andtheRamsarConvention32.TheConservation(NaturalHabitats&c.)Regulations199433(theHabitatsRegulations)andtheOffshoreMarineConservation(NaturalHabitats&c)Regulations200734referto“Europeansites”and“EuropeanOffshoreMarineSites”.
“Europeansites”aredefinedinregulation10oftheHabitatsRegulations.Theyconsistofthefollowingsites:
• SpecialProtectionAreas(SPAs)classifiedpursuanttotheECWildBirdsDirective;
• SpecialAreasofConservation(SACs)designatedundertheECHabitatsDirective;
• CandidateSpecialAreasofConservation(cSACs)proposedtotheCommissionbytheWelshMinistersortheSecretaryofStateunderArticle4(1)oftheHabitatsDirective35;
• SitesofCommunityImportance(SCIs)adoptedbytheCommissionunderArticle4(2)oftheECHabitatsDirective;
• SiteshostingprioritynaturalhabitattypesorpriorityspeciesinrespectofwhichconsultationhasbeeninitiatedunderArticle5(1)oftheHabitatsDirective36.
“Europeanoffshoremarinesites”aredefinedinregulation15oftheOffshoreMarineConservation(NaturalHabitats,&c.)Regulations2007andconsistofsiteslocatedbeyondtheterritorialseaadjacenttotheUK,i.e.beyond12nauticalmiles:therearenosuchsitesinGreatBritainatpresent.
TheRamsarConventionprovidesforthedesignationofsuitablewetlandsforinclusionina“ListofWetlandsofInternationalImportance”andfortheformulationandimplementationofplanninginordertohelptosafeguardthewiseuseandconservationofthosewetlands.
5.1.3 InordertomakethisTANmorereadable,EuropeanSites,EuropeanOffshoreMarineSitesand,asamatterofAssemblyGovernmentpolicy37,pSPAs,pSACsandRamsarsites,areincludedintheexpression“internationallydesignatedsites”inthewholeoftherestoftheTAN,includingitsAnnexes.Whereaparticularsectionappliesinrelationtosomeinternationallydesignatedsitesbutnottoothers,thisisstatedintherelevantsection.
31CouncilDirectiveofApril2,1979ontheconservationofwildbirds(79/409/EEC)andCouncilDirectiveofMay21,1992ontheconservationofnaturalhabitatsandofwildfaunaandflora(92/43/EEC).
32ConventiononwetlandsofinternationalimportanceespeciallyaswaterfowlhabitatRamsar,Iran2/2/71asamendedbytheParisProtocol3/12/92andtheReginaamendmentsadoptedattheextraordinaryconferenceofcontractingpartiesatRegina,Saskatchewan,Canadabetween28/5and3/6/87.
33S.I.1994/2716.34S.I.2007/1842.35SuchsitesremainEuropeansitesuntilsuchtimethattheyareadoptedbytheCommissionassitesofCommunity
importanceoragreementisreachedoradecisionistakenthattheyshouldnotbeadoptedassuchsites:regulation10(1)(e).
36SuchsitesremainEuropeansitesuntiltheconsultationperiodhasendedandadecisionhasbeentakenbytheCouncilunderArticle5(3)oftheHabitatsDirective:article10(1)(c).
37MinisterialLetteronTAN5andrelatedpolicyissues,dated16September2009.
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5.1.4 TheprotectionandmanagementofinternationallydesignatedsitesisachievedbyacombinationoftheprovisionsoftheHabitatsRegulationsandtheprovisionsofPart2oftheWildlifeandCountrysideAct1981,asamended(see5.1.5below).Inrespectoflandabovemeanlowwatermark,themajorityofinternationallydesignatedsiteswillalreadyhavebeennotifiedasSitesofSpecialScientificInterest(SSSIs)undertheprovisionsofsection28oftheWildlifeandCountrysideAct1981.LocalplanningauthoritiesarealsonotifiedofRamsarsitesundertheprovisionsofsection37AoftheWildlifeandCountrysideAct1981.
Nationally designated sites
SiteDesignation RelevantNationalLegislationResponsible/Relevant
Authority
NationalNatureReserves(NNRs)
Declaredundersection19oftheNationalParksandAccesstotheCountrysideAct1949orsection35oftheWildlife&CountrysideAct1981
DeclaredbyCCW.NNRsmaybedeclaredonanylandofnationalconservationimportancewhichisbeingmanagedasanaturereserve(asdefinedinS.15ofthe1949Act)toprovideopportunitiesforresearchintomattersrelatingto,ortopreserve,plantsandanimalsandthephysicalconditionsinwhichtheylive,orgeologicalorphysiographicalfeaturesofspecialinterest.
SitesofSpecialScientificInterest(SSSIs)
Notifiedundersection28oftheWildlife&CountrysideAct1981
NotifiedbyCCW.SSSIsmaybenotifiedwhereCCWareoftheopinionthatanyareaoflandisofspecialinterestbyreasonofitsflora,fauna,geologicalorphysiographicfeatures.Thepurposeofthenotificationistoprotectthespecialfeaturesofthesite.
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SiteDesignation RelevantNationalLegislation Responsible/RelevantAuthority
MarineNatureReserves(MNRs)
DesignatedunderSection36oftheWildlifeandCountrysideAct1981
DesignatedbytheWelshMinistersonanapplicationmadebyCCW.MNRsaredesignatedtoconservemarinefloraorfaunaorgeologicalorphysiographicalfeaturesofspecialinterest,ortoprovideopportunitiesforthestudyofthemarinefloraandfaunaandthephysicalconditionsinwhichtheyliveorthegeographicalorphysiographicalfeatures.
5.1.5 Part2oftheWildlifeandCountrysideAct198138setsoutsignificantprovisionsimprovingthenotification,protectionandmanagementofSitesofSpecialScientificInterest(SSSIs).CCWhasadutytonotifyanyareaofWalesthatitconsiderstobeofspecialscientificinterestandtodesignatethesiteforprotectionandmanagementbyanotificationprocedurethatincludesthegivingofnoticetothelocalplanningauthorityinwhoselandtheareaissituated.
5.1.6 Localplanningauthorities,alongwithotherpublicbodies,haveadutytotakereasonablesteps,consistentwiththeproperexerciseoftheirfunctions,tofurthertheconservationandenhancementofthefeaturesbyreasonofwhichSSSIsareofspecialscientificinterest39.Furthermore,localplanningauthoritiesmustgivenoticetoCCWbeforeundertakingorpermittinganyoperationslikelytodamageanyoftheinterestfeaturesofaSSSI40,whetherornottheoperationswouldtakeplaceonlandwithintheSSSI.Failuretocomplywiththenotificationrequirementsandotherrequirementsofsections28Hand28IoftheWildlifeandCountrysideAct1981isanoffence(seefurther5.5.10below).
5.1.7 CCWhaspowerundertheNationalParksandAccesstotheCountrysideAct1949andundertheWildlifeandCountrysideAct1981todesignatelandasNationalNatureReserves(NNR).NNRsrepresenttheverybestexamplesofourwildlifehabitatsandgeologicalfeaturesandareland-managedforthepurposesofprovidingspecialopportunitiesforstudyandresearch.AllNNRsinWalesarealsoSSSIsandarethereforeprotectedunderPart2oftheWildlifeandCountrysideAct1981.
38Asamendedbysection75of,andSchedule9to,theCountrysideandRightsofWayAct2000andsections55,56,58and105of,andSchedules11and12to,theNaturalEnvironmentandRuralCommunitiesAct2006.
39Section28GoftheWildlifeandCountrysideAct1981,insertedbytheCountrysideandRightsofWayAct2000andamendedbytheNaturalEnvironmentandRuralCommunitiesAct2006.
40Sections28Hand28IoftheWildlifeandCountrysideAct1981,insertedbytheCountrysideandRightsofWayAct2000andamendedbytheNaturalEnvironmentandRuralCommunitiesAct2006.
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5.2 Furtherconsiderationsandpolicyinrespectofinternationalandnationallydesignatedsites
Planning Policy
5.2.1 PPWparagraph5.3.9indicatesthattheAssemblyGovernmentwillensurethatinternationalresponsibilitiesandobligationsforconservationarefullymetandthat,consistentwiththeobjectivesofthedesignation,statutorilydesignatedsitesareprotectedfromdamageanddeterioration,withtheirimportantfeaturesconservedbyappropriatemanagement.EuropeansitesandEuropeanoffshoremarinesites(seeparagraph5.1.2above)areprotectedundertheHabitatsRegulationsasamatteroflaw.41
5.2.2 PriortoitssubmissiontotheEuropeanCommissionasacSAC,aproposedSAC(pSAC)issubjecttowideconsultation.SitesunderconsiderationforclassificationasSPAsareknownaspotentialSPAs(pSPAs);theyarealsosubjecttowideconsultation.ProtectionforpSPAsandpSACs,throughtheplanningsystem,shouldapplyfromthebeginningoftheconsultationprocesscarriedoutbyCCWfortheAssemblyGovernment.Asamatterofpolicy,pSPAsandlistedRamsarsites42shouldbetreatedasiftheyareEuropeansites43forthepurposesoflanduseplanning,subjecttoparagraph5.2.3belowwithrespecttopSPAs.
5.2.3 PlanningdecisionspotentiallyaffectingapSPAshouldgenerallyfollowtheproceduresdescribedinAnnex3below.However,inordertocomplywiththejudgmentsoftheEuropeanCourtofJustice44,inlieuoftheintegritytestinRegulation48,planningauthoritiesshouldensurethatpSPAsarenotsubjecttopollutionordeterioration,oranydisturbanceaffectingthebirdsforwhichthepSPAhasbeenproposed,insofarasthesematterscouldbesignificantwithregardtotheobjectivesofclassificationunderArticle4oftheBirdsDirective.Additionally,inrespectofpSPAs,thederogationscontainedinRegulation49,allowingaprojecttobegrantedpermissiondespiteanegativeassessment,iftherearenoalternativesolutionsandimperativereasonsofoverridingpublicinterest,donotapplyuntilthesiteisformallyclassifiedasaSPA.
5.2.4 PlanningauthoritiesshouldhaveregardtotheneedtosafeguardtheecologicalcharacteristicsofpSACssothattheyareprotectedasnecessarythroughtheplanningsystemuntilsuchtimeasthesitehasbeensubmittedtotheCommissionortheWelshMinistershavedecidednottosubmitthesiteasacSACunderArticle4(1)oftheHabitatsDirective.PlanningdecisionspotentiallyaffectingapSACshouldgenerallyfollowtheproceduresdescribedinAnnex3below.
41Regulation10oftheConservation(NaturalHabitats&c)Regulations1994,asamendedbytheConservation(NaturalHabitats&c)(Amendment)Regulations2007.
42SitesListedundertheRamsarConventiononWetlandsofInternationalImportanceespeciallyasaWaterfowlHabitat,madeatRamsar,1971,asamended.
43PPWparagraph5.3.10.44Commission v French RepublicCaseC-374/98(relatingtotheBasses Corbieressite).
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5.2.5 InordertocomplywiththejudgmentsoftheEuropeanCourtofJustice45siteswhichhavebeensubmittedtotheCommission(i.e.cSACs)mustbegivenfullprotection.InrespectofcSACs,derogationscontainedinRegulation49,allowingaprojecttobegrantedpermissiondespiteanegativeassessment,iftherearenoalternativesolutionsandimperativereasonsofoverridingpublicinterest,donotapplyuntilthesiteisformallyclassified.
5.2.6 Localplanningauthoritiesmusthaveregardtotherelativeweighttobeattachedtotheinternationalandnationallydesignatedsites(PPW5.3.2).OntheadviceofCCW,theWelshMinisterswillnormallycallin,fortheirowndetermination,planningapplicationsthatarelikelytohaveasignificanteffectonEuropeansites46,Europeanoffshoremarinesites,RamsarSitesorSitesofSpecialScientificInterest(SSSI)(PPW5.5.10).
Unauthorised developments affecting internationally and nationally designated sites
5.2.7 Havingregardtothepolicyonprotectinginternationallyandnationallydesignatedsitesandtothepolicyonenforcingplanningcontrol(PPWsection4.8),localplanningauthoritiesmayneedtoquicklyremedyanyallegedbreachofplanningcontrolthathas,orislikelytohave,asignificanteffectonaninternationallydesignatedsiteorSSSI.Ifacontinuingbreachofplanningcontrolislikelytoresultinsignificantharmtoasite,theauthorityshouldconsidertheserviceofastopnoticeaswellasanenforcementnotice,toprohibitenvironmentallyharmfulactivitythatwouldotherwisecontinueforthedurationofanenforcementappeal.Wherethesignificanteffectonadesignatedsiteappearstoresultfromanallegedbreachofaplanningcondition,itmaybemoreeffectivetoissueanenforcementnotice,reinforcedbyastopnotice,ratherthanserveabreachofconditionnotice.Thisisbecauseaminimumperiodof28daysmustbeallowedforcompliancewithabreachofconditionnotice,duringwhichperiodirremediableharmtothenaturalhabitatortothepopulationofspeciesmayoccur.Alternatively,oradditionally,theauthoritymayconsidersubmittinganimmediateapplicationtotheCourtforthegrantofaninterimplanningenforcementinjunctionwhiletheypreparetotakeotheractiontoenforceagainstabreachofcontrolwhichishavingasignificanteffectonadesignatedsite.AdviceonenforcementisgiveninPPW(sections4.8to4.10),TechnicalAdviceNote9,Enforcement of Planning Control,WelshOfficeCircular24/97andNationalAssemblyforWalesCircular08/03,butshouldbereadsubjecttotheaboveparagraphs.
45Commission v Bund Naturschutz in BayernCaseC-244/05.46InlightoftheECJjudgmentreferredtoinparagraph5.2.3above,considerationwouldalsobegiventocalling
inproposalsthatmayaffectapSPAorapSAC.
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5.3 Developmentaffectinginternationallydesignatedsites
Development proposals likely to affect international sites
5.3.1 LocalplanningauthoritiesshouldfollowtheproceduresdescribedbelowandinAnnex3fordevelopmentwhichmightaffectEuropeansitesorEuropeanoffshoremarinesitesand,moregenerally,shouldhaveregardtotherequirementsoftheHabitatsDirectiveintheexerciseoftheirplanningfunctions47.Asindicatedin5.2above,theseproceduresshouldalsobeappliedasappropriatetolistedRamsarsites,potentialSPAsandproposedSACseventhoughthesearenotEuropeansitesasamatteroflaw.ThiswillassisttheUKGovernmentinfullymeetingotherobligationsundertheHabitatsandBirdsDirectivesandRamsarConventionandincomplyingwiththejudgmentsoftheECJ(see5.2.2to5.2.4above).
5.3.2 Regulation48placesrestrictionsonthegrantingofplanningpermissionfordevelopmentwhichislikelytosignificantlyaffectaEuropeansiteorEuropeanoffshoremarinesite,andwhichisnotdirectlyconnectedwithornecessarytothemanagementofthatsite,byrequiringthatanappropriateassessmentisfirstcarriedoutinrespectoftheimplicationsofthedevelopmentforthesite’sconservationobjectives48.Thedecisiononwhetheranappropriateassessmentisnecessaryshouldbemadeonaprecautionarybasis.Anappropriateassessmentisrequiredwherethereisaprobabilityorriskthattheplanorproject(eitheraloneorincombinationwithotherplansorprojects)willhaveasignificanteffectonaEuropeansiteorEuropeanoffshoremarinesite.SuchanapproachisinlinewiththerulingoftheEuropeanCourtofJusticeinCaseC-127/02(theWaddenzeeJudgment)whichstatesthat"any plan or project not directly connected with or necessary to the management of the site is to be subject to an appropriate assessment of its implications for the site in view of the site's conservation objectives if it cannot be excluded, on the basis of objective information, that it will have a significant effect on that site, either individually or in combination with other plans or projects."
Thismeansthat:
• Thelocalplanningauthoritymustthendetermine,inthelightoftheconclusionsoftheassessment,whetheritcanascertainthattheproposalwillnotadverselyaffecttheintegrityofanyEuropeansiteorEuropeanoffshoremarinesite.Again,theauthorityshouldadoptaprecautionaryapproachinmakingitsdetermination49;
• Ifthelocalplanningauthoritycannotascertainthattherewillbenosuchadverseeffects,itmayonlygrantpermissioniftheprovisionsofregulation49havebeencompliedwith.
47Regulation3(4)TheConservation(NaturalHabitats&c)Regulations1994.48 Therequirementsofregulation48areappliedtothegrantofplanningpermissionbyregulation54ofthe
HabitatsRegulations.49 InlinewiththeWaddenzeejudgment,whichstatesthat “The competent national authorities, taking account of the
appropriate assessment … are to authorise such an activity only if they have made certain that it will not adversely affect the integrity of that site. That is the case where no reasonable scientific doubt remains as to the absence of such effects.”
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5.3.3 Regulation49requiresanauthorityproposingtoallowdevelopmentthatcouldadverselyaffecttheintegrityofaEuropeansiteorEuropeanoffshoremarinesitetoconsider,firstofall,whetherthereareanyalternativesolutions.Iftherearealternativesolutionsthatwouldhaveno(oralesser)effectonthesite’sintegrity,thenpermissioncannotbegranted.Iftherearenosuchalternatives,however,theauthorityshouldconsiderwhetherthereareimperativereasonsofoverridingpublicinterestforgrantingpermission,inaccordancewiththeprovisionsofregulation49:theauthoritymayonlygrantpermissionifitsatisfiedthatsuchreasonsexist.Whereanauthorityproposestograntpermissioninsuchcircumstances,itmustnotifytheWelshMinistersinadvanceandrefrainfromgrantingplanningpermissionforaperiodof21daysunlesstheWelshMinistersnotifyitotherwise.ThisnotificationprocedureenablestheWelshMinisterstoconsiderwhethertocallintheapplicationfortheirowndeterminationandalsoenablesthemtoascertainwhetherornotcompensatorymeasureshavebeensecuredinaccordancewithregulation53.
5.3.4 Notethatthisisanoutlineonly:fullerdetailsofthelegalrequirementsaresetoutinAnnex3tothisTAN.Theserequirementsapply,asamatteroflaw,inrelationtoEuropeansitesandEuropeanoffshoremarinesitesonly50.However,localplanningauthoritiesshouldalsoadoptthesameapproach,asamatterofpolicy,inrelationtopSPAs,RamsarsitesandpSACsandsitestowhichregulation48(7)oftheHabitatsRegulationsapply51.TheapproachissetoutinAnnex3below,andappliesregardlessofwhetherthedecision-takeristheAssemblyGovernment,anInspectororthelocalplanningauthorityandisrepresentedintheflowchart(Figure1)inAnnex3.
Review of outstanding planning permissions and deemed planning permissions likely to affect international sites
5.3.5 Whenconsultationstakeplaceinpreparationfortheclassificationordesignationofaninternationallydesignatedsite,localplanningauthoritiesareaskedtoconsiderallextantplanningpermissionsthatmayaffecttheproposedarea(i.e.thosepermissionswhichhavenotbeenimplementedatall,andthosewhichhavenotbeenfullyimplemented,includingongoingdevelopmentssuchaslandfillandmineralsextraction).Theyshouldconsiderforeachwhethertheimplementationofthatpermissionwouldbelikelytohaveasignificanteffectontheecologicalvalueofthesite.Ifso,theyshouldsaysointheirresponsetotheconsultation.
50Theserequirementsdonotapply,asamatteroflaw,tositeswhichareEuropeansitesbyvirtueofregulation10(1)(c)oftheHabitatsRegulations,orwhichareEuropeanoffshoremarinesitesbyvirtueofregulation15(c)oftheOffshoreMarineConservation(NaturalHabitats,&c.)Regulations2007:seeregulation48(7)oftheHabitatsRegulations.
51WhenapplyingthisapproachinrelationtopSPAs,however,planningauthoritiesshould,insubstitutionforthetheintegritytestinRegulation48,ensureinsteadthatpSPAsarenotsubjecttopollutionordeterioration,oranydisturbanceaffectingthebirdsforwhichthepSPAhasbeenproposed,insofarasthesematterscouldbesignificantwithregardtotheobjectivesofclassificationunderArticle4oftheBirdsDirective.Seeparagraph5.2.3.
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5.3.6 WhenasitebecomesaEuropeansiteorEuropeanoffshoremarinesite(seeparagraph5.1.2above),Regulations50,51,55and56oftheHabitatsRegulations1994requirethelocalplanningauthoritytoreviewextantplanningpermissionsgrantedbythemortheirpredecessorauthorities52thatarelikelytohaveasignificanteffectonasite,eitherindividuallyorincombinationwithanyotherplanorproject,andtotakeanyappropriateaction,followingthatreview,toaffirm,modifyorrevokesuchpermissions.Thesepermissionsincludeallpermissionsthatarevalidbutunderwhichdevelopmenthasnotyetbeencommencedandalsoallpermissionsunderwhichdevelopmenthasbeenstartedbuthasnotyetbeencompleted53.Thisrequirementapplies,asamatteroflaw,inrelationtoEuropeansitesandEuropeanoffshoremarinesites.AsamatterofpolicytheAssemblyGovernmenthaschosentoextendtherequirementforreviewtolistedRamsarsitesinWales.
5.3.7 Localplanningauthoritiesmustreviewpermissionsassoonasisreasonablypracticable,followingtheproceduressetoutinAnnex4below.Theywillnormallyhaveidentifiedanyrelevantpermissionduringtheconsultationexerciseinpreparationforasite’sclassification.Localplanningauthoritiesmayhavesubsequentlygrantedfurtherplanningpermissions,someofwhichmaybelikelytohaveasignificanteffectonthesite.However,bearinginmindthatitistheAssemblyGovernment’spolicythattheproceduresoftheHabitatsRegulationsshouldbeappliedinrespectofproposedaswellasclassifiedEuropeansitesandEuropeanoffshoremarinesites(seeparagraph5.3.2),noneofthesubsequentplanningpermissionsshouldhavethepotentialtoadverselyaffecttheintegrityofthesite.Nevertheless,anynewpermissions,outstandingatformalclassification/designation,willneedtobecheckedtoseewhetheritcanbeexcluded,onthebasisofobjectiveinformation,thatthepermissionwillhaveasignificanteffectonthesite,eitheraloneorincombinationwithotherplansandprojects.However,theAssemblyGovernmentwouldnotexpectanypermissionstorequiremodificationorrevocationiflocalplanningauthoritieshaveactedconsistentlywithAssemblyGovernmentpolicy.
Restrictions on permitted development potentially affecting international sites
5.3.8 Article3oftheTown and Country Planning (General Permitted Development) Order1995(theGPDO),grantsageneralplanningpermission(subjecttospecifiedconditionsandlimitations)fortheclassesofdevelopmentsetoutinSchedule2totheGPDO.Thesepermitteddevelopmentrightslargelyapplytodevelopmentswhicharenon-contentious,andwhich,iftheywerethesubjectofindividualconsideration,wouldplaceanunnecessaryburdenonhouseholdersorotherdevelopersandonlocalplanningauthorities.Otherpermitteddevelopmentrightsrelatetodevelopmentsthatarecontrolledthrough
52Regulation55alsorequireslocalplanningauthoritiestoconsiderwhetheranyplanningpermissionsdeemedtobegrantedundersection90(1)oftheTownandCountryPlanningAct1990should,intheiropinion,bereviewed.PermissionsdeemedtobegrantedundertheprovisionsofthePipe-linesAct1962,theElectricityAct1989andtheTransportandWorksAct1992,orinrespectofdevelopmentauthorisedunderthoseActs,mustbereviewedinconjunctionwiththereviewoftheunderlyingauthorisation,consentororder.Anyotherpermissionsdeemedtobegrantedundersection90(1)oftheTownandCountryPlanningAct1990shouldbereferredtotheGovernmentDepartmentthatmadethedirectiondeemingpermissiontobegranted.
53Butfordevelopmentsthathavebeenstarted,thereviewcanonlyassesstheeffectsofthecompletionoftheremainingpartofthedevelopment,itshouldnotaddresstheeffectsofthecompletedpartofthedevelopment.
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otherapprovalprocedures,andtodevelopmentsbystatutoryundertakersandlocalauthoritiesintheperformanceoftheirstatutoryduties.
5.3.9 Regulations60to63oftheHabitatsRegulationsimposecontrolsonpermissionsgrantedbytheGPDOtoensurethatanypermitteddevelopmentisnotinbreachofthetermsofArticle6oftheHabitatsDirective54.TheseregulationspreventanydevelopmentwhichislikelysignificantlytoaffectaEuropeansiteorEuropeanoffshoremarinesite,eitheraloneorincombinationwithotherplansorprojects,andisnotdirectlyconnectedwithornecessarytothemanagementofthesite,frombenefitingfrompermitteddevelopmentrights,unlessthelocalplanningauthorityhasascertained,afterconsultingCCW,thatitwouldnotadverselyaffecttheintegrityofthesite55.Itshouldbeemphasisedthattheconditiondoesnotautomaticallywithdrawpermitteddevelopmentrightsforsuchdevelopments,butinsteadrequiresthemtobesubjecttoapriorapproval.TheseregulationsdonotapplyinrelationtopSPAs,pSACsandRamsarsitesbutinlightofparagraphs5.2.2to5.2.4above,localplanningauthoritiesshouldconsidertheuseofArticle4Directions56,wherenecessary,torestrictpermitteddevelopmentrightsthatmighthaveasignificanteffectonthesesites57andwhichwouldnotbeadequatelycontrolledbyotherregulatoryprocedures,suchastheprocessfornotifyingCCWundersection28IoftheWildlifeandCountrysideAct1981(seefurtherparagraph5.4.6below).
5.3.10 TheproceduresforseekingapprovalaredescribedinAnnex5below.TheflowchartinAnnex5explainstheprocessdevelopersshouldfollowtofindoutwhethertheparticulardevelopmenttheyproposewouldbenefitfromapermitteddevelopmentright.ItidentifiestheroleofthelocalplanningauthorityandCCW.
Special Development Orders, Simplified Planning Zones, Enterprise Zones and Local Development Orders and international sites
5.3.11 Regulations64,65,and66and66A58oftheHabitatsRegulationsprovidethatanySpecialDevelopmentOrders,SimplifiedPlanningZoneschemesandEnterpriseZoneschemesthatwereinforcepriortothecommencementofthoseRegulationsceasetohaveeffecttograntplanningpermissionfordevelopmentthatislikelytohaveasignificanteffectonaEuropeansiteandwhichisnotdirectlyconnectedwithornecessarytothemanagementofthesite.TheseRegulations,togetherwithregulation64A,65Aand66A59,alsopreventnewSpecialDevelopmentOrders,SimplifiedPlanningZoneschemes,EnterpriseZoneschemesandLocalDevelopmentOrdersfromgrantingplanningpermissionfordevelopmentthatislikelytohaveasignificanteffectonaEuropeansiteorEuropeanoffshoremarinesite.
54Regulation60TheHabitatsRegulations1994andArticle3(1)TheTownandCountryPlanning(GeneralPermittedDevelopment)Order1995StatutoryInstrument1995/418.
55Regulation60(1)and(2)TheConservation(NaturalHabitats&c)Regulations1994.56Article4TownandCountryPlanning(GeneralPermittedDevelopment)Order,1995.57InthecaseofpSPAs,localplanningauthoritiesshouldusetheirpowerstoensurethatpSPAsarenotsubjectto
pollutionordeterioration,oranydisturbanceaffectingthebirdsforwhichthepSPAhasbeenproposed,insofarasthesematterscouldbesignificantwithregardtotheobjectivesofclassificationunderArticle4oftheBirdsDirective.Seeparagraph5.2.3.
58Regulations65Aand66AwereinsertedbytheConservation(NaturalHabitats&c)(Amendment)Regulations2007.59Regulations64AwasinsertedbytheConservation(NaturalHabitats&c)(Amendment)Regulations2007.
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Further considerations in respect of Ramsar sites
5.3.12 WhereaproposeddevelopmentmayaffectalistedRamsarsite,Article3(1)oftheRamsarConventionmayberelevanttotheplanningdecision.ItrequiresContractingPartiesto'formulate and implement their planning so as to promote the conservation of the wetlands included in the List, and, as far as possible, the wise use of wetlands in their territory'.WhilstsomeRamsarsitesarealsoclassifiedasEuropeansites,theinterestfeaturesoftheRamsarsitemaybedifferenttothoseoftheSPAorSAC,andthelikelysignificanteffectsonalltheRamsarinterestfeatureswillneedtobeconsidered.
Consultation under the Habitats Regulations 1994
5.3.13 UndertheprovisionsoftheHabitatsRegulations1994,thereisastatutorydutyforalocalplanningauthoritytoconsultCCWwhen:
a. undertakinganappropriateassessmentforanewplanorproject60(seeAnnex3below);
b. undertakinganappropriateassessmentwhenreviewinganoutstandingconsentforaplanorproject61(seeAnnex4below);
c. undertakinganassessmentofaproposedpermitteddevelopment62(seeAnnex5below).
LocalplanningauthoritiesarerequiredtohaveregardtoanyrepresentationsmadebyCCW.
5.3.14 Therequirementat(a)abovewilloftenoverlapwiththedutytoconsultinrespectofSSSIbecausethemajorityofterrestrialEuropeansiteswillalsobeSSSI.However,therequirementsoftheHabitatsRegulationsapplyonlyinrespectoftheinterestfeaturesoftheEuropeanorEuropeanoffshoremarinesiteandsuchfeaturesmaybemorelimitedthantheinterestfeaturesoftheSSSI.ItwillthereforebeimportantforthelocalplanningauthorityandCCWtoclearlydistinguishhowtheproposeddevelopmentmayaffecttheinternationalinterestsandtheinterestsoftheSSSI.
5.4 Developmentaffectingnationallydesignatedsites
Sites of Special Scientific Interest - General Duty of Public Bodies
5.4.1 Paragraph5.5.8ofPPWreferstothestatutorydutiesplaceduponpublicbodiesinrespectofSitesofSpecialScientificInterest(SSSIs).
60Regulation48(3)TheConservation(NaturalHabitats&c)Regulations1994,asappliedbyregulation54.61ibid.Regulation50(2),asappliedbyregulation55.62ibid.Regulation62(4).
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5.4.2 TheWildlifeandCountrysideAct1981,asamendedbysection75of,andSchedule9to,theCountrysideandRightsofWayAct2000,imposesanimportantnewdutyonpublicbodieswheretheyareexercisingstatutoryfunctionswhicharelikelytoaffectthespecialfeaturesofSSSIs.Section28G(2)63requiresthemtotakereasonablesteps,consistentwiththeproperexerciseofthesefunctions,tofurthertheconservationandenhancementofthefeaturesforwhichthesiteisofspecialinterest.Publicbodiesspecificallyincludelocalauthoritiesandthedutyapplieswherevertheyareexercisingtheirfunctions,includingwhentheyhavethepowertotakeaction,andappliesateverystagefromtheformulationofplanstothecarryingoutofoperationsandthemakingofdecisions.
5.4.3 Thosepublicbodiessubjecttothisdutyarecalledsection28GauthoritiesandincludeWelshMinisters,MinistersoftheCrown,localauthorities,statutoryundertakersandanyotherpublicbody.64Localplanningauthoritiesaresection28GauthoritiesandassuchhavespecificdutiesandresponsibilitiesinrespectofSSSIs.Thesearedescribedbelow.
5.4.4 TheAssemblyGovernmentexpectsallsection28Gauthorities,includinglocalplanningauthorities,to:
• applystricttestswhencarryingoutfunctionswithinoraffectingSSSIs,toensurethattheyavoid,oratleastminimise,adverseeffects;
• adoptthehigheststandardsofmanagementinrelationtoSSSIswhichtheyown;and
• asowners,orotherwise,takepositivesteps,whereverpossible,toenhancethespecialinterestfeaturesofaSSSIwheretheiractivitiesmaybeaffectingit,orwhereopportunitiesariseintheexerciseoftheirfunctions.
5.4.5 CCWwilladviseonacase-by-casebasisastoopportunitiesforenhancement.
Notification under section 28I of the Wildlife and Countryside Act
5.4.6 Asection28Gauthority(includingalocalplanningauthority)whichhaspowertoauthoriseorgrantpermissionforotherpartiestocarryoutoperationslikelytodamagethespecialfeaturesofaSSSI,isrequiredbysection28IoftheWildlife and Countryside Act 1981tonotifyCCWbeforereachingitsdecision.ThisrequirementapplieswhetherornottheoperationwouldtakeplaceonlandincludedintheSSSI.Theauthoritymustthenallow28daysbeforedecidingwhethertoissueitsconsent,unlessCCWhasnotifiedtheauthoritythatitneednotwaituntilthen.TheauthoritymusttakeaccountofanyadvicefromCCWindecidingwhetherornottopermittheproposedoperationsandifitdoesdecidetodoso,indecidingwhat(ifany)conditionsshouldbeattachedtothepermission.If,havingregardtoitsgeneraldutyundersection28G,theauthoritydecidesneverthelessthatitwillissueapermissionagainstCCW’sadvice,itmustnotifyCCWofthepermission,thetermsonwhichitisproposedtograntitandhow,ifatall,ithastakenCCW’sadviceintoaccount.
63Section28G(2)WildlifeandCountrysideAct1981,insertedbytheCountrysideandRightsofWayAct2000.64ibid,section28G(3).
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Theauthoritymustnotgrantapermissionwhichwouldallowtheoperationstostartbeforetheendoftheperiodof21daysbeginningwiththedateofthatnotice.ThisallowsCCWtoconsiderwhetheranyfurtheractionisnecessary,suchas,inexceptionalcircumstances,legalactionchallengingthevalidityofthepermission.Whereasection28Gauthorityfailstocomplywithitsobligationsundersection28Iofthe1981Act:
• tonotifyCCW65,or
• towaitfor28daysbeforegrantingpermission66,or
• wheretheauthoritygrantspermissionagainstCCW’sadvice,torefrainfromgrantingapermissionwhichwouldallowtheoperationstostartbeforetheendofaperiodof21daysbeginningwiththedateonwhichCCWaregivennoticeofthatpermission67,
itcommitsanoffenceunlessithadareasonableexcuseforitsnon-compliance.Emergencyoperationswillqualifyasareasonableexcuse,providedthatparticularsoftheoperation(includingdetailsoftheemergency)werenotifiedtoCCWassoonaspracticableafterthepermissionwasgiven.68
5.4.7 Onceissued,aplanningpermissiongrantedonanapplicationunderPartIIIoftheTownandCountryPlanningAct1990givesanowneroroccupiera'reasonableexcuse'forcarryingoutanoperationwhichwouldotherwisebeunlawfulwithouttheconsentofCCW69.
Permitted development and SSSI
5.4.8 WhereanowneroroccupierwishestoexercisepermitteddevelopmentrightsonanSSSI,andtheworksinvolvedarespecifiedintheSSSInotificationasoperationslikelytodamagethefeaturesofspecialinterest,thenheorshemustapplytoCCWforconsentundersection28EoftheWildlifeandCountrysideAct1981.IfCCWrefusesconsentforsuchworksitwillnotbepossibletoexercisethepermitteddevelopmentrightswithoutcommittinganoffenceunderthe1981Act.Insuchcases,orwhereCCWattachesconditionstoaconsentorgrantsconsentonlyforalimitedperiod,theapplicantmayappealtotheWelshMinisters70.Alternatively,theowneroroccupiermayapplytothelocalplanningauthorityforplanningpermissionunderPartIIIoftheTown and Country Planning Act1990.WhenconsideringsuchapplicationslocalplanningauthoritieswillconsultCCW.Ifplanningpermissionisgrantedwhichauthorisestheworksinquestion,theowneroroccupierwillhavea“reasonableexcuse”forcarryingoutthoseworkswithoutobtainingCCW’sconsent71andwillbeabletodosowithoutcommittingan
65section28(I)(2),WildlifeandCountrysideAct1981,asamended.66section28(I)(4),WildlifeandCountrysideAct1981,asamended.67section28(I)(6),WildlifeandCountrysideAct1981,asamended.68section55(2),NaturalEnvironmentandRuralCommunitiesAct2006.69section28P(4),WildlifeandCountrysideAct1981,asamended.70ibid,section28F.71Ibid,section28P(4).
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offence.ApplicantsmayappealtotheWelshMinistersagainstalocalplanningauthority'srefusalofanapplicationforplanningpermission,oragainstconditionsattachedtoanapproval.
Certificates of Lawful Development and SSSI
5.4.9 Section28PoftheWildlife and Countryside Act1981providesthatitisa“reasonableexcuse”fornothavinggivennoticetoCCWofoperationslikelytodamagethespecialfeaturesofaSSSIiftheoperationswerecarriedoutinaccordancewithavalidplanningpermissiongrantedfollowinganapplicationtothelocalplanningauthority.UnauthoriseddevelopmentaffectingaSSSIisnot,however,a“reasonableexcuse”and,inadditiontobeingabreachofplanningcontrol,mayalsoresultinthecommissionofanoffenceundersection28P(1)ofthe1981Act,ifsuchdevelopmentinvolvesthecarryingoutofoperationswhichhavebeennotifiedbyCCWasbeinglikelytodamagetheSSSI’sfeaturesandifnonoticewasgiventoCCWoftheproposedoperationsorifnoticewasgivenbutconsenthasnotbeengrantedfortheoperations.
5.4.10 Planninglegislationenablesadevelopertoapplyforacertificateoflawfuldevelopmentaftertheexpiryofspecifiedtimelimits.Ifalocalplanningauthorityisconsideringanapplicationforalawfuldevelopmentcertificate,72andthedevelopmentoruseappearsprima facietoinvolveacontraventionofthe1981Act,theyshoulddrawitsrequirementstotheapplicant'sattention.Thelocalplanningauthoritymustconsidertheapplicationforthecertificateonthefactsofthecase,inaccordancewiththerelevantplanningprovisions.Althoughacertificateoflawfuldevelopmentdoesnotgrantplanningpermission,theissueofacertificatewouldrenderthedevelopmentimmunefromenforcementunderplanninglegislation.However,suchacertificatewouldnotprovidea'reasonableexcuse'forthepurposesofsection28Pofthe1981ActandthecarryingoutofoperationswhichhavebeennotifiedbyCCWasbeinglikelytodamagetheSSSI’sfeatureswillthereforebeanoffenceunderthatAct,unlessCCWhasgivenitswrittenconsent.
Consultations under the General Development Procedure Order
5.4.11 UndertheprovisionsofArticle10oftheTown and Country Planning (General Development Procedure) Order1995(theGDPO),localplanningauthoritieshaveadutytoconsultCCWbeforegrantingplanningpermissionforanydevelopmentthat:
• IsinorlikelytoaffectaSiteofSpecialScientificInterest(SSSI)73;or
• IswithinaconsultationareaaroundaSSSInotifiedtothelocalplanningauthoritybyCCW74;or
72Undersection191or192oftheTownandCountryPlanningAct1990.73Article10(1)(u)(i)oftheTownandCountryPlanning(GeneralDevelopmentProcedure)Order1995Statutory
Instrument1995/419.74Ibid.Article10(1)(u)(ii).
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• Involvesthesitingofnewestablishmentsorconsistsofthemodificationofexistingestablishmentswhichcouldhavesignificantrepercussionsonmajoraccidenthazards,whereitappearstotheauthority,ineithercase,thatanareaofparticularnaturalsensitivityorinterestmaybeaffected75;or
• Includestransportlinks,locationsfrequentedbythepublicandresidentialareaswherethesitingordevelopmentissuchastoincreasetheriskorconsequencesofamajoraccident,ifitappearstotheauthoritythatanareaofparticularnaturalsensitivityorinterestmaybeaffected76.
5.4.12 TheseGDPOconsultationsshouldtakeplaceassoonaspossibleandlocalplanningauthoritiesmaynotdetermineanyapplicationthatcouldaffectsuchasiteuntilatleast14daysafterinitiatingconsultation.77However,theperiodinwhichCCWnowhastorespondundertheprovisionsofsection28IoftheWildlife and Countryside Act1981(seeparagraph5.4.6above),is28days,andthelongertimescaleof28daysinthe1981ActtakesprecedencewhereCCWisbeingconsultedinrelationtoanSSSIunderbothsection28IandtheGDPO.Foritspart,CCWwillrespondasquicklyaspossible.
5.4.13 SSSIscanbeseriouslydamagedorevendestroyedbydevelopmentoutsidetheirboundaries.TheGDPOalsorequiresalocalplanningauthoritytoconsultaboutplanningapplicationsinanyconsultationareaaroundanSSSIdefinedbyCCW.AnauthorityisalsorequiredtoconsultwhereanapplicationisfordevelopmentthatislikelytoaffectaSSSI,eveniftheapplicationsitefallsoutsidetheSSSIandanyconsultationarea.
5.4.14 CCWwillgenerallydefinetheconsultationareasasnarrowlyasisconsistentwithprotectingthescientificinterestoftheparticularsites.Aconsultationareamayextenduptoamaximumof2kilometresfromtheboundaryofaSSSI.Normallyitwillnotextendbeyondabout500metres,althoughforareassuchaswetlandsitmayextendasfarasthe2kilometresmaximum.CCWwillnotifytheboundariesofsuchconsultationareastolocalplanningauthorities.WhennotifyingaconsultationareaCCWmayadvisethatitwishestobeconsultedonlyaboutcertaintypesofdevelopmentwithinthatarea.Itmayalsoadvisealocalplanningauthoritythatitwouldliketobeconsultedaboutothertypesofdevelopment(forexampleamajorindustrialfacility)beyondthe2kilometresmaximum,on the basis that such development is likely to affect a SSSI.
5.4.15 Whereaconsultationareahasnotbeendefined,thelocalplanningauthorityshouldgiveparticularattentiontoanyplanningapplicationinthevicinityofanSSSIsoastodecidewhetherornotsuchconsultationisneeded.Thelocalplanningauthorityshouldbearinmindthepossibilitythatcertaindevelopmentsmayaffectasitesomedistanceaway.Forexampleawetlandsitemighthaveitswatertableloweredasaresultofwaterabstractionsomeconsiderabledistanceaway;andariverSSSImightbeaffectedbyanupstreamdevelopment.Consultationisnotrequiredonproposals,suchasminor
75ibid.Article10(1)(zb)(i)and(ii).76ibid.Article10(1)(zb)(iii).77ibid.Article10(4).
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houseextensions,thatwouldclearlyhavenoeffectonanearbySSSI.But,wherethereisanydoubtwhetherornotthereislikelytobeaneffect,thelocalplanningauthorityshouldcontacttheappropriateofficeofCCWforadvice.Annex10providescontactpoints.
Exceptions to GDPO consultation requirements
5.4.16 ThereareexceptionstotheGDPOconsultationrequirementsdescribedabove(5.4.11).AlocalplanningauthorityneednotconsultCCWwhere:
• CCWhasadvisedtheauthoritythatitdoesnotwishtobeconsulted78(thisexceptiondoesnotapply,however,inrelationtoconsultationsrelatingtomajoraccidenthazards)79.
• CCWhasprovided‘standingadvice’totheauthorityinrelationtothecategoryofdevelopmentinquestion,providedthatthe‘standingadvice’haseitherbeenissuedwithinthepasttwoyearsorhasbeenamendedorconfirmedwithinthatperiod.ThisexceptiondoesnotapplytoanyapplicationwhichisEIAdevelopment80.
5.4.17 TheseexceptionsapplyonlyinrelationtotheGDPOconsultationrequirements.Theydonotdisplacetherequirementundersection28IoftheWildlifeandCountrysideAct1981foraplanningauthoritytogivenoticetoCCWbeforegrantingaplanningpermissionforoperationslikelytodamagethenatureconservationinterestfeaturesofaSSSI.NordotheyoverridetherequirementforaplanningauthoritytoconsultCCWinrespectofplansandprojectsundertheHabitatsRegulations.
5.5 LocalSites
5.5.1 Localsiteshaveanimportantroletoplayinmeetingbiodiversitytargetsandcontributingtothequalityoflifeandwell-beingofthecommunity.Paragraph5.3.11ofPPWexplainsthepolicyinrespectofsuchsites.PoliciesinUDPsandLocalDevelopmentPlansprovidefortheirprotection.Thenatureconservationinterestsforwhichtheyhavebeendesignatedareamaterialconsiderationinplanningdecisions.
5.5.2 Locallydesignatedsitesshouldbesubjecttotheapplicationofrigorouscriteriatoensuretheirdesignationisjustifiedonbiologicalorgeologicalgrounds.Theprocessofdesignatingandmaintainingthesitesshouldbetransparentwithrecordsandassessmentspubliclyavailable,unlessinformationaboutparticularspeciesissensitiveintermsoftheir
78Article10(1)(iii)oftheTownandCountryPlanning(GeneralDevelopmentProcedure)Order1995.79 ibid, Article10(1A).80 ibid, Article10(1)(iv)and(1B).81 LocalNatureReservesaredesignatedbylocalauthoritiesundersection21oftheNationalParksandAccesstothe
CountrysideAct1949.
LocalSites:includesSitesofInterestforNatureConservation(SINCs),LocalNatureReserves(LNRs)81,WildlifeSitesandRegionallyImportantGeologicalSites(RIGS)
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protection.Developersshouldbeabletoidentifyhowtheirproposalsmayaffecttheinterestsforwhichthesitesaredesignated(eitherpositivelyornegatively)andwhererelevant,howthesitescontributetowiderecologicalnetworksormosaics.
5.5.3 TheconservationandenhancementoflocallydesignatedsitesisanimportantcontributiontotheimplementationofBiodiversityActionPlansandtothemanagementoffeaturesofthelandscapeofmajorimportanceforwildfloraandfauna(seeparagraph3.2.2above).Developersshouldavoidharmtothoseinterestswherepossible.Whereharmisunavoidableitshouldbeminimisedbymitigationmeasuresandoffsetasfaraspossiblebycompensationmeasuresdesignedtoensurethereisnoreductionintheoverallnatureconservationvalueoftheareaorfeature.Wherelocallydesignatedsitesmaybeaffected,developersshouldconsultthelocalplanningauthorityandWildlifeTrustand/orLocalRecordCentretoagreetheinformationthatwillberequiredtoassesstheimplicationsofthedevelopmentandmitigationandcompensatorymeasures.
5.5.4 WheredevelopmentproposalsmayaffectnationalorlocalBAPhabitatsorspeciesthesameprinciplesapplyastolocallydesignatedsitesinparagraph5.5.2above(seefurtherhabitatsandspeciesofprincipalimportanceforbiodiversityinWalesinsection6.5below).
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6. DEVELOPMENTAFFECTINGPROTECTEDANDPRIORITYHABITATSANDSPECIES
6.1 Introduction
6.1.1 ParticularspeciesoffloraandfaunawithinWalesaresubjecttospecialprotection.Thisisnormallybecauseoftheirvulnerableconservationstatus,forexamplebecausetheyareendangeredoraresufferingdeclineinnumbersorrange,eitherwithinthecontextoftheUKortheEuropeanCommunity,orbecausetheycanbethevictimsofpersecutionorcruelty(suchasthatinflictedonbadgersorthecollectionoftheeggsofbirds).Thespeciesareprotectedunderlegislationthatisindependentof,butcloselyrelatedto,thetownandcountryplanninglegislationinWales.
6.1.2 Part1oftheWildlife and Countryside Act1981confersprotectionuponcertainwildanimalsandplants.Section25oftheWildlife and Countryside Act1981placesadutyonalllocalauthoritiestodowhattheyconsiderexpedienttobringtheprovisionsoftheActrelatingtoprotectedspeciestotheattentionofthepublicandparticularlyschoolchildren.LocalauthoritiesarealsoempoweredtoinstituteproceedingsagainstanypersoncommittinganoffenceunderPartIoftheAct(relatingtoprotectedspecies)withintheirarea82.
6.1.3 TheConservation (Natural Habitats, &c) Regulations1994(theHabitatsRegulations)implementtherequirementsoftheHabitatsDirectiveinrelationtospecieslistedinAnnexesIVandVoftheDirective.
6.1.4 TheprotectionofferedbytheWildlifeandCountrysideAct1981andtheHabitatsRegulationsisadditionaltothatofferedbytheplanningsystem.Inaddition,someanimalsareprotectedunderspecificlegislation(forexampletheProtection of Badgers Act1992).
6.2 Protectedspeciesasamaterialplanningconsideration
6.2.1 Thepresenceofaprotectedspeciesisamaterialconsiderationwhenalocalplanningauthorityisconsideringadevelopmentproposalthat,ifcarriedout,wouldbelikelytoresultindisturbanceorharmtothespeciesoritshabitat.LocalplanningauthoritiesshouldconsultCCWbeforegrantingplanningpermission.Theyshouldconsiderattachingappropriateplanningconditionsorenteringintoplanningobligations,underwhichthedeveloperwouldtakestepstosecuretheprotectionofthespeciesandadvisedevelopersthattheymustcomplywithanystatutoryspeciesprotectionrequirementsthatmayberelevant.
6.2.2 Itisessentialthatthepresenceorotherwiseofprotectedspecies,andtheextentthattheymaybeaffectedbytheproposeddevelopment,isestablishedbeforetheplanningpermissionisgranted,otherwiseallrelevantmaterialconsiderationsmaynothavebeenaddressedinmakingthedecision.Itisconsideredbestpracticethatsuchasurveyiscarried
82 section25(2)oftheWildlifeandCountrysideAct1981.
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outbeforeplanningapplicationissubmitted.Planningpermissionshouldnotbegrantedsubjecttoaconditionthatprotectedspeciessurveysarecarriedoutand,intheeventthatprotectedspeciesarefoundtobepresent,mitigationmeasuresaresubmittedforapproval.However,bearinginmindthedelayandcostthatmaybeinvolved,developersshouldnotberequiredtoundertakesurveysforprotectedspeciesunlessthereisareasonablelikelihoodofthembeingpresent.However,theleveloflikelihoodthatshouldtriggerarequirementfordeveloperstoundertakesurveysshouldbelowwherethereisapossibilitythatEuropeanprotectedspeciesmightbepresent.ItisconsideredbestpracticethatsuchscreeningshouldbecarriedoutbyacompetentecologistonthebasisofdataprovidedbytherelevantLocalRecordCentre(s)83.Whereasurveyisrequiredbytheauthority,thesurveyshouldbecompletedandanynecessarymeasurestoprotectthespeciesshouldbeinplace,throughconditionsand/orplanningobligations,beforethepermissionisgiven.Inappropriatecircumstances,thepermissionmayalsoimposeaconditionpreventingthedevelopmentfromproceedingwithouttheprioracquisitionofalicenceundertheappropriatewildlifelegislation.
6.2.3 Annex7ofthisTANsummarisesthelawinrelationtoprotectedspecies.Whereprotectedspeciesarefoundondevelopmentsites,theirstatutoryprotectionmaybecontravenedeitherbythedevelopmentworkitselforbyassociatedmitigationworkdesignedtoprotectthespeciesconcerned,forexamplecaptureandrescueortranslocationoftheprotectedspeciesfromthedevelopmentsiteinadvanceofworkscommencing.Inordertoavoidanoffencebeingcommitted,suchdevelopmentsmayrequirealicencefromCCWortheWelshMinisters.
6.3 ProtectionofEuropeanprotectedspecies
6.3.1 UndertheHabitatsDirective,developmentsthatwouldresultinabreachofthesystemofstrictprotectionaffordedtoEuropeanprotectedspeciesofanimalsandplantsarerequiredtobecoveredbyaderogationunderArticle16.Article16oftheDirectiveistransposedbyregulation44oftheHabitatsRegulations,whichenableslicencestobeissuedtoauthorisethecarryingoutofactionsforcertainspecifiedpurposes[listedinregulation44(2)(a)-((g)].Aregulation44licenceisaspecificformofderogationgiveninaccordancewithArticle16oftheDirective.
Undertheprovisionsofregulation44oftheHabitatsRegulations,however,alicensingauthoritycannotissuealicencetoenabledevelopmenttobecarriedoutunlessitissatisfiedthat:
a. thereis"nosatisfactoryalternative"tothederogation84,and
b. thederogationis"notdetrimentaltothemaintenanceofthepopulationofthespeciesconcernedatafavourableconservationstatusintheirnaturalrange"85.
83 TheWalesBiodiversityFramework:http://www.biodiversitywales.org.uk/wales_biodiversity_partnership_documents-134.aspx.
84 TheConservation(NaturalHabitats&c)Regulations1994,Reg44(3)(a).85ibid.Regulation44(3)(b.)
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6.3.2 CCWisthelicensingauthorityinrelationtoactionswhicharetobecarriedoutforthepurposesinregulation44(2)(a)-(d),whichinclude"scientificoreducationpurposes".Suchpurposeswouldcovertheundertakingofsurveysfor,orlikelytoaffect,Europeanprotectedspecies.Inthecaseofsurveyworkconnectedwiththedevelopmentwhichislikelytoresultinanoffenceunderregulation39or43oftheHabitatsRegulationsbeingcommitted,itisrecommendedthatalicenceisobtainedfromCCW.AnypersonwishingtocarryoutsurveyworkthatcouldaffectEuropeanprotectedspeciesshouldcontacttherelevantlocalareateamofCCWlistedinAnnex10below.
6.3.3 TheWelshMinistersarethelicensingauthorityinrelationtoactionswhicharetobecarriedoutforthepurposesinregulation44(2)(e)-(g),whichincludethepurposesof“preservingpublichealthorsafety,orforreasonsofoverridingpublicinterest,includingthoseofasocialoreconomicnatureandbeneficialconsequencesofprimaryimportancefortheenvironment”.“Overridingpublicinterest”isthepurposemostlikelytocovertheimplementationofplanningpermissionslikelytoaffectEuropeanprotectedspecies.
6.3.4 LicenceapplicationsaredeterminedbytheAssemblyGovernmentfollowingthegrantingofplanningpermission.Toensurethatthelicensing"tests"setoutinregulation44aremet,thelicensingauthorityrequestsinformationfromthelocalplanningauthorityandthedeveloperand,whereappropriate,fromotherpersons,inordertoassistinmakingadeterminationastowhetherthereis"nosatisfactoryalternative"totheissueofaderogationlicence,andastowhethertheissueofaderogationlicenceisnecessaryfor"preservingpublichealthandpublicsafety,orotherimperativereasonsofoverridingpublicinterest,includingthoseofasocialoreconomicnatureandbeneficialconsequencesofprimaryimportancefortheenvironment".CCWisaskedtoadviseastowhethertheissueofalicencewouldbe"detrimentaltothemaintenanceofthepopulationofthespeciesconcernedatafavourableconservationstatusintheirnaturalrange".TheAssemblyGovernmentthenconsiderstheevidenceonthesemattersbeforemakingitsdetermination.
6.3.5 Thus,anystepintheplanningorimplementationofadevelopmentlikelytoaffectaEuropeanprotectedspeciescouldbesubjecttoalicencetopermitthesurveyorimplementtheproposal.Thelicencemustbeobtainedbeforethesurveyordevelopmentiscarriedout.IfthepresenceofaEuropeanprotectedspeciescomestolightforthefirsttimeonasiteafterplanningpermissionhasbeengranted,forexampleduringthecourseofdevelopment,thenworkthatmightaffectthespeciesconcernedshouldstopandthedevelopershouldimmediatelyseekalicencetoproceed.ThedevelopermayinitiallyrequirealicencefromCCWtoundertakeasurveytoprovidefullinformationaboutthespecies.ThismayneedtobefollowedinduecoursebyanapplicationforalicencefromtheWelshMinisterstocompletethedevelopment.
6.3.6 Regulation3(4)oftheHabitatsRegulationsrequiresalllocalplanningauthorities,intheexerciseoftheirfunctions,tohaveregardtotheprovisionsoftheHabitatsDirectivesofarastheymightbeaffectedbytheexerciseofthosefunctions.Consequently,theDirective'sprovisionsarerelevantinreachingplanningdecisionswhereaEuropeanprotectedspeciesmaybeaffectedanditisthereforeimportantthatsuchplanningdecisions
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arereachedinamannerthattakesaccountof,andisconsistentwith,theDirective’srequirements.ThoserequirementsincludeasystemofstrictprotectionforEuropeanprotectedspecies,withderogationsfromthisstrictprotectionbeingallowedonlyincertainlimitedcircumstancesandsubjecttocertaintestsbeingmet.Asexplainedabove,theserequirementsaretransposedbytheprovisionsoftheHabitatsRegulations.TheissuesofwhetherdevelopmentcouldgiverisetoabreachoftheRegulations’requirements,andwhethertheremaybeapotentialneedforalicencetoavoidsuchabreach,arethereforeamaterialconsiderationinarelevantplanningdecision,andwherealicencemaybeneeded,thethreelicensing‘tests’requiredbytheDirectiveshouldbeconsideredbythelocalplanningauthority.Therequirementforalicenceandtheapplicationofthethreelicensingtestsisequallyamaterialconsiderationinplanningappeals.LocalplanningauthoritiesshouldgivedueweighttothepresenceofaEuropeanprotectedspeciesonadevelopmentsitetoreflecttheserequirementsandthismaypotentiallyjustifyarefusalofplanningpermission.
6.3.7 ItisclearlyessentialthatplanningpermissionisnotgrantedwithouttheplanningauthorityhavingsatisfieditselfthattheproposeddevelopmenteitherwouldnotimpactadverselyonanyEuropeanprotectedspeciesonthesiteorthat,initsopinion,allthreetestsfortheeventualgrantofaregulation44licencearelikelytobesatisfied.TodootherwisewouldbetoriskbreachingtherequirementsoftheHabitatsDirectiveandregulation3(4).Itwouldalsopresenttheveryrealdangerthatthedeveloperofthesitewouldbeunabletomakepracticaluseoftheplanningpermissionwhichhadbeengranted,becausenoregulation44licencewouldbeforthcoming.
6.4 Protectionofbirds,badgers,otheranimalsandplants
6.4.1 Annex7belowexplainsthelegislativeprovisionsfortheprotectionofbirds,badgers,otheranimalsandplantsandexplainswherelicencesmaybeneededtoundertakecertainoperationsassociatedwithdevelopment.AlistofallprotectedspeciesofanimalsandplantscanbefoundatTable2ofAnnex8below.
6.4.2 Part1oftheWildlifeandCountrysideAct1981providesprotectionforwildbirdsandwildplants,andforcertainwildanimals.ThissystemofprotectionisdescribedinAnnex7.
6.4.3 AlthoughthebadgerisnotarareanimalovermuchofWales,thereisspecificlegislationfortheprotectionofbadgersundertheProtection of Badgers Act 1992.Thelikelihoodofdisturbingabadgersett,oradverselyaffectingbadgers’foragingterritory,orlinksbetweenthem,orsignificantlyincreasingthelikelihoodofroadorrailcasualtiesamongstbadgerpopulations,arecapableofbeingmaterialconsiderationsinplanningdecisions.
6.4.4 CCWisresponsibleforissuinglicencesundertheProtectionofBadgersAct1992whereitisnecessarytointerferewithbadgersand/ortheirsettsinthecourseofdevelopment.Althoughconsiderationofthecaseforgrantingalicenceisseparatefrom
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theprocessofapplyingforplanningpermission,alocalplanningauthorityshouldadviseanyonesubmittinganapplicationfordevelopmentinanareawherethereareknowntobebadgersettsthattheymustcomplywiththeprovisionsoftheAct.Localauthoritiesandallotherpublicbodiesmayalsoneedalicenceinrespectofanydevelopmentwhichtheythemselvescarryoutinanyareaswherethereareknowntobebadgersetts.
6.5 HabitatsandspeciesofprincipalimportanceforbiodiversityinWales
6.5.1 ThepotentialeffectsofadevelopmentonhabitatsorspecieslistedasprioritiesintheUKBiodiversityActionPlan(BAP)86,habitatsorspecieslistedbytheAssemblyGovernmentasofprincipalimportanceforthepurposesofconservingbiologicaldiversity87andbylocalbiodiversitypartnershipsarecapableofbeingamaterialconsiderationinthepreparationoflocaldevelopmentplansandinmakingplanningdecisions.
6.5.2 Sections40and42oftheNaturalEnvironmentandRuralCommunitiesAct2006placeadutyontheAssemblyGovernmenttohaveregardtothepurposeofconservingbiodiversity,topublishalistoflivingorganismsandtypesofhabitatsofprincipalimportanceforthepurposeofconservingbiodiversityinWales,andtotake,andpromoteotherstotake,reasonablypracticablestepstofurthertheirconservation.TheAssemblyGovernmentsetsoutitscommitmenttotheBiodiversityActionPlanningprocessinsection5.2ofPPWwhichindicatesthatlocalplanningauthoritiesshouldfurthertheconservationofhabitatsandspeciesofprincipalimportancethroughtheirplanningfunction.TheListoftheSpeciesandHabitatsofPrincipalImportanceinWales(seelinkatAnnex9below)comprisesthelistofspeciesandhabitatsidentifiedbytheNationalAssemblyforWalesasbeingofprincipalimportanceforthepurposesofconservingbiologicaldiversity.
6.5.3 LocalBiodiversityActionPlans(LBAPs)originatefromtheprogrammeofactionfortheconservationandsustainableuseofbiodiversitydrawnupbytheUKinfulfillmentofitsobligationunderArticle6oftheConventiononBiologicalDiversity88.TheUKBiodiversityActionPlanproposedthatcostedactionplanswithtargetsshouldbedrawnuptoconservetheUK’smostrareand/orthreatenedhabitatsandspecies.AUKSteeringGroupinitiallyco-ordinatedtheproductionofthesenationalhabitatandspeciesactionplans.In1995theSteeringGrouprecommended89thatLBAPsshouldbepromotedasameansoftranslatingnationaltargetsintolocalaction,andalsotoprovidethebiodiversityelementoflocalstrategiesforsustainabledevelopment.
86 BiodiversityTheUKActionPlan,1994,Command2428,andsubsequentHabitatandSpeciesActionPlans.87Listedundertheprovisionsofsection42oftheNaturalEnvironmentandRuralCommunitiesAct2006(andformerly
undersection75oftheCountrysideandRightsofWayAct2000)andincompliancewiththecommitmentoftheUKGovernmenttotheUnitedNationsEnvironmentalProgrammeConventiononBiologicalDiversityof1992.
88UnitedNationsEnvironmentalProgrammeConventiononBiologicalDiversity,5June1992.89Biodiversity:TheUKActionPlan-VolumeII:Action Plans,1995,ISBN0-11-753228-2.
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6.5.4 TheWalesBiodiversityPartnershipbringstogetherthekeyplayersfromthepublic,privateandvoluntarysectorstopromote,monitorandadvisetheAssemblyGovernmentonissuesaffectingbiodiversityinWales.ThePartnershipwasestablishedin1996,alongsideparallelgroupsforotherpartsoftheUK,followingtherecommendationsoftheUKBiodiversitySteeringGroup.
6.5.5 LBAPsareproducedbyLocalBiodiversityPartnershipsofpublic,voluntaryandprivatesectororganisations.Therearetwenty-fourpartnershipsinWalescoveringeachlocalplanningauthorityarea(onepartnershipcoversPembrokeshireCountyCouncilandPembrokeshireCoastNationalParkAuthorityareas).TheWalesBiodiversityPartnershipprovidesguidanceandsupporttotheLocalBiodiversityPartnershipsinpreparingtheirLBAPs.
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ANNEX1
STATUTORYFRAMEWORKFORNATURECONSERVATIONRELEVANTTOPLANNING
TheFrameworkofPrincipalLegislationforNatureConservationandPlanninginWales1949-2009
TheNationalParksandAccesstotheCountrysideAct1949introducedtheconceptofNationalNatureReserves(NNRs)andSitesofSpecialScientificInterest(SSSIs),importantfortheirfloraandfauna,geologicalorphysiographical(landform)features;andconferredpowersonlocalauthoritiestocreatenaturereserves.
TheCountrysideAct1968strengthenedmanyofthepowersgivenunderthe1949ActandimposedonMinisters,governmentdepartmentsandpublicbodies(includinglocalauthorities)adutytohaveregardtothedesirabilityofconservingthenaturalbeautyandamenityofthecountrysideintheexerciseoftheirfunctionsrelatingtoland.
TheWildlifeandCountrysideAct1981wasintroducedpartlytosecureimplementationoftheBirdsDirective79/409/EEC,butalsostrengthenedtheprotectionforSSSIs,providedadditionalsafeguardsforparticulartypesofarea,andrestrictedthekilling,takingfromthewildanddisturbanceofvariousavianandnon-avianspecies.
TheEnvironmentalProtectionAct1990establishedthreecountryconservationcouncils(CountrysideCouncilforWales,EnglishNature,ScottishNaturalHeritage)andtheJointNatureConservationCommittee(JNCC)tosucceedtheNatureConservancyCouncil;andprovidedfurtherprotectionforSSSIs.
ThePlanningandCompensationAct1991improvedlocalplanningauthorities'abilitiestosafeguardconservationandamenityareasbystrengtheningtheirplanningenforcementanddevelopmentcontrolpowers.Italsorequireddevelopmentplanstoincludepoliciesinrespectoftheconservationofthenaturalbeautyandamenityofland.
TheConservation(NaturalHabitats&c.)Regulations1994(theHabitatsRegulations)(asamended)formallytransposedtherequirementsoftheHabitatsDirective92/43/EECintonationallaw.TheybuildontheexistingnatureconservationlegislationfortheprotectionofhabitatsandspecieslistedintheDirectiveandapplyitsconsiderationsinrespectofdevelopmentplans,developmentcontrolandpollutioncontrollegislation.Theyalsointroduceanewsystemfortheconservationofcertainmarineareas.
TheEnvironmentAct1995conferredthefunctionsoflocalplanningauthoritiesupontheNationalParkauthorities.ItalsoconferredpowersonMinisterstomakeregulationsfortheprotectionofimportanthedgerowsandtomakegrantstopersonswhocarryoutactivitieswhichareconducivetotheconservationorenhancementofthenaturalbeautyoramenityofthecountryside(includingitsfloraandfaunaandgeologicalandphysiographicalfeatures).
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TheTownandCountryPlanning(EnvironmentalImpactAssessment)(EnglandandWales)Regulations1999(asamended)transposedtherequirementsoftheDirectiveontheAssessmentoftheEffectsofCertainPublicandPrivateProjectsontheEnvironment85/337/EEC.Theregulationsrequireanenvironmentalimpactassessmenttobecarriedoutbeforeadecisionistakenonwhetherdevelopmentconsentshouldbegrantedforcertaintypesofprojectwhicharelikelytohavesignificantenvironmentaleffects.
TheCountrysideandRightsofWayAct2000improvedtheproceduresforthenotification,amendmentanddenotificationofSitesofSpecialScientificInterestandincludedsubstantiallyenhancedstatutoryprovisionsfortheirprotectionandmanagement(seebelow).TheseprovisionsimposegeneralandspecificdutiesonallpublicbodiestofurthertheconservationandenhancementofSSSIinterestfeatures.TheActalsoenhancedtheprotectionofothercountrysideareas,includingAONBsandcommonland,andmadeextensiveprovisionforimprovedaccesstothecountryside.
TheEnvironmentalAssessmentofPlansandProgrammes(Wales)Regulations2004transposedtherequirementsofECCouncilDirectiveontheAssessmentoftheEffectsofCertainPlansandProgrammesontheEnvironment2001/42/EC.Theregulationsrequireenvironmentalassessmenttobecarriedoutbeforecertainplansorprogrammeswhicharelikelytohavesignificantenvironmentaleffectsareadoptedorsubmittedtothelegislativeprocedurefortheirapproval.
ThePlanningandCompulsoryPurchaseAct2004placesadutyontheNationalAssemblyforWalestoproducetheWalesSpatialPlan,andplacesadutyonlocalplanningauthoritiestoproducelocaldevelopmentplansthataretobesubjecttosustainabilityappraisalandindependentexamination.ItrequiresboththeNationalAssemblyandthelocalplanningauthorities,inproducingtheirrespectiveplans,toexercisetheirfunctionswiththeobjectiveofcontributingtotheachievementofsustainabledevelopment.
TheNaturalEnvironmentandRuralCommunitiesAct2006addressesawiderangeofissuesrelatingbroadlytothenaturalenvironment.TheActmakesprovisioninrespectofbiodiversity,pesticidesharmfultowildlifeandtheprotectionofbirds,andinrespectofinvasivenon-nativespecies.Italtersenforcementpowersinconnectionwithwildlifeprotectionandextendstimelimitsforprosecutingcertainwildlifeoffences.ItalsoaddressesasmallnumberofgapsanduncertaintieswhichhavebeenidentifiedinrelationtothelawonSSSIs.
TheOffshoreMarineConservation(NaturalHabitats&c)Regulations2007formallytransposedtherequirementsoftheHabitatsDirective92/43/EECinrespectofoffshoremarineareas,beyondtheWelshterritorialseas.
TheEnvironmentalDamage(PreventionandRemediation)(Wales)Regulations2009transposedtherequirementsoftheEnvironmentalLiabilityDirective2004/35/ECinrelationtoWales.TheRegulationsmakeprovisionforthepreventionandremedyingofdamagetospeciesandnaturalhabitatsprotectedundertheHabitatsDirectiveandtothespeciesorhabitatsforwhichaSSSIhasbeennotified.
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InternationalObligations
MuchoftheGovernment'slegislativeframeworkisintendedtodelivertheobligationsofinternationalconventionsandDirectives;themainonesareoutlinedbelow:
TheBernConventionontheConservationofEuropeanWildlifeandNaturalHabitatscontainsobligationstoconservewildplants,birdsandotheranimals,withparticularemphasisonendangeredandvulnerablespeciesandtheirhabitats.TheprovisionsoftheConventionunderlietheECHabitatsDirectiveaswellastheUK'swildlifelegislation.
TheRamsarConventiononWetlandsofInternationalImportanceespeciallyasWaterfowlHabitatrequirestheconservationofwetlands,especiallysiteslistedundertheConvention.
ECCouncilDirectiveontheConservationofWildBirds(theBirdsDirective)appliestobirds,theireggs,nestsandhabitats.Itprovidesfortheprotection,managementandcontrolofallspeciesofnaturallyoccurringwildbirdsintheEuropeanterritoryofMemberStates(Article1);requiresMemberStatestotakemeasurestopreserveasufficientdiversityofhabitatsforallspeciesofwildbirdsnaturallyoccurringwithintheirterritories(Articles2and3)inordertomaintainpopulationsatecologicallyandscientificallysoundlevels;andrequiresMemberStatestotakespecialmeasurestoconservethehabitatofcertainparticularlyrarespeciesandofmigratoryspecies(Article4).Italsoestablishesasystemofstrictprotectionforallspeciesofnaturallyoccuringwildbirds(Article5),subjecttocertainderogations(Article9)andregulatesthecircumstancesinwhichwildbirdsmaybesold(Article6)orhunted(Article7)andthemeansbywhichtheymaybecapturedorkilled(Article8).
ECCouncilDirectiveontheConservationofNaturalHabitatsandofWildFaunaandFlora(theHabitatsDirective)contributestotheconservationofbiodiversitybyrequiringMemberStatestotakemeasurestomaintainorrestore,atfavourableconservationstatus,naturalhabitatsandspeciesofwildfaunaandfloraofCommunityinterest.Article7oftheDirectivemodifiestheBirdsDirective.
TheBonnConventionontheConservationofMigratorySpeciesofWildAnimalsrequirestheprotectionofendangeredmigratoryspecieslisted,andencouragesseparateinternationalagreementscoveringparticularspecies.AnagreementcoveringtheConservationofBatsinEuropedealswiththeneedtoprotectbatsandtheirfeedingandroostingareas.
ECCouncilDirectiveontheAssessmentoftheEffectsofcertainPublicandPrivateProjectsontheEnvironmentrequiresenvironmentalassessmenttobecarriedout,beforeadecisionistakenonwhetherdevelopmentconsentshouldbegrantedforcertaintypesofprojectwhicharelikelytohavesignificantenvironmentaleffects.
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ECCouncilDirectiveontheAssessmentoftheEffectsofcertainPlansandProgrammesontheEnvironmentrequiresenvironmentalassessmenttobecarriedoutbeforecertainplansorprogrammeswhicharelikelytohavesignificantenvironmentaleffectsareadoptedorsubmittedforlegislativeapproval.
ECWaterFrameworkDirectiveintroducesanewhighlevelwaterplanningprocessbasedonriverbasindistricts.Keyaimsinrelationtonatureconservationandtheplanningsystemarethepromotionofsustainablewateruseandtoestablishaframeworkfortheprotectionofsurfaceandgroundwaterswhichprotectsandenhancesthestatusofaquaticecosystemsand,withregardtotheirwaterneeds,terrestrialecosystemsandwetlandsdirectlydependentontheaquaticecosystems.
ECCouncilDirectiveonEnvironmentalLiabilitywithRegardtothePreventionandRemedyingofEnvironmentalDamage(theEnvironmentalLiabilityDirective)specificallydefinesenvironmentaldamagesoastoincludedamagetoprotectedspeciesandnaturalhabitatslistedintheBirdsandHabitatsDirectives,andanyotherspeciesorhabitatsthataMemberStatedesignatesforpurposesequivalenttotheBirdsandHabitatsDirectives’purposes,andincludes,amongstotherpollutionpreventionandremedialrequirements,provisionsforremedyingenvironmentaldamageonsitesclassifiedundertheBirdsDirective(SPAs)anddesignatedundertheHabitatsDirective(SACs).
UnitedNationsEnvironmentalProgrammeConventiononBiologicalDiversity,5June1992establishesthreemaingoals:theconservationofbiologicaldiversity;thesustainableuseofitscomponents;andthefairandequitablesharingofthebenefitsfromtheuseofgeneticresources.
EuropeanLandscapeConventionaimstopromotelandscapeprotection,managementandplanning,andtoorganiseEuropeanco-operationonlandscapeissues.
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ANNEX2
STATUTORYNATURECONSERVATIONDESIGNATIONS
InternationallyImportantSites
SpecialProtectionAreas(SPAs)includingSPAsthatareEuropeanOffshoreMarineSites
ClassifiedunderArticle4oftheECDirectiveontheConservationofWildBirds(79/409/EEC)(theBirdsDirective)andRegulation12oftheOffshoreMarineConservation(NaturalHabitats&c)Regulations2007.
ClassifiedbytheWelshMinistersinthelightofrecommendationsmadebyCCWthroughtheJointNatureConservationCommittee(JNCC),beyondtheterritorialseaadjacenttoWalesSPAsareclassifiedbytheUKGovernmentontheadviceofJNCC.
SpecialAreasofConservation(SACs)includingcandidateSpecialAreasofConservation(cSACs)andc/SACsthatareEuropeanOffshoreMarineSites
DesignatedunderArticle4oftheECDirectiveontheConservationofNaturalHabitatsandofWildFauna&Flora(92/43/EEC)(theHabitatsDirective)viaRegulations7and8oftheConservation(NaturalHabitats&c)Regulations1994andRegulations7-11oftheOffshoreMarineConservation(NaturalHabitats&c)Regulations2007.
DesignatedbytheWelshMinistersinthelightofrecommendationsmadebyCCWthroughtheJNCC,beyondtheterritorialseaadjacenttoWales'watersSACsareclassifiedbytheUKGovernmentontheadviceofJNCC.
RamsarSites DesignatedunderArticle2oftheConventiononWetlandsofInternationalImportanceespeciallyasWaterfowlHabitat(RamsarConvention,1971).
DesignatedbytheUKGovernmentinthelightofrecommendationsmadebyCCWthroughtheJNCC.
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NationallyImportantSites
NationalNatureReserves(NNRs)
Declaredundersection19oftheNationalParksandAccesstotheCountrysideAct,1949orsection35oftheWildlife&CountrysideAct,1981.
DeclaredbyCCW.NNRsmaybedeclaredonanylandofnationalconservationimportanceandwhichisbeingmanagedasanaturereserve(asdefinedinS.15ofthe1949Act)toprovideopportunitiesforresearchintomattersrelatingto,ortopreserve,plantsandanimalsandthephysicalconditionsinwhichtheylive,orgeologicalorphysiographicalfeaturesofspecialinterest.
SitesofSpecialScientificInterest(SSSIs)
Notifiedundersection28oftheWildlife&CountrysideAct1981.
NotifiedbyCCW.SSSIsmustbenotifiedwhereCCWareoftheopinionthatanyareaoflandisofspecialinterestbyreasonofitsflora,fauna,geologicalorphysiographicalfeatures.Thepurposeofthenotificationistoprotectthespecialfeaturesofthesite.
MarineNatureReserves(MNRs)
Designatedundersection36oftheWildlifeandCountrysideAct1981.
DesignatedbytheWelshMinistersonanapplicationmadebyCCW.MNRsaredesignatedtoconservemarinefloraorfaunaorgeologicalorphysiographicalfeaturesofspecialinterest,ortoprovideopportunitiesforthestudyofthemarinefloraandfaunaandthephysicalconditionsinwhichtheyliveorthegeographicalorphysiographicalfeatures.
Regionally/LocallyImportantSites
LocalNatureReserves Declaredundersection29oftheNationalParks&AccesstotheCountrysideAct1949.
Declaredandmanagedbylocalauthorities.LNRscanbedesignatedonlandwhichalocalauthorityconsidersshouldbemanagedasanaturereserve(asdefinedinSection15ofthe1949Act).
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Othernatureconservationdesignations
Limestonepavementsareofphysiographical,andsometimesbiological,interest.TheyareidentifiedasapriorityhabitattypeintheHabitatsDirective.CCWisrequiredtonotifylocalplanningauthoritiesoflimestonepavementsthatitconsiderstobeofspecialinterest.Undersection34ofandSchedule11totheWildlifeandCountrysideAct1981,theWelshMinistersortherelevantlocalplanningauthoritymaythenmakeaLimestonePavementOrderdesignatingthelandconcernedandprohibitingtheremovalordisturbanceoflimestoneonorinit.
BiogeneticReserves-AnumberofNationalNatureReservesandsomeimportantSSSIshavebeenidentifiedasBiogeneticReservesunderaCouncilofEuropeprogrammefortheconservationofheathlandsanddrygrasslands.
AreasofSpecialProtectionforBirds(AOSPs)areestablishedundersection3oftheWildlifeandCountrysideAct1981byordersmadebytheWelshMinistersafterappropriateconsultationwithownersandoccupiers.Thepurposeofsuchordersisnormallytoprovidesanctuarytoparticularlyvulnerablegroupsofbirds.
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ANNEX3
DEVELOPMENTPROPOSALSLIKELYTOAFFECTANINTERNATIONALLYDESIGNATEDNATURECONSERVATIONSITE
Seesection5.3aboveforthecontextforthisAnnex.
Asamatterofpolicy,theAssemblyGovernmenthaschosentoapplytheproceduresdescribedbelow,unlessotherwisespecified,inrespectofRamsarsitesandpotentialSPAs(pSPAs),eventhoughthesearenotEuropeansitesasamatteroflaw.
1.Indeterminingplanningapplicationsandotherformsofconsent,localplanningauthoritiesshouldfollowtheproceduresdescribedbelowinrespectofanyinternationallydesignatedsiteand,moregenerally,shouldhaveregardtotheHabitatsDirectiveintheexerciseoftheirplanningfunctionsinordertofulfiltherequirementsoftheHabitatsDirectiveinrespectofthelanduseplanningsystem90.
2.PartIVoftheHabitatsRegulationsregulatesthegrantingofplanningpermissionfordevelopmentwhichislikelytosignificantlyaffectaEuropeansiteorEuropeanoffshoreMarineSite91,andwhichisnotdirectlyconnectedwithornecessarytothemanagementofthesite.TheproceduresexplainedindetailbelowapplytoplanningdecisionstakenonorafterthedatetheRegulationscameintoforce,regardlessofwhentheapplicationwassubmitted.
AlthoughtheparagraphsbelowrefertoEuropeansitesandEuropeanoffshoremarinesites,itisimportantthattheseproceduresarealsoapplied,asamatterofpolicy,toRamsarsitesand,asappropriateandnecessary,tohelptoprotectpSACandpSPAuntilsuchtimeasthesitebecomesastatutoryEuropeansiteoritisdeterminedthatthesiteshouldnotbecomepartoftheNatura2000network.Planningauthoritiesshouldensurethat,wherethedevelopmentcouldhaveaneffectonapSPA,permissionmayonlybegrantedifitiscertainthattheprojectwillnotcausesignificantpollutionordeteriorationofthepSPA,orsignificantdisturbanceofthebirdspeciesforwhichthepSPAhasbeenproposed(eitheraloneorincombinationwithotherplansorprojects)andthatinthecaseofpSACs,theecologicalcharacteristicsofthepSACaresafeguarded.
3.PPWsetsouttheAssemblyGovernment’spolicyinrespectofcallinginplanningapplicationsthatarelikelytosignificantlyaffectsitesofinternationalimportance;itwillhaveregardtotheadviceofCCWonwhichapplicationsarelikelytohavesucheffects.Localplanningauthoritiesshouldbepreparedtoexplaintheirreasonsforgrantingpermissionforsuchapplications,particularlyiftheydonotdecidethecaseinaccordancewiththerecommendationsofCCW.Thereasonsforthelocalplanningauthority’s
90 Regulation3(4)TheConservation(NaturalHabitats&c)Regulations1994.91Theseprovisionsdonotapply,inlaw,inrelationtositeswhichareEuropeansitesbyreasonofregulation10(1)(c)
oftheConservation(NaturalHabitats&c)Regulations1994orwhichareEuropeanoffshoremarinesitesbyreasonofregulation15(c)oftheOffshoreMarineConservation(NaturalHabitats&c)Regulations2007:seeregulation48(7)ofthe1994Regulations.However,theseprovisionsshouldbeapplied,asamatterofpolicy,inrelationtosuchsites.
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decision,includingtherelevantfactorsconsideredforthepurposesofregulation48,andifapplicable,regulation49,mustbetransparentandproperlydocumented.Regulation49requiresanauthorityproposingtoallowdevelopmentthatwouldadverselyaffectaEuropeansiteorEuropeanoffshoremarinesitetonotifytheWelshMinistersinadvance.Regulation53placesadutyontheWelshMinisterstosecure,whereplanningpermissionisgrantedinaccordancewithregulation49,thatanynecessarycompensatorymeasuresaretakentoensuretheoverallcoherenceofNatura2000.TheAssemblyGovernmentwillthereforeexpecttosee,andbesatisfiedby,evidencetotheeffectthataplanorprojectsatisfiestherequirementsofregulation49(1)and,ifapplicable,(2)whenapplicationsarereferredtoitundertheprovisionsofregulation49(5)andthatanynecessarycompensatorymeasureshavebeensecured.
4.Theapproachtobetakeninconsideringadevelopmentproposalthatmightaffectaninternationallydesignatedsiteissetoutbelow,andappliesregardlessofwhetherthedecision-takeristheWelshMinisters,anInspectororthelocalplanningauthority.ThisprocessisrepresentedintheflowchartinFigure1.TheEuropeanCommissionhasalsoissuedguidancewhichplanningauthoritiesshouldconsider92.
5.Thedecision-takermustfirstestablishwhethertheproposeddevelopmentisdirectlyconnectedwithornecessarytositemanagementfornatureconservation93ofaEuropeansiteorEuropeanoffshoremarinesite.Therewillbefewcaseswhereadevelopmentisdirectlyconnectedwith,orthewholeofthedevelopmentisnecessaryto,sitemanagementand,therefore,notfurthersubjecttotherequirementsofregulation48.Ifanypartofthedevelopmentisnotsoconnectedwithornecessaryforsitemanagement,thewholeprojectmustbesubjecttotheproceduresofregulation48.
Likelysignificanteffect
6.Iftheproposeddevelopmentisnotdirectlyconnectedwithornecessarytositemanagementthedecision-takermustdeterminewhethertheproposalislikelytohaveasignificanteffect94onaEuropeansiteorEuropeanoffshoremarinesite.Anappropriateassessmentisrequiredwherethereisaprobabilityorriskthattheplanorprojectwillhavesignificanteffectsonasite.Thedecisiononwhetheranappropriateassessmentisnecessaryshouldbemadeonaprecautionarybasis.
7.Theconsiderationofthelikelihoodofsignificanteffectsisaformofscreeningprocessorriskassessmentwhichshouldberepeatedifaprojectsignificantlychangesduringconsiderationbytheplanningauthority.TheplanningauthoritymustconsiderwhethertheproposeddevelopmentwouldbelikelytohaveasignificanteffectonanyEuropeansiteorEuropeanoffshoremarinesite.Indoingso,itmustadoptaprecautionaryapproach:
92 Managing Natura 2000 Sites: the provisions of Article 6 of the ‘Habitats’ Directive 92/43/EEC,EuropeanCommission,April2000,Guidance document on Article 6(4) of the ‘Habitats’ Directive 92/43/EEC,EuropeanCommission,January2007,andAssessment of Plans and Projects Significantly Affecting Natura 2000Sites,EuropeanCommission,November2001.
93ibidRegulation48(1)(b).94ibid.Regulation48(1)(a).
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• Thedevelopmentprojectshouldbeconsidered‘likely’tohavesuchaneffectiftheplanningauthorityisunable,onthebasisofobjectiveinformation,toexcludethepossibilitythattheprojectcouldhavesignificanteffectsonany“Europeansite”,eitheraloneorincombinationwithotherplansorprojects.
• Aneffectwillbe‘significant’inthiscontextifitcouldunderminethesite’sconservationobjectives.Theassessmentofthatriskmustbemadeinthelightoffactorssuchasthecharacteristicsandspecificenvironmentalconditionsofthe“Europeansite”inquestion95.
8.ThisisinlinewiththerulingoftheEuropeanCourtofJusticeinCaseC-127/02(theWaddenzeejudgment)whichstatesthat“any plan or project not directly connected with or necessary to the management of the site is to be subject to an appropriate assessment of its implications for the site in view of the site’s conservation objectives if it cannot be excluded, on the basis of objective information, that it will have a significant effect on that site, either individually or in combination with other plans or projects”.
9.TakingaccountofadvicefromCCW,localplanningauthoritiesshouldconsiderwhethertheeffectoftheproposalonthesite,eitherindividuallyorincombinationwithotherproposals96,islikelytobesignificantintermsoftheecologicalobjectivesforwhichthesitewasdesignated.
10.Thedecision-takermayrequiretheproposertoprovidesuchfurtherinformationasisreasonablynecessarytoassessthelikelihoodandsignificanceofpotentialeffects,andthusenablethedecision-takertodeterminewhetheranappropriateassessmentisrequired97.Theadditionalinformationwhichmightbeneededmightinclude,forexample,whetherthesite’sfeaturesincludeanyprioritynaturalhabitattypesorpriorityspecies,whetherthesite’sfeaturesareatfavourableconservationstatus,andwhetherthereareanyimpedimentstoimprovingtheirstatus,especiallythosethatcouldbeaddressedbytheplan.
11.Itisimportantthatthelikelihoodofasignificanteffectisassessedinrespectofeachinterestfeature,forwhichthesiteisinternationallydesignated,andforeachdesignationwhereasiteisdesignated,classifiedorlistedundermorethanoneinternationalobligation.LocalplanningauthoritiesshouldensurethattheassessmenttakesintoaccountthefullrangeofRamsarinterestsforwhichthesitehasbeenlistedandtheirvulnerabilitytoanyeffectsoftheproposeddevelopment.CCWwilladviseonacase-by-casebasis.
95 RefertoCaseC-127/02,paragraph49.96Regulation48(1)(a)TheConservation(NaturalHabitats&c)Regulations1994.97 ibid Regulation48(2).
54
CONSIDERATIONOFDEVELOPMENTPROPOSALSAFFECTINGINTERNATIONALLYDESIGNATEDNATURECONSERVATIONSITES
1. Is the proposal directly connected with or necessary to site management for nature conservation? Note on Stage 11 Where cSACs and pSPAs are concerned, the plan cannot be adopted under any circumstances unless it is ascertained that:- • In relation to cSACs, it will not seriously compromise the ecological characteristics of the cSAC; • In relation to pSPAs, it will not cause significant pollution or deterioration of the pSPA, or significant disturbance of the bird species for which the pSPA has been proposed.
Unless this can be ascertained, permission cannot be granted.
14. Permission may be granted subject to the Assembly Government securing that any necessary
compensatory measures are taken to ensure that the overall coherence of Natura 2000 is protected.
15. Permission may only be granted for other imperative reasons of overriding public interest, following consultation between the Government and the European Commission and subject
to the Assembly Government securing that any necessary compensatory measures are taken to ensure that the overall
coherence of Natura 2000 is protected.
5. Permission may be granted.
13. Permission must not be granted.
7. Permission may be granted subject to the conditions
or obligation.
2. Is the proposal likely to have a significant effect on the internationally important interest features of the site, alone or in combination with other plans and projects?
3. Assess the implications of the effects of the proposal for the site’s conservation objectives, consult CCW and, if appropriate, the public.
4. Can it be ascertained that the proposal will not adversely affect the integrity of the site?
No, because there would be an adverse effect or it is uncertain
6. Would compliance with conditions or other restrictions, such as a planning obligation, enable it to be ascertained that the proposal would not adversely affect the integrity of the site?
No, because there would be an adverse effect or it is uncertain
8. Are there alternative solutions that would have a lesser effect, or avoid an adverse effect, on the integrity of the site?
9. Might a priority habitat or species on the site be adversely affected by the proposal?
10. Are there imperative reasons of overriding public interest, which could be of a social or economic nature, sufficient
to override the harm to the site?
11. Are there imperative reasons of overriding public interest relating to human health, public safety or benefits of primary importance
to the environment? (Also see Note above)
12. If minded to grant permission, planning authority must notify the Assembly Government and must wait 21 days.
No No
Yes
No No
No No Yes
Yes Yes
Yes
No No
Yes
Yes
Yes
No
55
CONSIDERATIONOFDEVELOPMENTPROPOSALSAFFECTINGINTERNATIONALLYDESIGNATEDNATURECONSERVATIONSITES FIGURE1
1. Is the proposal directly connected with or necessary to site management for nature conservation? Note on Stage 11 Where cSACs and pSPAs are concerned, the plan cannot be adopted under any circumstances unless it is ascertained that:- • In relation to cSACs, it will not seriously compromise the ecological characteristics of the cSAC; • In relation to pSPAs, it will not cause significant pollution or deterioration of the pSPA, or significant disturbance of the bird species for which the pSPA has been proposed.
Unless this can be ascertained, permission cannot be granted.
14. Permission may be granted subject to the Assembly Government securing that any necessary
compensatory measures are taken to ensure that the overall coherence of Natura 2000 is protected.
15. Permission may only be granted for other imperative reasons of overriding public interest, following consultation between the Government and the European Commission and subject
to the Assembly Government securing that any necessary compensatory measures are taken to ensure that the overall
coherence of Natura 2000 is protected.
5. Permission may be granted.
13. Permission must not be granted.
7. Permission may be granted subject to the conditions
or obligation.
2. Is the proposal likely to have a significant effect on the internationally important interest features of the site, alone or in combination with other plans and projects?
3. Assess the implications of the effects of the proposal for the site’s conservation objectives, consult CCW and, if appropriate, the public.
4. Can it be ascertained that the proposal will not adversely affect the integrity of the site?
No, because there would be an adverse effect or it is uncertain
6. Would compliance with conditions or other restrictions, such as a planning obligation, enable it to be ascertained that the proposal would not adversely affect the integrity of the site?
No, because there would be an adverse effect or it is uncertain
8. Are there alternative solutions that would have a lesser effect, or avoid an adverse effect, on the integrity of the site?
9. Might a priority habitat or species on the site be adversely affected by the proposal?
10. Are there imperative reasons of overriding public interest, which could be of a social or economic nature, sufficient
to override the harm to the site?
11. Are there imperative reasons of overriding public interest relating to human health, public safety or benefits of primary importance
to the environment? (Also see Note above)
12. If minded to grant permission, planning authority must notify the Assembly Government and must wait 21 days.
No No
Yes
No No
No No Yes
Yes Yes
Yes
No No
Yes
Yes
Yes
No
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12.Inconsideringthecombinedeffectsofotherplansandprojectsitwillnormallybeappropriatetotakeaccountofoutstandingconsentsthatarenotstartedorfullyimplemented,ongoingactivitiesoroperationsthataresubjecttocontinuingregulation(suchasdischargeconsentsorabstractionlicences)andotherproposalsthataresubjecttoacurrentapplicationforanykindofauthorisation,permission,licenceorotherconsent.Theeffectsofprojectswhichhavealreadybeenimplementedandpoliciesandproposalsinadoptedandpublisheddraftplansshouldalsobeincludedinthein-combinationtest.Thus,theassessmentisnotconfinedtoproposalsthatrequireplanningpermission,butincludesallplansandprojects.
13.Compensatorymeasures(seebelow)shouldnotbetakenintoaccountinassessingwhethertheproposalislikelytohavesignificanteffectsonaEuropeansiteorEuropeanoffshoremarinesite.
Theappropriateassessment
14.Ifthedecision-takerconcludesthataproposeddevelopmentnotdirectlyconnectedwithsitemanagementislikelytosignificantlyaffectaEuropeansiteorEuropeanoffshoremarinesite,theymustmakeanappropriateassessmentoftheimplicationsoftheproposalforthesiteinviewofthesite'sconservationobjectives98.TheserelatetoeachoftheinterestfeaturesforwhichthesitewasclassifiedorlistedandwillbeprovidedinmoredetailbyCCW99.Thescopeandcontentofanappropriateassessmentwilldependonthenature,location,durationandscaleoftheproposedprojectandtheinterestfeaturesoftherelevantsite.Itisimportantthatanappropriateassessmentismadeinrespectofeachinterestfeatureforwhichthesiteisclassifiedorlisted;andforeachdesignationwhereasiteisclassifiedorlistedundermorethanoneinternationalobligation.CCWwilladviseonacase-by-casebasis.Thedecision-takercanrequiretheapplicanttoprovidesuchinformationasmayreasonablyberequiredtoundertaketheassessment100.
15.IntheWaddenzeejudgment101theEuropeanCourtofJusticeruledthatanappropriateassessmentimpliesthatalltheaspectsoftheplanorprojectwhichcan,bythemselvesorincombinationwithotherplansandprojects,affectthesite'sconservationobjectivesmustbeidentifiedinthelightofthebestscientificknowledgeinthefield102.
98Regulation48(1)TheConservation(NaturalHabitats&c)Regulations1994.99ForcrossbordersiteswithEngland,thesiteconservationobjectiveswouldbeprovidedjointlybyCCW
andNaturalEngland.100 Regulation48(2)TheConservation(NaturalHabitats&c)Regulations1994.101ECJCaseC-127/02.102SeealsoManaging Natura 2000 Sites,EuropeanCommission,April2000asamendedbyGuidance document on
Article 6(4) of the ‘Habitats Directive’ 92/43/EEC Clarification of the concepts of alternative solutions, imperative reasons of overriding public interest, compensatory measures, overall coherence and opinion of the CommissionJanuary2007.
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16.Aspartoftheassessmentprocess,thedecision-takermustconsultCCW103(andNaturalEnglandwherethesiteaffectedlieswhollyorpartlyinEngland,andtheJNCCwherethesiteaffectedisanEuropeanOffshoreMarineSite)andmusthaveregardtoanyrepresentationsmadebyCCWand,whererelevant,NaturalEnglandandJNCC.Thedecision-takermayalsoconsultthegeneralpublic104.Itisforthedecision-takertodecidewhetherpublicityandconsultationoverandabovethatrequiredundertheplanningorotherregulatoryproceduresshouldbeundertaken.Inmostcases,existingarrangementsforpublicityandconsultationarelikelytobeadequatebutthedecision-takermayusefullyconsultorganisationsthatmayhaverelevantinformationorexpertise,suchastheEnvironmentAgencyWales,theWildlifeTrusts,Amphibian&ReptileConservationTrust,Plantlife,RSPB,TheButterflyConservationSociety(seeAnnex11forwebsites).
Ascertainingtheeffectonsiteintegrity
17.Inthelightoftheconclusionsoftheassessmentoftheproject’seffectsonthesite’sconservationobjectives,thedecision-takermustdeterminewhetheritcanascertainthattheproposalwillnotadverselyaffecttheintegrityofthesite(s)105.Thistestincorporatestheprecautionaryprinciple.Itisnotforthedecision-takertoshowthattheproposalwouldharmthesite,inordertorefusetheapplicationorappeal.Itisforthedecision-takertoconsiderthelikelyandreasonablyforeseeableeffectsandtoascertainthattheproposalwillnothaveanadverseeffectontheintegrityofthesitebeforeitmaygrantpermission.Iftheproposalwouldadverselyaffectintegrity,ortheeffectsonintegrityareuncertainbutcouldbesignificant106,thedecision-takershouldnotgrantpermission,subjecttotheprovisionsofregulations49and53asdescribedbelow.
18.IntheWaddenzeejudgment,theEuropeanCourtofJusticeruledthataplanorprojectmaybeauthorisedonlyifacompetentauthorityhasmadecertainthattheplanorprojectwillnotadverselyaffecttheintegrityofthesite.“That is the case where no reasonable scientific doubt remains as to the absence of such effects”.Competentnationalauthoritiesmustbe“convinced”thattherewillnotbeanadverseeffectandwheredoubtremainsastotheabsenceofadverseaffects,theplanorprojectmustnotbeauthorised,subjecttotheprocedureoutlinedinArticle6(4)oftheECHabitatsDirectiveregardingimperativereasonsofoverridingpublicinterest107.
103Regulation48(3)TheConservation(NaturalHabitats&c)Regulations1994.104ibid.Regulation48(4).105Regulation48(5)TheConservation(NaturalHabitats&c)Regulations1994.Seealsoparagraphs25-28below.106SeeADTAuctionsLtdvSecretaryofStateEnvironment,TransportandtheRegionsandHartDistrictCouncil(2000)
JPL1155atp.1171whereitwasheldthat,itwasimplicitinthewordingofregulation48(5)thattheadverseeffectontheintegrityofthesitehadtobeasignificantadverseeffect.
107Regulation49TheHabitatsRegulations1994.
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19.Theintegrityofasiteisthecoherenceofitsecologicalstructureandfunction,acrossitswholearea,whichenablesittosustainthehabitat,complexofhabitatsand/orthelevelsofpopulationsofthespeciesforwhichitwasclassifiedorlisted.Indeterminingtheeffectonsiteintegrity,theadviceofCCWandthecitationissuedbythemsayingwhythesitewasclassifiedorlistedwillneedtobecarefullyconsidered.Whilstitisthedutyofthedecision-takertocarryouttheappropriateassessmentandmakeajudgementastotheeffectonsiteintegrity,itwouldnormallybeexpectedtoadopttheadviceofCCWontheintegritytest.Ifitdoesnot,thedecision-takershouldhaveconvincingandexceptionalreasonsfornotadoptingtheadvice,whichitshouldbepreparedtoexplain,anditshouldbeabletoshowthatthesereasonsareclearlysupportedbysoundscientificevidence.
20.Dependingonthenatureconservationvalueofthesite,itmaybenecessarytoidentifywhetherparticularaspectssuchashydrology,disturbanceorland-takeshouldbespecificallyaddressed.Inthesimplestcases,ageneralstatementfromCCWoftheimpactofthedevelopmentmaysuffice.TheassessmentrequiredundertheHabitatsRegulationsdoesnotcorrespondtoanenvironmentalimpactassessment(EIA),althoughforsomeprojectsEIAwillbenecessary.InsuchcasesitwillbeappropriatetousesomeoftheinformationassembledforthepurposesoftheEIAalsofortheassessmentrequiredbytheHabitatsRegulations.Indeed,inpracticeithasbeenusefulforenvironmentalimpactstatementstoincludeaseparatechapterprovidinginformationthat,alongwithotherinformationsuchastheresponsestoconsultations,willberequiredbythedecision-takertoundertaketheassessmentsrequiredbytheHabitatsRegulations108.
21.Compensatorymeasures(seebelow)shouldnotbetakenintoaccountinassessingwhethertheproposalwouldadverselyaffecttheintegrityofEuropeansitesorEuropeanoffshoremarinesites.
Consideringconditionsorotherrestrictions
22.Aspartofthejudgementonintegrity,thedecision-takermustconsiderthewayinwhichitisproposedtocarryouttheprojectandwhetherconditionsorotherrestrictions(suchasasection106planningobligation)wouldhelptoensurethatsiteintegritywillnotbeadverselyaffected109.ThisisanimportantrequirementoftheRegulationsandlocalplanningauthoritiesshouldconsiderwhetheraconsentcouldbeissuedinaccordancewithregulation48subjecttoconditions.Inpractice,thismeansthatthelocalplanningauthorityshouldidentifythepotentialriskssofarastheymaybereasonablyforeseeableinlightofsuchinformationascanreasonablybeobtained,andputinplacealegallyenforceableframeworkwithaviewtopreventingtherisksfrommaterialising110.
108SeealsoManaging Natura 2000 Sites,EuropeanCommission,April2000asamendedbyGuidance document on Article 6(4) of the ‘Habitats Directive’ 92/43/EEC Clarification of the concepts of alternative solutions, imperative reasons of overriding public interest, compensatory measures, overall coherence and opinion of the CommissionJanuary2007.
109Regulation48(6)TheHabitatsRegulations1994.110SeeWWF-UKLtdandRSPB-v-SecretaryofStateforScotlandetal[1999]1C.M.L.R.1021[1999]Env.L.R.632
opinionofLordNimmo-Smith.
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23.CCWmaysuggestthescopeofsuchconditionsinitsresponsetotheconsultationandwillcommentontheeffectivenessofconditionsproposedbythelocalplanningauthorityortheapplicant.Regulation54(4)oftheHabitatsRegulations1994hastheeffectofprohibitingthegrantofoutlineplanningpermissionunlessthelocalplanningauthorityissatisfied,whetherbyreasonoftheconditionsorlimitationsimposedonthepermission,orotherwise,thatthedevelopmentwillnotadverselyaffecttheintegrityofaEuropeansiteorEuropeanoffshoremarinesite,andthesameapproachshouldbeadopted,asamatterofpolicy,inrelationtoallotherinternationalsites.
24.IftheplanningauthoritycannotascertainthatthedevelopmentwillnotadverselyaffecttheintegrityofanyEuropeansiteorEuropeanoffshoremarinesite(butseebelowinrespectofcSACs),eitherbecausetherewouldbeanadverseeffectorbecausetheeffectsareuncertain,theprojectcannotbepermittedunlessregulations49and53oftheHabitatsRegulationsarecompliedwith,asdescribedbelow.Thesameapproachshouldbeadopted,asamatterofpolicy,inrelationtootherinternationallydesignatedsitestoo,asdescribedinparagraph2(butseebelowinrespectofpSPAs).
25.ThesituationsinwhichpotentiallydamagingprojectsmaybepermittedaremorerestrictedwheretheprojectcouldhaveaneffectonacSACorapSPA:
• WherethedevelopmentcouldhaveaneffectonacSAC,permissionshouldonlybegrantedifitiscertainthattheprojectwillnotseriouslycompromisetheecologicalcharacteristicsofthecSAC(eitheraloneorincombinationwithotherplansorprojects).
• WherethedevelopmentcouldhaveaneffectonapSPA,permissionmayonlybegrantedifitiscertainthattheprojectwillnotcausesignificantpollutionordeteriorationofthepSPA,orsignificantdisturbanceofthebirdspeciesforwhichthepSPAhasbeenproposed(eitheraloneorincombinationwithotherplansorprojects).
Alternativesolutions
26.Ifthedecision-takercannotascertainthattheproposeddevelopmentwillnotadverselyaffecttheintegrityofthesite,andthiseffect,orpossibleeffect,willnotberemovedbyconditionsorotherrestrictions,theymustnotgrantplanningpermissionexceptinthefollowingcloselydefinedcircumstances.Theymustfirstbesatisfiedthattherearenoalternativesolutions.111Iftherearealternativesolutionsthatwouldhavenoeffect,oralessereffect,onthesite’sintegrity,thenconsentcannotbegrantedinaccordancewiththeRegulations;permissionmustberefusedortheappealdismissed.Iftherearenoalternativesolutionsthatwouldhavenoeffect,oralessereffectonthesite,thenthedecision-taker
111Regulation49(1)TheConservation(NaturalHabitats&c)Regulations1994.
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canproceedtoconsiderwhetherthereareimperativereasonsofoverridingpublicinterestforgrantingpermission,asdescribedbelow.Inassessingalternativesolutionsthedecision-takershouldconsiderwhetherthereareorarelikelytobeothersuitableandavailablesites(orroutesinthecaseoflinearprojects)whicharefeasiblealternativesfortheproposeddevelopment,ordifferent,practicableapproacheswhichwouldhavealesserimpact.
27.Whatconstitutesanalternativesolution,inanyparticularcase,willdependonthecircumstances,includingthenature,scale,durationandlocationoftheproject,itsobjectivesandwhomaybeproposingit112.Thefirststepisforthedecision-takertoidentifytheproblemthattheplanorprojectisseekingtosolve,ortheobjectivesinmakingtheproposal.Fromthatstartingpoint,itshouldbepossibletoidentifyarangeofalternativewaysofachievingtheseobjectives,andthesealternativescanthenbeassessedagainsttheirlikelyimpactupontheconservationobjectivesoftheEuropeansiteorEuropeanoffshoremarinesite.Atthisstage,economicconsiderationsshouldnotconstraintheconsiderationofalternativesolutions:theassessmentshouldbemadeagainstthesite’sconservationobjectives.Thedecision-takershouldbearinmindtheadviceofCCW,especiallyinrespectoftheeffectsofalternativesolutionsthatmaybeunderconsideration.Intheirowninterestsapplicantsshoulddemonstratethattheyhavefullyconsideredalternativesolutions.
Imperativereasonsofoverridingpublicinterest
28.Ifthereisnoalternativesolution,thedecision-takermayconsiderwhetherthereareimperativereasonsofoverridingpublicinteresttojustifythegrantofpermissiondespiteapotentiallynegativeeffectonsiteintegrity.
29.WhilsttheEuropeanCourtofJusticehasruled113thattheimplementationofaprojectunderArticle6(4)(Regulation49)is,interalia,subjecttotheconditionthattheabsenceofalternativesolutionsbedemonstrated,thesequentialtestsofwhethertherearenoalternativesolutionsandwhetherthereareimperativereasonsofoverridingpublicinterestcanbecloselylinkedinsomecases.Forexample,wherearangeofalternativesmayaffectthesiteindifferentways,thedecisionastowhethertopermitaprojectmaydependonthebalancebetweentheextentoftheharmandthebenefitsoftheproject,initsdifferingalternativeforms114.TheECguidanceclearlysetsouttherequirementtodocumentthatthealternativeputforwardforapprovalistheleastdamagingforhabitats,forspecies
112SeealsoManaging Natura 2000 Sites,EuropeanCommission,April2000asamendedbyGuidance document on Article 6(4) of the ‘Habitats Directive’ 92/43/EEC Clarification of the concepts of alternative solutions, imperative reasons of overriding public interest, compensatory measures, overall coherence and opinion of the CommissionJanuary2007.
113Seeparagraph36oftheJudgementoftheECJSecondChamberinCaseC-239/04EC v Portuguese Republic.114SeeforexampletheOpinionofTheAdvocateGeneraldated27thApril2006atparagraphs44-46intheCase
C-239/04ECvPortuguese Republic.
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andfortheintegrityoftheNatura2000site,regardlessofeconomicconsiderations,andthatnootherfeasiblealternativeexiststhatwouldnotaffecttheintegrityofthesite115.
30.Differenttestsapplydependingonwhetherthesitehostsapriorityhabitattypeorspecies116.Ifthesitedoesnothostaprioritynaturalhabitattypeorspecies,ortheprojectwouldnotaffectapriorityhabitatorspeciesthatmaybepresentonthesite117,planningpermissioncanonlybegrantediftheproposeddevelopmenthastobecarriedoutforimperativereasonsofoverridingpublicinterest,includingthoseofasocialoreconomicnature118.Suchreasonswouldneedtobesufficienttooverridetheecologicalimportanceofthedesignation.
31.Ifthesitehostsapriorityhabitatorspeciesthatwouldbeaffectedbytheproposal,andthereisnoalternativesolution,theonlyconsiderationswhichcanjustifythegrantofplanningpermissionare(a)thosewhichrelatetohumanhealth,publicsafety,orbeneficialconsequencesofprimaryimportancetotheenvironmentor(b)otherimperativereasonsofoverridingpublicinteresthavingregardtotheopinionoftheEuropeanCommission119.AnycompetentauthoritywishingtoobtaintheopinionoftheEuropeanCommissioninthisrespect,mustsubmitawrittenrequesttotheWelshMinisters,inaccordancewithRegulation49(3).TheUKgovernmentmaythenseektheCommission’sopinionandtransmitittotheWelshMinisters,whowilltransmitittothelocalplanningauthority.
TherewillbefewcaseswhereitcanbejudgedthatimperativereasonsofoverridingpublicinterestwillallowadevelopmenttoproceedwhichwillhaveanadverseeffectontheintegrityofEuropeansitesorEuropeanoffshoremarinesites(oranyotherinternationallydesignatedsites).Furthermore,itwillneverbeacceptabletoproceedonsuchgroundswherethiscouldseriouslycompromisetheecologicalcharacteristicsofacSAC,orcouldcausesignificantpollutionordeteriorationofapSPA,orsignificantdisturbanceofthebirdspeciesforwhichapSPAhasbeenproposed.
32.Thisappliesequallytonewproposalsandtodevelopmentswithvalidexistingpermissions.Thejudgementwillinvolveanassessmentoftheimportanceofthedevelopmentandwhetheritissufficienttooverridethenatureconservationimportanceofthatsite.Developmentsmustpassthemoststringenttests.
115Seesection1.2page4,ECGuidance document on Article 6(4) of the ‘Habitats Directive’ 92/43/EEC Clarification of the concepts of alternative solutions, imperative reasons of overriding public interest, compensatory measures, overall coherence and opinion of the CommissionJanuary2007.
116PriorityhabitatsandspeciesareindicatedbyanasteriskinAnnexesIandIIoftheHabitatsDirective.Thecitationsayingwhythesitewasdesignatedwillshowwhetherithostsapriorityhabitatorspecies.ThereareatpresentnopriorityspeciesindicatedintheBirdsDirective,inrespectofSPAs.
117Seesection1.8.1page22EuropeanCommission,Guidance document on Article 6(4) of the ‘Habitats Directive’ 92/43/EEC Clarification of the concepts of alternative solutions, imperative reasons of overriding public interest, compensatory measures, overall coherence and opinion of the CommissionJanuary2007.
118Regulation49(1)TheConservation(NaturalHabitats&c)Regulations1994.119Regulation49(2)TheConservation(NaturalHabitats&c)Regulations1994.
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33.Inmanycases,itmaybepossibletonegotiateasustainablesolutionthatwouldremoveorreduceanapparentconflict.However,wherethelocalplanningauthorityareunabletoconcludenoadverseeffectontheintegrityofanEuropeansiteorEuropeanoffshoremarinesitebutconsidertheproposeddevelopmentshouldneverthelessgoahead,regulation49(5)oftheHabitatsRegulationsrequirestheauthoritytonotifytheAssemblyGovernment.Planningpermissionshallnotthenbegrantedforaperiodof21daysunlesstheAssemblyGovernmentnotifiestheauthorityotherwise.ThisnotificationprocedurewillenabletheAssemblyGovernmenttodecidewhethertocallintheapplicationforitsowndeterminationandwillenableittoascertainwhetherornotcompensatorymeasureshavebeensecuredasrequiredbyregulation53.[Thisprocedureshouldalsobefollowedinrelationtootherinternationallydesignatedsites.]
34.Wheretherearenoalternativesolutions,eachcasewillbejudgedonitsmeritsbutthepublicinterestshouldbebothoverridingandlong-term;thefollowingguidingprincipleswillberelevanttodecidingwhetherimperativereasonsofoverridingpublicinterestaredemonstrated:
• aneedtoaddressaseriousrisktohumanhealthorpublicsafety;
• theprovisionofaclearanddemonstrabledirectenvironmentalbenefitonanationalorinternationalscale;
or,wheretherearenopriorityhabitatsorspeciesaffected:
• theinterestsofnationalsecurityanddefence;
• avitalcontributiontostrategiceconomicdevelopmentorregeneration;
• wherefailuretoproceedwouldhaveunacceptablesocialand/oreconomicconsequences.
35.Whenconsideringcasesagainsttheseprinciples,ingeneral,projectsofnationalimportancearemostlikelytobejudgedasgivingrisetoimperativereasonsofoverridingpublicinterest.Importantregionalprojectsmightalsobesojudged.Whilstprojectsofmorelocalsignificancearenotruledout,itislesslikelythattheirpotentialbenefitswillbeconsideredtooverridetheharmtothenatureconservationvalueofthesites120.
36.InreachingdecisionswhichmayimpactonRamsarsites,itwillbenecessarytotakeintoaccountthewordingofArticle4oftheRamsarConvention,whichallowsaContractingPartytodeleteorrestricttheboundariesofsites'initsurgentnationalinterest'.AdevelopmentproposaldoesnotnecessarilyhavetobeofnationalsignificanceinitsownrighttomeettherequirementssetoutinArticle4oftheConvention.Anybenefitsarising
120SeealsoManaging Natura 2000 Sites,EuropeanCommission,April2000asamendedbyGuidance document on Article 6(4) of the ‘Habitats Directive’ 92/43/EEC Clarification of the concepts of alternative solutions, imperative reasons of overriding public interest, compensatory measures, overall coherence and opinion of the CommissionJanuary2007whichprovidessomeexamplesofprojectsinEuropeconsideredbytheECtohavebeenofoverridingpublicinterest.
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fromtheproposalmust,however,demonstrablyoutweightheharmtotheacknowledgedinternationalconservationvalueofthesite.Projectsoflimitedregionalorlocalsignificancearethusunlikelytomeetthistest.
37.Itisimportanttonotethattheoptionofprogressingongroundsofimperativereasonsofoverridingpublicinterestwillnotbeavailablewherethedevelopment,eitheraloneorincombinationwithotherplansorprojects:-
a. couldseriouslycompromisetheecologicalcharacteristicsofacSAC;or
b. couldcausesignificantpollutionordeteriorationofapSPA,orsignificantdisturbanceofthebirdspeciesforwhichapSPAhasbeenproposed.
Inthesesituations,theplanningauthorityshouldnotpermitthedevelopmentunderanycircumstances.
Compensatorymeasures
38.WheretheimportanceofthedevelopmentisjudgedtooutweightheadverseeffectupontheintegrityoftheEuropeansiteorEuropeanoffshoremarinesite,compensatorymeasuresmustbetakentoprotecttheoverallcoherenceoftheCommunity-widenetworkofSPAsandSACsknownasNatura2000121.
39.InordertoensuretheoverallcoherenceofNatura2000,thecompensatorymeasuresproposedforaprojectshouldaddress,incomparableproportions,thehabitatsandspeciesnegativelyaffectedandprovidefunctionscomparabletothosewhichhadjustifiedtheselectioncriteriaoftheoriginalsite,particularlyregardingadequategeographicaldistribution.ItwouldnotbeenoughforthecompensatorymeasuresmerelytorelatetothesamebiogeographicalregioninGreatBritain.Irrespectiveofthedistancebetweentheoriginalsiteandthecompensatorymeasures,thelattermustfulfilthesameecologicalfunctionofthesite,itsroleinthegeographicaldistributionofNatura2000sitesandthereasonsforitsinitialselection122.
40.IncaseswherethehabitattypesorspeciesaffectedinaSACarerelativelyabundant,andtheGovernmenthasdesignatedonlypartofthenationalresource,itmaybepossibleforanareaofsimilarqualityandcharactertobeidentifiedfordesignationasaSACwhichcould,atleastinpart,replacethelosstotheSACnetwork.Thiswillbecomeincreasinglydifficultwiththerarerhabitattypesandspecies;inthecasesoftherarestespecially,allsuitablesitesarealreadylikelytobedesignated.Inthesecasesthepossibilitiesforrestorationofdamagedhabitatorcreationofreplacementhabitatwillneedtobeconsidered.Thismaybecostlyandoftentechnicallydifficultorecologicallyuntried.Incertaincasesthehabitataffectedmaybeirreplaceable.Agreementtosuch
121Regulation53TheConservation(NaturalHabitats&c)Regulations1994.122Seesection1.4.2EuropeanCommission,Guidance document on Article 6(4) of the ‘Habitats Directive’ 92/43/EEC
Clarification of the concepts of alternative solutions, imperative reasons of overriding public interest, compensatory measures, overall coherence and opinion of the CommissionJanuary2007.
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aplanorprojectthatdidnotprovideforallnecessarycompensatorymeasurestosecurethecoherenceoftheNatura2000networkwouldbecontrarytotherequirementsoftheDirective.
41.Ifhabitatcreationorrestorationistobeusedasacompensatorymeasure,itmustbeexpectedthattheareaconcernedshouldbecome,withinacleartimescale,ofsufficientqualitytoensurethatthecoherenceoftheNatura2000networkisprotected.
42.Classificationofanalternative,existingareaofbirdhabitat,asaSPA,willnotnormallymeetthecompensatoryrequirementsinrespectofaSPA,becauseallofthemostsuitableterritoriesshouldbeclassifiedasSPAinanyevent.However,wherenewhabitatsarecreatedascompensatorymeasures,thenewlycreatedhabitatsshouldbeinplaceintimetoprovidefullytheecologicalfunctionsthattheyareintendedtocompensatefor.ThenewlycreatedhabitatsshouldnormallybeincludedintheSPAnetworkwithinareasonabletimescale.
43.Article4(2)oftheRamsarConventionrequiresContractingPartiesthatdeletesitesorrestrictsiteboundariesintheir“urgentnationalinterest”tocompensate,asfaraspossible,foranylossofwetlandresources.TheConventionrefers,inparticular,tocreatingadditionalnaturereservesforwaterfowlandfortheprotection,eitherinthesameareaorelsewhere,ofanadequateportionoftheoriginalhabitat.Compensatorymeasuresshouldprovide,asaminimum,nonetlosstotheoverallvalueofthenationalRamsarsiteserieseitherbywayofqualityorarea.
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ANNEX4
THEREVIEWOFOUTSTANDINGPLANNINGPERMISSIONSANDDEEMEDPLANNINGPERMISSIONSLIKELYTOAFFECTANINTERNATIONALLYDESIGNATEDNATURECONSERVATIONSITE
1.PartIV(and,inparticular,regulations50,51,55and56)oftheHabitatsRegulations1994requirethelocalplanningauthoritytoreviewextantplanningpermissionsgrantedbythemortheirpredecessorauthorities123thatarelikelytohaveasignificanteffectonasite,eitherindividuallyorincombinationwithotherplansorprojects,andtotakeanyappropriateactiontoaffirm,modifyorrevokesuchpermissions.Thepermissionswhichmustbereviewedincludeallpermissionsthatarevalidbutunderwhichdevelopmenthasnotyetcommencedandalsoallpermissionsunderwhichdevelopmenthasbeenstartedbuthasnotyetbeencompleted124.Permissionsforongoingdevelopmentincludinglandfillsandmineralextractionmustalsobereviewed.Whereappropriate,thesereviewsmaybeco-ordinatedwiththereviewsofoldmineralpermissions(ROMPs)whicharerequiredunderthePlanningandCompensationAct1991andtheEnvironmentAct1995.Someoftheseoldpermissionswillhavebeengrantedlongbeforetheclassificationand/ordesignationofthesite.Thisshouldnot,however,beusedasareasontoavoidtakingappropriateaction.Thisrequirementapplies,asamatteroflaw,inrelationtoallEuropeansitesandEuropeanoffshoremarinesites125[asdefinedinparagraph5.1.2ofthisTAN]andisappliedasamatterofpolicyinrelationtoRamsarsites,pSPAsandpSACsinWales.TheremainderofthisAnnexshouldbereadaccordingly.
2.Localplanningauthoritiesmustreviewpermissionsassoonasisreasonablypracticable,followingtheproceduressetoutbelow.Theywillnormallyhaveidentifiedanyrelevantpermissionsduringtheconsultationexerciseinpreparationforasite’sclassification.Sincetheresponsetotheconsultation,however,localplanningauthoritiesmayhavegrantedfurtherplanningpermissions,someofwhichmaybelikelytohaveasignificanteffectonthesite.However,bearinginmindthatitistheAssemblyGovernment’spolicythattheproceduresoftheHabitatsRegulationsshouldbeappliedinrespectofproposedaswellasclassifiedEuropeansitesandEuropeanoffshoremarinesites,noneofthesubsequentplanningpermissionsshouldhavethepotentialtoadverselyaffecttheintegrityofthesite.Nevertheless,anynewpermissionsthatareinplacewhenaEuropeansiteorEuropeanoffshoremarinesiteisformallyclassifiedordesignatedwillneedtobechecked
123Regulation55oftheConservation(NaturalHabitats&c)Regulations1994alsorequireslocalplanningauthoritiestoconsiderwhetheranyplanningpermissionsdeemedtobegrantedundersection90(1)oftheTownandCountryPlanningAct1990should,intheiropinion,bereviewed.PermissionsdeemedtobegrantedundertheprovisionsofthePipe-linesAct1962,theElectricityAct1989andtheTransportandWorksAct1992,orinrespectofdevelopmentauthorisedunderthoseActs,mustbereviewedinconjunctionwiththereviewoftheunderlyingauthorisation,consentororder.Anyotherpermissionsdeemedtobegrantedundersection90(1)oftheTownandCountryPlanningAct1990shouldbereferredtotheGovernmentDepartmentthatmadethedirectiondeemingpermissiontobegranted.
124Butwheredevelopmentshavebeenstarted,thereviewcanonlyassesstheeffectsofthecompletionoftheremainingpartofthedevelopment,itshouldnotaddresstheeffectsofthecompletedpartofthedevelopment.
125Theseprovisionsdonotapply,inlaw,inrelationtositeswhichareEuropeansitesbyreasonofregulation10(1)(c)oftheConservation(NaturalHabitats&c)Regulations1994orwhichareEuropeanoffshoremarinesitesbyreasonofregulation15(c)oftheOffshoreMarineConservation(NaturalHabitats&c)Regulations2007:seeregulation48(7)ofthe1994Regulations.However,theseprovisionsshouldbeapplied,asamatterofpolicy,inrelationtosuchsites.
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foralikelysignificanteffect,aloneorincombinationwithotherplansandprojects,buttheAssemblyGovernmentwouldnotexpectanytorequiremodificationorrevocationiflocalplanningauthoritieshaveactedconsistentlywithAssemblyGovernmentpolicy.
3.Thereviewwillneedtoascertainwhetherimplementationofanypermissionthatislikelytohaveasignificanteffectonthesite,andisnotdirectlyconnectedwithornecessarytoitsmanagement,mayadverselyaffectitsintegrity(seeAnnex3above).CCWwilladviseonindividualcases.Iftheintegrityofthesitewouldbeadverselyaffected,ortheeffectsontheintegrityofthesiteareuncertainbutcouldbesignificant126,andifthepermissiondoesnotfulfiltheconditionsunderwhichanewdevelopmentproposalaffectingthesitewouldbepermittedasdescribedinAnnex3above,thentheauthoritymusttakeappropriateactiontoremovethepotentialforharm,unlessthereisnolikelihoodofthedevelopmentbeingcarriedoutorcontinued127.
4.Iflocalplanningauthoritiesconsiderthatplanningobligationsrestrictingorregulatingtheuseofthelandwouldsafeguardtheintegrityofthesitetheymustinvitethoseconcernedtoenterintothem128.Insofarastheadverseeffectsarenotovercomebysuchobligations,localplanningauthoritiesmustmodifyorrevokethepermission,ormakeadiscontinuanceorder,inamannerwhichissufficienttoavoidthepotentialthreattotheintegrityofthesite129.Theyshouldalsotakesuchactionifadeveloperproceedswithdamagingdevelopmentwhilethelocalplanningauthorityisendeavouringtosecureaplanningobligation.Regulation57providesthatmodification,revocationordiscontinuanceorderstakeeffectwhentheappropriatenoticesareserved.Theymust,however,beconfirmedbytheWelshMinisters.Wherecompensationispayable,theauthoritymustreferthedeterminationoftheamounttotheLandsTribunal,unlesstheWelshMinistersindicateotherwise130.
5.UndertheRegulations,wheresuchareviewtakesplace,therelevantlocalplanningauthoritymustconsultCCW.TheAssemblyGovernmentencouragesCCWtoengageindiscussionswiththelocalplanningauthorityanddevelopersinordertoassisttheauthorityincarryingoutthereview.Thefollowingpossibilitiesmayariseasaresultofsuchconsultation:
i. Arevisedconclusionmaybereached,ontheadviceofCCW,thatthepermissionisnotlikelytohaveasignificanteffectonthesite,inwhichcasenoreviewwillbenecessary.
ii. Alegalagreementoradaptationtothemeansofworkingmightbeadoptedtoremovetheriskofanadverseeffectonsiteintegrity.
126SeeADTAuctionsLtdvSecretaryofStateEnvironment,TransportandtheRegionsandHartDistrictCouncil(2000)JPL1155atp.1171whereitwasheldthatitwasimplicitinthewordingofregulation48(5)thattheadverseeffectontheintegrityofthesitehadtobeasignificantadverseeffect([2000]EWHCAdmin305,atparagraph55).
127Regulation56(3)TheConservation(NaturalHabitats&c)Regulations1994.128ibid.Regulation56(1).129ibid.Regulation56(1).130Regulation59TheConservation(NaturalHabitats&c)Regulations1994.
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iii. Analternativelocationtothatoftheexistingpermissionmightbeagreedforwhichplanningpermissioncouldbegiven(subjecttothenormalplanningprocessesandconsiderations)whichwouldnotbedamagingtothatsiteoranyothernatureconservationsite.
iv. Permissionsmightlapsethroughtimeexpiryor,inthecaseofmineralspermissions,mayceasetohaveeffectifnoschemeofconditionsissubmittedundertheperiodicreviewprovisionsofSchedule13totheEnvironmentAct1995.MineralsplanningauthoritiesareencouragedtoexercisetheirpowersunderSchedule9totheTownandCountryPlanningAct1990tomakeordersprohibitingtheresumptionofmineralworkinginappropriatecases.
v. Thedevelopermightvoluntarilyrelinquishallorpartoftheplanningconsentinrecognitionofthevalueofthesitefornatureconservation.
vi. Iftherearenoalternativesolutionsandifthethreatofdamagetothesitecannotberemovedbyanyoftheabovemeans,inaccordancewiththeHabitatsRegulations,thepermissionmaystillbeaffirmedandimplemented131ifthereareimperativereasonsofoverridingpublicinterestfordoingso.AllcompensatorymeasuresmustbetakenwhicharenecessarytoensurethattheoverallcoherenceoftheNatura2000networkofSACsandSPAsisprotected.
vii.Iftherearenoimperativereasonsofoverridingpublicinterest(seeAnnex3above)132,thelocalplanningauthorityisobliged,undertheHabitatsRegulations,torevokeormodifythepermissiontoremovetheriskofanadverseeffectontheintegrityofthesite.Insuchcases,thelocalplanningauthoritywouldbeliabletopayanycompensationduetothedeveloper.
6.IngeneralitisnotAssemblyGovernmentpolicytoreimburselocalauthorityliabilities.However,theAssemblyGovernmentmayconsiderprovidingassistancewherecostsarehigh,providedtheAssemblyGovernmentissatisfiedthatallalternativeoptionsandpossibilitieshavebeenfullyexploredandwheretheactiontakenwasnomorethannecessarytoremovetherisktothesite133.TheAssemblywouldneedtobesatisfiedinsuchcasesthatdiscussionandnegotiationhadexploredallthepossibilitiessetoutin(i)-(v)aboveinordertominimisethecosttothepublicpurse.
7.Localplanningauthoritiesshouldnotseektoduplicatecontrolsthatarethestatutoryresponsibilityofotherbodies(includinglocalauthoritiesintheexerciseoftheirnon-planningfunctions).Regulations84A,84Band85134requirethereviewofauthorisationsgrantedbylocalauthoritiesforenvironmentalpermitsbytheEnvironmentAgencyfor
131OtherthaninrelationtocSACs.132OrifthesiteisacSACwhoseecologicalcharacteristicswouldbeseriouslycompromised.133MinisterialLetteronTAN5andrelatedpolicyissues,dated16September2009.134Regulations84Ato85TheHabitatsRegulations1994asamendedbythePollutionPreventionandControl(England
andWales)Regulations2000StatutoryInstrument2000/1973,theConservation(NaturalHabitats&c)(Amendment)RegulationsStatutoryInstrument2007/1843andtheEnvironmentalPermitting(EnglandandWales)Regulations2007StatutoryInstrument2007/3538.
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environmentalpermits,waterdischargeconsentsandwaterabstractionlicences.Ifinreviewingaplanningpermissionlocalplanningauthoritiesconsiderthatactionfallstobetakenundertheseotherregulations(84Ato85)theyshouldneverthelessexercisetheirpowersunderregulation56unlessitappearstothemthatotheractiontobetakenbythemorbyanotherauthoritywillsecurethattheprojectwillnotadverselyaffecttheintegrityofthesite.Incarryingoutreviewsandinexercisingtheirownpowerslocalplanningauthoritiesshouldensurethattheactiontobetakenistheleastoneroustothoseaffected135.Wheredifferentcompetentauthoritiesareconsideringseparatepermissionsthataloneorincombinationmayadverselyaffectasite,theyshouldensurethattheyliaisebeforedeterminingapplications.
Ramsarsites
8.ForthemajorityofRamsarsites,reviewsofconsentsinrelationtotheireffectonEuropeansitesandEuropeanoffshoremarinesitesunderPartIVoftheHabitatsRegulationswillnormallybesufficienttoensuretheRamsarinterestsareadequatelyprotected.
9.WhencarryingoutreviewsinrelationtotheeffectofconsentsonEuropeansitesandEuropeanoffshoremarinesites,localplanningauthoritiesareexpectedtoextendthescopeoftheirappropriateassessmentstoconsidertheeffectsoncoincidentoroverlappingRamsarsites.WherethelocalplanningauthorityreachestheconclusionthattherewouldbenoadverseeffectontheintegrityoftheEuropeansiteorEuropeanoffshoremarinesitefromallowingtheconsenttoproceed,buttherewouldbeanadverseeffectonintegrityoftheRamsarsite,itshouldconsiderwhethertoissueamodificationorrevocationorderusingpowersavailableundersection97oftheTown and Country Planning Act1990.
10.LocalplanningauthoritiesareexpectedtoadoptasimilarapproachwherelistedRamsarsitesarenotwithintheNatura2000networkbycarryingoutanappropriateassessmentanalogoustothatrequiredbyPartIVoftheHabitatsRegulationsandbyissuingmodificationorrevocationordersunderSection97oftheTown and Country Planning Act1990,attheearliestopportunityfollowingthelistingofaRamsarsite.WheretheintegrityofaRamsarsitewouldbeadverselyaffectedbythefullimplementationofanextantconsentandmodificationorrevocationoftheconsentiswarranted,theAssemblyGovernmentmayagainconsiderprovidingassistancetolocalauthoritieswherethecostsarehigh,providedtheAssemblyGovernmentissatisfiedthatallalternativeoptionsandpossibilitieshavebeenfullyexploredandwheretheactiontakenwasnomorethannecessarytoremovetherisktothesite136.
135ibid.Regulation51(3).136MinisterialLetteronTAN5andrelatedpolicyissues,dated16September2009.
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ANNEX5
RESTRICTIONSOFPERMITTEDDEVELOPMENTTHATMAYAFFECTANINTERNATIONALLYDESIGNATEDNATURECONSERVATIONSITE
1.Regulation60oftheHabitatsRegulationsimposesaconditiononallpermitteddevelopmentwhichisgrantedplanningpermissionbyArticle3oftheTownandCountryPlanning(GeneralPermittedDevelopment)Order(“theGDPO”)toensurethatanypermissiongrantedundertheGPDOisnotinbreachofthetermsoftheHabitatsDirective137.ThisconditionprovidesthatanydevelopmentwhichislikelysignificantlytoaffectaEuropeansiteorEuropeanoffshoremarinesite(includingcSACs),eitheraloneorincombinationwithotherplansorprojects,andwhichisnotdirectlyconnectedwithornecessarytothemanagementofthesite,mustnotbebegununlessthedeveloperhasreceivedwrittennotificationoftheapprovalofthelocalplanningauthority.Theauthoritymaygivesuchapprovalonlyifitdetermines,afterconsultingCCW,thatthedevelopmentisnotlikelytohaveasignificanteffectonanyEuropeansiteorEuropeanoffshoremarinesite,orthatinthelightoftheconclusionsofanappropriateassessment,thatthedevelopmentwouldnotadverselyaffecttheintegrityofanysuchsite138.Itshouldbeemphasisedthattheconditiondoesnotautomaticallywithdrawpermitteddevelopmentrightsforsuchdevelopments,butrequiresthemtobesubjecttoapriorapprovalprocess.ThisregulationdoesnotapplytopSPAs,pSACsandRamsarsitesasamatterofpolicy.
2.TheflowchartinFigure2explainstheprocessdevelopersshouldfollowwheretheparticulardevelopmenttheyproposewouldbenefitfromapermitteddevelopmentright.ItidentifiestheroleofthelocalplanningauthorityandCCW.
3.Itshouldbenotedthatevenifthedevelopmentisabletoproceedaspermitteddevelopmentafterpassingthroughthisprocess,theprovisionsofsection28E(obligationsofownersandoccupiersofSSSIland)andsection28H(obligationsofpublicbodiesinrelationtocarryingoutoperationslikelytodamageSSSIfeatures)oftheWildlife and Countryside Act1981stillapplyand,ifthedevelopmentinvolvesthecarryingoutofoperationswhichwerelistedintheSSSInotificationasoneswhichappeartoCCWtobelikelytodamagetheinterestfeaturesofthesite,noticemustbegiventoCCWandtheirwrittenconsentobtained,ifnecessary,beforethedevelopmentisundertaken.
4.Ifdevelopersareuncertainwhethertheirproposalislikelytohaveasignificanteffectonthesite,theyshouldseekanopinionfromCCWthroughtheappropriatelocaloffice(seeAnnex10)139.Thereisnochargeforthis.Developersshouldprovidethefollowinginformation:
137 Regulation60TheHabitatsRegulations1994andArticle3(1)TheTownandCountryPlanning(GeneralPermittedDevelopment)Order1995StatutoryInstrument1995/418.
138Regulation62TheConservation(NaturalHabitats&c)Regulations1994.139ibidRegulation61.
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a) Ashortdescriptionoftheproposeddevelopmentorworksshowing:
i. theirbroadpurpose;
ii. theirphysicalextent,includingtheareaoflandorwaterlikelytobecovered;
iii. anyresidueslikelytobeproducedandproposalsfordisposal,andanyemissionstoair,water,soil,andbynoise,vibration,heat,lightorradiation;
iv. thetimetablefortheproposeddevelopment.
b) Amap(ormaps)showingthelocationoftheproposeddevelopmentinrelationtotheboundaryoftheEuropeansite(orEuropeanoffshoremarinesite)andthepositionofallproposedbuildings,serviceaccessroutesandworks(whetherpermanentortemporary).
c) Adescriptionofpossibledirectorindirecteffects(includingdisturbance)onthewildlife,waterquality,hydrology,geologicalorlandformfeaturesofthesite.
d) Informationaboutanymeasuresthatthedeveloperproposestoincorporateintotheprojecttoprevent,reduce,ameliorateoroffsetanyland-take,residuesoremissions.
5.WhereCCWhassufficientinformationtoprovideanopinion,itwillnotifythedeveloperandthelocalplanningauthority.Iftheinformationprovidedisinadequateorincomplete,CCWwilladvisewhatadditionalinformationitneeds140.WhereCCWgivesnotification,underregulation61(3),thatitsopinionisthatthedevelopmentisnotlikelytohaveasignificanteffectonaEuropeansiteorEuropeanoffshoremarinesite,thatopinionisconclusiveforthepurposeofrelyingontheplanningpermissiongrantedbytheGDPO141.
6.ThelocalplanningauthoritywillnormallyentertheprocessatthepointwhereeitherthedeveloperorCCWdecidesthattheproposalwouldbelikelytohaveasignificanteffectonthesite.Thedeveloperappliestothelocalplanningauthorityforwrittenapprovalunderregulation62142.ThelocalplanningauthoritysendsacopyoftheapplicationtoCCWandtakesaccountofanyrepresentationsmadebythem.
7.WhereadeveloperhasnotpreviouslysoughttheopinionofCCWastothelikelihoodofthedevelopmenthavingasignificanteffectonthesite,itwillbethefirsttimethatCCWcommentsontheproposal.Where,initsrepresentations,CCWstatesthatthedevelopmentwouldnotbelikelytohaveasignificanteffectonthesite,thelocalplanningauthorityshouldsendacopyoftherepresentationstotheapplicantandthedevelopmentmayproceedwithoutthepriorwrittenapprovalofthelocalplanningauthority143.
140 ibid.Regulation61(4).141ibid.Regulation61(3).142ibid.Regulation62(1)(2)and(3).143ibidRegulation62(6).
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8.Inallothercases,however,thelocalplanningauthoritymustundertakeanappropriateassessmentoftheimplicationsoftheproposalforthesite,inviewofthesite'sconservationobjectives,takingaccountofanyrepresentationsmadebyCCW.Inthelightoftheconclusionsofthatassessment,thelocalplanningauthoritymustthendecidewhetherornottheproposalwouldadverselyaffecttheintegrityofthesite.Wherethelocalplanningauthoritycanascertainthatthedevelopment,asproposed,wouldnotadverselyaffecttheintegrityofthesitetheymustgivewrittenapprovalandthedevelopmentmayproceedaspermitteddevelopment.Iftheauthorityconcludethatitwouldhavesuchaneffect,orthattheeffectsareuncertainbutthatthedevelopmentcouldpotentiallyhaveanadverseeffectontheintegrityofthesitethelocalplanningauthorityareprohibitedfromgrantingpriorapproval.Ifthedeveloperneverthelesswishestoproceedwiththedevelopment,aplanningapplicationwillberequired.Alternatively,ifthedeveloperisaggrievedbythedecisionofthelocalplanningauthorityhemayappealagainstthedecisionnottoapprovethedevelopment144orhemayapplyforacertificateoflawfuldevelopment.
9.Regulation63(2)providesforafeetobepaidtothelocalplanningauthorityinconnectionwithapplicationsforapprovalunderregulation62.Adviceonlikelysignificanteffect,appropriateassessmentandsiteintegrityisprovidedinAnnex3above.
DevelopersshouldbearinmindthatiftheyproceedwithadevelopmentinornearaEuropeansiteorEuropeanoffshoremarinesiteontheassumptionthatitbenefitsfromapermitteddevelopmentright,withoutfirstcheckingwhetheritislikelytohaveasignificanteffectonthesite,theyruntheriskofundertakingtheprojectwithoutthebenefitofplanningpermissionandbeingliabletoenforcementproceedings.Developersshouldalsobearinmindthatthelocalplanningauthoritycannotimposeconditionsonthewrittenapprovalunderregulation62.CCWandthelocalplanningauthoritymustassesstheeffectsofthedevelopmentasproposed.Itisinthedeveloper’sowninterests,therefore,toensurethatanypossiblemeasuresthatmightremovetheriskthatthedevelopmentmighthaveanadverseeffectontheintegrityofthesite,areincorporatedintothedevelopmentasproposedandsubmittedtoCCWand/orthelocalplanningauthority.HowevernotethatappropriateassessmentwillstillbenecessaryunlesstheriskthatthedevelopmentcouldhaveasignificanteffectonaEuropeansiteorEuropeanoffshoremarinesitecanbeexcluded,onthebasisofobjectiveinformation.
144 ibid. Regulation63(3).
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PERMITTEDDEVELOPMENTRIGHTSPOTENTIALLYAFFECTINGINTERNATIONALLYDESIGNATEDNATURECONSERVATIONSITES
1. Is the developer satisfied that the proposed permitted development is directly connected with or necessary to site management for nature conservation?
2. Developer can informally consult CCW who will advise whether
proposal is directly connected with or necessary to site management
for nature conservation.
3. In the developer’s opinion, is the proposal likely to have a significant effect on the internationally important interest features of the site, alone or in
combination with other plans and projects?
5. Developer can formally apply to CCW for a determination as to whether proposal
is likely to have a significant effect on the site. CCW can require further information to be provided before making the determination.
4. Prior approval is not needed if developer’s opinion is correct and proposal meets all other permitted
development conditions and restrictions.
11. Planning authority should give written approval and permitted
development can proceed subject to compliance with
all other permitted development conditions and restrictions.
8. Prior approval is not needed if proposal meets all other
permitted development conditions and restrictions.
15. Proposal may proceed as permitted development subject to compliance
with all other permitted development conditions and restrictions.
17. Proposal may proceed as permitted development subject to compliance with the terms of the
certificate and permitted development conditions and restrictions.
16. A full planning application is necessary and the development can only proceed
if granted planning permission. The application would be processed in accordance with
the flowchart in Annex 3.
14. If the developer is aggrieved by the refusal and believes there are grounds for asserting that the development is
nevertheless lawful, an application for a certificate of lawful proposed use or development may be made under
section 192 of the Town and Country Planning Act 1990. Is a certificate of lawful use or development granted?
13. If the developer is aggrieved by the refusal and believes there are grounds for appeal,
an appeal may be made under section 78(1)(c) of the Town and Country Planning Act 1990.
Is the appeal successful?
12. Planning authority must refuse to give written approval.
No or uncertain.
10. Can the planning authority ascertain that the development will not adversely
affect the integrity of the site?
9. Planning authority assesses the implications of the effects of the proposal for the site’s
conservation objectives, must consult CCW and, if appropriate, the public.
6. Does the CCW determination conclude that the proposal will not
be likely to have a significant effect on the site?
7. Developer must apply to the planning authority for written approval
before starting or continuing with the permitted development.
UncertainNo
Uncertain
No
Yes
Yes
Yes
No
No Yes
No
Yes
Yes
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PERMITTEDDEVELOPMENTRIGHTSPOTENTIALLYAFFECTINGINTERNATIONALLYDESIGNATEDNATURECONSERVATIONSITES FIGURE2
1. Is the developer satisfied that the proposed permitted development is directly connected with or necessary to site management for nature conservation?
2. Developer can informally consult CCW who will advise whether
proposal is directly connected with or necessary to site management
for nature conservation.
3. In the developer’s opinion, is the proposal likely to have a significant effect on the internationally important interest features of the site, alone or in
combination with other plans and projects?
5. Developer can formally apply to CCW for a determination as to whether proposal
is likely to have a significant effect on the site. CCW can require further information to be provided before making the determination.
4. Prior approval is not needed if developer’s opinion is correct and proposal meets all other permitted
development conditions and restrictions.
11. Planning authority should give written approval and permitted
development can proceed subject to compliance with
all other permitted development conditions and restrictions.
8. Prior approval is not needed if proposal meets all other
permitted development conditions and restrictions.
15. Proposal may proceed as permitted development subject to compliance
with all other permitted development conditions and restrictions.
17. Proposal may proceed as permitted development subject to compliance with the terms of the
certificate and permitted development conditions and restrictions.
16. A full planning application is necessary and the development can only proceed
if granted planning permission. The application would be processed in accordance with
the flowchart in Annex 3.
14. If the developer is aggrieved by the refusal and believes there are grounds for asserting that the development is
nevertheless lawful, an application for a certificate of lawful proposed use or development may be made under
section 192 of the Town and Country Planning Act 1990. Is a certificate of lawful use or development granted?
13. If the developer is aggrieved by the refusal and believes there are grounds for appeal,
an appeal may be made under section 78(1)(c) of the Town and Country Planning Act 1990.
Is the appeal successful?
12. Planning authority must refuse to give written approval.
No or uncertain.
10. Can the planning authority ascertain that the development will not adversely
affect the integrity of the site?
9. Planning authority assesses the implications of the effects of the proposal for the site’s
conservation objectives, must consult CCW and, if appropriate, the public.
6. Does the CCW determination conclude that the proposal will not
be likely to have a significant effect on the site?
7. Developer must apply to the planning authority for written approval
before starting or continuing with the permitted development.
UncertainNo
Uncertain
No
Yes
Yes
Yes
No
No Yes
No
Yes
Yes
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ANNEX6
THEAPPRAISALOFDEVELOPMENTPLANSINWALESUNDERTHEPROVISIONSOFTHEHABITATSREGULATIONS
1. Introduction
The Application of Habitats Regulations to Development Plans
1.1PartIVA145oftheConservation(NaturalHabitats&c.)Regulations1994(“theHabitatsRegulations”)transposestherequirementsofArticle6(3)and(4)oftheHabitatsDirective(92/43/EEC)inrelationto“landuseplans”.Theseplansaredefinedinregulation85Aandincludethefollowing:
• localdevelopmentplansadoptedorapprovedunderthe2004Act146;and
• unitarydevelopmentplansadoptedorapprovedunderthe1990Act147,inaccordancewiththetransitionalarrangements148.
ForthepurposesofthisAnnex,thesearedefinedas“developmentplans”.
1.2HabitatsRegulationsAppraisal(HRA)isusedinthisAnnextodescribetheprocessbywhichtherequirementsofPartIVAoftheHabitatsRegulationsareappliedtodevelopmentplans.Theprocessconsistsofthefollowingelements:
• determiningwhetherthedevelopmentplan,aloneorincombinationwithotherplansorprojects,islikelytohaveasignificanteffectonanyEuropeansitesorEuropeanoffshoremarinesitesandifso:
- scopingthe“appropriateassessment”;
• undertakingthe”appropriateassessment”(inconsultationwithCCWand/orNaturalEngland)toidentifyanysignificanteffectsthatthedevelopmentplanmayhaveonEuropeansitesorEuropeanoffshoremarinesites,eitheraloneorincombinationwithotherplansorprojects,inviewofthosesites’conservationobjectives;
• wherethe“appropriateassessment”identifiespotentiallysignificantimpactsonaEuropeansiteorEuropeanoffshoremarinesite,identifyingwhethertherearepossiblealternativesolutionsormitigationmeasureswhich,ifadopted,willavoidorcounteractthoseadverseimpacts;
145 PartIVAisinsertedintotheConservation(NaturalHabitats,&c)Regulations1994(SI1994/2716)bytheConservation(NaturalHabitats,&c.)(Amendment)Regulations2007(SI2007/1843).
146PlanningandCompulsoryPurchaseAct2004,Part6.147TownandCountryPlanningAct1990,Part2.148Section122ofthePlanningandCompulsoryPurchaseAct2004,andArticle4ofthePlanningandCompulsory
PurchaseAct2004(CommencementNo3andConsequential,TransitionalandSavingsProvisions)(Wales)Order2005.
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• determining,inthelightofthe“appropriateassessment”,whetherthedevelopmentplanwillorwillnotadverselyaffecttheintegrityofanyEuropeansiteorEuropeanoffshoremarinesite,eitheraloneorincombinationwithotherplansorprojects;
• wherethereisapossibilitythattheplancouldhavesuchanadverseeffect,determiningwhetherthereareanyalternativesolutionstothedevelopmentplan,ortothepotentiallydamagingelementswithinthatplan,whichwouldavoidorreducesucheffectsupontheEuropeansite(s)orEuropeanoffshoremarinesite(s);and
• wheretherearenosuchalternativesolutions,determiningwhetherthereareimperativereasonsofover-ridingpublicinterestforgivingeffecttothedevelopmentplan.
1.3AmethodologyonhowHRAshouldbeappliedtodevelopmentplansisoutlinedbelow(Figure3).Itisimportanttounderstandthetermsandconceptsoftheprocessinprincipleinordertounderstandhowtoapplyittothedevelopmentplanprocess.Thisdocumentconcentratesonhowtousetheseconceptswhenassessingdevelopmentplans.
1.4HRAofdevelopmentplansisaniterativeprocess.TheeffectsofadevelopmentplanonEuropeansiteandEuropeanoffshoremarinesiteinterestsmustbeassessedateachrelevantstageofplanpreparationandtheassessmentrefinedanddevelopedastheplanprogressesthroughitspreparation.TheguidancebelowoutlinesthebasicapproachtoHRA.
1.5SustainabilityAppraisal(SA)andStrategicEnvironmentalAssessmentofplans(SEA)arealsoiterativeprocessesandmust,similarly,becarriedoutateachstageoftheplanpreparationprocess.However,HRAshouldnotbeincorporatedintotheSAorSEAprocesses.Itshouldberuninparallelwiththeseprocesses,utilisingcommonstagessuchasenvironmentalinformationgathering.IftheHRAisintegratedwithSAorSEAEnvironmentReportsbythelocalplanningauthority,theelementsformingtheHRAmustbekeptclearlydistinguishable.
1.6AlthoughreferencestoSEAprocessesareincorporatedintotheSAprocessesintheLocalDevelopmentPlan(LDP)Manual,thisAnnexreferstoSEAprocessesseparatelyinordertoclarifythemannerinwhichHRAisapplicablealsotoUnitaryDevelopmentPlans(UDPs).
1.7OneoftheprincipalrequirementsofPartIVAoftheHabitatsRegulationsisthatbeforealocalplanningauthority149adoptsadevelopmentplan,itmustconsiderthepotentialeffectsoftheplanonEuropeansitesandEuropeanoffshoremarinesites(asdefinedinparagraph5.1.2ofthisTAN),bothaloneandincombinationwithother
149 ThelocalplanningauthoritymaybeaNationalParkAuthority.
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plansorprojects.TheEuropeansite(s)orEuropeanoffshoremarinesite(s)potentiallyaffectedmaybewithinoroutsideWales.TheRegulationsapplytoalldevelopmentplans,irrespectiveofwhenthelocalplanningauthoritystartedthedevelopmentplan.TheoverallprocessofconsideringtheeffectsofadevelopmentplanonEuropeansitesandEuropeanoffshoremarinesitesisreferredtointhisguidanceasthe‘HabitatsRegulationsAppraisal’(HRA),inordertodistinguishtheoverallprocessfromthespecificstepwithinitcommonlyreferredtoasthe‘appropriateassessment’.
1.8TherequirementsofPartIVAoftheHabitatsRegulationsapply,asamatteroflaw,inrelationtoEuropeansitesandEuropeanoffshoremarinesitesasdefinedbyparagraph5.1.2above150.Asamatterofpolicy,however,theAssemblyGovernmentalsoexpectslocalplanningauthoritiestotreatallRamsarsitesandpSPAsasthoughtheywerestatutoryEuropeansites(or,asthecasemaybe,Europeanoffshoremarinesites)andtheyshouldbetreatedassuchinHRA.TheremainderofthisAnnexshouldbereadaccordingly.
1.9IfadevelopmentplanislikelytohaveasignificanteffectononeormoreEuropeansitesorEuropeanoffshoremarinesites,eitheraloneorincombinationwithotherplansorprojects,andwherethedevelopmentplanisnotdirectlyconnectedwithornecessarytothemanagementofsuchsites,itmustbesubjecttoanappropriateassessmentinaccordancewiththerequirementsofArticle6(3)oftheHabitatsDirectiveandregulation85BoftheHabitatsRegulations.
1.10AspartoftheHRA,thelocalplanningauthoritymayneedtoamendthedevelopmentplantoeliminateorreducepotentiallydamagingeffectsonEuropeansitesandEuropeanoffshoremarinesites;and/orconsideralternativesolutionsthatwouldavoidanysucheffectsor,failingthat,havealessereffectontherelevantsite(s).
1.11Iftherearenoalternativesolutionsandif,inexceptionalcircumstances,itisproposedthataplanbeadopteddespitethefactthatitmayadverselyaffecttheintegrityofaEuropeansiteorEuropeanoffshoremarinesite,theHRAwillneedtoaddressandexplaintheimperativereasonsofoverridingpublicinterest(IROPI),whichthelocalplanningauthorityconsiderstobesufficienttooutweighthepotentiallyadverseeffectsonthatsite(s).
1.12TheAssemblyGovernmentexpectsthatdevelopmentplanswillonlyproceedtoadoptiononthebasisofIROPIinthemostexceptionalcircumstances.Localplanningauthoritiesshould,ifnecessary,adapttheirplansduringthecourseoftheHRAtoensurethattheywillnotadverselyaffecttheintegrityofanyEuropeansitesorEuropeanoffshoremarinesites.IfadevelopmentplanistobeadoptedonthebasisofIROPI,itwillbenecessaryforlocalplanningauthoritiestodevelopcompensatorymeasurestoensurethattheoverallcoherenceoftheNatura2000networkofSACsandSPAsisprotected.
150 Theserequirementsdonotapply,inlaw,inrelationtositeswhichareEuropeansitesbyreasonofregulation10(1)(c)oftheHabitatsRegulationsorwhichareEuropeanoffshoremarinesitesbyreasonofregulation15(c)oftheOffshoreMarineConservation(NaturalHabitats,&c)Regulations2007:seeregulation85B(6)oftheHabitatsRegulations.However,theseprovisionsshouldbeapplied,asamatterofpolicy,inrelationtosuchsites.
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1.13Furthermore,localplanningauthoritiesshouldnotetheywillnotbeabletoproceedtoadoptiononthebasisofIROPIwheretheappropriateassessmentidentifiesthattheirdevelopmentplans(eitheraloneorincombinationwithotherplansorprojects)mayincurtheriskofseriouslycompromisingtheecologicalcharacteristicsofacSAC151.OnceacSAChasbeensubmittedtotheEuropeanCommissionunderArticle4(1)oftheHabitatsDirective,thelocalplanningauthoritymustrefrainfromadoptinganydevelopmentplanwhich(aloneorincombinationwithotherplansorprojects)couldseriouslycompromisethecSAC’secologicalcharacteristics,eveniftherearepublicinterestreasonsfordoingso,untiltheCommissionhasdecidedwhethertoselectthecSACasaSiteofCommunityImportanceundertheHabitatsDirective.
1.14LocalplanningauthoritiesshouldalsoadoptasimilarpositioninrelationtopSPAs.Article6(3)and(4)oftheHabitatsDirective(includingtheIROPIjustification)donotapplytosuchsitesuntiltheyhavebeenclassifiedasfullSPAs152.Untilthattime,localplanningauthoritiesmustavoidadoptinganydevelopmentplansthat(aloneorincombinationwithotherplansorprojects)couldcausepollutionordeteriorationofthepSPAoranydisturbanceaffectingthebirdsforwhichthepSPAhasbeenproposed,insofarasthesematterscouldbesignificantwithregardtotheobjectivesofArticle4oftheBirdsDirective.
1.15TheseconceptsandconsiderationsareexplainedfurtherinSection2below.
Timing and Relationship to Plan Making Processes
1.16Ideally,theHRAshouldbeundertakenfromtheearlieststagesofplanpreparationonwards,sothatitinfluencestheevolutionoftheplan.However,incaseswhereplanpreparationhasalreadybegun,theassessmentshouldbecarriedoutassoonaspossible.Developmentplanscannotproceedtoadoption/approvaluntiltheHRAprocesshasbeencompleted.
1.17LocalplanningauthoritiesarerequiredbystatutetoconsultthepublicaspartofSAandSEAprocedures,butpublicconsultationisadiscretionaryrequirementinrespectoftheHRA(regulation85B(3)).
1.18TheHRAshouldbeprogrammedtofitinwithexistingplan-makingprocedures,includingtheSEA,whereverpossible.Inparticular,HRAdocumentationshouldbeformalisedatboththepre-depositconsultationanddepositstagesforLDPsandwherepossiblethedepositstageforUDPs.WherealocalplanningauthoritychoosestoconsultthepublicabouttheHRAundertheHabitatsRegulationsprovisions,theconsultationshouldbeundertakenduringadevelopmentplanstatutoryconsultationperiod.However,therecordingofHRAconsultationresponsesshouldbeclearlyidentifiedandkeptdistinctfromresponsesontheplanortheSA/SEA.
151 SeethejudgmentoftheEuropeanCourtofJusticeinCaseC-244/05Bund Naturschutz in Bayern eV and others v Freistaat Bayern.
152SeethejudgmentoftheEuropeanCourtofJusticeinCaseC-374-98Commission v French Republic(knownasthe“Basses Corbieres”case).
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1.19Withintheframeworksetouthere,itisnecessary,onaplanbyplanbasis,todecidehowbesttocarryouttheHRA,whatinformationandanalysismayberequired,whatassumptionsandpredictionswillneedtobemade,etc.ThemethodandlevelofdetailoftheHRAwillaffectthetimerequiredtoundertaketheHRAandwillvaryaccordingto:
• thescaleandgeographicareaofthedevelopmentplan;
• thestageithasreached;
• thenatureofitspoliciesandproposals;
• thesitesitmayaffectandhowitmayaffectthem;
• therangeofplansandprojectswhichmayneedtobeconsideredincombinationwiththedevelopmentplan;and
• whetherornotaffectedsitesarewithinoroutsidetheplanarea.
Detail of the HRA
1.20ItisrecognisedthataHRAofaplanislikelybyitsnaturetobelessspecificanddetailedthantheassessmentofanindividualprojectwouldbe.Inmostcases,itwillnotbepossibletosubjectadevelopmentplantothesamelevelofassessmentunderregulation85Bascanbeappliedtoaspecificprojectunderregulation48oftheHabitatsRegulations.Therewillnotnormallybethesamelevelofinformationabout:
• thechangesthatmaybepredictedasaresultofimplementingapolicyorproposalinadevelopmentplan;
• whattheeffectsofthechangesmaybeonthesite(s)affected;
• howtheeffectsmaybemitigated;or
• ifnecessary,howtheeffectsmaybecompensatedfor.
1.21ThisissuewasacknowledgedintheAdvocateGeneral’sopinioninCommission v UK153.WhatisexpectedisasrigorousanHRAascanreasonablybeundertakeninthecontextofthedevelopmentplaninquestion,soastoenablethetestssetoutinArticle6(3)and(4)oftheHabitatsDirectivetobeanswered.
Complexity of the Appraisal
1.22ThecomplexityofHRAwillvaryconsiderablyacrossWales.TheremaybedevelopmentplansthathaveonlyasingleEuropeansiteorEuropeanoffshoremarinesitetoconsider;otherswillhavethepotentialtoaffectmanysuchsites,bothwithinandoutsidetheplanarea.Multiplesiteassessmentswillbeneededwheretheplantobeassessedisextensiveingeographicterms,orthedensityorcoverageofEuropeansitesishighsuchthat,ineithercase,theplancouldaffectseveralsuchsites.Multiplesiteassessmentsmayinvolveverycomplexsiteinteractionsandthelocalplanningauthority,CCWand/or
153 CaseC-6/04,Commission v United Kingdom.
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NaturalEnglandmayneedtogivespecialconsiderationtoHRAprogramming.Butwhetheramultipleorsinglesiteassessmentistobeundertaken,theessentialprocesswillbethesame.
1.23IftheEuropeansitespotentiallyaffectedarecross-border,thatis,partlyinEngland,CCWwillco-ordinateresponsesfromNaturalEngland.WhereasitethatispotentiallyaffectediswhollywithinEngland,thelocalplanningauthorityshouldcontactNaturalEnglanddirectly.
Transparency of Compliance
1.24WheneveraHRAisundertaken,itisimportantthatitisclearlydocumentedinthecorrectterms.ItishelpfultousetheterminologyofPartIVAoftheHabitatsRegulationstoshowthatthecorrecttestshavebeenapplied.WheretheHRAisincludedintheEnvironmentalReport/SustainabilityAppraisaldocuments,itshouldbeclearlysignpostedsothatitisapparentwhichpartsareintendedtobecompliantwiththeHabitatsRegulations.Inparticular,itwillneedtobeclearlystatedwhetherthedevelopmentplanwould,orwouldnot,belikelytohaveasignificanteffectonanyEuropeansitesorEuropeanoffshoremarinesites,andwhereasignificanteffectislikely,whetherithasbeenascertainedthattheplanwillnothaveanadverseeffectontheintegrityofeachEuropeansiteandEuropeanoffshoremarinesite.
1.25WherethesiteswhichmightbeaffectedarecSACsorpSPAs,therewillneedtobeaclearstatementastowhetherthedevelopmentplan(aloneorincombinationwithotherplansorprojects):
i. couldseriouslycompromisetheecologicalcharacteristicsofanycSAC,or
ii. couldcausesignificantpollutionordeteriorationofanypSPA,orsignificantdisturbanceofthebirdspeciesforwhichanypSPAhasbeenproposed.
Other Relevant Guidance
1.26PlanningAuthoritiesarereferredtothefollowingguidancedocumentsissuedbytheEuropeanCommission:
• EuropeanCommission,2000,Managing Natura 2000 Sites: the provisions of Article 6 of the ‘Habitats’ Directive 92/43/EC;
• EuropeanCommission,2001,Assessment of plans and projects significantly affecting Natura 2000 sites: Methodological guidance on the provisions of Article 6(3) and (4) of the Habitats Directive 92/43/EEC154;and
• EuropeanCommission,2007,Guidance document on Article 6(4) of the ‘Habitats Directive’ 92/43/EC.
154 AlthoughthisdocumentcontainsusefulguidanceonthecarryingoutofHRA,itpre-datestheEuropeanCourtofJustice'sjudgmentinCaseC-127/02,Landelijke Vereniging tot Behoud van deWaddenzeeandtheHighCourt'sjudgmentinTheQueenon the Application of Hart District Council v. The Secretary of State for Communities and Local Government and others[2008]EWHC1204(Admin)andshouldbereadinthelightofthosetwojudgements.
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1.27PlanningAuthoritieswillfinditusefultoalsorefertothefollowingguidancefromtheWelshAssemblyGovernment(WAG):
• WelshAssemblyGovernment,2002,Sustainability Appraisal of Unitary Development Plans in Wales: A Good Practice Guide;
• WelshAssemblyGovernment,2004,Strategic Environmental Assessment (SEA) of Unitary Development Plans - Interim Good Practice Guide (Amendment of SEA Elements of Sustainability Appraisal of Unitary Development Plans 2002);
• WelshAssemblyGovernment,etal,2005,A Practical Guide to the Strategic Environment Assessment DirectivepublishedbyOfficeoftheDeputyPrimeMinister;
• WelshAssemblyGovernment,2005,Town and Country Planning (Local Development Plan) (Wales) Regulations 2005;
• WelshAssemblyGovernment,2005,Local Development Plans Wales;
• WelshAssemblyGovernment,2006,Local Development Plans Manual;and
• PlanningInspectorateWales,2006,A Guide to the Examination of Local Development Plans.
2. TheHabitatsRegulationsAppraisal
Introduction
2.1ThissectionprovidesguidanceontheproceduresrequiredbyPartIVAoftheHabitatsRegulationsandonamethodologyforundertakingthevariousstepsintheHRAindependentoftheplanmakingprocess.Specificplan-makingstagesaresign-postedwhenrelevanttooneormoreoftheHRAstepsorprocesses.
Assessing the Likelihood of Significant Effects (Screening) (Figure 3, Boxes 1-4)
2.2(YoumayfindithelpfultotakeacopyofFigure3andplaceitatthesideofthisguidancewhilstreadingthetext.)
Acquiring information about internationally designated sites
2.3ThefirsttwostepswhenstartinganHRAofadevelopmentplanaretoidentifytheinternationallydesignatedsiteswithinandoutsidetheplanareathatmaybeaffectedbytheplanandtoacquire,examineandunderstandthecharacteristicsofthosesitesandtheirconservationobjectives.ThisshouldbedoneforallEuropeansitesintheplanareaandthosepotentiallyaffectedoutsideoftheplanboundary.EuropeansitesinEnglandaswellasWalesandEuropeanoffshoremarinesiteswillneedtobeincludedwhererelevant(Boxes1and2,Figure3),aswillRamsarsitesandpSPAs.Oncedone,thesestepsshouldnotneedtoberepeatedduringthedevelopmentplanprocessunlessnewinformationcomestolight(e.g.throughconsultation)ornewsitescomeintobeing.
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2.4Ifthereisanydoubtastowhetheraninternationallydesignatedsitemaybeaffected,aprecautionaryapproachshouldbeadoptedandthesiteshouldbeincludedintheHRA.CCWwillassistwiththisprocess:theywillidentifyrelevantsites,bothwithinandoutsidetheplanboundary,andtheywillsupplydetailsaboutthosesites,includingthesites’conservationobjectives.WhereadevelopmentplanhasthepotentialtoaffectaninternationallydesignatedsiteinEngland,NaturalEnglandshouldbeadvised.NaturalEnglandwillprovidesimilarassistanceinrelationtoanysuchsitesinEngland.
Identifying the likelihood of significant effects (Figure 3, Boxes 3-4)
2.5Todecidewhetheradevelopmentplanatanystagerequiresanappropriateassessment,itisnecessarytoapplythetwotestssetoutinregulation85B(1)oftheRegulations(Boxes3and4,Figure3):
(1)istheplanlikelytohaveasignificanteffectonaEuropeansiteorEuropeanoffshoremarinesite(eitheraloneorincombinationwithotherplansorprojects)?
(2)isitdirectlyconnectedwithornecessarytothemanagementofthesite?
2.6Theconsiderationofthelikelihoodofsignificanteffectsisaformofscreeningprocessorriskassessmentwhichshouldberepeatedifadevelopmentplanchangessignificantlyduringitsproduction.AchangetotheplanwillbesignificantifitgivesrisetoanewpossibilitythattheplancouldhaveasignificanteffectonaEuropeansiteorEuropeanoffshoremarinesite,eitheraloneorincombinationwithotherplansorprojects.Itisimportanttobearinmindthatthesensitivityandcomplexityofmanyofthesesitesissuchthatevenaminorchangetoaplan,e.g.asinglepolicycouldhavemajorrepercussionsforasite’sintegrity.
2.7TheRegulationsrequiretheplanningauthoritytoconsiderwhetherthedevelopmentplanislikelytohaveasignificanteffectonanyEuropeansiteorEuropeanoffshoremarinesite155.Indoingso,itmustadoptaprecautionaryapproach:
• Thedevelopmentplanshouldbeconsidered‘likely’tohavesuchaneffectiftheplanningauthorityisunable(onthebasisofobjectiveinformation)toexcludethepossibilitythattheplancouldhavesignificanteffectsonanyEuropeansiteorEuropeanoffshoremarinesite,eitheraloneorincombinationwithotherplansorprojects.
• Aneffectwillbe‘significant’inthiscontextifitcouldunderminethesite’sconservationobjectives.TheassessmentofthatriskmustbemadeinthelightoffactorssuchasthecharacteristicsandspecificenvironmentalconditionsoftheEuropeansiteorEuropeanoffshoremarinesiteinquestion156.
155 Thisrequirementdoesnotapply,however,inrelationtositeswhichareEuropeansitesbyreasonofregulation10(1)(c)oftheHabitatsRegulationsorwhichareEuropeanoffshoremarinesitesbyreasonofregulation15(c)oftheOffshoreMarineConservation(NaturalHabitats,&c)Regulations2007:seeregulation85B(6)oftheHabitatsRegulations.
156RefertoCaseC-127/02,paragraph49.
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2.8Theplanningauthorityshouldalsoconsider,inthesameway,whetherthedevelopmentplanislikelytohaveasignificanteffectonanyRamsarsiteorpSPA.Referenceshouldbemadetothefurtherguidanceonassessinglikelysignificanteffectsinparagraphs6-9ofAnnex3.
2.9Considerationofthelikelihoodofsignificanteffectsshouldbemulti-disciplinary.Plannerswillhelptoestimate,asfarasmayreasonablybepredictedatanyplanmakingstage,thelikelynature,magnitude,duration,locationandspatialextentofchangesresultingfromimplementationofthedevelopmentplan’spoliciesandproposals.Theareaaffectedmayextendbeyondtheboundariesoftheplanarea.Ecologistswillneedtoconsiderwhateffectsthosechangeswouldbelikelytohaveontheinterestfeaturesandconservationobjectivesoftherelevantinternationallydesignatedsites,eitherdirectlythroughsuchmechanismsaslandtakeorfragmentationofasite,orindirectlythrougheffectssuchashydrologicalchangeordisturbance.ThisprocessshouldbeundertakenincloseconsultationwithCCW(and,iftherearepotentialimpactsoninternationallydesignatedsitesinEngland,withNaturalEngland).
2.10The“candidatesite”process,recommendedintheLDPManual(paragraph6.5.1),shouldprovidesufficientinformationaboutthepotentialforparticularcandidatedevelopmentsitestoimpactoninternationallydesignatedsites.Strategicandnon-strategicdevelopmentplansiteswithinandnearsuchsites’boundariesshouldbeconsideredaspartoftheLDPHRAassoonaspossibleintheplanmakingprocess.TheresponsibilityforundertakingHRArestswithlocalplanningauthorities.UndertheLDPsystemlandowners,developersandresidentswillhaveagreateropportunitytoengageearlierinthedevelopmentplanpreparationprocessandconsequentlyalternativesitesarelikelytobeputforwardatanearlierstageinthatprocess.LocalplanningauthoritiesshouldthereforehaveadequatetimetocarryoutanHRAinrelationtoanyproposedsignificantchangestothedevelopmentplanwhichresultfromsuchrepresentations.FarfeweralternativesitesshouldbeputforwardatthedepositstageundertheLDPsystem.Wherethisoccurs,however,andwherelocalplanningauthoritiesaremindedtoincludesuchalternativesitesintheirdevelopmentplans,theywillneedtocarryoutafurtherHRAiftheinclusionofthosesiteswouldcausetheirplanstochangesignificantly.AlthoughtheresponsibilityforcarryingoutthefurtherHRAwillrestwithlocalplanningauthorities,thethirdpartieswhoarepromotingthealternativesitesatthedepositstagewillneedtoprovidesufficientinformationtoenablethelocalplanningauthoritiestocarryoutthisprocess.Otherwise,thelocalplanningauthoritieswillnotbeabletoincludethesitesintheirLDPswhentheysubmittheirplanstotheWelshMinisters.
84
APPLICATIONOFREGULATION85BOFTHEHABITATSREGULATIONSTOPLANS
1. Identify all internationally designated sites potentially. Note on Stage 11 Where cSACs and pSPAs are concerned, the plan cannot be adopted under any circumstances unless it is ascertained that:-• In relation to cSACs, it will not seriously compromise the ecological characteristics of the cSAC; • In relation to pSPAs, it will not cause signi�cant pollution or deterioration of the pSPA, or signi�cant disturbance of the bird species for which the pSPA has been proposed.
Unless this can be ascertained, the process stops: the option of going on to Figure 4 is not available.
Yes
ASSESSINGLIKELY
SIGNIFICANTEFFECTS
Section 2.2
SCOPINGSection 2.3
APPROPRIATEASSESSMENT
Section 2.4
ADDINGAVOIDANCE/MITIGATIONMEASURESSection 2.4
FORMALCONSULTATION
Section 2.5
RECORDING THEASSESSMENT
Section 2.6
2. Acquire, examine and understand conservation objectives of each interest feature of each internationally designated
site potentially a�ected.
3. Consider the policies and proposals in the development plan and the changes that they may cause that may have an e�ect on the
internationally designated sites, estimating likely magnitude, duration, location and extent of e�ects of the changes as far as they may
reasonably be predicted at this stage.
4. Acknowledging the plan is not necessary for site management, would any elements of the plan be likely to have a significant effect on any interest feature, alone or in combination with other projects
and plans, directly or indirectly?
6. Significant effects are likely, or it is uncertain whether there would be significant effects.
7. Agree scope and method of the appropriate assessment and consultation period with CCW.
8. Undertake an appropriate assessment of the implications for each a�ected site in light of its conservation objectives, using the best
information, science and technical know-how available.
9. Consider whether any possible adverse effect on integrity of any site could be avoided by changes to the plan, such as an alternative policy
or proposal whilst still achieving plan’s aims and objectives.
10. Draft a report on the appropriate assessment and consult CCW and if necessary the public.
11. Taking account of CCW and public representations, can it be ascertained that the plan will not adversely affect the integrity of any
internationally designated site? (See Note opposite)
12. No, e�ects on integrity are adverse or uncertain.
Go to Figure 4.
13. Plan may proceed to adoption without further reference to Habitats Regulations.
Obtain relevant information
from CCW
Take advicefrom CCW
as necessary
5. No signi�cant e�ects are likely to occur as a result of
implementing the plan
Consult CCW
Consult CCW
PROCEDURAL STAGE METHODOLOGICAL STEPS
85
APPLICATIONOFREGULATION85BOFTHEHABITATSREGULATIONSTOPLANS FIGURE3
1. Identify all internationally designated sites potentially. Note on Stage 11 Where cSACs and pSPAs are concerned, the plan cannot be adopted under any circumstances unless it is ascertained that:-• In relation to cSACs, it will not seriously compromise the ecological characteristics of the cSAC; • In relation to pSPAs, it will not cause signi�cant pollution or deterioration of the pSPA, or signi�cant disturbance of the bird species for which the pSPA has been proposed.
Unless this can be ascertained, the process stops: the option of going on to Figure 4 is not available.
Yes
ASSESSINGLIKELY
SIGNIFICANTEFFECTS
Section 2.2
SCOPINGSection 2.3
APPROPRIATEASSESSMENT
Section 2.4
ADDINGAVOIDANCE/MITIGATIONMEASURESSection 2.4
FORMALCONSULTATION
Section 2.5
RECORDING THEASSESSMENT
Section 2.6
2. Acquire, examine and understand conservation objectives of each interest feature of each internationally designated
site potentially a�ected.
3. Consider the policies and proposals in the development plan and the changes that they may cause that may have an e�ect on the
internationally designated sites, estimating likely magnitude, duration, location and extent of e�ects of the changes as far as they may
reasonably be predicted at this stage.
4. Acknowledging the plan is not necessary for site management, would any elements of the plan be likely to have a significant effect on any interest feature, alone or in combination with other projects
and plans, directly or indirectly?
6. Significant effects are likely, or it is uncertain whether there would be significant effects.
7. Agree scope and method of the appropriate assessment and consultation period with CCW.
8. Undertake an appropriate assessment of the implications for each a�ected site in light of its conservation objectives, using the best
information, science and technical know-how available.
9. Consider whether any possible adverse effect on integrity of any site could be avoided by changes to the plan, such as an alternative policy
or proposal whilst still achieving plan’s aims and objectives.
10. Draft a report on the appropriate assessment and consult CCW and if necessary the public.
11. Taking account of CCW and public representations, can it be ascertained that the plan will not adversely affect the integrity of any
internationally designated site? (See Note opposite)
12. No, e�ects on integrity are adverse or uncertain.
Go to Figure 4.
13. Plan may proceed to adoption without further reference to Habitats Regulations.
Obtain relevant information
from CCW
Take advicefrom CCW
as necessary
5. No signi�cant e�ects are likely to occur as a result of
implementing the plan
Consult CCW
Consult CCW
PROCEDURAL STAGE METHODOLOGICAL STEPS
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‘In combination’ effects
2.11Ifthedevelopmentplanisnotlikelytohaveasignificanteffectonitsown,theplanningauthoritymustgoontoconsiderwhetheritislikelytohavesignificanteffectsincombinationwithotherplansandprojects.Furtherguidanceonassessing'incombination'effectsiscanbefoundinparagraph12ofAnnex3above.
2.12Althoughthedevelopmentplanmaynotcontainanysitespecificdetailattheearlystagesofthedevelopmentplanprocess,thelocalplanningauthority’sconsiderationof‘incombination’effectswillneedtotakeintoaccount:
• projectswhichhavealreadybeenimplementedorcompleted;
• projectswhichhavebeengivenconsentbutwhichhavenotyetbeenimplementedorcompleted;
• projectsforwhichapplicationsforconsenthavebeenmade;and
• ongoingprojectsthataresubjecttoperiodicregulatoryreviews,suchasdischargeconsentsorwastemanagementlicences.
2.13Itmaybenecessaryforthelocalplanningauthoritytotakeintoaccountprojectsoutsideitsarea,aswellasthosewithinitsarea,whendeterminingwhethertheremaybe‘incombination’effectsoninternationallydesignatedsites.
2.14Inaddition,theconsiderationof‘incombinationeffects’willneedtotakeintoaccountanyotherplansthatcouldhaveasignificanteffectonanyrelevantinternationallydesignatedsitesifcombinedwiththedevelopmentplan.Thiswillrequireconsiderationoftheexistingconditionofthesitesandtheirspecies,thelikelyeffectsofpoliciesandproposalscontainedinexistingplansbutwhichhavenotyetbeenfullyimplemented,andthelikelyeffectsofpoliciesandproposalscontainedindraftplansthatarecurrentlybeingbroughtforwardbythelocalplanningauthorityorbyotherpublicbodies.Table1providesexamplesofthetypesofplansthatalocalplanningauthoritymayneedtotakeintoaccountwhenconsidering‘incombination’effects.FurtheradvicemaybeobtainedfromCCW(and,whererelevant,fromNaturalEngland).
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Annex6Table1:Examplesofplanswhichmayneedtobeconsidered‘incombination’withthedevelopmentplan
ThePlans Plan-makingbodies
TheWalesSpatialPlan WelshAssemblyGovernment
NearbylocaldevelopmentplansorUDPsinWales
AdjacentLPAs
Sectoralplansthathaveastronginfluenceonprojectdecisions,suchasregeneration,transportorwasteplans
WelshAssemblyGovernment,localauthoritiesetc
StrategiesthathaveastronginfluenceonprojectdecisionssuchasShorelineManagementPlans
Forexample,theEnvironmentAgencyandlocalauthorities
RegionalSpatialStrategiesinnearbyEnglishRegions
EnglishRegionalPlanningBodies
StructureandLocalPlansoremergingDevelopmentPlanDocumentsinnearbyEnglishlocalauthorities
Englishlocalplanningauthorities
Incorporating avoidance
2.15Actionstoavoidthelikelihoodofsignificanteffectsofadevelopmentplanonaninternationallydesignatedsiteshouldbeconsideredatanearlystageinplanmaking.Avoidanceorcancellationmeasuresmaybeabletoeliminatethelikelihoodofanysignificanteffectsontheinternationallydesignatedsite(s)andthusavoidtheneedforappropriateassessment.
2.16TheHRAprocessdoesnotformallyrequirethegenerationandchoiceofdevelopmentplanalternativesinthesamewayasrequiredintheSEAEnvironmentalReport.UnderHabitatsRegulations,thegenerationofplanalternativesisrequiredonlyifthelocalplanningauthorityconcludes,inthelightoftheappropriateassessment,thatthedevelopmentplanmayadverselyaffecttheintegrityofanEuropeansiteorEuropeanoffshoremarinesiteandthelocalplanningauthorityneverthelessproposestoproceedwiththedevelopmentplan(ortherelevantpolicyorproposal)underregulation85C.(Seebelow).
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2.17However,ifproposeddevelopmentplanalternativesshowadifferenceinthepresenceorleveloflikelysignificanteffectonanyinternationallydesignatedsiteorsitestowhichthisprocedureappliesasamatteroflaworpolicy,thelocalplanningauthorityshouldconsiderselectingplanalternativeswithnoorlesseffectonthesite(s)atanearlystageinplanpreparation.Ifalloftheplanalternativesindicatelikelysignificanteffectsonsuchinternationallydesignatedsites,thelocalplanningauthorityshoulddiscusstheplanwithCCWbeforescopingfortheappropriateassessmentisbegun.
2.18Themostprecautionarycourseofactionforanlocalplanningauthorityistoremovepotentiallyharmfulpoliciesandproposalsattheearlieststagesofplanpreparationortoadjustthosepoliciesandproposalssoastoensurethatdevelopmentflowingfromorcontrolledbythedevelopmentplanisnotlikelytohaveasignificanteffectonanyinternationallydesignatedsitestowhichthisprocedureapplies,eitheraloneorincombinationwithotherplansorprojects.Ifalocalplanningauthorityconsidersthatsuchactionisprematureorinappropriate,consideringallfactors,itshouldproceedwithcaution.
Whether the plan is necessary for “European site” management
2.19Thesecondtestunderregulation85B(1)iswhetherthedevelopmentplanisdirectlyconnectedwithornecessarytothemanagementofanyEuropeansiteorEuropeanoffshoremarinesite.EveniftheplanhasapolicytoprotectEuropeansitesandEuropeanoffshoremarinesites,orhassomebenefitsforthemanagementofsuchasitefornatureconservation,suchmatterswillnotbesufficienttosatisfythistest.ItisnotexpectedthatanydevelopmentplansinWaleswillmeetthistest.However,thelocalplanningauthorityshouldrecorditsconclusionsonthistestintheHRAfortransparencypurposes.
Screening decision on “likelihood of significant effect”
2.20Ifalocalplanningauthorityconsiders,aftercompletingthesestepsoftheHRA,thatthedevelopmentplanwillnotbelikelytohaveasignificanteffectonanyEuropeansiteorEuropeanoffshoremarinesite,or(asamatterofpolicy)onanyRamsarsiteorpSPA,(eitheraloneorincombinationwithotherplansorprojects),itshouldreportitsfindingstotherelevantMembersoftheplanmakingauthorityandsubmittheHRAresults/reporttotheWelshAssemblyGovernmentaspartofthestatutorydevelopmentplanconsultationprocesses.
2.21ThelocalplanningauthorityshouldconsultandreachagreementwithCCW(andNaturalEngland,whererelevant)onitsconclusion,nomatterwhatstageofdevelopmentplanpreparationhasbeenreached.IfthereisadisagreementabouttheresultsbetweenCCWorNaturalEnglandandthelocalplanningauthority,theWelshAssemblyGovernmentwillexpectthatallstepshavebeentakenbythelocalplanningauthoritytoresolvethematter.IfthelocalplanningauthoritydecidestomaintainitspositioninspiteofoppositionfromCCW(and/orNaturalEngland),thelocalplanningauthoritywillproceedtoadoptionatitsownrisk.
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2.22Ifadeterminationismadebythelocalplanningauthoritythatthedevelopmentplanisnotlikelytohavesignificanteffectsonanyinternationallydesignatedsitetowhichthisprocedureapplies,eitherasamatteroflaworofpolicy(s),itmayproceedwithoutfurtherreferencetotheHRAprocess(seeSteps4-5-13,Figure3).
Scoping for Appropriate Assessment (Figure 3, Boxes 6-7)
2.23WhereitisdeterminedthatadevelopmentplanislikelytohaveasignificanteffectononeormoreEuropeansitesorEuropeanoffshoremarinesites,eitheraloneorincombinationwithotherplansorprojects,andthattheplanisnotdirectlyconnectedwithornecessarytothemanagementofthosesites,itmustbesubjecttoan‘appropriateassessment’undertheRegulations.Anappropriateassessmentshouldalsobecarriedout,asamatterofpolicy,whereitisdeterminedthatadevelopmentplanislikelytohaveasignificanteffectonaRamsarsiteorpSPA.
2.24Selectionofthebestmethodforappropriateassessmentisajudgementthatshouldtakeaccountofgoodpractice,althoughtheoptionsmaybelimitedbytheinformationavailableandthetechnicalorscientificknow-how.ThemethodofassessmentoftheimpactshouldbediscussedandagreedwithCCWtoensureitis“appropriate”asearlyaspossible.Adraftwrittenproposalbythelocalplanningauthoritywouldhelpinformthisdiscussion.CCWwilladviseonthescopeoftheappropriateassessmentonaplanbyplan,andsitebysite,basis.
2.25WheretheHRAisbeingundertakeninparallelwiththestagesofadevelopmentplanSEA,theproposedscopingoftheappropriateassessmentcouldbedoneatSEAscopingstage.Howeverthelikelysignificanteffectsofthedevelopmentplan,andthustheneedforappropriateassessment,maynotbeapparentattheLDPSEAscopingstageduetothestrategicnatureoftheplanproposals,whichiswhytheiterativeapplicationoftheHRAprocessshouldbefollowed.
2.26Scopinganappropriateassessmentislikelytoinvolvethefollowing:
• AdoptingthemethodinthisAnnexordevisingandagreeingwithCCWanalternativeassessmentmethodology;
• Identifyinganyadditionalinformationabouttheinternationallydesignatedsitesnecessarytoundertakeappropriateassessment;
• Identifyinganyplansorprojectswhoseeffectsmayneedtobeassessedincombinationwiththedevelopmentplan’seffects;
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• Identifyinganyfurtherinformationaboutchangeslikelytooccur,bothasaresultofimplementingthedevelopmentplan’spoliciesorproposalsaloneandasaresultofitsimplementationincombinationwithotherplansorprojects,andtheeffectsthatthesechangesmayhaveontheinternationallydesignatedsites;and
• IfappropriateassessmentisbeingconductedseparatelyfromtheSEAprocess,decidingonwhethertoconsultpubliclyandifso,onanappropriateconsultationperiod,astheHabitatsRegulationsdonotspecifyatimeperiodforpublicconsultation.
2.27Additionalinformationabouttheinternationallydesignatedsitesmightinclude,forexample,informationastowhetherthesite’sfeaturesincludeanyprioritynaturalhabitattypesorpriorityspecies,whetherthesite’sfeaturesareatfavourableconservationstatus,andwhetherthereareanyimpedimentstoimprovingtheirstatus,especiallythosethatcouldbeaddressedbytheplan.
2.28Additionalinformationaboutthechangeslikelytooccurasaresultoftheimplementationoftheplan’sproposalsmightincludesuchmattersasfurtherdetailsastothepreciseboundariesofaproposedsite,theproposeddistributionornumbersofhouses,and/orthefloorspaceofproposedemploymentorretaildevelopments,etc.Itmightalsoincludeinformationaboutdrainage,waterabstraction,noise,etc.issueslikelytoresultfromtheimplementationoftheplan’sproposals.
2.29ThelocalplanningauthorityshouldalsoagreewithCCWtheperiodwhichthatbodywillbegiventorespondtotheconsultationontheappropriateassessmentcarriedoutunderregulation85B(2)whenscopingisdiscussed.NospecificperiodisprescribedbytheRegulations.
The Appropriate Assessment (Figure 3, Boxes 8-9)
2.30ThepurposeoftheAppropriateAssessmentistoensurethat,priortothedevelopmentplan’sadoption,alltheaspectsoftheplanwhichcould,bythemselvesorincombinationwithotherplansorprojects,affectanyEuropeansite(s)orEuropeanoffshoremarinesite(s)areidentifiedinthelightofthebestscientificknowledgeinthefield157,sothatajudgementcanbemadeastowhetherornotthedevelopmentplancouldhaveanadverseeffectontheintegrityofanysuchsites.TheAppropriateAssessmentalsoservesthatsamerole,asamatterofpolicy,inrelationtopotentialeffectsonRamsarsitesandpSPAs.
157 CaseC-127/02,Landelijke Vereniging tot Behoud van de Waddenzee.
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2.31Theworkalreadyundertakenbythelocalplanningauthoritytodeterminethelikelihoodofsignificanteffectsofthedevelopmentplan(seeabove)andthescopingoftheappropriateassessment(seeabove)shouldenablethesignificanteffectsofthedevelopmentplan(seeabove)andthescopingoftheappropriateassessmenttofocusonthoseaspectsofthedevelopmentplanthatarelikelytohaveasignificanteffectontheconservationobjectivesofanyoneormoreoftheinternationallydesignatedsite(s)describedabove.Anecologicalassessmentofthosepotentialeffectswillberequiredinordertodeterminewhethertheymightadverselyaffecttheintegrityofthesite(s)concerned.
2.32Attheappropriateassessmentstage,whenascertainingwhetherthedevelopmentplan’spoliciesandproposalswillhave,orcouldhave,adverseeffectsontheintegrityoftheseinternationallydesignatedsite(s),eitheraloneorincombinationwithotherplansorprojects,regardshouldbehadtoavoidance,cancellationandreduction(mitigation)measuresandwhethertherewillbeopportunitiestofurtheramendthedevelopmentplanafterconsideringtheeffectsinmoredetail.However,compensatorymeasuresshouldnotbetakenintoaccountatappropriateassessmentstageinassessingtheimpactoftheplanoninternationallydesignatedsites158.
2.33Itisessentialtoappreciatethattheappropriateassessmentembodiestheprecautionaryprinciple.Itisforalocalplanningauthoritytoascertainthatimplementationofthedevelopmentplanwillnotadverselyaffecttheintegrityofanyinternationallydesignatedsite159inorderfortheplantoproceed(subjecttosteps14-20inFigure4).Furtherguidanceontheappropriateassessmentstepsisprovidedinparagraphs14-16ofAnnex3above.
Formal Consultation on Appropriate Assessment (Figure 3, Box 10)
2.34ThelocalplanningauthoritymustconsultCCW160,andhaveregardtoitsadvice,undertheprovisionsofregulation85B(2)beforeascertainingwhethertheplancouldadverselyaffecttheintegrityofanyEuropeansitesorEuropeanoffshoremarinesites,aloneorincombinationwithotherplansorprojects.Itshouldalsofollowthesameprocessbeforeassessingtheplan’spotentialeffectsonanypSPAsorRamsarsites.ThelocalplanningauthorityshoulddiscussadraftoftheoutputfromtheappropriateassessmentwithCCWpriortotheformalconsultationrequiredbyregulation85B(2).AIterativeconsultationwithCCW,asthedevelopmentplanprogressesisthebestwaytoensurethattherequirementsofregulation85B(2)havebeenmet.
158 See,inrelationtoEuropeansitesandEuropeanoffshoremarinesites,thefollowingdocument:EuropeanCommission,2007,Guidance document on Article 6(4) of the ‘Habitats Directive’ 92/43/EEC,section1.4.
159Or,inthecaseofcSACsandpSPAsrespectively,toascertainthatthedevelopmentplan(i)willnotseriouslycompromisetheecologicalcharacteristicsofthecSAC,or(ii)willnotcausesignificantpollutionordeteriorationofthepSPA,orsignificantdisturbanceofthebirdspeciesforwhichthepSPAhasbeenproposed.
160LocalplanningauthoritieswillalsoneedtoconsultNaturalEngland,whichshouldbedonethroughCCW,beforeascertainingwhethertheirplanscouldadverselyaffecttheintegrityof“Europeansites”inEngland.
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2.35UndertheSEARegulations161,thelocalplanningauthoritymustformallyconsultCCWontheSEAdevelopmentplanscopingreportandontheEnvironmentalReport162.TheSEAscopingstagemaybeanappropriatetimetoalsoconsultCCWonthelocalplanningauthority’sHRAdeterminationastowhethertheplanislikelytohavesignificanteffectsand,whererelevant,thedraftscopeoftheappropriateassessment.However,developmentplanalternativesmaynothavebeengeneratedatSEAscopingstage.Iftheyhavenot,CCWwillbeunlikelytoconfirmthatthetestsofthelikelihoodofsignificanteffectshavebeenfinaliseduntilallalternativeshavebeenputbeforethem.Therefore,thelocalplanningauthorityshouldensurethatformalconsultationunderregulation85B(2)oftheHabitatsRegulationsisdoneatthemostappropriatestageintheirdevelopmentplanprocess.
2.36Thelocalplanningauthoritywillalsoneedtodecidewhethertoconsultthepublicforthepurposesoftheappropriateassessmentandifso,howtheconsultationshouldbecarriedout163.ItisgoodpracticetomakeinformationonHRAavailabletothepublicateachformaldevelopmentplanconsultationstage,ifpossible.Wherewidepublicconsultationisdeemedtobeunnecessary,itmaystillbeimportanttoconsultinterestedpartieswithexpertiseinnatureconservationissuesrelevanttotheappropriateassessment,suchastheRoyalSocietyfortheProtectionofBirds,theEnvironmentAgencyortheForestryCommission.
2.37HavingformallyconsultedCCWandotherstakeholdersthatmayhaveinformationorexpertisetoassisttheappropriateassessmentthelocalplanningauthoritymustascertainwhetherthedevelopmentplanwillavoidanyadverseeffectontheintegrityofanyEuropeansiteorEuropeanoffshoremarinesite(regulation85B(4)),bothaloneandincombinationwithotherplansorprojects.AsimilardeterminationshouldalsobemadeinrelationtoRamsarsitesandpSPAS164.Thelocalplanningauthorityshouldconcludethataplanwouldnotadverselyaffecttheintegrityofaninternationallydesignatedsiteonlyifithasmadecertainthatthisisthecase.Inordertobecertain,thelocalplanningauthorityshouldbesatisfiedthatnoreasonablescientificdoubtremainsastotheabsenceofsucheffects165.
2.38Ifthelocalplanningauthorityascertainsfollowingtheappropriateassessmentthatthedevelopmentplanwillnotadverselyaffecttheintegrityofanyinternationallydesignatedsite,eitheraloneorincombinationwithotherplansorprojects,itshouldreporttheseconclusionstotherelevantMembersoftheplanmakingauthority.ThelocalplanningauthorityshouldthensubmittheHRAtotheAssemblyGovernmentattherelevantformalplanconsultationstage,normallydepositstagefortheLDPandUDP.Seeabovefortherelevantprocessandbelowinrespectofdevelopmentplanchanges.
161 TheEnvironmentalAssessmentofPlansandProgrammes(Wales)Regulations2004(S.I.2004/1656).162ibid,regulations12and13.163Regulation85B(3)oftheRegulations.164Butseeparagraph2.42ofthisAnnexasregardspSPAs.165CaseC-127/02,Landelijke Vereniging tot Behoud van de Waddenzee.
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2.39IfthelocalplanningauthoritycannotascertainthatthedevelopmentplanwillnotadverselyaffecttheintegrityofanyEuropeansiteorEuropeanoffshoremarinesite(butseebelowinrespectofcSACs),eitherbecausetherewouldbeanadverseeffectorbecausetheeffectsareuncertain,theplancannotbeprogressedtoadoptionunlessregulations85Cand85EoftheHabitatsRegulationsarecompliedwith,asdescribedbelowandinFigure4166.ThisconclusionshouldalsobereportedtoMembersoftheplanmakingauthorityandadvisedtoCCWandtheAssemblyGovernmentassoonaspossible.ThesameapproachshouldalsobefollowedinrelationtoRamsarsites(butseebelowinrespectofpSPAs).
2.40ThesituationsinwhichlocalplanningauthoritiesmayprogressthedevelopmentplantoadoptionaremorerestrictedwheretheplancouldhaveaneffectoncSACsorpSPAs:
• WherethedevelopmentplancouldhaveaneffectonacSAC,thelocalplanningauthoritymayprogresstheplantoadoptiononlyifitiscertainthattheadoptionoftheplanwillnotseriouslycompromisetheecologicalcharacteristicsofthecSAC(eitheraloneorincombinationwithotherplansorprojects).
• WherethedevelopmentplancouldhaveaneffectonapSPA,thelocalplanningauthoritymayprogresstheplantoadoptiononlyifitiscertainthattheadoptionoftheplanwillnotcausesignificantpollutionordeteriorationofthepSPA,orsignificantdisturbanceofthebirdspeciesforwhichthepSPAhasbeenproposed(eitheraloneorincombinationwithotherplansorprojects).
Recording the Habitats Regulations Appraisal (Figure 3, Boxes 11-13)
2.41AsustainabilityappraisalreportorSEAEnvironmentalReportcouldincludeachapterorappendixthatsetsoutastraightforwardexplanationoftheHRA,including:
• asummaryoftheassessmentofthelikelihoodofsignificanteffects(bothaloneandincombinationwithotherplansandprojects);
• therepresentationsmadebyCCWandothers;
• ifapplicable,thefindingsoftheappropriateassessment;
• whetherithasbeenascertainedthattheplanwillnotadverselyaffecttheintegrityoftheinternationallydesignatedsites(andwillnotimpactonanycSACsorpSPAsinthemannerdescribedinparagraph2.42ofthisAnnex),eitheraloneorincombinationwithotherplansandprojects;
• anyavoidanceormitigationmeasuresreliedupontomakethatjudgement;and
• ifrelevant,asummaryofanyconsiderationsunderregulations85Cand85E(seebelow).
166 Seeparagraph1.11ofthisAnnexforauthorisationofplanadoptionthatimpactuponacSAC.
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Wherethisisdone,however,theHRAshouldbeclearlyidentifiedandshouldbekeptdistinctfromtheSA/SEA.
Development Plan Changes and HRA
2.42Theiterativeprocessesofdevelopmentplanpreparation,withitsaccompanyingSEA,shouldensurethatenvironmentaleffectsoftheplanarefullytakenintoaccountandthatanypotentiallyadverseeffectsontheintegrityofinternationallydesignatedsitesareavoidedorminimisedbythetimeadevelopmentplanismadethesubjectofaUDPInquiryorLDPExamination.However,itisimportanttobearinmindthattheHRAisadistinctprocesswithitsownrequirements.
2.43IfachangetoanLDPisdeemednecessaryattheLDPExaminationinordertomaketheLDPsoundthenitmaybenecessaryforafurtherHRAtobeconductedbythelocalplanningauthority.AfurtherHRAwillbenecessarywherethechangecouldgiverisetoapossibilitythattheplancouldhaveasignificanteffectonaninternationallydesignatedsite,eitheraloneorincombinationwithotherplansorprojects.
2.44AfurtherHRAmayalsobenecessaryifanInspectorrecommendsthataUDPbeadoptedsubjecttomodifications,andthosemodificationscouldgiverisetoapossibilitythattheplancouldhaveasignificanteffectonaninternationallydesignatedsite,eitheraloneorincombinationwithotherplansorprojects.
2.45WhereafurtherHRAisnecessaryasaresultofsuchrecommendedchangesormodifications,theplanningauthoritymustformallyconsultCCW(inaccordancewithregulation85B)beforeascertainingwhetherthedevelopmentplanwouldadverselyaffecttheintegrityofaEuropeansiteorEuropeanoffshoremarinesiteifitweretoincorporatesuchchangesormodifications,andshouldalsodo,asamatterofpolicy,beforeascertainingtheeffectsonpSPAsandRamsarsites.(Thelocalplanningauthoritymayalsoconsultthepublicifitwishes,butdoesnothavetodoso.)ThefurtherHRAshouldberecordedandreportedaspreviouslyindicatedaboveandifthefurtherHRAiscarriedoutasaresultofproposedmodificationstoaUDP,itshouldbemadeavailabletothepublicduringconsultationonthemodifications.
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Alternative Solutions and Imperative Reasons of Overriding Public Interest (Figure 4, Boxes 14-18)
Alternative Solutions
2.46IfalocalplanningauthorityisunabletoascertainthataproposeddevelopmentplanpolicyorproposalwillnotadverselyaffecttheintegrityofaEuropeansiteorEuropeanoffshoremarinesite,itmayprogresstoadoptionofthedevelopmentplanonlyinthecloselydefinedcircumstancessetoutinregulations85Cand85EoftheHabitatsRegulations.Asindicatedin1.1above,theAssemblyGovernmentexpectsthatadevelopmentplanwillonlyneedtoproceedbywayoftheselatertestsinregulations85Cand85Einthemostexceptionalcircumstances.Inmostcases,alocalplanningauthorityshouldchangethedevelopmentplanduringthecourseoftheHRAtoensurethatitwillnotadverselyaffecttheintegrityofanyEuropeansiteorEuropeanoffshoremarinesite.Thesameapproachshouldalsobefollowed,asamatterofpolicy,inrelationtoRamsarsites.
2.47Theoptionofprogressingadevelopmentplantoadoptionunderregulations85Cand85Ewillnotbeavailablewherethedevelopmentplan,eitheraloneorincombinationwithotherplansorprojects:-
i. couldseriouslycompromisetheecologicalcharacteristicsofacSAC;or
ii. couldcausesignificantpollutionordeteriorationofapSPA,orsignificantdisturbanceofthebirdspeciesforwhichapSPAhasbeenproposed.
Inthesesituations,thelocalplanningauthoritymaynotproceedtoadoptthedevelopmentplanunderanycircumstances.
2.48Inanyexceptionalcase,whereregulation85Cisappliedtoaproposeddevelopmentplan,thelocalplanningauthoritymustfirstbesatisfiedthattherearenoalternativesolutions.Ifthereareanyfeasiblealternativesolutionsthatwouldhavenoeffect,oralessereffect,onaEuropeansiteorEuropeanoffshoremarinesite’sintegrity,theproposeddevelopmentplanmustbechangedtoapplytheleastdamagingalternativeandtherebyremoveorminimisetheeffectonthesite’sintegrity.Thesameapproachshouldalsobeadopted,asamatterofpolicy,inrelationtoRamsarsites.
96
ASSESSMENTUNDERREGULATIONS85Cand85E
(Additionalprocedureswhereitcannotbeascertainedthattherewouldbenoadverseeffectontheintegrityofaninternationalsite[seeNotebelow])
14. Further review of alternative solutions: Can the damaging element(s) of the plan be deleted or modified to avoid or reduce an adverse effect on the integrity
of the European site or European offshore marine site [or Ramsar site]? Are there alternative solutions to the adoption of the plan with
potentially less damaging effects on integrity?
No
Yes
Note - The procedures set out in this Figure do not apply in relation to pSPAs and cSACs.
17. The damaging element(s) of the plan must be deleted
or modified, or the alternative solutions must be adopted
(subject to HRA), or the plan must be withdrawn
or otherwise terminated.
15. Is it a priority habitat or species that may be adversely affected by the plan?
16. Are there imperative economic, social or environmental reasons of overriding public interest why the plan should be adopted,
and are those reasons sufficient to justify the harm that may be caused to the site(s)?
18. Are there imperative reasons of overriding public interest why the plan should be adopted, relating to
human health, public safety or beneficial consequences of primary importance to the environment, or other
reasons that the plan making body consider acceptable having had due regard to the opinion of the EC, and are
those reasons sufficient to justify the harm that may be caused to the site(s)?
19. Notify the Welsh Assembly Government and wait 21 days before proceeding to adopt or approve or otherwise implement the plan.
20. Welsh Assembly Government considers whether to allow the plan to proceed and, if so, secures that any necessary compensatory measures will be delivered as part of the plan
to ensure the overall coherence of Natura 2000 is protected (or, in the case of Ramsar sites, to ensure that any loss of wetland resources is compensated for).
No
No Yes
No
Yes
Yes
97
ASSESSMENTUNDERREGULATIONS85Cand85E FIGURE4
(Additionalprocedureswhereitcannotbeascertainedthattherewouldbenoadverseeffectontheintegrityofaninternationalsite[seeNotebelow])
14. Further review of alternative solutions: Can the damaging element(s) of the plan be deleted or modified to avoid or reduce an adverse effect on the integrity
of the European site or European offshore marine site [or Ramsar site]? Are there alternative solutions to the adoption of the plan with
potentially less damaging effects on integrity?
No
Yes
Note - The procedures set out in this Figure do not apply in relation to pSPAs and cSACs.
17. The damaging element(s) of the plan must be deleted
or modified, or the alternative solutions must be adopted
(subject to HRA), or the plan must be withdrawn
or otherwise terminated.
15. Is it a priority habitat or species that may be adversely affected by the plan?
16. Are there imperative economic, social or environmental reasons of overriding public interest why the plan should be adopted,
and are those reasons sufficient to justify the harm that may be caused to the site(s)?
18. Are there imperative reasons of overriding public interest why the plan should be adopted, relating to
human health, public safety or beneficial consequences of primary importance to the environment, or other
reasons that the plan making body consider acceptable having had due regard to the opinion of the EC, and are
those reasons sufficient to justify the harm that may be caused to the site(s)?
19. Notify the Welsh Assembly Government and wait 21 days before proceeding to adopt or approve or otherwise implement the plan.
20. Welsh Assembly Government considers whether to allow the plan to proceed and, if so, secures that any necessary compensatory measures will be delivered as part of the plan
to ensure the overall coherence of Natura 2000 is protected (or, in the case of Ramsar sites, to ensure that any loss of wetland resources is compensated for).
No
No Yes
No
Yes
Yes
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2.49Whatconstitutesanalternativesolutioninanyparticularcasewilldependonthenatureoftheproposedpoliciesorthescaleorlocationofanyproposal(s)thatmaycausetheadverseeffectsonthesite.Alternativesolutionsarelikelytoincludedeletionormodificationoftheoffendingpolicies,orremovalofproposalsfromtheplan,ortherelocationorreductioninscaleofproposals.Evenifthedevelopmentplan’soverallstrategyneedstobeadjustedtoaccommodatethesechanges,thisadjustmentwouldstillbeconsideredtobeanalternativesolutiontotheadoptionoftheplaninitscurrentform(Figure4,Boxes14-18).
2.50Furtherguidanceontheconsiderationofalternativesolutions,isfoundinAnnex3,paragraphs27-28ofthisTAN.
2.51Iftherearenosuchalternativesolutions,thelocalplanningauthoritymayconsiderwhetherthereareimperativereasonsofoverridingpublicinteresttojustifytheadoptionoftheplandespiteitspotentiallynegativeeffectonEuropeansiteorEuropeanoffshoremarinesiteintegrity.DifferenttestsapplydependingonwhethertheEuropeansite(s)orEuropeanoffshoremarinesite(s)thatmaybeaffectedhostapriorityhabitattypeorspeciesthatwouldbeaffectedbytheplan167.TheEuropeanCommissionhasissuedguidancewhichstatesthatitisnotthemerepresenceofapriorityhabitatorspeciesthatisrelevanttothistestbutwhetheritcouldorwouldbeadverselyaffectedbytheplan.
2.52IftheEuropeansiteorEuropeanoffshoremarinesitedoesnothostaprioritynaturalhabitattypeorspeciesthatcouldbeaffectedbytheplan,theplanmaybeadoptedonlyifitmustbegiveneffectforimperativereasonsofoverridingpublicinterest,includingthoseofasocialoreconomicnature168.SuchreasonswouldneedtobesufficienttooutweightheadverseeffectsontheEuropeansiteorEuropeanoffshoremarinesite’sinterestfeatures.Thesameapproachshouldbeadopted,asamatterofpolicy,inrelationtotheadoptionofRamsarsites.
2.53Ifasitedoeshostapriorityhabitatorspeciesthatcouldbeaffectedbythedevelopmentplan,theoverridingpublicinterestconsiderationswhichmayjustifytheadoptionoftheplanareevennarrower.Inthesecircumstances,theimperativereasonsofoverridingpublicinterestmustrelatetohumanhealth,publicsafety,orbeneficialconsequencesofprimaryimportancetotheenvironment,orotherimperativereasonsofoverridingpublicinterest,providedtheplanningauthorityhashaddueregardtotheopinionoftheEuropeanCommissioninsatisfyingitselfthattherearesuchreasons169.
167 PriorityhabitatsandspeciesareindicatedbyanasteriskinAnnexesIandIIoftheHabitatsDirective.Thecitationsayingwhythesitewasdesignatedwillshowwhetherithostsapriorityhabitatorspecies.
168 Regulation85C(1)oftheRegulations.169Regulation85C(3)oftheRegulations.
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2.54IftheplanningauthoritydesirestoobtaintheopinionoftheEuropeanCommissionastowhetherreasonsaretobeconsideredimperativereasonsofoverridingpublicinterest,itmustsubmitawrittenrequesttotheWelshMinistersasrequiredbyregulation85C(4).TheUKgovernmentmaythenseektheCommission’sopinionandtransmitittotheWelshMinisters,whowilltransmitittothelocalplanningauthority.
2.55Therewillbefewcaseswhereitshouldbejudgedthatthereareimperativereasonsofoverridingpublicinterestwhichallowaplantoproceed,despitethefactthattheplanwillhaveanadverseeffectontheintegrityofEuropeansites,EuropeanoffshoremarinesitesorRamsarsites.Thejudgementwillinvolveanassessmentoftheimportanceoftheplan’sproposalsandwhethertheyaresufficienttooverridetheharmtothenatureconservationimportanceofthatsiteataninternationallevel.
2.56FurtherguidanceinrespectofimperativereasonsofoverridingpublicinterestisfoundinAnnex3,paragraphs28-37ofthisTANandintheEuropeanCommission’sguidancedocumentonArticle6(4)oftheHabitatsDirective92/43/EC170.
Further procedures under Regulations 85C and 85E (Figure 4 Boxes 19-20)
2.57Ifalocalplanningauthoritycontinuestopursueitsdevelopmentplanwithoutchangetoadoption,despiteanegativeoruncertainoutcomeoftheHRAonanyEuropeansiteorEuropeanoffshoremarinesite,regulation85C(8)and(9)requirestheauthoritytonotifytheWelshMinistersand,havingdoneso,nottogiveeffecttotheplanfor21daysunlesstheWelshMinistersnotifyitthatitmaydoso.
2.58Regulation85C(7)providesthatinanysuchcasetheWelshMinistersmaygivedirectionstotheplanningauthorityprohibitingthemfromadoptingthedevelopmentplan,eitherindefinitelyorfortheperiodspecifiedinthedirection.
170EuropeanCommission,2001,Guidance document on the Assessment of Plans and Projects significantly affecting Natura 2000 siteshttp://ec.europa.eu/environment/nature/natura2000/management/guidance_en.htm#art6.AlthoughthisdocumentcontainsusefulguidanceonthecarryingoutofHRA,itpre-datestheEuropeanCourtofJustice'sjudgmentinCaseC-127/02,Landelijke Vereniging tot Behoud van deWaddenzeeandtheHighCourt'sjudgmentinTheQueenon the Application of Hart District Council v. The Secretary of State for Communities and Local Government and others[2008]EWHC1204(Admin)andshouldbereadinthelightofthosetwojudgements.
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ANNEX7
KEYLEGISLATIVEPROVISIONSFORTHEPROTECTIONOFSPECIES
Introduction
1.Thebreachofprotectedspecieslegislationcanoftengiverisetoacriminaloffence.Agrantofplanningpermissiondoesnotrelieveadeveloperfromcompliancewiththeprotectedspecieslegislationandoffencesmaybecommittedduringthedevelopmentofland,evenwherethedevelopmentisinaccordancewithavalidplanningpermission.
ProtectionaffordedtospeciesundertheHabitatsRegulations
European protected species of animals
2.ThespeciesofanimalslistedinAnnexIV(a)totheHabitatsDirectivewhosenaturalrangeincludesanyareainGreatBritainarereferredtoasEuropeanprotectedspecieswithintheHabitatsRegulations171.Europeanprotectedspeciesofanimalsareidentifiedwitha'Yes'inthethirdcolumnofTable2inAnnex8below.
3.WhendealingwithcaseswhereaEuropeanprotectedspeciesofanimalmaybeaffected,alocalplanningauthorityisacompetentauthoritywithinthemeaningofRegulation6oftheHabitatsRegulations,andthereforehasastatutoryduty,underRegulation3(4)tohaveregardtotherequirementsoftheHabitatsDirectiveintheexerciseofitsfunctions.
4.Underregulation39oftheHabitatsRegulations,subjecttocertainexceptionsandintheabsenceofalicence,itisunlawfulto:
a. deliberatelycapture,injureorkill;or
b. deliberatelydisturb;or
c. deliberatelytakeordestroytheeggsof;
awildanimalofaEuropeanprotectedspecies,
orto:
d. damageordestroyabreedingsiteorrestingplaceofawildanimalofaEuropeanprotectedspecies.
Thisoffenceappliestoallstagesofthelifeoftheanimal.172
171 Regulation38oftheHabitatsRegulations1994.172Regulation39(4)TheHabitatsRegulations1994.
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5.Itisalsoanoffence,subjecttocertainexceptionsandintheabsenceofalicence,topossessorcontrol,transport,sellorexchangeorofferforsaleorexchange173anyliveordeadanimal,orpartofananimal,whichhasbeentakenfromthewildandisofanyspeciesorsubspecieslistedinAnnexIV(a)totheHabitatsDirective,oranypartof,oranythingderivedfrom,suchananimal.174
European protected species of plants
7.ThespeciesofplantslistedinAnnexIV(b)totheHabitatsDirectivewhosenaturalrangeincludesanyareainGreatBritainarereferredtoas‘Europeanprotectedspecies’withintheHabitatsRegulations175.EuropeanprotectedspeciesofplantsarethoselistedinthefirstpartofTable3inAnnex8below.
8.WhendealingwithcaseswhereaEuropeanprotectedspeciesofplantmaybeaffected,alocalplanningauthorityisacompetentauthoritywithinthemeaningofRegulation6oftheHabitatsRegulations,andthereforehasastatutoryduty,underRegulation3(4)tohaveregardtotherequirementsoftheHabitatsDirectiveintheexerciseofitsfunctions.
9.Underregulation43oftheHabitatsRegulations,subjecttocertainexceptionsandintheabsenceofalicence,itisunlawfuldeliberatelytopick,collect,uprootordestroyawildplantofaEuropeanprotectedspecies176.Itisalsoanoffence,subjecttocertainexceptionsorintheabsenceofalicence,topossess,control,transport,sell,exchange,orofferforsaleorexchange177anyliveordeadplantwhichhasbeentakenfromthewildandwhichisofaspeciesorsubspecieslistedinAnnexII(b)orAnnexIV(b)totheHabitatsDirective,oranypartof,oranythingderivedfromsuchaplant.178
10.Alloftheaboveoffencesapplytoallstagesofthebiologicalcycleoftheplantstowhichtheyapply179.
ProtectionaffordedtospeciesbytheWildlifeandCountrysideAct1981
Protection of Birds
11.PartIoftheWildlifeandCountrysideAct1981(asamended)makesitanoffence(withcertainlimitedexceptionsandintheabsenceofalicence)intentionallytokill,injureortakeanywildbird,ortodamage,takeordestroythenestofanywildbirdwhilstthatnestisbeingbuiltorinuse,ortotakeordestroyitseggs.180Consequently,evencommonbirdssuchasblackbirdsorrobins,andtheirnestsandeggsareprotected
173Regulation39(2)TheConservation(NaturalHabitats&c)Regulations1994.174Regulation39(3)TheConservation(NaturalHabitats,&c)Regulations1994.175Regulation42TheConservation(NaturalHabitats,&c)Regulations1994.176Regulation43(1)TheConservation(NaturalHabitats,&c)Regulations1994.177Regulation43(2)TheConservation(NaturalHabitats&c)Regulations1994.178S.13(2)WildlifeandCountrysideAct1981.179Regulation43(4)TheConservation(NaturalHabitats&c)Regulations1994.180S.1(1)WildlifeandCountrysideAct1981,asamended.
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inthisway.Further,theActaffordsadditionalprotectiontospecificspeciesofbirdslistedinSchedule1oftheAct.Inrespectofthesespeciesitisunlawfulintentionallyorrecklesslytodisturbsuchabirdwhilstitisnest-buildingorisin,onornearanestcontainingeggsoryoung;ortodisturbtheirdependentyoung.181Foreaglesandospreys(listedinScheduleZA1ofthe1981Act)itisalsoanoffencetotake,damageordestroythenestatanytime.(Table1ofAnnex8belowcontainsthelistofbirdspeciesinPart1ofSchedule1whichareprotectedatalltimes.)LicencestoenablesurveystobecarriedoutcanbegrantedbyCCWundersection16oftheActbutlicencescannotbeissuedtofacilitatedevelopment.
Protection of animals
12.PartIoftheWildlifeandCountrysideAct1981(asamended)affordsprotectiontowildanimalsofthespecieslistedinSchedule5,mostofwhicharenotEuropeanprotectedspecies(seeTable2,Annex8below).AlllocalauthoritiesareinformedaboutchangestotheSchedule.WithcertainexceptionsdetailedinTable2,Annex8below,andintheabsenceofalicenceorarelevantdefence,itisanoffenceinrespectofanywildanimalofaspecieslistedinSchedule5to:
i. intentionallykill,injureortakeanywildanimalofsuchalistedspecies182;
ii. intentionallyorrecklesslydamageordestroyorobstructaccesstoanystructureorplacewhichanywildanimalofalistedspeciesusesforshelterorprotection(atanytimeevenwhentheanimalisnotthere)183;
iii. intentionallyorrecklesslydisturbawildanimalofalistedspecieswhilstitisoccupyingsuchastructureorplacewhichitusesforthatpurpose184;
iv. trade185inawildanimalofalistedspecieswhetheraliveordead,oranypartofitoranythingderivedfromit,orpublishanadvertisement,orcauseanadvertisementtobepublished,whichislikelytobeunderstoodasmeaningthatapersontrades,orintendstotrade,inthisway186;
v. intentionallyorrecklesslydisturbadolphin,whaleorbaskingsharkwhereveritmaybe187;
vi. possessorcontrolaliveordeadwildanimalofalistedspecies,oranypartofitoranythingderivedfromit188.
181Section1(5)WildlifeandCountrysideAct1981,asamended.182Section9(1)WildlifeandCountrysideAct1981,asamended.183Section9(4)(a)WildlifeandCountrysideAct1981asamendedbyCountrysideandRightsofWayAct2000
Schedule12paragraph5.184ibid.S.9(4)(b).185Specificallytosell,offerorexposeforsale,possessortransportforthepurposeofsale,orpublishorcausetobe
publishedanyadvertisementlikelytobeunderstoodasconveyingthatthepersonbuysorsellsorintendstobuyorsell,S.9(5)WildlifeandCountrysideAct1981.
186Section9(5)WildlifeandCountrysideAct1981.187ibid.section9(4)(A).188ibid.section9(2).
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13.Somespeciesarecoveredbyoneormore,butnotall,oftheseprovisions,aslistedinAnnex8,Table2below.
Protection of plants
14.PartIoftheWildlife and Countryside Act1981(asamended)alsoaffordsprotectiontowildplants,mostofwhicharenotEuropeanprotectedspecies.Section13oftheWildlife and Countryside Act1981(asamended)giveslegalprotectiontocertainwildplantslistedinSchedule8,andlesserprotectiontootherwildplantsnotsolisted.AlllocalauthoritiesareinformedaboutchangestotheSchedule.Intheabsenceofalicenceorarelevantdefence,itisanoffenceto:
i. intentionallypick,uprootordestroyawildplantlistedinSchedule8;
ii. notbeinganauthorisedperson,intentionallyuprootanywildplantnotincludedinSchedule8;
iii. sell,offerorexposeforsale,orhavepossessionofortotransportforthepurposeofsale,anyliveordeadwildplant,oranypartoforanythingderivedfromawildplantlistedinSchedule8;or
iv.publish,orcausetobepublishedanyadvertisementlikelytobeunderstoodasconveyingthatapersonbuysorsells,orintendstobuyorsell,anyofthosethings.
15.WiththeexceptionoftheBluebell,allplantslistedinSchedule8arefullyprotected.TheBluebellisprotectedagainstsaleonly189.
Protection of Badgers Act 1992
16.Withcertainexceptions,orintheabsenceofalicence,itisunlawfultokill,injure,take,possessorcruellyill-treatabadger,orattempttodoso.Itisalsoanoffenceintentionallyorrecklesslytodamageabadgersettoranypartofit,ortodestroyasett,ortoobstructaccessto,oranyentranceof,abadgersett,ortocauseadogtoenterabadgersettortodisturbabadgerwhenitisoccupyingasett.CCWisresponsibleforissuinglicencesundersection10(1)(d)oftheProtection of Badgers Act1992whereitisnecessarytointerferewithabadgersettinthecourseofdevelopment,whichcanincludedemolition,building,construction,miningandengineeringoperationsandmaterialchangesofuse.
189 Section13(2)WildlifeandCountrysideAct1981,asamended.
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ANNEX8
LISTSOFSPECIESPROTECTEDBYLAW
Thislistisup-to-dateatthetimeofpublication.Aslegislationisupdatedtheselistsmaybeamended.DetailsofanyamendmentstolegislationwillbeplacedontheWelshAssemblyGovernmentWebsiteandyouareadvisedtocheckthemregularly.Anup-to-datelistbyspeciescanbefoundat:http://www.jncc.gov.uk/page-3408andanup-to-datelistbySchedulewillbeavailableinduecourse.
Table1BirdsProtectedatalltimes:Schedule1WildlifeandCountrysideAct1981asamended
Avocet Godwit,Black-tailed Redstart,Black Warbler,Cetti's
Bee-eater Goshawk Redwing Warbler,Dartford
Bittern Grebe,Black-necked Rosefinch,Scarlet Warbler,Marsh
Bittern,Little Grebe,Slavonian Ruff Warbler,Savi's
Bluethroat Greenshank Sandpiper,Green Whimbrel
Brambling Gull,Little Sandpiper,Purple Woodlark
Bunting,Cirl Gull,Mediterranean Sandpiper,Wood Wryneck
Bunting,Lapland Harriers(allspecies) Scaup
Bunting,Snow Heron,Purple Scoter,Common
Buzzard,Honey Hobby Scoter,Velvet
Chough Hoopoe Serin
Corncrake Kingfisher Shorelark
Crake,Spotted Kite,Red Shrike,Red-backed
Crossbills(allspecies) Merlin Spoonbill
Curlew,Stone Oriole,Golden Stilt,Black-winged
Divers(allspecies) Osprey Stint,Temminck's
Dotterel Owl,Barn Swan,Bewick's
Duck,Long-tailed Owl,Snowy Swan,Whooper
Eagle,Golden Peregrine Tern,Black
Eagle,White-tailed Petrel,Leach's Tern,Little
Falcon,Gyr Phalarope,Red-necked
Tern,Roseate
Fieldfare Plover,Kentish Tit,Bearded
Firecrest Plover,LittleRinged Tit,Crested
Garganey Quail,Common Treecreeper,Short-toed
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Table2ProtectedAnimals:Schedule5WildlifeandCountrysideAct1981(asamended)andSchedule2HabitatsRegulations1994(Europeanprotectedanimalspecies)
KeytoTable2EPS =EuropeanProtectedSpecieswhere‘yes’isenteredinthecolumn
thespeciesissubjecttothemorerigorousprotectionoftheHabitatsRegulations1994asamendedinadditiontoS.9(4)(b)and(c)and9(4A)and9(5)asthecasemaybe.
9(1) =S.9(1)intentionallykill,injureortakeanywildanimalofsuchalistedspecies.
9(4)(a) =S.9(4)(a)intentionallyorrecklesslydamageordestroyanystructureorplacewhichanyanimalofalistedspeciesusesforshelterorprotection(atanytimeevenwhentheanimalisnotthere).
9(4)(b)and(c) =S.9(4)(b)and(c)intentionallyorrecklesslydisturbananimalofalistedspecieswhilstitisoccupyingastructureorplacewhichitusesforshelterorprotection,orobstructaccesstoanysuchstructureorplace.
9(5) =S.9(5)sell,transportortradeinananimalofalistedspecieswhetheraliveordead,oranypartofitoranythingderivedfromit.
9(4)(A) =S.9(4)(A)intentionallyorrecklesslydisturbadolphin,whaleorbaskingsharkwhereveritmaybe.
9(2) =S.9(2)possessorcontrolaliveordeadanimalofalistedspecies,oranypartofitoranythingderivedfromit.
•* =DenotesthatonlypartialprotectionisaffordedunderSection9(1)forthisspecies.TheAdder,ViviparousLizard,Slow-wormandGrassSnake,areonlyprotectedundersection9(1)frombeingkilledorinjuredandtheAtlanticStreamCrayfishisonlyprotectedundersection9(1)frombeingtaken.
CommonName ScientificName EPS 9(1) 9(4)(a)
9(4)(b)and(c)
9(5) 9(4A) 9(2)
Adder Viperaberus •* •
AllisShad Alosaalosa • •
Anemone,Ivell’sSea
Edwardsiaivelli• • • • •
Anemone,StarletSea
Nematosellavectensis
• • • • •
Apus Triopscancriformis • • • • •
AtlanticStreamCrayfish
Austropotamobiuspallipes
•* •
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CommonName ScientificName EPS 9(1) 9(4)(a)
9(4)(b)and(c)
9(5) 9(4A) 9(2)
Bats,Horseshoe Rhinolophidaeallspecies
Yes • •
Bats,Typical Vespertilionidaeallspecies
Yes • •
Beetle Graphoderuszonatus
• • • • •
Beetle Hypebaeusflavipes • • • • •
Beetle Paracymusaeneus • • • • •
Beetle,LesserSilverWater
Hydrocharacaraboides
• • • • •
Beetle,MirePill Curimopsisnigrita •
Beetle,RainbowLeaf
Chrysolinacerealis• • • • •
Beetle,Stag Lucanuscervus •
Beetle,VioletClick Limoniscusviolaceus
• • • • •
Burbot Lotalota • • • • •
Butterflies
HeathFritillary Mellictaathalia(Melitaeaathalia)
• • • • •
LargeBlue Maculineaarion Yes • •
Swallowtail Papiliomachaon • • • • •
NorthernBrownArgus
Ariciaartaxerxes•
AdonisBlue Lysandrabellargus •
ChalkhillBlue Lysandracoridon •
Silver-studdedBlue Plebejusargus •
SmallBlue Cupidominimus •
LargeCopper Lycaenadispar • • • • •
PurpleEmperor Apaturairis •
DukeofBurgundyFritillary
Hamearislucina•
GlanvilleFritillary Melitaeacinxia •
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CommonName ScientificName EPS 9(1) 9(4)(a)
9(4)(b)and(c)
9(5) 9(4A) 9(2)
HighBrownFritillary
Argynnisadippe•
MarshFritillary Eurodryasaurinia • • • • •
Pearl-borderedFritillary
Boloriaeuphrosyne•
BlackHairstreak Strymonidiapruni •
BrownHairstreak Theclabetulae •
WhiteLetterHairstreak
Stymonidaw-album
•
LargeHeath Coenonymphatullia
•
MountainRinglet Erebiaepiphron •
ChequeredSkipper Carterocephaluspalaemon
•
LulworthSkipper Thymelicusacteon •
SilverSpottedSkipper
Hesperiacomma•
LargeTortoiseshell Nymphalispolychloros
•
WoodWhite Leptideasinapis •
Cat,Wild Felissilvestris Yes • •
Cicada,NewForest Cicadettamontana • • • • •
Cricket,Field Grylluscampestris • • • • •
Cricket,Mole Gryllotalpagryllotalpa
• • • • •
Damselfly,Southern
Coenagrionmercuriale
• • • • •
Dolphins Cetacea(allspecies) Yes • •
Dormouse Muscardinusavellanarius
Yes • •
Dragonfly,NorfolkAeshna
Aeshnaisosceles• • • • •
Frog,Common Ranatemporaria •
Frog,Pool Ranalessonae Yes
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CommonName ScientificName EPS 9(1) 9(4)(a)
9(4)(b)and(c)
9(5) 9(4A) 9(2)
Goby,Couch's Gobiuscouchii • • • • •
Goby,Giant Gobiuscobitis • • • • •
Grasshopper,Wart-biter
Decticusverrucivorus
• • • • •
HatchetShell,Northern
Thyasiragouldi• • • • •
Hydroid,Marine Clavopsellanavis • • • • •
LagoonSnail Paludinellalittorina • • • • •
LagoonSnail,DeFolin's
Caecumarmoricum• • • • •
LagoonWorm,Tentacled
Alkmariaromijni• • • • •
Leech,Medicinal Hirudomedicinalis • • • • •
Lizard,Sand Lacertaagilis Yes • •
Lizard,Viviparous Lacertavivipara •* •
Marten,Pine Martesmartes • • • • •
Mat,TremblingSea Victorellapavida • • • • •
Moth,BarberryCarpet
Pareulypeberberata
• • • • •
Moth,Black-veined Sionalineata(Idaealineata)
• • • • •
Moth,EssexEmerald
Thetidiasmaragdaria
• • • • •
Moth,FieryClearwing
Bembeciachrysidiformis
• • • • •
Moth,Fisher'sEstuarine
GortynaboreliiYes • •
Moth,NewForestBurnet
Zygaenaviciae• • • • •
Moth,ReddishBuff Acosmetiacaliginosa
• • • • •
Moth,SussexEmerald
Thalerafimbrialis• • • • •
Mussel,Fan Atrinafragilis • • •
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CommonName ScientificName EPS 9(1) 9(4)(a)
9(4)(b)and(c)
9(5) 9(4A) 9(2)
Mussel,FreshwaterPearl
Margaritiferamargaritifera
• • • • •
Newt,GreatCrested(Wartynewt)
TrituruscristatusYes • •
Newt,Palmate Triturushelveticus •
Newt,Smooth Triturusvulgaris •
Otter,Common Lutralutra Yes • •
Porpoises Cetacea(allspecies) Yes •
Sandworm,Lagoon Armandiacirrhosa • • • • •
SeaFan,Pink Eunicellaverrucosa • • •
SeaSlug,Lagoon Tenelliaadspersa • • • • •
Seahorse,Shortsnouted
Hippocampushippocampus
Seahorse,Spiny Hippocampusguttulatus
Shad,Twaite AlosaFallax •
Shark,Angel Squatinasquatina
Shark,Basking Cetorhinusmaximus
• • • • •
Shrimp,Fairy Chirocephalusdiaphanus
• • • • •
Shrimp,LagoonSand
Gammarusinsensibilis
• • • • •
Slow-worm Anguisfragilis •* •
Snail,Glutinous Myxasglutinosa • • • • •
Snail,LesserWhirlpoolRam’s-horn
AnisusvorticulusYes
Snail,Roman Helixpomatia
Snail,Sandbowl Catinellaarenaria • • • • •
Snake,Grass Natrixhelvetica •* •
Snake,Smooth Coronellaaustriaca Yes • •
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CommonName ScientificName EPS 9(1) 9(4)(a)
9(4)(b)and(c)
9(5) 9(4A) 9(2)
Spider,FenRaft Dolomedesplantarius
• • • • •
Spider,Ladybird Eresusniger • • • • •
Squirrel,Red Sciurusvulgaris • • • • •
Sturgeon Acipensersturio Yes • •
Toad,Common Bufobufo •
Toad,Natterjack Bufocalamita Yes • •
TurtleFlatback Natatordepressus • • • • •
Turtle,OliveRidley Lepidochelysolivacea
Turtles,Marine CarettacarettaCheloniamydasLepidochelyskempiiEretmochelysimbricataDermochelyscoriacea
Yes • •
Vendace Coregonusalbula • • • • •
Vole,Water Arvicolaterrestris • •
Walrus Odobenusrosmarus
• • • • •
Whale Cetacea(allspecies) Yes • •
Whitefish Coregonuslavaretus
• • • • •
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Table3PlantsProtectedbySection13(2)andSchedule8WildlifeandCountrysideAct1981asamendedandRegulation42HabitatsRegulations1994(Europeanprotectedplantspecies)asamended
Dock,Shore Rumexrupestris
Fern,Killarney Trichomanesspeciosum
Gentian,Early Gentianellaanglica
Lady's-slipper Cyprepediumcalceolus
Marshwort,Creeping Apiumrepens
Naiad,Slender Najasflexilis
Orchid,Fen Liparisloeselii
Plantain,Floating-leavedWater Luroniumnatans
Saxifrage,YellowMarsh Saxifragahirculus
PlantsProtectedbyS.13andSchedule8WildlifeandCountrysideAct1981asamended
Adder's-tongue,Least Ophioglossumlusitanicum
Alison,Small Alyssumalyssoides
Anomodon,Long-leaved Anomodonlongifolius
Beech-lichen,NewForest Enterographaelaborata
Blackwort Southbyanigrella
BluebellHyacinthoidesnon-scripta(inrespectofS.13(2)only)
Bolete,Royal Boletusregius
Broomrape,Bedstraw Orobanchecaryophyllacea
Broomrape,Oxtongue Orobancheloricata
Broomrape,Thistle Orobanchereticulata
Cabbage,Lundy Rhynchosinapiswrightii
Calamint,Wood Calaminthasylvatica
Caloplaca,Snow Caloplacanivalis
Catapyrenium,Tree Catapyreniumpsoromoides
Catchfly,Alpine Lychnisalpina
Catillaria,Laurer's Catellarialaureri
Centaury,Slender Centauriumtenuiflorum
Cinquefoil,Rock Potentillarupestris
Cladonia,Convoluted Cladoniaconvoluta
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Cladonia,UprightMountain Cladoniastricta
Clary,Meadow Salviapratensis
Club-rush,Triangular Scirpustriquetrus
Colt's-foot,Purple Homogynealpina
Cotoneaster,Wild Cotoneasterintegerrimus
Cottongrass,Slender Eriophorumgracile
Cow-wheat,Field Melampyrumarvense
Crocus,Sand Romuleacolumnae
Crystalwort,Lizard Ricciabifurca
Cudweed,Broad-leaved Filagopyramidata
Cudweed,Jersey Gnaphaliumluteoalbum
Cudweed,Red-tipped Filagolutescens
Cut-grass Leersiaoryzoides
DeptfordPink Dianthusarmeria
Diapensia Diapensialapponica
Earwort,Marsh Jamesoniellaundulifolia
Eryngo,Field Eryngiumcampestre
Feather-moss,Polar Hygrohypnumpolare
Fern,Dickie'sBladder Cystopterisdickieana
Flapwort,Norfolk Leiocolearutheana
Fleabane,Alpine Erigeronborealis
Fleabane,Small Pulicariavulgaris
Frostwort,Pointed Gymnomitrionapiculatum
Fungus,Hedgehog Hericiumerinaceum
Galingale,Brown Cyperusfuscus
Gentian,Alpine Gentiananivalis
Gentian,Dune Gentianellauliginosa
Gentian,Fringed Gentianellaciliata
Gentian,Spring Gentianaverna
Germander,Cut-leaved Teucriumbotrys
Germander,Water Teucriumscordium
Gladiolus,Wild Gladiolusillyricus
GoblinLights Catolechiawahlenbergii
Goosefoot,Stinking Chenopodiumvulvaria
Grass-poly Lythrumhyssopifolia
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Grimmia,Blunt-leaved Grimmiaunicolor
Gyalecta,Elm Gyalectaulmi
Hare's-ear,Sickle-leaved Bupleurumfalcatum
Hare's-ear,Small Bupleurumbaldense
Hawk's-beard,Stinking Crepisfoetida
Hawkweed,Northroe Hieraciumnorthroense
Hawkweed,Shetland Hieraciumzetlandicum
Hawkweed,Weak-leaved Hieraciumattenuatifolium
Heath,Blue Phyllodocecaerulea
Helleborine,Red Cephalantherarubra
Helleborine,Young's Epipactisyoungiana
Horsetail,Branched Equisetumramosissimum
Hound's-tongue,Green Cynoglossumgermanicum
Knawel,Perennial Scleranthusperennis
Knotgrass,Sea Polygonummaritimum
Lecanactis,Churchyard Lecanactishemisphaerica
Lecanora,Tarn Lecanoraarchariana
Lecidea,Copper Lecideainops
Leek,Round-headed Alliumsphaerocephalon
Lettuce,Least Lactucasaligna
Lichen,ArcticKidney Nephromaarcticum
Lichen,CiliateStrap Heterodermialeucomelos
Lichen,CoralloidRosette Heterodermiapropagulifera
Lichen,Ear-lobedDog Peltigeralepidophora
Lichen,ForkedHair Bryoriafurcellata
Lichen,GoldenHair Teloschistesflavicans
Lichen,OrangeFruitedElm Caloplacaluteoalba
Lichen,RiverJelly Collemadichotomum
Lichen,ScalyBreck Squamarinalentigera
Lichen,StaryBreck Buelliaasterella
Lily,Snowdon Lloydiaserotina
Liverwort Petallophyllumralfsi
Liverwort,Lindenberg'sLeafy Adelanthuslindenbergianus
Marsh-mallow,Rough Althaeahirsuta
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Milk-parsley,Cambridge Selinumcarvifolia
Moss Drepanocladiusvernicosus
Moss,AlpineCopper Mielichoferiamielichoferi
Moss,BalticBog Sphagnumbalticum
Moss,BlueDew Saelaniaglaucescens
Moss,Blunt-leavedBristle Orthotrichumobtusifolium
Moss,BrightGreenCave Cyclodictyonlaetevirens
Moss,CordateBeard Barbulacordata
Moss,CornishPath Ditrichumcornubicum
Moss,DerbyshireFeather Thamnobryumangustifolium
Moss,DuneThread Bryummamillatum
Moss,Flamingo Desmatodoncernuus
Moss,GlaucousBeard Barbulaglauca
Moss,GreenShield Buxbaumiaviridis
Moss,HairSilk Plagiotheciumpiliferum
Moss,Knothole Zygodonforsteri
Moss,LargeYellowFeather Scorpidiumturgescens
Moss,Millimetre Micromitriumtenerum
Moss,MultifruitedRiver Cryphaealamyana
Moss,Nowell'sLimestone Zygodongracilis
Moss,RigidApple Bartramiastricta
Moss,Round-leavedFeather Rhyncostegiumrotundifolium
Moss,Schleicher'sThread Bryumschleicheri
Moss,TriangularPygmy Acaulontriquetrum
Moss,Vaucher'sFeather Hypnumvaucheri
Mudwort,Welsh Limosellaaustralis
Naiad,Holly-leaved Najasmarina
Orache,Stalked Halimionepedunculata
Orchid,EarlySpider Ophryssphegodes
Orchid,Ghost Epipogiumaphyllum
Orchid,LaplandMarsh Dactylorhizalapponica
Orchid,LateSpider Ophrysfuciflora
Orchid,Lizard Himantoglossumhircinum
Orchid,Military Orchismilitaris
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Orchid,Monkey Orchissimia
Pannaria,Caledonia Pannariaignobilis
Parmelia,NewForest Parmeliaminarum
Parmentaria,OilStain Parmentariachilensis
Pear,Plymouth Pyruscordata
Penny-cress,Perfoliate Thlaspiperfoliatum
Pennyroyal Menthapulegium
Pertusaria,AlpineMoss Pertusariabryontha
Physcia,SouthernGrey Physciatribacioides
Pigmyweed Crassulaaquatica
Pine,Ground Ajugachamaepitys
Pink,Cheddar Dianthusgratianopolitanus
Pink,Childling Petroraghiananteuilii
Polypore,Oak Buglossoporuspulvinus
Pseudocyphellaria,Ragged Pseudocyphellarialacerata
Psora,RustyAlpine Psorarubiformis
Puffball,SandyStilt Battarraeaphalloides
Ragwort,Fen Seneciopaludosus
Ramping-fumitory,Martin's Fumariamartinii
Rampion,Spiked Phyteumaspicatum
Restharrow,Small Ononisreclinata
Rock-cress,Alpine Arabisalpina
Rock-cress,Bristol Arabisstricta
Rustworth,Western Marsupellaprofunda
Sandwort,Norwegian Arenarianorvegica
Sandwort,Teesdale Minuartiastricta
Saxifrage,Drooping Saxifragacernua
Saxifrage,Tufted Saxifragacespitosa
Solomon's-seal,Whorled Polygonatumverticillatum
Solenopsora,Serpentine Solenopsoraliparina
Sow-thistle,Alpine Cicerbitaalpina
Spearwort,Adder's-tongue Ranunculusophioglossifolius
Speedwell,Fingered Veronicatriphyllos
Speedwell,Spiked Veronicaspicata
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Spike-rush,Dwarf Eleocharisparvula
StackFleawort,South Tephroserisintegrifolia(ssp.maritima)
Star-of-Bethlehem,Early Gageabohemica
Starfruit Damasoniumalisma
Stonewort,Bearded Characanescens
Stonewort,Foxtail Lamprothamniumpapulosum
Strapwort Corrigiolalitoralis
Sulphur-tresses,Alpine Alectoriaochroleuca
Threadmoss,Long-leaved Bryumneodamense
Turpswort Geocalyxgraveolens
Violet,Fen Violapersicifolia
Viper's-grass Scorzonerahumilis
Water-plantain,RibbonLeaved Alismagramineum
Wood-sedge,Starved Carexdepauperata
Woodsia,Alpine Woodsiaalpina
Woodsia,Oblong Woodsiailvensis
Wormwood,Field Artemisiacampestris
Woundwort,Downy Stachysgermanica
Woundwort,Limestone Stachysalpina
Yellow-rattle,Greater Rhinanthusserotinus
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ANNEX9
LISTOFSPECIESANDHABITATSOFPRINCIPALIMPORTANCEFORTHECONSERVATIONOFBIOLOGICALDIVERSITYINWALES
Sections40and42oftheNaturalEnvironmentandRuralCommunitiesAct2006placeadutyontheAssemblyGovernmenttohaveregardtothepurposeofconservingbiodiversity,topublishalistoflivingorganismsandtypesofhabitatsofprincipalimportanceforthepurposeofconservingbiodiversityinWales,andtotake,andpromoteotherstotake,reasonablypracticablestepstofurthertheirconservation.ThelistofspeciesandhabitatsofprincipalimportancefortheconservationofbiologicaldiversityidentifiedbytheNationalAssemblyforWalescanbefoundatthefollowinglink:http://www.biodiversitywales.org.uk/biodiversity_in_wales-2.aspx
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ANNEX10
COUNTRYSIDECOUNCILFORWALES
TheCountrysideCouncilforWales(CCW)championstheenvironmentandlandscapesofWalesanditscoastalwatersassourcesofnaturalandculturalriches,asafoundationforsocialandeconomicactivityandasaplaceforleisureandlearningopportunities.Intermsofnatureconservation,theprincipalfunctionsofCCWare:
• Thenotificationofareasoflandwhich,intheopinionofCCW,areofspecialinterestbyreasonoftheirflora,faunaorgeologicalorphysiographicalfeatures,knownasSitesofSpecialScientificInterest(SSSI),theregulationofoperationslikelytodamagethoseinterestfeatures,andtheencouragementoftheirmanagementforconservation;
• Theimplementation,onbehalfofGovernment,ofinternationalconventionsandEuropeanDirectivesonoraffectingnatureconservationinWales,withresponsibilitiesfortheHabitatsandBirdsDirectivesandtheRamsarConvention;
• Theestablishment,declarationandmanagementofNationalNatureReserves(NNR);
• TheprovisionofadvicetoGovernmentonthedevelopmentandimplementationofpoliciesfororaffectingnatureconservation,andtheprovisionofadviceandinformationonnatureconservationtootherorganisationsandindividuals;
• Thewidespreadprovisionofadviceandsupportforeducationonconservation;
• ThecommissioningandsupportofresearchrelevanttoCCW’sroleandresponsibilities;
• Issuinglicenceswhichpermitpeopletoworkwithcertainprotectedanimalsandplants;
• ThroughtheJointNatureConservationCommittee(JNCC)toworkwithequivalentorganisationsinEngland,ScotlandandNorthernIrelandtoadviseGovernmentonUKandinternationalnatureconservationissues.
Inthetownandcountryplanningsystem,CCWisastatutoryconsulteeinrespectof:
• Localdevelopmentplans,includingtheirHabitatsRegulationsappraisalandstrategicenvironmentalassessment;
• Planningapplicationsandotherapplicationsforconsents,orproposalsbyasection28Gauthoritytocarryoutoperations,whicharelikelytoaffecttheinterestfeaturesofaSSSI;
• PlansandprojectslikelytohaveasignificanteffectonaEuropeansite(andasamatterofpolicyaRamsarSite,cSACorpSPA);
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• TheassessmentofpermitteddevelopmentlikelytohaveasignificanteffectonaEuropeansite;
• AllplansandprojectssubjecttotherequirementsofthevariousEnvironmentalImpactAssessmentRegulationsinWales;
• Proposalsinvolvingmajoraccidenthazardswhereanareaofparticularnaturalsensitivityorinterestmightbeaffected.
ProtocolsbetweenlocalplanningauthoritiesandCCWcanhelptomakethepartnershipmoreeffective.Topicscouldinclude:
• mattersonwhichtheauthoritywillconsultCCW;
• timescalesforrespondingtoconsultations;
• thecontentofCCWresponses;
• thetypeandformatofinformationprovidedbyCCW;
• regularmeetings,inputtodevelopmentplanpreparationanddiscussionsonmajorissuesandcases;
• informingCCWofplanningdecisions;and
• namedcontactsandresponsibilities
CCWcontactpoints
Headquarters:MaesyFynnonFforddPenrhosBangorGwyneddLL572DWTel.01248385500e-mail:enquiries@ccw.gov.uk
NorthWales(officesinBangor,DolgellauandMold):Tel.08451306229e-mail:northernteam@ccw.gov.uk
WestWales(officesinAberystwyth,LlandeiloandSwansea):Tel.08451306229e-mail:westernteam@ccw.gov.uk
SouthandEastWales(officesinAbergavenny,Cardiff,CardiffBay,LlandrindodWellsandNewtown):Tel.08451306229e-mail:southernteam@ccw.gov.uk
DetailsforeachoftheregionalofficesareavailableonCCW’swebsite:www.ccw.gov.uk
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ANNEX11
OTHERUSEFULCONTACTS
TheAmphibianandReptileConservationTrust-www.arc-trust.org
TheAssociationofLocalGovernmentEcologists-www.alge.org.uk
TheBatConservationTrust-www.bats.org.uk
LocalRecordCentresWales-www.lrcwales.org.uk
BritishTrustforOrnithology-www.bto.org
Buglife-TheInvertebrateConservationTrust-www.buglife.org.uk
BritishBryologicalSociety-www.britishbryologicalsociety.org.uk
BritishLichenSociety-www.thebls.org.uk
ButterflyConservation-www.butterfly-conservation.org
CountrysideCouncilforWales-www.ccw.gov.uk
TheEnvironmentAgencyWales-www.environment-agency.gov.uk
EnvironmentLink(Wales)-www.waleslink.org
FloraLocale-www.floralocale.org
TheForestryCommissionWales-www.forestry.gov.uk/wales
TheGeologicalSociety-www.geolsoc.org.uk/index.html
InstituteofEcologyandEnvironmentalManagement-www.ieem.net
TheMammalSociety-http://88.208.205.92/
TheMammalsTrust-www.ptes.org/
TheMarineConservationSociety-www.mcsuk.org
TheNationalBiodiversityNetwork-www.searchnbn.net
NationalFederationofBadgerGroups-www.badger.org.uk
NationalFederationofBiologicalRecording-www.nfbr.org.uk
TheNationalTrust-www.nationaltrust.org.uk/main
PlantlifeInternational-www.plantlife.org.uk
PondConservationTrust-www.pondconservation.org.uk
RoyalSocietyfortheProtectionofBirds-www.rspb.org.uk
WalesBiodiversityPartnership-www.biodiversitywales.org.uk
WildfowlandWetlandsTrust-www.wwt.org.uk
TheWildlifeTrusts-www.wildlifetrusts.org
TheWoodlandTrust-www.woodlandtrust.org.uk
TheWorldwideFundforNature-www.wwf.org.uk
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ANNEX12
THEBIRDSDIRECTIVE
TheCouncilofEuropeanCommunitiesDirectiveof2April1979ontheconservationofwildbirds(79/409/EEC).
THEHABITATSDIRECTIVE
TheCouncilofEuropeanCommunitiesDirectiveof21May1992ontheconservationofnaturalhabitatsandwildfaunaandflora(92/43/EEC).
THERAMSARCONVENTION
Conventiononwetlandsofinternationalimportanceespeciallyaswaterfowlhabitat(Ramsar2.2.1971:asamendedbytheProtocolof3.12.1982).
AlltheabovecanbeaccessedviatheJointNatureConservationCommittee(JNCC)website:www.jncc.gov.uk/page-1372.
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ANNEX13
GLOSSARY
Appropriateassessment-theassessmentthatisrequiredtobeundertakenbyacompetentauthorityinrespectofplansorprojectswhicharelikelytohaveasignificanteffectona“Europeansite”(seeparagraph5.1.2ofthisTAN),orasamatterofpolicyaproposed“Europeansite”orRamsarsite,undertheprovisionsofArticle6(3)oftheECDirective92/43/ECC(theHabitatsDirective)andregulations48and85BoftheConservation(NaturalHabitats&c)Regulations1994andregulation25oftheOffshoreMarineConservation(NaturalHabitats&c)Regulations2007.
Avoidancemeasures-measurestakenorproposedtobetakenthataredesignedtoavoid(eliminate)adverseeffectsofchange,suchaslocatingadevelopmentawayfromareasofecologicalinterest.
Biodiversity(orBiologicalDiversity)-isthetermappliedtothevarietyoflifeonearthandisshortforbiologicaldiversity.Itincludesallplants,animalsandmicro-organisms(speciesdiversity),theplaceswheretheylive(habitatdiversity)andthegeneticdifferencesbetweenindividualsthatdrivesadaptabilityandevolution(geneticdiversity).Itincludeshabitatsinfluencedbyhumankind.Inanutshellyoucanconsiderbiodiversitytobe“alllifeontheplanet.”
Cancellationmeasures-measurestakenorproposedtobetakenthataredesignedtocanceloutadverseeffectsofchange,shouldtheyoccur,inrespectofareasofecologicalinterest.
Compensatorymeasures/compensation-measurestakenorproposedtobetakentooffset,ormakeupfor,residualadverseeffectsresultingfromdevelopmentorotherchangeafterallavoidance,cancellationandreductionmeasureshavebeenapplied.
DesignatedSites-collectivetermforspecificsites,capableofbeingidentifiedonamap,andrecognisedfortheirnatureconservationvaluewhichisusuallydescribedinawrittencitation.ThefollowingabbreviationsareusedintheTAN:
• pSAC-PossibleSpecialAreaofConservation,i.e.fromthepointatwhichCCWhasidentifiedthesiteasapossibleSAC,throughtheconsultationstageanduntilimmediatelybeforeitissubmittedtoEurope.
• cSAC-CandidateSpecialAreaofConservation,i.e.betweenbeingsubmittedtoEuropeandthepointatwhichitisadoptedbytheEuropeanCommission.
• SCI-SiteofCommunityImportance,i.e.onceadoptedbytheEuropeanCommission(treatedasaSAC).
• SAC-SpecialAreaofConservation-oncedesignatedbytheMinister.
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• pSPA-PotentialSpecialProtectionArea,i.e.fromthepointatwhichCCWhasidentifiedthesiteasapossibleSPAuntilitisclassifiedbytheMinister.
• SPA-SpecialProtectionArea,i.e.onceclassifiedbytheMinister.
• pRamsar-Possiblewetlandofinternationalimportance,RamsarConvention,i.e.fromthepointatwhichCCWhasidentifiedthesiteasapossibleRamsaruntilitisclassifiedbytheMinister.
• Ramsar-Wetlandofinternationalimportance,RamsarConvention-onceclassifiedbytheMinister.
Ecosystem-adynamiccomplexofplant,animalandmicro-organismcommunitiesandtheirnon-livingenvironmentinteractingasafunctionalunitinecologicalterms.
Enhancement-measurestoincreasethequality,quantity,netvalueorimportanceofbiodiversityorgeologicalinterest.
Geodiversity-thevarietyofgeologicalenvironments,phenomenaandactiveprocessesthatmakelandscapes,rocks,minerals,fossils,soilsandothersuperficialdepositsalongwiththenaturalprocessesthatshapethelandscapeandtheframeworkforlifeonearth.
Geology-thephysicalfeaturesoftheEarthwhichenableustounderstanditsorigin,history,structureandcomposition,andthroughthefossilrecord,theevolutionoflife.
Greenspace-generallyusedtorefertopublicopenspacewhichisnormallyvegetatedratherthanhardsurfaced.Greenspaceoccursinanumberofforms,includingurbanparksandgardensandcountryparks,andhasvalueandpotentialforbiodiversityandgeologicalconservation.
Habitat-theplaceinwhichaparticularplantoranimallives.Oftenusedinthewidersensereferringtomajorassemblagesofplantsandanimalstogether;theplaceortypeofsitewhereanorganismorpopulationnaturallyoccurs.
HabitatsRegulations-thistermisusedintheTAN(includingitsAnnexes)torefertoTheConservation(NaturalHabitats,&c)Regulations1994.
Integrity(ofaninternationallydesignatedsite)-thecoherenceofitsecologicalstructureandfunction,acrossitswholearea,whichenablesittosustainthehabitat,complexofhabitatsand/orthelevelsofpopulationsofthespeciesforwhichitwasdesignated(SAC),classified(SPA)orlisted(Ramsarsite).
Internationallydesignatedsites-wherethistermisusedintheTAN(anditsAnnexes)itincludesEuropeanSites,EuropeanOffshoreMarineSitesand(asamatterofAssemblyGovernmentpolicy)pSPAs,pSACsandRamsarsites.
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Mitigation-measurestakentoavoid,cancelorreducenegativeimpacts(see‘avoidance’,‘cancellation’and‘reduction’measuresaboveandbelow).
Natureconservation-thepreservation,protection,wiseuse,sustainablemanagement,restorationandenhancementofflora,faunaandgeologicalandphysiographicalfeatures.
Precautionaryprinciple-theapplicationoftheprecautionaryprinciplerequiresthetakingofcost-effectivemeasurestopreventathreatofseriousorirreversibleenvironmentaldamage,eventhoughthereislackoffullscientificcertaintyaboutthedegreeofharmorprobabilityofrisk.InthecontextoftheHabitatsDirective,itmeansensuringthattheeffectsofaplanorprojectarefullyassessed,ifthereisdoubtabouttheirsignificance,andnotundertakingorpermittingaplanorprojectunlessitcanbeascertainedthattherewouldbenoadverseeffectsontheintegrityofthesite,unlesstherearenoalternativesolutionsandthereareimperativereasonsofoverridingpublicinterestforproceedingwiththeplanorproject.
Reductionmeasures-Measurestakenorproposedtobetakenthataredesignedtominimiseorotherwisereduceadverseeffectsofchangethatcannotbeeliminatedbyavoidancemeasuresinrespectofareasofecologicalinterest,suchaslimitingthetiming,scaleordurationofaprojectoritsemissionsorconsumptionrates
Restoration-there-establishmentofadamagedordegradedsystemorhabitattoacloseapproximationofitspre-degradedcondition.
Scoping-theprocessofidentifyingwhatshouldbeincludedinastrategicenvironmentalassessment,anenvironmentalimpactassessment,anappropriateassessmentoraHabitatsRegulationsAppraisal.
Screening-theprocessofidentifyingwhetheraproject,planorprogrammeshouldbesubjecttostrategicenvironmentalassessment,environmentalimpactassessment,appropriateassessmentoraHabitatsRegulationsAppraisal.
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